Today, the Honourable David McGuinty, Minister of National Defence, released the sixth and final biannual status report of the External Monitor, Madame Jocelyne Therrien.
The report provides an external, independent assessment of the Department of Defence (DND) and the Canadian Armed Forces (CAF) progress in implementing the recommendations made by former Supreme Court Justice Louise Arbour in the Independent External Comprehensive Review (IECR), released in May 2022. Madame Therrien's observations are based on her direct discussions with Defence Team officials and review of relevant documents, policies and processes.
In this report, Madame Therrien notes that "DND/CAF has made significant inroads since the fall of 2022. Madame Therrien reports that "[t]he majority of the IECR recommendations have substantively been actioned", while acknowledging that "[s]ome will require concerted, sustained effort over several years."
Building on observations in her previous reports, she provides final comments on the status of each of the IECR recommendations, outlining the progress and what remains to be done to meet the intent of the IECR recommendations. She also highlights some of the milestones reached that she feels can have an enduring impact, specifically:
- The introduction of a probationary period: for providing those responsible for dealing with conduct issues the ability to act accordingly and dismiss recruits in an expeditious manner;
- The repeal of regulations related to the Duty to Report: for its shift in mindset, clearly confirming the primacy of the affected person's needs over those of the organization;
- Access to legal assistance, at no cost to individuals who have experienced sexual misconduct within a DND/CAF context: for its potential to support affected individuals in seeking justice and redress; and
- The more systematic collection and documentation of past transgressions regarding unprofessional conduct in support of promoting only those individuals with the right moral and ethical character.
In addition to her comments on progress, Madame Therrien provides a summary of structural issues that continue to present challenges to the organization and could affect its culture change efforts. For example, she notes several problematic issues with the CAF policy framework and data collection.
Of the 48 IERC recommendations, 36 have been deemed addressed by the Defence Team, and all recommendations will be nearly complete by the end of December 2025.
In her final report, Madame Therrien underlines the dedication of leadership to make the CAF a more inclusive and professional work environment free from sexual misconduct and the contributions of the many change makers in the organization, while emphasizing that this is a "never-ending mission" and the importance of keeping up the momentum.
"In the last three years, I have seen a lot of dedicated effort to meet the intent of the recommendations. In many cases, the required changes have taken place. In others, while there has been explicit action,... other follow-on activities are required. In many instances, we will not know for years to come if the operationalization of the recommendations will result in the anticipated positive change."
In a statement, Minister McGuinty welcomed this report and thanked the External Monitor for her independent and external perspective. Minister McGuinty provided an update on progress made to date and measures the Government is taking to implement the remainder of Madame Arbour's recommendations, and other key external report recommendations related to culture, through its Comprehensive Implementation Plan. In his update, Minister McGuinty also noted that on September 26, 2025, he introduced Bill C-11, the Military Justice System Modernization Act, which addresses IECR recommendation 5 on removing military jurisdiction over Criminal Code sexual offences, as well as other recommendations from external reviews. National Defence continues to work with provincial and territorial partners to support the effective implementation of these measures.
