One of these reason – not expecting coming forward to make a difference (41%) – has been explored more heavily in research. Understandably, many MSV survivors did not come forward because they did not expect reporting to have an impact (Arbour, 2022; Cotter & Burczynka, 2022). Despite its supposed switch to the civilian courts, CAF still internally handles almost half of all sexual misconduct cases internally. This is an issue given military courts have a much lower conviction rates than the civilian system (Arbour, 2022; Craig, 2020; Burke, 2023). That said, conviction rates in Canada are low across the board, with 29% of accused sexual offenders found guilty and only 15% serving (often minimal) jailtime (Office for Sexual Violence Response, 2021). This issue is exacerbated by police who frequently do not believe survivors (Murphy-Oikonen et al., 2020).

In fact, this expectation that authorities will not bring justice has given many survivors’ a preference for dealing with MSV independently, without involving military or civilian police (Cotter & Burczynka, 2022). Regardless of comfort levels associated with reporting, there will always be survivors who wish to process sexual assault independently (Office, 2021). In fact, forcing survivors to report actually limits the likelihood that they will come forward because it removes their autonomy (Holland et al., 2021). This is why mandatory reporting has not been recommended as the way forward for dealing with MSV.

Current steps: HWat the CAF’s implementation of the Arbour Report’s recommendations

While there have been several notable reviews exploring CAF’s culture of sexualized violence, the Arbour Report provides the most up-to-date recommendations related to reporting MSV (Arbour, 2022). Of the report’s 48 recommendations, several directly and indirectly address barriers to coming forward. CAF has already begun to implement some of these recommendations and has committed to implementing all 48 by 2028 (Department, 2024). However, it is making slow progress (MacKenzie, 2024).

Based on Arbour’s 11th recommendation, CAF has now eliminated the duty to report MSV, in part because it has actually discouraged many survivors from coming forward (Department, 2024). Similarly, based on Arbour’s 7th and 9th recommendations, CAF has streamlined the MSV complaint process, making it more accessible and less intimidating (Defence Stories, 2024). Furthermore, in alignment with Arbour’s 5th recommendation, CAF has begun shifting MSV cases from its internal justice system to the civilian justice system where survivors are twice as likely to receive justice (Craig, 2020). However, CAF still handles almost half of its sexual misconduct cases internally (Burke, 2023). Finally, in accordance with many of Arbour’s recommendations, CAF has begun improving its support services through SMSRC (Department, 2023). However, CAF has made slow progress in addressing the pervasive “culture of fear” surrounding reporting, transparency and accountability of CAF’s grievances system, and adequately resourcing the SMSRC, among other recommendations (MacKenzie, 2024).

Policy Recommendations

The following recommendations address the barriers to coming forward about MSV within CAF. While this report encourages CAF to create a safer environment for survivors to come forward to the police, it maintains that is is a survivors’ right to choose whether or not to come forward about MSV.

1. Bolster and decentralize SMSRC by hiring therapists as in-person survivor advocates to help coming forward make more of a difference

The SMSRC is an excellent resource, but it only has one central location, limiting access to in-person services (Canadian Armed Forces, 2024). While some prefer online therapy, others feel more supported with in-person sessions (Heitzler, 2013). Providing access to supportive psychologists throughout reporting and legal processes can empower survivors, highlighting the potential benefits of coming forward for their mental health and reducing the perpetrator’s influence (Driessen, 2019). Furthermore, testimonies from trauma-informed psychologists to the police and in court increases the survivor’s likelihood of being believed by police and judges (Askowitz & Graham, 1994; Department, 2024; Follette et al., 1994; Lonsway, 2005).

We recommend hiring 100 new trauma-informed psychologists at each military base to provide in-person support. If survivors decide to come forward to the police about MSV, these psychologists should be trained to support and advocate for them, from reporting to attending court to aftercare. They should also be embedded within the SMSRC because SMSRC specializes in MSV, supporting Arbour’s 13th recommendation to strengthen SMSRC (Arbour, 2022). Considering the average psychologist’s caseload, the growing rate of MSV (2,205 annual cases), and the duration of legal proceedings, increasing staffing to 100 psychologists could provide ongoing support to 1,500- 2,000 more survivors (Cotter & Burczynka, 2022; Cotter, 2024; Keohan & Erwin, 2023). Considering existing online supports and diverse survivor preferences, this number should adequately address the need for ongoing support and advocacy.

Using an external staffing agency, such as Randstad, will help avoid hiring biases. Their services would cost between $2M and $4.5M (Randstad, 2020). It is important to advertise the benefits of having psychologists support survivors in court and during reporting. Therefore, CAF’s public affairs office should advertise this information. Considering advertising, psychologists’ salaries ($81,000 - $100,000) and hiring, training, background checks, and other initial set-up costs (which cost $6,613 on average), implementing this recommendation would cost between $10,761,300 and $15,161,300 (Glassdoor, 2024a; Mueller, 2024). Widespread implementations like this promote CAF as genuinely attempting to shift its culture of sexualized violence, positively impacting CAF’s reputation, recruitment, and retention (Craig, 2020).

2. Create a zero-tolerance anti-reprisal policy to address survivors’ fears of reprisal

To address survivors’ fears of reprisal, we recommend a zero-tolerance anti-reprisal policy with clear guidelines and severe punishments (Legault, 2021). In this context, ‘reprisal’ involves any harmful words and (non-legal) actions that survivors deem harmful. Survivors should be informed of their ability to file complaints through anonymous reporting channels (Arbour, 2022).

In addition to any criminal charges, consequences should range from demotion to dismissal, with harsher petalites for higher-ranking offenders due to their power imbalance and responsibility. Any indication of reprisal should warrant a full-scale review by civilian police, given the even worse failings of military police than civilian police in handling MSV cases (Arbour, 2022; Cotter, 2024).

The Minister of National Defence (MND) should ultimately approve this policy change as the authority for approving CAF policy (Department, 2021). As the advisor to the MND responsible for CAF’s administration, the Chief of Defence Staff should be involved in high-level planning (Department, 2021). The Judge Advocate General (JAG) and other senior legal advisors should be involved in its legal framing (Department, 2018). Psychologists from SMSRC should also be consulted. Finally, CAF’s Public Affairs (communications team) should publicize to ensure survivors and perpetrators are aware (Forces, 2024).

This policy update involves minimal new costs, primarily utilizing existing CAF resources. Based on salaries and assuming a three-month timeline, internal costs from JAG’s office, Public Affairs, and consultation fees from two to three trauma-informed psychologists within SMSRC range from $50,500 to $155,000 (College of Registered Psychotherapists of Ontario, 2023; Glassdoor, 2023; Glassdoor, 2024a; Law Society of Ontario, 2024).This recommendation supports Arbour’s (2022) 10th recommendation, which seeks to prioritize MSV grievances and limit reprisal for coming forward.

3. Offer nature therapy to support survivors who prefer to not to come forward

We recommend nature therapy to support survivors who prefer not to come forward and utilize the judicial route. This aligns with Arbour’s (2022) recommendation to remove the duty to report, empowering survivors with decision-making autonomy. Even with safe reporting processes, some survivors will remain uncomfortable with coming forward (Office, 2021).

Nature therapy offers a unique and entirely anonymous therapeutic option for survivors to heal from MSV because it has profound healing effects on survivors and other force members with PTSD (Havlick et al., 2021; Obi & Okonkwo, 2023; Wheeler et al., 2020). Nature therapy can help regulate emotions, potentially leading to survivors feeling more comfortable seeking support from psychologists, friends, and the police (Arbour, 2022; Lilley et al., 2023).

We recommend piloting an eight-week trauma-informed nature therapy program at CAF’s largest base in Halifax. This program, led by two recreation therapists, will involve weekly sessions for 40 participants divided into two groups. One group should be exclusively for women, transgender, and non-binary individuals (Smith-Marek et al., 2018). While the program will be designed to aid healing from MSV, it will not explicitly mention it to ensure anonymity.

This pilot project proposes hiring two part-time recreation therapists (8 weeks of programming plus 2 weeks for planning) at an estimated external cost of $20,000 for salary and supplies (Indeed, 2024; Rockwell, 2023). Internal support should cost $11,500 to $15,000 (Glassdoor, 2018; Glassdoor, 2024b). These costs should cover administrative oversight from the Canadian Forces Health Services and Halifax base’s local mental health services team, research from Defence Research and Development Canada, and promotions through Public Affairs (Department, 2018; Department, 2024; Glassdoor, 2023).

[1] This policy brief heavily relies on information from the Arbour Report conducted by former Supreme Court Justice Madam Arbour in 2022 because it proposes excellent recommendations intended to reduce MSV within CAF (Arbour, 2022). It also relies heavily on the 2022 Sexual Misconduct in the Canadian Armed Forces (SSMCAF) survey because it has the most up-to-date data from large-scale participant pools about MSV within CAF (Cotter & Burczynka, 2022).