Defence Minister David McGuinty releases final progress report of the External Monitor
National Defence
News release
November 20, 2025 - Ottawa, ON - National Defence / Canadian Armed Forces
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.
Quotes
"The External Monitor's final report reflects meaningful progress in our commitment to culture evolution within the Defence Team. We thank her for her dedication and rigour, which have been instrumental in guiding this transformation over the past three years. Her work has reinforced the importance of transparency and accountability as we build a Defence institution that truly reflects Canadian values—respect, inclusion, and integrity. While we've come a long way, our work continues to secure lasting change for our members and for all Canadians."
The Honourable David McGuinty, Minister of National Defence
"We are grateful to the External Monitor for her thorough oversight and thoughtful analysis throughout this process. Her final report confirms that we are making real progress but also reminds us that institutional change requires sustained effort. We remain committed to strengthening the systems, policies, and leadership practices that support a respectful and accountable workplace."
Stefanie Beck, Deputy Minister of National Defence
"The External Monitor's final report highlights the encouraging progress we've made in strengthening our organizational culture. We know that this evolution is essential to achieving mission success, building trust, attracting and retaining talent, and her independent perspectives have been invaluable in helping us align our operational excellence with the values we serve. Ultimately, real and lasting change demands persistence and purpose—and we remain committed to fostering a Defence Team that is accountable and professional, and that places organisational culture as the foundation of our readiness and the defence of Canada."
General Jennie Carignan, Chief of the Defence Staff
"Since 2022, the External Monitor has played a critical role in guiding and validating our efforts to evolve our culture. Her final report affirms that we are on the right path, with tangible improvements in the clarity of terminology, leadership promotion, and support to affected persons. At the same time, it reinforces the need for continued focus, especially in areas like policy, data collection and incident response, to enhance understanding and accountability, and rebuild trust. Our focus will be unwavering as we continue this essential work."
Lieutenant-General Paul Prévost, Chief, Professional Conduct and Culture
Quick facts
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Madame Jocelyne Therrien was appointed as External Monitor in October 2022 for an initial term of one year, fulfilling Recommendation 48 of the IECR report. Her term was renewed annually, including for the past year on October 19, 2024.
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Madame Therrien's role, detailed in the Terms of Reference, has been to provide advice to the Minister on the oversight and implementation of the recommendations in Madame Arbour's IECR report, while considering those of other external reviews.
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The report released today builds on five previous status reports, each released biannually beginning in May 2023.
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The IECR was launched in April 2021 to shed light on the causes of harassment and sexual misconduct in the CAF, by reviewing policies, procedures, programs, practices and culture within the Defence Team. Madame Arbour's final IECR report was released on May 30, 2022.
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In December 2022, the Minister of National Defence presented a Report to Parliament, outlining the steps that the Government of Canada would take to respond to all 48 IECR recommendations. The Defence Team continues to work on meaningful reform and culture evolution in response to the recommendations.
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Starting in 2021, the DND/CAF put in place procedures to transfer cases to the provinces. As of September 2025, the CAF has transferred 236 cases to civilian police. The Canadian Forces Provost Marshal confirms that 157 cases were not transferred, mainly because the victims chose to have their complaint investigated by the military police or were not interested in proceeding with a criminal investigation at the time of reporting.
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