Retention in the Canadian Armed Forces – what is the issue ?

AIM

1. The aim of this paper is to examine the longstanding issue of retention in Canadian Armed Forces (CAF) and key factors of potential influence which are affecting the issue. The intent here is not to produce an exhaustive list of all factors which may or may not play a part in the issue, but rather to highlight a number identified to be of particular interest when discussing the issue of retention in the CAF. If one were inclined to further study the issue, a thorough examination of CAF release data and extensive interviews of releasing CAF members would provide a solid foundation for in-depth analysis.

INTRODUCTION

2. The intent of this research is to examine why retention is an issue from a CAF wide perspective. We must employ this perspective as it is fundamental that we examine not only one element (i.e., Army), but all elements of the CAF in order to attempt to see all varying points of view, regardless of elements and how the issue of retention is one affecting the entire CAF. It is by using this approach that we will provide relevance across the board and allow a big picture to be seen.

3. In order to (IOT) properly examine the issue of retention in the CAF, we will focus on data retrieved from multiple relevant articles, reports and peer reviewed papers which will provide the necessary information required in order to IOT logically view the issue from a CAF wide perspective, enabling us to compile the gathered information into an “all inclusive” look at a few key notable variables touching all elements of the CAF and directly contributing to the issue of retention therein.

DISCUSSION

4. This paper will be based on the theoretical framework of two concepts. The first concept is Member Well Being and Commitment. This concept is without a doubt tied directly to the issue of retention in multiple ways and we see this very clearly once the definition is read. “This particular value set signifies a concern for people and the quality of their conditions of service – everything from the effects of organizational policies and practices to opportunities for personal growth and development, from fair treatment by peers and superiors to the intrinsic satisfaction of one’s occupation and career. The prudential rationale for valuing member well-being and commitment is that serious or chronic dissatisfaction with conditions of military service may not only have an adverse effect on performance (tasks involving discretionary participation or effort in particular), but is known to erode morale and commitment to serve. Any resulting personnel attrition represents a loss of training and developmental investments, unnecessary replacement costs, and a reduction in effectiveness through the loss of accumulated knowledge, skills, and experience.” (National Defence, 2005, p.20). The second concept on which we will base the theoretical framework is Understanding and Accepting Leadership Responsibilities. While in definition this concept is not quite as overtly tied into the issue of retention to all potential readers, we will endeavour to bring to light just how important and fundamental its relationship to retention actually is as we move through the paper. Interesting. “In sum, to discharge their responsibilities effectively, CF leaders do what they are expected to do and what they determine is necessary to do in order to accomplish CF objectives. The success with which they discharge their responsibilities ultimately depends on the leader’s intrinsic sense of duty and the willingness with which the responsibilities of leadership are accepted.” (National Defence, 2005, p.53).

5. As mentioned earlier in this paper, we will examine a non-exhaustive list of key factors influencing and affecting the issue of retention. For clarity, it must be kept in mind that the factors examined are not proclaimed to be the leading or paramount variables when discussing retention, but rather a summarized grouping of known contributors.

6. We begin by examining job satisfaction. In a 2017 CAF exit survey, job dissatisfaction accounted for 34.6% of all voluntary releases (El-Beltagy, 2018, p.12). While this is a relatively broad topic, we will endeavour to break it down and look at what constitutes job satisfaction and the effects ultimately on a member’s willingness to serve and to begin we will look at pay. It goes without saying that we all want a “good paying” job, but how do we as the CAF understand “good”? CAF members certainly make a decent salary, with even a Private earning a base monthly income of approximately $3168, but there remains the question by many at all times – could I make more outside of the CAF with the same skillset and a more stable schedule? With that particular question always looming, it is extremely important that the CAF, in the interests of retention and indeed member well-being, continually examines member pay and provides comparison to private sector rates. Nice linkage with conceptual framework. “Therefore, an analysis of the rate of pay and benefits must be made, taken not only through the members’ perspective but with the added view of what is similarly offered to those in the private sector”. (El-Beltagy, 2018, p.19).

7. In keeping with the theme of pay, we must also address benefits and incentives. While it would be outright wrong to state that the CAF does not offer both in accordance with (IAW) established policies, could the introduction of time-based incentives for example, help with the issue of retention? It would appear as though it would if we reference the Australian Defence Force (ADF). “The ADF developed various bonuses such as the Military Superannuation and Benefits Scheme (MSBS), where the member becomes eligible for a retention bonus upon serving fifteen years of consecutive service and having reached the rank of Major or Warrant Officer. This benefit is “an amount equal to a member's annual salary on the benefit computation day”. (El Beltagy, 2018, p.34). We can surmise that the introduction of such an incentive in the CAF would have a positive effect on retention; the only question that remains is how much of an effect?

8. Within the scope of job (dis)satisfaction, we would be remiss if we did not consider leadership. When referencing the 2017 CAF exit survey, senior leadership and unit leadership accounted for 17.3% and 11.1% respectively of all voluntary releases (El-Beltagy, 2018, p.12). In that same survey, career progression accounted for 24.1% and one must certainly recognize the effects leadership has on a member’s career progression. All that to say that as leaders, we have responsibilities. Part of those responsibilities include managing our people and their career aspirations and paths. In keeping with the theoretical framework of this paper, if leaders are not executing these duties to the best of their abilities, then the end result should not be of any surprise.

9. Next, we look at family which is quite understandably an important factor when it comes to retention. Referencing once again the 2017 CAF exit survey, we see that family reasons accounted for 29.5% of voluntary releases (El-Beltagy, 2018, p.12). This is the third highest factor on the referenced survey, and quite understandably so. When we look at the challenges associated with the military family, it should come as no surprise that “About one-quarter of military families are concerned with their work-life balance, and to a lesser degree, their personal well-being and mental health” (Manser, 2020, p. 125). This figure is quite high when we consider the numbers of military families currently in Canada. Let’s look at two major factors contributing to the aforementioned concern.

10. Finances are a large concern for many military families. Having looked at CAF pay rates earlier in the paper, we can now associate this factor with the military family. “About 10% of families say financial problems are their biggest challenge.” (Manser, 2020, p.125) Challenges contributing to their financial stress include “finding suitable employment for the non-military spouse,” “unable to afford extracurricular activities,” and “trouble paying debt or bills.” Relocation negatively impacts the financial situation of about half of families who must move due to a posting. (Manser, 2020, p. 125). A key takeaway here is the issue of spousal employment and the negative financial impact on the military family.

11. Also of particular interest is the issue of relocation. Geographic moves are an inevitable aspect of being in the CAF. “An estimated 10,000 families are required to relocate each year, of which approximately 8,000 must move to a new province or territory.” (Manser, 2020, p. 123). We see that the numbers of families who are required to uproot and go are quite high, yet understandably so given the requirements of employment within the CAF. We must however, consider the implications of relocation and the effects on the family. While many families manage this significant life event multiple times over the course of a military member’s career, or indeed a Married Service Couple’s careers, it must still be considered that there are those that don’t manage quite as well. “While relocations appear to be the biggest challenge for military families, and the consequences of relocations are stressful and challenging to address (e.g., financial, intimate partner relationship, health care for non-military family members, spousal employment and child care / education), the majority manage relocations successfully with little external support.” (Manser, 2020, p. 120-128). It is the minority in this case that need to be addressed as with the numbers provided above, the minority is a very significant number when discussing retention within the CAF. In keeping with the theoretical framework of this paper, we must acknowledge the direct and unquestionable relationship with member well-being and commitment to the factor of family and its effect on retention.

12. We will now examine health, a factor which we can all agree is closely related to the issue at hand. While it is generally accepted that CAF members will face heightened risk of injuries; both mental and physical, throughout the course of their careers, the intent here is to look at the relationship between member health and retention within the CAF. IOT approach this, we must look at both the mental and physical angle, and we begin with physical.

13. Although the CAF demands physical fitness, members are exposed to unique risks by virtue of the fact that there exists mandated physical training, testing and challenges unique to the profession of arms. While these risks are mitigated by safety standards and education, it remains a fact that injuries will occur. Repetitive strain injuries (RSIs) remain quite prevalent and affect almost all members through the course of their careers, ultimately these injuries can become cumulative and bring the member to a breach of Universality of Service (U of S). Brilliant link with U of S. “Overall, 44.4% of all Regular Force personnel sustained an acute and/or a repetitive strain injury in the 12 months preceding the HLIS 2013/14. (Thériault, Naicker, Gabler, 2016, p. vi). Furthermore, while some RSIs may be considered relatively minor, it is also noted that “in the last 12 months, 32.3% of all Regular Force personnel reported having sustained a RSI that was serious enough to limit their normal activities (Thériault, Naicker, Gabler, 2016 p.53). We now see the potential for the cumulative aspect should these injuries be repeated over the course of a career. It goes without saying that traumatic injuries sustained in training or on operations factor in to the discussion and these injuries will, of course, influence retention, but that it does not mean an immediate release in all cases. Through tailored application of leadership responsibilities and proper attention to member well-being, even traumatic injuries can be overcome.

14. Mental health is, of course, another major factor pertaining to the issue of retention in the CAF. While mental and physical injuries at times are closely related, they are also commonly exclusive of one another. It is interesting to note that we have seen an increase in attention to mental health in the CAF in the years following Afghanistan, we still see an alarming rate of CAF members who suffer from one or more mental problems. “Overall, 32.2% of Regular Force personnel reported currently experiencing a problem related to stress, emotions, drugs/alcohol, or family.” (Thériault, Naicker, Gabler, 2016, p. 25) It is not difficult to relate this rate of problems to release from the CAF. Also interesting is the comparison between Regular Force CAF members and the general Canadian population. “Compared with the general Canadian population, rates of mental disorders were higher among Regular Force members. The percentage of Regular Force members who reported symptoms of depression and generalized anxiety disorder in 2013 was almost double that of the general Canadian population in 2012 (Chart 4). In 2002, Regular Force members also had higher rates of depression and panic disorder than the Canadian population.” (Zamorski, Pearson, Janz, 2014, p. 7). In the context of this paper, we can see that mental health is certainly a key aspect of the retention issue in the CAF.

15. Lastly, we will look at Universality of Service (U of S) requirements as a factor influencing retention. The U of S policy and standards are outlined in the Defence Administrative Orders and Directives (DAOD) 5023 series (Southen, 2020, p.2). While the U of S clearly outlines the minimum fitness and readiness levels governing all CAF members and in fact setting the minimum standard, the point could arguably be made that for certain trades and occupations, perhaps the U of S needn’t always apply to all CAF members in full context. This is noted by Major Southen quite pointedly when he notes the following. “This persistent requirement for fit military personnel, although necessary for the maintenance of operational readiness, comes at a cost of losing many talented and experienced CAF members who are medically released every year.” (Southen, 2020, p.1). This is of particular interest when discussions pertaining to loss of experience in the CAF are taking place.

16. It goes without saying that the CAF cannot simply get rid of the U of S for reasons which should be clear and apparent for all given the inherent duties required of the profession. In fact, there are other implications at play as well. “If the U of S were to be weakened or eliminated outright, the CAF would imperil its bona fide exemption from the Human Rights Act, which states that the CAF “is subject to the principle of universality of service under which members of the Canadian Forces must at all times and under any circumstances perform any functions that they may be required to perform.” (Southen, 2020, p.6). Furthermore, any changes to the U of S would “require amendments to the National Defence Act or the Queen’s Regulations and Orders, and thus could require Ministerial or Governor-in-Council approval. Any such complex policy changes would also take much longer to implement” (Southen 2020, p.7). It’s not the easy button. It is for these reasons that any discussion in relation to modification or outright elimination of the U of S in the context of positively influencing attrition in the CAF in the short term could not be viewed as realistic or viable options. Interesting. Perhaps, however, there exists an avenue to explore having to do with the U of S which would allow retention of members possessing decades of experience to continue to serve and notably for CAF senior leadership to look after member well-being and commitment as it relates in its purest form to the theoretical framework of this paper.

CONCLUSION

17. Throughout this paper we have examined a number of key factors which have a negative impact on retention in the CAF as an institution. It should come as no surprise that the issues covered are not specific to any on element, nor are they specific to any trade(s) within the CAF, but rather an all-inclusive grouping of CAF members as a whole. We have examined elements of job satisfaction and the potential of factors such as pay and leadership to directly affect the issue of retention. We then looked at family, spousal considerations and geographic relocation and their respective influencing points with regards to retention in the CAF. We have also looked at health and the understandable effects of injury, physical health as well as mental health as being important contributors to retention. Lastly, we examined the U of S which at the end of the day accounts for considerably high numbers of members leaving the CAF on an annual basis.

18. By examining the factors covered in this paper and in maintaining an adherence to the theoretical framework concepts of Member Well Being and Commitment and Understanding and Accepting Leadership Responsibilities, we can perhaps position ourselves to suggest that there exist potential solutions, albeit only partial solutions, to address certain aspects of the outlined factors with the intent of reducing attrition in the CAF and actually having a positive, tangible effect on the issue of retention in the CAF.

RECOMMENDATIONS

19. It goes without saying that the CAF must at all times maintain the ability to carry out all assigned tasks, be it kinetic warfighting, domestic operations or humanitarian aid as required globally. I believe that we can maintain these abilities while retaining essential experience of members who may not meet the U of S, or who desire geographic stability with an amendment to the requirement of the Primary Reserves (P Res) to meet the U of S. By implementing this amendment, the CAF, by mandating an offer of P Res employment to not only all voluntary releasing Regular Force (Reg F) members, but also to those Reg F members medically released, can retain those Reg F members who do not meet the U of S any longer but possesses a breadth of experience, as well as those members who quite frankly have just had enough of geographic moves and wish to settle while still serving in uniform. Very interesting. The metrics of this recommendation could be very easily tracked and the results would surely have a positive, tangible impact of the issue of retention in the CAF.

SMART Application

Specific – Amend P Res requirement to meet U of S and offer medically releasing CAF members P Res employment within their capacity to further complement CAF members who voluntarily release and are offered P Res employment.

Measurable – Within months I believe that the CAF would see significant numbers of experienced members who are unable to meet U of S remain in uniform and continue to serve. The CAF could think of a way to track the number of transfers to measure the impact on retention.

Action Oriented – I am of the opinion that the drastic numbers we would see remain serving in uniform in the P Res capacity would be of enough significance to spur further examination into longer-term projects examining further exploitation of the seemingly simple concept.

Relevant/Realistic - This recommendation is both relevant and realistic in that it refrains from attempted modification of the U of S, but rather the requirement for the P Res to meet the U of S in all capacities at all times.

Time-Bound – Without the actual modification or elimination of the U of S which would require layers of governmental procedure and amendments to the National Defence Act, Queen’s Regulations and Orders, etc., this recommendation affects only the P Res requirement to meet the U of S and thus could be enacted in a timely manner.

The geographic posting aspect of CAF life is a given. However, I am of the belief that if we were to step back and take a solid look at the necessity of many of these postings, we may find that perhaps we are in the wrong train of thought. In many of the cases of geographic postings, it is simply a matter of one or two individuals deciding that a member must move, often under the thought process of everyone needs to move around IOT gather experience. While this may be partially true, I don’t believe that it is any longer the correct thought process. I believe that we as the CAF can maintain our required skillsets and attain our required experiences with a tailored management of our careers. As such, my second recommendation is an internal review of the decisions we as an institution make WRT member geographic postings and tailor that process to those members actually requiring them such as Army Succession Plan (ASP) members and those who genuinely need/want to move. In doing so, we will undoubtedly retain more members who still wish to serve, but frankly are not willing to uproot and move again.

20. The geographic posting aspect of CAF life is a given. However, I am of the belief that if we were to step back and take a solid look at the necessity of many of these postings, we may find that perhaps we are in the wrong train of thought. In many of the cases of geographic postings, it is simply a matter of one or two individuals deciding that a member must move, often under the thought process of everyone needs to move around IOT gather experience. While this may be partially true, I don’t believe that it is any longer the correct thought process. I believe that we as the CAF can maintain our required skillsets and attain our required experiences with a tailored management of our careers. As such, my second recommendation is an internal review of the decisions we as an institution make WRT member geographic postings and tailor that process to those members actually requiring them such as Army Succession Plan (ASP) members and those who genuinely need/want to move. In doing so, we will undoubtedly retain more members who still wish to serve, but frankly are not willing to uproot and move again.

SMART Application

Specific – Amend the geographic posting process to a tailored process of who actually needs to make a move rather than the old thought process of moving members “just because”.

Measurable – Within the duration of one Annual Posting Season (APS), I believe that the CAF would see a decrease in numbers of releases (primarily Senior Non-Commissioned Members).

Action Oriented – I believe that this recommendation would yield immediate results in our Senior Non-Commissioned Members primarily, but also in some of the younger members as well and even into the Officers. Limiting geographic moves to an “as needed” basis would be very well received, I am certain.

Relevant/Realistic - This recommendation is unquestionably relevant; we simply look at the numbers of members releasing every APS. Understandably, not all releases would be avoided, however, many would. This recommendation is also quite realistic in that a rudimentary review of how geographic postings are handled followed by senior leadership guidance on tailoring these moves to members who actually need them would be quite achievable in a considerably short period of time.

Time-Bound – As mentioned above, this recommendation is remarkably time bound in that with a basic review of the posting process and CDS guidance on the (proposed) revised approach, an updated policy could potentially be distributed within months of initiation.

Bibliography

El-Beltagy, Maj Vivian, (2018). The CAF’s Greatest Challenge: Retention Culture, National Defence, Canadian Forces College, https://www.cfc.forces.gc.ca/259/290/405/286/elbeltagy.pdf

Manser, Lynda, (2020), The state of military families in Canada: A scoping review, Journal of Military, Veteran and Family Health 6(2), 120-128, https://jmvfh.utpjournals.press/doi/full/10.3138/jmvfh-2019-0001

National Defence, (2005), Leadership in the Canadian Forces: Conceptual Foundations, Chief of Defence Staff, Canadian Defence Academy, Canadian Forces Leadership Institute.

Office of the Auditor General of Canada, (2016). Report 5—Canadian Armed Forces Recruitment and Retention—National Defence, https://www.oag-bvg.gc.ca/internet/English/parl_oag_201611_05_e_41834.html

Southen, J.P. (2020), Balancing Universality of Service with Critical Skill Retention, Canadian Forces College, https://www.cfc.forces.gc.ca/259/290/22/192/Southen.pdf

Thériault, Naicker, Gabler, (2016), Health and Lifestyle Information Survey of Canadian Forces Personnel 2013/2014 – Regular Force Report, National Defence https://www.canada.ca/content/dam/dnd-mdn/documents/health/health-and-lifestyle-survey-2013-2014.pdf

Zamorski, Pearson, Janz, (2014), Health at a Glance, Mental Health of the Canadian Armed Forces, Statistics Canada, Catalogue no. 82-624-X https://www.pearltrees.com/s/file/preview/247800158/stats%20can.pdf?pearlId=376256129