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Department of National Defence
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Minister’s Message
As Minister of National Defence, I am honoured to present to Parliament the 2007-2008 Report on Plans and Priorities.
This year’s report reflects the continuing refinement and application of the Treasury Board Program Activity Architecture
(PAA) to the management of defence. In the coming months, the department will further integrate and link the PAA to resources. The eventual
goal is to provide a clear understanding of the relationship between resources and outcomes in executing the department’s three major activities:
- Ensuring that the Department of National Defence and the Canadian Forces have a relevant and credible capacity to meet their defence and security commitments;
- Contributing to domestic and international peace, security and stability by achieving success in assigned missions; and
- Promoting good governance and the Canadian identity and exerting influence in a global community.
As part of a whole-of-government approach to defence and security, the Canadian Forces’ first priority continues to be success in our operations at home and abroad. Achieving operational success is contingent on a number of interrelated priorities, including enhancing force protection and generating, supporting and sustaining operational forces.
Cuts to the defence budget and personnel levels throughout the 1990s, combined with an increase in operational tempo over the last decade, have had a negative impact on our military. This legacy will limit the pace at which the Government implements its initiatives for defence. For example, since conducting ongoing operations remains our first priority, the expansion of the Canadian Forces will need to be carefully managed, and may take longer than first envisaged.
The Canadian Forces will continue to protect Canadians at home and assert our sovereignty in the context of an increasingly complex security environment. We expect that demand for CF support for activities including search and rescue operations, law enforcement and emergency response will continue to increase. As a consequence, Canada’s military must be better prepared to respond to emerging domestic demands.
Along with these vital domestic responsibilities, Canada will continue to uphold its longstanding dedication to global peace and security. Canada’s ongoing contribution to international efforts to bring security and stability to Afghanistan remains the primary focus of CF operations abroad, and we are committed to achieving sustained progress in that country.
In addition to sustaining today’s activities, the department must prepare for tomorrow. The Government is developing the Canada First Defence Strategy, which will put forward a long-term plan to guide DND and the CF into the future. It will provide the framework for revitalizing the core capabilities of the Canadian Forces. The department will move forward in 2007-08 on a number of initiatives that will improve the Forces’ ability to fulfill essential national responsibilities, including national surveillance, increase their presence at home, including in the Arctic, and enhance their ability to respond to natural disasters and other emergencies on Canadian soil.
To protect our country, the Canadian Forces rely on the dedication and commitment of all members of the Defence team—both military and civilian. I am proud to lead this vital national institution. I look forward to continuing my work with Canadians and Members of Parliament and the Senate to enhance the Forces and provide ongoing support to our courageous men and women in uniform.
The Honourable Gordon J. O’Connor, PC, MP
Minister of National Defence
Management Representation Statement
I submit for tabling in Parliament, the 2007–2008 Report on Plans and Priorities (RPP) for the Department of National Defence.
This document has been prepared based on the reporting principles contained in the Guide for the Preparation of Part III of the 2007–2008 Estimates: Reports on Plans and Priorities and Departmental Performance Reports:
- it adheres to the specific reporting requirements outlined in the Treasury Board Secretariat (TBS) guidance;
- it is based on the department’s Strategic Outcomes and Program Activity Architecture (PAA) that were approved by the Treasury Board
- it presents consistent, comprehensive, balanced and reliable information;
- it provides a basis of accountability for the results achieved with the resources and authorities entrusted to DND and the CF; and
- it reports finances based on approved planned spending numbers from the Treasury Board Secretariat in the RPP.
W.P.D. Elcock
Deputy Minister
Section I: Departmental Overview
Defence as a National Institution
The Defence Mission
Our mission is to defend Canada and Canadian interests and values while contributing to international peace and security.
Under Canadian defence policy, the Canadian Forces are called upon to undertake three roles:
- protect Canadians at home;
- defend North America in co-operation with the United States; and
- defend Canadian interests abroad.
To carry out these roles successfully, the Canadian Forces maintain a range of military capabilities, including modern, combat-capable sea, land, air and special operations forces.
The Defence Portfolio
The Department of National Defence (DND), the Canadian Forces and a group of related organizations and agencies, including the Communications Security Establishment (CSE) and Defence Research and Development Canada (DRDC), carry out the Defence mission.
The CF also maintain the following:
- a police service, comprising the Military Police and the National Investigation Service, operating under the technical supervision of the Canadian Forces Provost Marshal;
- a justice system administered under the superintendence of the Judge Advocate General;
- chaplaincy services;
- extensive communications networks in Canada and abroad;
- firefighting services;
- medical and dental services because CF members are excluded from both the Canada Health Act of 1984 and the Public Service Health Care Plan;
- youth programs, specifically the Canadian Cadet Program and the Junior Canadian Rangers;
- the Canadian Defence Academy;
- the Canadian Forces Grievance Authority;
- the Canadian Forces Housing Agency; and
- the Canadian Forces Personnel Support Agency.
Defence also includes the following organizations that report directly to the Minister of National Defence:
- the Office of the Judge Advocate General;
- the Office of the Ombudsman for the Department of National Defence and the Canadian Forces;
- the National Search and Rescue Secretariat; and
- the Office of the CSE Commissioner.
The National Defence Act establishes DND and the CF as separate entities operating in close co-operation under the authority of the Minister of National Defence. As well as the National Defence Act, the Minister of National Defence is responsible for the administration of the statutes, regulations and orders listed at Appendix A. The National Defence Act also establishes a Deputy Minister to be responsible for policy, resources, interdepartmental co‑ordination and international defence relations, and designates the Chief of the Defence Staff, the senior serving officer of the CF, as the person “… who shall, subject to the regulations and under the direction of the Minister, be charged with the control and administration of the Canadian Forces.”1
The Canadian Forces Grievance Board and the Military Police Complaints Commission report to the Minister of National Defence although they are not part of the Department of National Defence. This reporting arrangement and organizational status are designed to ensure accountability while maintaining an ‘arm’s-length’ relationship.
Specific accountability for results and associated performance measurement areas at the level of the Assistant Deputy Ministers and the Environmental Chiefs of Staff are detailed in the Defence Plan On-Line. The National Defence Headquarters organization chart is found in Section III.
Key Defence Partners and Stakeholders
Defence works with many Canadian and international partners that help support its mission, programs and activities. The broad scope of the Defence mandate is reflected in the complexity and diversity of its partners and stakeholders, listed in Appendix B.
The Benefits of Defence Investment by Strategic Outcome
The Chief of the Defence Staff and the Deputy Minister are responsible for transforming National Defence to improve their ability to defend Canada, protect Canadian interests and values, and enhance Canada’s role in the world. The ability to respond to the needs of Canadians and meet the challenges of the evolving security environment is at the centre of the transformation process. Defence provides Canadians with the confidence in Canada’s capacity to meet defence and security commitments, to contribute successfully to assigned missions, and to demonstrate Canadian values through leadership and good governance.
Confidence that DND and the CF have relevant and credible capacity to meet defence and security commitments.
To respond to ongoing and future requirements, the Canadian Forces are improving the integration of maritime, air, land and special operations forces to allow units to work as one unified team. On July 1, 2005, the transformation of the CF began with the formation of Canada Command (Canada COM). Defending Canada is the Canadian Forces’ first priority. As an integrated national operational command headquarters, Canada COM allows the CF to deploy the best mix of military assets to meet any emergency anywhere in Canada. In the event of a natural disaster or a terrorist attack, the combined response will be immediate, co-ordinated and sustained. Canada COM is also responsible for operations to defend North America and maintain continental security in co-operation with the United States.
To better meet our international defence and security commitments the CF has stood up Canadian Expeditionary Forces Command (CEFCOM), which is responsible for the conduct of all overseas operations, including humanitarian, peace support and combat operations. Canadian Special Operations Forces Command (CANSOFCOM) has been created to support Canada COM and CEFCOM with a broad spectrum of agile special operations capabilities at high readiness. These commands utilize Environmental Chief of Staff2 generated and assigned forces that are renowned for their professionalism and exceptional training internationally and thus are greatly sought after for their expertise.
Success in assigned missions in contributing to domestic and international peace, security and stability.
The CF are poised to respond to domestic and international crises when called upon by the Government of Canada. On the domestic front, the CF is prepared to provide much-needed humanitarian assistance in response to a natural disaster as well as to instill a psychological sense of security which facilitates reconstruction and society’s return to normalcy. The CF will continue to conduct surveillance patrols of Canada’s territory, aerospace and ocean approaches, concentrating on areas where Canada’s economic interests are most likely to be challenged as well as continuing to ensure the safety of Canadians. This crucial role is evidenced by the over 8,000 search and rescue incidents which the CF have responded to in the last year.
Every day, over 9,100 members of the CF are employed in roles supporting domestic operations. Since April 2005, more than 4,700 CF personnel have deployed on various missions, and Canada now has more than 2,900 personnel deployed around the world to defend Canadian values and interests while contributing to international peace and security. In the “whole of government” approach to the problem of failed and failing states, Defence has the task of providing the secure environment that lays the foundation for the delivery of humanitarian aid and long-term development assistance. The CF frequently receive requests to lead these efforts. To ensure they remain able to do so, the CF will continue to seek ways to improve on their capabilities.
Currently, reservists make up 13% of DND’s deployed strength abroad, including one in seven soldiers in Afghanistan. The CF Transformation and anticipated commitments in international operations suggest that this rate of reservists’ participation in operations will be maintained, if not increased, under the new Integrated Managed Readiness System.
Good governance, Canadian identity, and influence in the global community
At home, Defence benefits Canadian society in a wide variety of ways. With more than 30 bases and stations across the country, the CF make a significant economic impact while contributing to the security of Canadians. The economic effects extend beyond military equipment such as weapons, ammunition, aircraft, vehicles, ships, and electronic and navigation instruments, or even the salaries of CF members and Defence civilians. Defence spending reaches throughout the multitude of industrial activities that support and enable Defence: construction, transportation, telecommunications, utilities, energy, land and building rentals, education and advertising, to name but a few.
The CF presence is further extended by more than 300 Reserve units, about 125 Canadian Ranger patrols, and more than 1,100 Cadet units and Canadian Junior Ranger patrols, each constituting a vital link between the Canadian Forces and the people of Canada. In fact, the CF are present in every province and territory, and in more than 3,000 communities across the country. As Defence is Canada’s largest single public-sector employer, defence spending and investment contributes to the prosperity of Canadian communities, businesses and industries.
Through its research and development initiatives, Defence is a science and technology leader. Defence also supports civilian health-care providers in major emergencies, and helps protect the environment by participating in the clean-up and remediation of contaminated sites.
These varied activities, coupled with the presence of CF personnel and Defence civilians, highlight the importance of Defence’s contributions to Canadian identity. It is important the foregoing activities continue to demonstrate Canadian values through leadership and good governance.
The ultimate goal for Defence during fiscal 2007–2008 is to ensure that the Canadian Forces can defend Canada, protect Canadian interests and values, and enhance Canada’s role in the world by maintaining multi-role, combat-capable defence forces.
Link to the Government of Canada Outcome areas
Defence’s actively contributes to all of the Government of Canada Outcomes. The table below provides a high level summary of which Defence Strategic Outcomes contribute to the various Government of Canada Outcomes. Additional details on Defence’s contributions can be found within Canada’s Performance and the 2005-2006 Defence Departmental Performance Report.
| Government of Canada Strategic Outcomes | National Defence’s Strategic Outcomes | ||
|---|---|---|---|
|
|
Canadian’s Confidence that DND/CF has relevant and credible capacity to meet Defence and Security commitments | Success in assigned missions in contributing to domestic and international peace, security and stability | Good governance, Canadian identity and influence in a global community |
| Economic Affairs |
|
|
|
|
◘ |
|
|
|
◘ |
|
n |
|
◘ |
|
|
| Social Affairs |
|
|
|
|
◘ |
|
|
|
n |
n |
◘ |
|
◘ |
|
◘ |
|
|
|
n |
| International Affairs |
|
|
|
|
◘ |
n |
n |
|
|
◘ |
|
|
n |
n |
n |
|
◘ |
|
|
| Government Affairs |
|
|
◘ |
Source: VCDS - Chief of Programme
Legend n = Primary ◘ = Secondary
Overview of Financial and Human Resources by PAA
The following tables provide resource information at the program activity level, first at the Departmental level, then by program activity and strategic outcome.
Financial Resources
| ($ Thousands) | Forecast Spending 2006–2007 | Planned Spending 2007–2008 | Planned Spending 2008–2009 | Planned Spending 2009–2010 |
|---|---|---|---|---|
| Departmental Spending |
15,910,854 |
17,845,445 |
18,862,816 |
19,047,833 |
| Capital Spending |
2,498,906 |
3,908,616 |
4,720,405 |
4,891,618 |
Source: Assistant Deputy Minister (Finance and Corporate Services)
Human Resources – Full Time Equivalents (FTEs)
|
|
Forecast FTEs 2006–2007 |
Planned FTEs 2007–2008 |
Planned FTEs 2008–2009 |
Planned FTEs 2009–2010 |
|---|---|---|---|---|
| Military (Regular Force)1 |
64,878 |
66,737 |
67,347 |
67,957 |
| Civilian2 |
24,400 |
25,000 |
25,000 |
25,000 |
| Total |
89,278 |
91,737 |
92,347 |
92,957 |
Source: Chief of Military Personnel and Assistant Deputy Minister – Human Resources (Civilian) and VCDS - Chief of Programme
Notes:
- Current fiscal framework limits Regular Force expansion up to 68,000 Average Paid Strength. This strategic limit does not include personnel seconded to OGDs (approx 300 FTEs) and Project Management Personnel Resource paid under Vote 5 projects (approx 400 FTEs). FY 07/08 Average Paid Strength includes approx 1,200 Class “C” Reservists to augment operationally deployed forces.
- Current fiscal framework will limit civilian Salary Wage Envelope to 25,000 FTEs equivalent. Such envelope does not include personnel seconded to OGDs, Project Management Personnel Resource paid by Vote 5 projects and ongoing/proposed initiatives to convert professional contractor support to Public Service members.
Program Activities by Strategic Outcomes
|
|
Planned Spending | Contributes to the following priorities | ||
|---|---|---|---|---|
| 2007–2008 | 2008–2009 | 2009–2010 | ||
| Strategic Outcome and Expected results: | Canadians’ confidence that DND and the CF have relevant and credible capacity to meet defence and security commitments | |||
| Generate and Sustain Integrated Forces |
14,611,027 |
16,028,503 |
16,494,499 |
Priority No. 2 and 4* |
| Strategic Outcome and Expected results: | Success in assigned missions in contributing to domestic and international peace, security and stability | |||
| Conduct Operations |
2,286,490 |
1,849,781 |
1,550,751 |
Priority No. 1* |
| Strategic Outcome and Expected results: | Good governance, Canadian identity and influence in a global community | |||
| Contribute to Canada and the International Community |
947,928 |
984,532 |
1,002,583 |
Priority No. 3* |
Source: Assistant Deputy Minister – Finance and Corporate Services and VCDS - Chief of Programme
* The Defence Priorities are described in detail on pages 8 and 9.
Defence Priorities
The Defence priorities focus on areas where additional effort will be directed over a fiscal year either to address a gap in capability or capacity, or to comply with broader government direction to increase activity. They help translate long and medium-term goals and objectives into short-term direction for action, while maintaining focus on the requirements of the current operating environment.
Defence priorities do not define mandates, duties or responsibilities. Rather, they identify the areas where Defence will increase emphasis or effort in the execution of its mandate. For each Defence priority listed here, the corresponding program under the Defence Program Activity Architecture is identified. The Defence Management Committee approved these priorities on November 3, 2006.
|
|
Program Activities | |||
| Defence Priorities 2007-2008 | Generate and Sustain Integrated Forces | Conduct Operations | Contribute to Canada and the international Community | Type of Priority |
|---|---|---|---|---|
| 1. Conduct Operations | ||||
|
a) Succeed with operations at home and abroad as part of a whole of government approach. For example:
|
|
n |
◘ |
O |
|
b) Enhance force protection through fostering a culture of risk management while shaping the environment with enablers. For example:
|
n |
◘ |
◘ |
N |
|
c) Sustain the Generation of Operational Forces to meet international and domestic commitments. For example:
|
n |
◘ |
◘ |
O |
| 2. Grow the Regular and Reserve Forces to meet international and domestic commitments | ||||
| a) Defence will increase the size of the Regular and Reserve forces according to Government direction by focusing on enhancing key established capabilities, and by leveraging growth with internal reinvestment to building new capabilities that deliver the operational effect necessary to fulfill the “Canada First” defence strategy. |
n |
|
◘ |
O |
| b) The Canadian Forces Recruiting Group is changing its organizational structure and streamlining its recruiting, processing and management processes to ensure that its resources are applied more effectively. These adjustments will make the recruiting system more responsive, and improve the level and quality of recruiters’ services both to applicants and the CF. |
n |
|
◘ |
O |
| c) To bring critical military occupations up to strength, the CF offer an array of entry programs, subsidized education opportunities, signing bonuses, and occupational transfer opportunities for serving members. Furthermore, the number of component transfers between the Reserves and the Regular Force is increasing, and more officer candidates are being accepted through the direct-entry program. Without sufficient recruiting in certain critical military occupations, the CF will not be able to conduct operations with optimum effectiveness. |
n |
|
◘ |
O |
| 3. Implement the Government’s “Canada First” Defence strategy | ||||
| a) Move ahead with capital acquisition projects for a multi-role, combat-capable military, including the Joint Support Ship, tactical and strategic lift aircraft, medium- to heavy-lift helicopters, and logistics trucks. |
n |
◘ |
◘ |
N |
|
b)Strengthen key multilateral and bilateral organization relationships through active participation within the United Nations, NATO and the North American Aerospace Defence Command. |
n |
◘ |
◘ |
N |
| 4. Enhance program delivery and optimize resource utilization | ||||
| a) Implement resource acquisition reform to realize reductions in project expenditure authority cycles, increased capacity to pursue projects and accelerated procurement cycles. |
n |
|
◘ |
O |
|
Legend: O = Ongoing N = New n = Primary ◘ = Secondary |
||||
Source: VCDS – Chief of Programme
Expenditure Management Review
This is the third year of scheduled reductions as Defence continues toward the goal of a steady-state reduction of $203 million by fiscal 2009-2010, with the Expenditure Review Committee (ERC) target fiscal 2007-2008 representing $143 million. The specific efficiencies have been assigned as follows:
| ($ millions) |
2007-08 |
2009-10 |
|
|
|
(Steady-State) |
| PROGRAM EFFICIENCIES |
|
|
| Reduce O&M and National Procurement Support to Air Assets |
$25.00 |
$53.00 |
| Canadian Parachute Centre |
$3.00 |
$7.00 |
| Reduce Light Armour Vehicles |
$7.00 |
$7.00 |
| Reduce Non-military Vehicles |
$7.00 |
$7.00 |
| Total |
$42.00 |
$74.00 |
| Corporate Efficiencies |
|
|
|
Reduce National Capital Region |
$42.32 |
$52.39 |
| MASOP |
$20.00 |
$20.00 |
| Reduce Support for IM/IT Corporate Information Systems |
$11.00 |
$20.00 |
|
Reduce R&D |
$15.00 |
$15.00 |
| Reduction General and Administrative Support |
$13.00 |
$7.00 |
| Total |
$101.32 |
$129.39 |
|
Target |
$101.00 |
$129.00 |
| Total ERC Target |
$143.00 |
$203.00 |
Of note, approximately 22 percent ($32 million) of the Reduce National Capital Region 2007-2008 total will be achieved by reducing the number of contractors working at DND, partly by hiring civilian employees. The application of the reductions ordered by the ERC in information technology infrastructure support provided by the Assistant Deputy Minister (Information Management) will total $2 million this year and rise to $20 million by fiscal 2009-2010. This final portion of the ERC will complete the Department’s obligations to the ERC and achieve the full assignment of all targets up to and including steady-state fiscal 2009-2010. The department will continue to report annually on ERC until the steady-state reductions are in effect.
Link to TBS ERC website: http://www.tbs-sct.gc.ca/emis-sigd/FAQ_EMR-eng.asp
The Defence Program Activity Architecture
The Program Activity Architecture in Context: Strategy Map
Treasury Board approved the new Management, Resources and Results Structure (MRRS) for Defence on August 30, 2005. In accordance with Treasury Board policy, the Defence MRRS consists of three elements: a Program Activity Architecture (PAA); clearly defined and measurablestrategic outcomes; and a description of the current governance structure that outlines the department’s decision-making mechanisms, responsibilities and accountabilities. These are described below.
The three strategic outcomes for Defence are as follows:
- Canadians’ confidence that DND and the CF have relevant and credible capacity to meet defence and security commitments;
- Success in assigned missions in contributing to domestic and international peace, security and stability; and
- Good governance, Canadian identity and influence in the global community.
Each program comprises three levels: program activities, program sub-activities and program sub-sub-activities. The activities that make up each program are causally linked to produce the program’s predominant output, and each program output contributes or leads to a strategic outcome.
A parallel but separate construct, Executive and Corporate Services, provides a place to list the organizational entities, such as finance and information management, that do not directly produce program outputs, but support and provide coherence to all program activity.The costs of Executive and Corporate Services activities are distributed across the three programs according to a pro-rated formula.
The PAA structure is distinct from the organizational and financial structure of Defence and the Canadian Forces under the Assistant Deputy Ministers and the Environmental Chiefs of Staff, each a “Level One”. An electronic interface links the organization identification numbers and the associated financial tracking system consisting of fund centres and cost centres. There are also separately tracked Work Breakdown System accounts, for each Level One organization with the PAA at the program sub-sub-activity level.
The governance structure of the MRRS outlines the decision-making mechanisms, responsibilities and accountabilities of Defence. It consists of the following:
- a corporate governance structure operating department-wide at the highest level to provide strategic, resource and management direction, decision-making and accountability for the whole institution and its programs;
- a governance structure for each program activity to guide program development and effectiveness, provide advice on the key contributing processes, and ensure accountability for program outcomes and results; and
- a process and functional governance structure for the overall business model, with its major processes and functional activities, to ensure effective process and functional management, functional policy alignment, and integration of each process to the whole business model.
Defence uses the MRRS to underpin departmental planning, management of the Defence Plan, resource planning and management, and performance monitoring and reporting, especially external reporting. Section II of this report provides an analysis of planned program activities by strategic outcome. As part of the full implementation of the MRRS policy, Defence will develop and implement a plan to be able to meet the requirements of steps 1-5 as laid out within the Treasury Board Secretariat call-letter dated 14 December 2006.
The following chart summarizes the structure of the Defence PAA.
 Click on image to enlarge |
Link between PAA and Performance Management
As part of the Performance Management Framework in Defence, the Strategy Map for the organization at the level of the Deputy Minister and the Chief of the Defence Staff provides the senior leadership a system for tracking, analyzing and effecting departmental performance by translating the departmental mission and vision statements into causally linked strategic objectives. The Strategy Map sets out strategic themes across different perspectives, using a modified version of the Balanced Scorecard approach to performance management. For further information on the Balanced Scorecard, visit http://www.vcds.forces.ca/dgsp/pubs/dp_m/pm/intro-eng.asp#3
The strategic objectives drive success in the three main outputs of the Defence PAA that lead to the achievement of the strategic outcomes and the mission. Indicators and measures are being developed for each strategic objective. This developing framework gives Defence an internal picture of performance, and will be used to inform external audiences about the progress Defence is making toward its PAA outputs and outcomes. Defence is also taking steps to align its performance management framework with other government reporting requirements, including the Management Accountability Framework and the PAA. Appendix C provides a description of the strategic themes and objectives.
 Click on image to enlarge |
Planning Context
Canada First Defence Strategy (CFDS)
Defence is currently developing a document to formalize the CFDS, which re-affirms the three traditional roles of the Canadian Forces - protecting Canada and Canadians, defending North America in cooperation with the US, and defending Canadian interests abroad - and the need for a multi-role, combat capable military. The CFDS documentis expected to be released in the coming months and will provide detailed guidance on the roles andmissions of the Canadian Forces and long-term capital equipment priorities.
However, since conducting successful operations remains Defence’s top priority, it will be critical to ensure that current CF activity levels can be sustained, even as the Forces are expanded and transformed. This will require balanced investment across all components of the Defence Services Program. As a result, the plans for CF expansion and certain procurement initiatives have been amended since RPP 2006-2007.
To ensure activity levels will be sustained throughout CF Expansion and Transformation phases, it is critical that a balanced investment be maintained in all components of the Defence Services Program (eg. Human Resources, Equipment and Infrastructure), resulting in the need to reprofile certain CF Expansion and Capital Acquisition initiatives.
Transformation
The Canadian Forces Transformation, initiated in 2005, has converged with the evolving CFDS and the Accountability Act to be a major influencer of the Department’s plans for the next years. Of the many activities intended to result in a Transformation of the CF, the creation of separated strategic and operational levels of command for operations and the redesign of the Department’s governance construct are expected to have the greatest impacts in the next couple of years. The strategic-level of command will increasingly involve in and lead the operating strategy of the CF while the operational level of command - the level of command that employs forces to attain strategic objectives in a theatre or area of operations through the design, organization, and conduct of campaigns and major operations – will set the conditions for greater tactical decisiveness and operational responsiveness. This separation of the levels of command also brings greater visibility and accountability to decisions and mission assignments.
Defence Plan (DP)
The DP will continue to evolve to reflect planned CF Transformation activities and prepare for alignment with the goals and milestones of the CFDS. The advent of accrual budgeting for Defence allocations within Federal Budgets 2005 and 2006 has changed the way those resources will be planned and managed within the DP, and in particular within the Capital Equipment and Capital Infrastructure budgets. Early analysis has indicated that the DP, while continuing to provide specific direction and resources for current year management, should evolve to display a longer, multi-year investment plan for allocations to Level One organizations’ and Corporate accounts. This approach would achieve better visibility and linkage between CFDS guidance and the strategic allocation of the resources to achieve the multi-year Defence Services Programme. As well, it would better satisfy Treasury Board Secretariat requirements regarding linkages between major strategic investments and stated policy objectives.
Impact of Operations
Success in Canadian Forces ’ operations will remain the paramount strategic outcome for Defence Plan ning and Management activities in the near term. Resource planning and decision making will continue to focus on those activities and investments which enable and support Canadian Forces commanders and their missions both abroad and at home. In-year management decisions will continue to address fluctuations in estimated costs and/or evolving operational requirements through the sourcing and reallocation of operating and capital funds. This process, while ensuring direct support costs of operations are fully funded, increases the risk of the Department inadequately addressing longer-term sustainability issues during the one-to-five year planning horizon.
Expand and Transform the CF
Force Employment
In its 2006 federal budget, the Government of Canada announced its intention to increase the strength of the Canadian Forces. Defence will focus this growth by enhancing key established capabilities, and by leveraging growth with internal reinvestment to build new capabilities that deliver the operational effect necessary to fulfill the government’s “Canada First” defence strategy. The pace and scope of force expansion will be determined by the human and financial resources made available for this initiative.
Planning for the expansion is now under way, and growth will be tightly programmed to ensure the delivery of robust capabilities. Personnel demands not programmed in the planned ceiling will continue to require commensurate offsets.
Attracting, enrolling and training enough good recruits is of paramount importance to complete the expansion and regeneration of the CF while maintaining the current operational tempo. Expanding the CF will require careful management of priorities and considerable effort by all members of the Defence Team.
The prevailing security environment also requires the CF to develop and maintain integrated, multi-role, combat-capable defence forces that are increasingly interoperable with allied nations and other security partners. The “joint” approach to operations has become more important as the CF focus on domestic defence issues including Arctic sovereignty and surveillance, continental defence and international operations, particularly in the context of failed and failing states. To achieve this vision, the CF will continue to transform their structure, processes and capabilities to ensure relevance, responsiveness and effectiveness at home and abroad, today and in the future.
Force Planning
The development of defence capabilities is complex and multi-dimensional. When planning and acquiring capabilities, the CF must predict Canada’s strategic circumstances over several decades, and determine the situations (“scenarios”) in which a military response might be required. The CF continue to plan and develop capabilities that will support operations in the areas of command and control; intelligence, surveillance and reconnaissance; force protection; chemical, biological, radiological and nuclear (CBRN) defence; and space based capabilities. Future security environment and strategic operating concepts analysis will continue to be used, in conjunction with approved classified scenarios, to help detail how the CF will operate as an integrated team.
New Capability Based Planning (CBP) and Capability Management (CM) processes will be further institutionalized to bring greater coherence to CF force development. Concurrently, the CF will work closely with key stakeholders to address the ends, ways and means required for the Forces to become the integrated, multi-role military consistent with government priorities.
The creation of CANOSCOM in 2006 provided the CF with a single entity charged with bridging the gap between Canada and Canadian Forces employed in operations on other continents. Using research accumulated over the past three years, in 2007–2008 CANOSCOM will continue to experiment with different options to project operational sustainment into non-traditional theatres of operation on different continents. Armed with this analysis, CANOSCOM will offer options for maintaining simultaneous CF operations in two overseas theatres for implementation in 2008. This work will consider not just the fighting forces but options for contributing to a “whole of government” mission in which the CF are part of a multi-disciplinary Canadian effort to stabilize and assist a nation or region in crisis. The key to this effort will be providing the army, navy and air force with new operational support capabilities through a Canadian Forces Joint Operational Support Project that will identify and correct shortfalls in the current capacity of the CF in these areas.
As part of the effort to sustain CF task forces overseas while maintaining the capability to respond to domestic crises, during fiscal 2007–2008 CANOSCOM will develop a new situational-awareness capability to identify the flow of CF materiel and personnel in near-real-time, both in Canada and around the world. Called a Recognized Support Picture, this tool will permit decision-makers at all levels to see the materiel demands of ongoing operations, and the movement of assets to meet those demands. The Recognized Support Picture will highlight areas of potential shortage so decision-makers can adjust the tempo of operations or the flow of support proactively, according to need. The ability to match the needs of deployed task forces with the support stream will give commanders more freedom to innovate and adjust their plans.
The Recognized Support Picture uses data from an automated asset tracking system that is compatible with Canada’s allies and provides the near real time updates that commanders require. The radio frequency identification (RFID) adopted for the 2006 troop rotations to Afghanistan was essential to this new capability.
Defence Intelligence
It is the mandate of the Defence Intelligence function to provide credible, reliable and sustained intelligence services to DND and the CF in support of decision-making and military operations; to support other government departments in the defence and security of Canada; and to build relationships and work with allies in support of mutual defence and security issues. In accordance with direction from the Chief of the Defence Staff (CDS) and the Deputy Minister, the intelligence function at Defence continues to transform into a fully integrated DND/CF capability under the Chief of Defence Intelligence (CDI), linked by a fully interoperable secure information infrastructure founded on common software applications and compatible information systems.
Under the authority of Chief Defence Intelligence, Defence Intelligence must also seamlessly integrate tactical, operational and strategic capabilities with service-specific, joint, national and international data and products. All components of Defence Intelligence will function within a coherent framework that:
- gathers and prioritizes requirements from the DND/CF client base;
- tasks the most appropriate collection and production assets from across the breadth of the CF and partners’ assets; and
- delivers the right product to the right decision-maker at the right time and in the right format.
The civilian and military work force of Defence Intelligence will be developed and nurtured through a common strategic training and education regime.
CDI will continue to work within the realigned CF force structure to provide effective intelligence support to CF operations; in particular, strategic intelligence threat assessments and associated scientific and technical analyses will be undertaken to support force-development activities. At the same time, CDI will enhance intelligence operational support capabilities through the standardization and modularization of deployable all-source intelligence centres designed to function in a joint and combined operational environment at threat levels ranging from low to high. It will also strive to ensure that all defence intelligence capabilities are sustainable and effectively trained.
CDI will develop a long-term intelligence research and development program that capitalizes on emerging technologies, and collaborates with national and international allies to ensure that Canada’s capabilities are both current and effective.