COMMUNICATION UNIFICATION: THE NEED FOR CANADIAN ARMED FORCES INSTITUTIONAL COMMUNICATIONS Major H.A.B. Apostoliuk JCSP 39 PCEMI 39 Master of Defence Studies Maîtrise en études de la défense Disclaimer Avertissement Opinions expressed remain those of the author and do Les opinons exprimées n’engagent que leurs auteurs et not represent Department of National Defence or ne reflètent aucunement des politiques du Ministère de Canadian Forces policy. This paper may not be used la Défense nationale ou des Forces canadiennes. Ce without written permission. papier ne peut être reproduit sans autorisation écrite. © Her Majesty the Queen in Right of Canada, as represented by the Minister © Sa Majesté la Reine du Chef du Canada, représentée par le ministre de la of National Defence, 2013 Défense nationale, 2013. CANADIAN FORCES COLLEGE – COLLÈGE DES FORCES CANADIENNES JCSP 39 – PCEMI 39 2012 – 2013 MASTER OF DEFENCE STUDIES – MAÎTRISE EN ÉTUDES DE LA DÉFENSE COMMUNICATION UNIFICATION: THE NEED FOR CANADIAN ARMED FORCES INSTITUTIONAL COMMUNICATIONS By Major H.A.B. Apostoliuk Par le major H.A.B. Apostoliuk “This paper was written by a student “La présente étude a été rédigée par attending the Canadian Forces College un stagiaire du Collège des Forces in fulfilment of one of the requirements canadiennes pour satisfaire à l'une des of the Course of Studies. The paper is exigences du cours. L'étude est un a scholastic document, and thus document qui se rapporte au cours et contains facts and opinions, which the contient donc des faits et des opinions author alone considered appropriate que seul l'auteur considère appropriés and correct for the subject. It does not et convenables au sujet. Elle ne reflète necessarily reflect the policy or the pas nécessairement la politique ou opinion of any agency, including the l'opinion d'un organisme quelconque, y Government of Canada and the compris le gouvernement du Canada et Canadian Department of National le ministère de la Défense nationale du Defence. This paper may not be Canada. Il est défendu de diffuser, de released, quoted or copied, except with citer ou de reproduire cette étude sans the express permission of the Canadian la permission expresse du ministère de Department of National Defence.” la Défense nationale.” Word Count: 19 592 Compte de mots : 19 592 i TABLE OF CONTENTS Table of Contents i Abstract ii Chapter 1. Introduction 1 2. Imperatives for Institutional Communications 16 3. The Institutional Communications Environment 48 4. A Strategic Institutional Communications Approach 74 Bibliography 91 ii ABSTRACT In times of fiscal constraint and in the absence of a spotlight mission, the Canadian Forces public profile fades, and the military institution faces risks and benefits from such variability that deserve scrutiny. This paper explores the communications imperatives of the Canadian Forces as an institution necessarily distinct from other elements of the Canadian Government and the public, and concludes that a unified, commander-driven strategic communications approach is necessary to address unique military requirements. Specifically, the military ethos, the need for apolitical military expertise, and the requirements of effective military operations necessitate focussed command engagement. Through a review of the communications environment, the paper concludes that leaders must also delicately navigate between the differing communications needs of the Government, the Canadian people and the military institution itself to have a positive strategic effect, and assure that at all times the institution acts, and is seen to act, subordinate to the civil authority. 1 CHAPTER ONE: INTRODUCTION In times of fiscal constraint and in the absence of a spotlight mission, the Canadian Forces public profile fades. Public opinion polling recently demonstrated this trend when the number of Canadians that had “recently seen, read or heard something about the Canadian Forces” dropped from 57 per cent in 2011 to 38 per cent in 2012, related in part to the end of the combat mission in Afghanistan.1 This variability deserves scrutiny, in light of the importance of communications to democratic government institutions.2 For the Canadian Forces, it is valuable to question how the institution should approach communications, and strategic communications, in a complex communications environment. Is there a need for a unique Canadian Forces voice distinct from other Government of Canada communications? Further, in what areas would such a voice be necessary to achieve the Government’s objectives in the military domain, and how would leaders assure alignment of a distinctly military strategic communications approach with overall Departmental and Government communications imperatives? Military communicators would have to consider such an approach in light of the existing communications environment. Key questions include what limitations and opportunities are presented by current and evolving communications mediums, what is 1Government of Canada Public Opinion Research Reports – National Defence – 2012, “Views of the Canadian Forces, tracking study, final report - Summary,” last accessed February 12, 2013, http://epe.lac-bac.gc.ca/100/200/301/pwgsc-tpsgc/por-ef/national_defence/2012/049-11-e/index.html. 2D.M. White, Political Communication and Democratic Government, Politics 24, no. 1 (May 1989): 30. 29-41 2 the public and Government appetite for military discussion, what are the current policies and communications guidance, and what limitations do existing practices impose. Given the importance of these questions, this paper will review the concepts of communications and strategic communications, and propose a Canadian Forces approach that considers the military’s communications environment. Further, an analysis of the needs and expectations of the Government, the Canadian people and the military will demonstrate the imperative for the Canadian Forces to communicate strategically as a unified institution, in areas of unique interest to the military. In light of existing shortfalls, the paper will recommend areas for focused communications planning and leadership engagement. Definitions Some explanatory definitions facilitate common understanding of the concepts used in this paper, including the Canadian Forces institution, institutional communications, strategic communications, public affairs and information operations. The distinction between the military institution and the broader Department of National Defence is important when discussing the possible long-term needs of institutional communications. As explained by the Government, “Under the law, the Canadian Forces are an entity separate and distinct from the Department.” 3 The National Defence Act 3National Defence and the Canadian Forces, “What is the relationship between DND and the Canadian Forces?,” last updated 26 June 2012, http://www.forces.gc.ca/site/about-notresujet/index-eng.asp. 3 outlines the separation between these establishments, and the name “The Department of National Defence and the Canadian Forces” reflects this division. Under the Minister, a civil servant Deputy Minister heads the Department, while the Chief of the Defence Staff leads the Canadian Forces. The Deputy Minister is responsible for “policy, resources, interdepartmental coordination and international defence relations.”4 The Chief of the Defence Staff is exclusively responsible to Government for the “command, control and administration of the Canadian Forces and military strategy, plans and requirements.”5 Members of the military have a special relationship with the government forged on sworn fealty to the Crown, and with the Canadian people they serve to defend. Military leaders have a critical relationship with the men and women they command and lead in dangerous operations, which could result in their deaths. These unique relationships and responsibilities necessitate that the communications associated with the institution be examined distinctly from, but in close relationship to, the communications approach of the Department of National Defence and the Government. At the same time, this separation of entities does not negate the reality of the jointly run National Defence Headquarters, the subordination of the CF to civil authority, or the functional authority for public affairs given to the Assistant Deputy Minister Public Affairs (ADM PA) within the Department. The Canadian Forces institution incorporates both the “organizational characteristics arising from the CF’s functional role, and professional attributes reflected 4Ibid. 5Ibid. 4 in the CF’s distinctive values and norms.”6 Thus, its leaders lead not only the organization, but also the profession of arms. The military doctrinal manual, Leadership in the Canadian Forces: Leading the Institution, provides guidance to current and future institutional leaders on “how best to direct, enable and motivate others while steering the Canadian Forces in the successful achievement of its very wide range of tasks and maintaining its professional ethos and relevance.”7 Canadian military leadership doctrine defines institutional leaders not by position, but by the impact that select officers and senior non-commissioned officers can have on the institution. Those most obvious examples include the Chief of the Defence Staff, senior officers and non-commissioned members in the services: the Royal Canadian Navy, the Canadian Army, the Royal Canadian Air Force and the Canadian Special Forces Command, and the leadership teams