January 20, 1999 The Honourable Art Eggleton, P.C., M.P. Minister of National Defence National Defence Headquarters Mgen G.R. Pearkes Building 101 Colonel By Drive Ottawa, Canada K1A 0K2 Dear Minister: I am pleased to submit, for your consideration, my report The Way Forward - Action Plan for the Office of the Ombudsman. This proposal is based on vast research into various Ombudsmen models, as well as extensive consultation with a cross-section of stakeholders, both inside and outside the Department of National Defence and the Canadian Forces. In my opinion, the recommendations contained within provide the necessary tools for operating a neutral, independent and credible office that will contribute to positive change within the institution. Sincerely, André Marin Ombudsman 2 TABLE OF CONTENTS INTRODUCTION......................................................................................................................... 1 PUBLIC POLICY PARAMETERS...................................................................................................... 1 Reporting of Ombudsman ....................................................................................................... 2 Terms of Employment .............................................................................................................2 Core Jurisdiction and Mandate .............................................................................................. 2 Core Constituency................................................................................................................... 2 METHODOLOGY FOR THE CONSULTATION ................................................................................... 3 GENERAL APPROACH AND LAYOUT OF THE ACTION PLAN ........................................................... 5 CHAPTER 1 EVOLUTION OF THE OFFICE OF THE DND/CF OMBUDSMAN................................... 7 FROM CONCEPT TO REALITY ....................................................................................................... 7 Somalia – 1993 ....................................................................................................................... 7 Report on the Study of Mechanisms of Voice / Complaint Resolution in the Canadian Forces - The Doshen Paper #1 – November 1995............................................................. 10 Proposed Implementation Plan - Organizational Ombudsman - The Doshen Paper #2 – July 1996.................................................................................... 11 Abandoning of the Ombudsman Concept ............................................................................. 12 Recommendations of the Special Advisory Group on Military Justice and Military Police Investigation Services in The Dickson Report – March 1997 ................................... 12 The Young Report – March 1997.......................................................................................... 13 Dishonoured Legacy: The Lessons of the Somalia Affair – June 1997 ............................... 14 A Commitment to Change – October 1997........................................................................... 14 APPOINTMENT OF THE OMBUDSMAN – JUNE 1998..................................................................... 15 CHAPTER 2 OMBUDSMEN MODELS ......................................................................................................... 17 CIVILIAN.................................................................................................................................... 17 Classical Ombudsmen........................................................................................................... 17 Concept ............................................................................................................................. 17 Illustrations ....................................................................................................................... 19 Auditor General ............................................................................................................ 19 Privacy Commissioner.................................................................................................. 19 Information Commissioner ........................................................................................... 19 Official Languages Commissioner ............................................................................... 19 1 Organizational Ombudsmen ................................................................................................. 20 Unempowered Ombudsmen.............................................................................................. 20 Concept ......................................................................................................................... 20 Illustrations ................................................................................................................... 22 Private Sector............................................................................................................ 22 The Toronto Dominion Bank “Between Us” model............................................. 22 Bank of Nova Scotia Ombudsman........................................................................ 22 Hydro Québec Ombudsman.................................................................................. 23 Public Sector ............................................................................................................. 23 Department of Foreign Affairs and International Trade Ombudsman.................. 23 Department of Indian Affairs and Northern Development................................... 24 Canadian International Development Agency...................................................... 24 Empowered Organizational Ombudsmen......................................................................... 24 Concept ......................................................................................................................... 24 Illustrations ................................................................................................................... 25 Concordia University Ombudsman....................................................................... 25 Canadian Broadcasting Corporation Ombudsman................................................ 26 Magna International Ombudsman......................................................................... 26 Toronto Star Ombud ............................................................................................. 26 Canadian Banking Ombudsman ........................................................................... 27 Toronto Dominion Bank Ombudsman.................................................................. 27 Algonquin College Ombudsman........................................................................... 28 Office of the Correctional Investigator................................................................. 28 MILITARY .................................................................................................................................. 31 Classical Ombudsmen........................................................................................................... 31 United States Inspector General............................................................................ 31 Parliamentary Commissioner for the German Armed Forces............................... 33 Australian Defence Force Ombudsman................................................................ 34 Norwegian Ombudsman for the Armed Forces.................................................... 37 Swedish Ombudsman............................................................................................ 38 Organizational Ombudsmen ................................................................................................. 38 Czech Republic Armed Forces Ombudsman........................................................ 38 Netherlands Armed Forces Inspector General...................................................... 39 Israeli Defence Force Soldiers' Complaints Commissioner ................................. 40 ANALYSIS .................................................................................................................................. 41 2 TABLE OF CONTENTS CHAPTER 3 A BLUEPRINT FOR AN EFFECTIVE AND CREDIBLE DND/CF OMBUDSMAN ...... 49 INDEPENDENCE AND IMPARTIALITY........................................................................................... 49 Principle................................................................................................................................ 49 Implementation ..................................................................................................................... 52 Relationship between the Ombudsman and the MND...................................................... 52 Funding ............................................................................................................................. 54 Staffing.............................................................................................................................. 58 Ombudsman as Sole Authority Employer .................................................................... 58 Principle .................................................................................................................... 58 Implementation ........................................................................................................