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Marking Time: A decade of stalled progress for the Primary Reserve - Report
Executive summary
Since 2017, the Office of the Ombudsman has issued progress reports to monitor the implementation of recommendations from our systemic investigations. Two reports published in 2016—Compensation Options for Ill and Injured Reservists (RFC) and Part-time Soldiers with Full-time Injuries (OSI)—continue to show limited progress.
Nearly a decade later, many of the inequities identified in these reports persist. This stalled progress is especially troubling as the Canadian Armed Forces (CAF) increasingly depend on Primary Reserve members for domestic emergencies, international operations, and training. These challenges come amid plans to substantially increase Reserve Force recruitment. These members continue to face inconsistent access to compensation, health care, and administrative support when they become ill or injured during military service.
In December 2024, we launched a systemic review to determine why these recommendations remain unimplemented. This review included interviews with senior CAF leaders to identify barriers to progress, assess the continued relevance of our recommendations, and highlight emerging issues. As part of this review, we also issued a letter to the Chief of the Defence Staff (CDS) in June 2025 outlining additional concerns affecting the Reserve Force. This review was completed prior to the Government of Canada’s announcement of increased defence funding and the launch of the Reserve Transition Support (RTS) policy.
Our review confirmed that all issues identified in 2016 remain relevant. However, systemic barriers to their implementation persist. These challenges originate at the strategic governance level, particularly in the absence of a coherent employment model for Reservists, and cascade downward to administrative processes. Interviewed CAF leaders also emphasized the need for better coordination among senior leadership to fully understand how Reservists are employed and to account for their unique circumstances in policy development.
The four key barriers are:
Recommendation 1: Reserve Force Compensation Governance
By January 2027, the Canadian Armed Forces strengthen the governance framework for Reserve Force Compensation by finalizing the delegation of authority. This should include clearly defining roles, responsibilities, and accountabilities at all levels to ensure that compensation requests are reviewed and approved by the sole decision-making authority.
Recommendation 2: Digitalization of the Reserve Force Compensation application process and access to tools
By January 2027, the Canadian Armed Forces modernizes the Reserve Force Compensation application process by:
By January 2027, the Canadian Armed Forces ensures that leadership and ill and injured Primary Reserve members have access to information about compensation options following an injury, illness or disease. This includes:
By January 2027, the Canadian Armed Forces complete updates of the Primary Reserve members health care entitlement and eligibility policies by allocating additional resources to expand capacity and strengthen expertise in drafting policies and directives, including the Reserve Force perspective.
Recommendation 5: Communication
By January 2027, the Canadian Armed Forces include health resources for Reservists in the letter issued to members deemed Non-Effective Strength, to provide information should an operational stress injury manifest after their release.
While the CAF has taken steps such as improving access to resources for Reservists through the MyCAF application, centralizing policy expertise to improve coordination, and aligning Reserve policies within the broader CAF, these efforts have not yet addressed the core inequities identified nearly a decade ago.
With renewed investments in defence and a focus on CAF Reconstitution, this is an ideal opportunity to ensure fair support for every CAF member who suffers from an illness or injury due to their military service. Implementing these recommendations will not only advance fairness for ill and injured Reservists but also strengthen the CAF’s overall readiness and resilience.
Marking Time: A decade of stalled progress for the Primary Reserve - Report
Executive summary
Since 2017, the Office of the Ombudsman has issued progress reports to monitor the implementation of recommendations from our systemic investigations. Two reports published in 2016—Compensation Options for Ill and Injured Reservists (RFC) and Part-time Soldiers with Full-time Injuries (OSI)—continue to show limited progress.
Nearly a decade later, many of the inequities identified in these reports persist. This stalled progress is especially troubling as the Canadian Armed Forces (CAF) increasingly depend on Primary Reserve members for domestic emergencies, international operations, and training. These challenges come amid plans to substantially increase Reserve Force recruitment. These members continue to face inconsistent access to compensation, health care, and administrative support when they become ill or injured during military service.
In December 2024, we launched a systemic review to determine why these recommendations remain unimplemented. This review included interviews with senior CAF leaders to identify barriers to progress, assess the continued relevance of our recommendations, and highlight emerging issues. As part of this review, we also issued a letter to the Chief of the Defence Staff (CDS) in June 2025 outlining additional concerns affecting the Reserve Force. This review was completed prior to the Government of Canada’s announcement of increased defence funding and the launch of the Reserve Transition Support (RTS) policy.
Our review confirmed that all issues identified in 2016 remain relevant. However, systemic barriers to their implementation persist. These challenges originate at the strategic governance level, particularly in the absence of a coherent employment model for Reservists, and cascade downward to administrative processes. Interviewed CAF leaders also emphasized the need for better coordination among senior leadership to fully understand how Reservists are employed and to account for their unique circumstances in policy development.
The four key barriers are:
- Governance: Fragmented authority and unclear roles continue to delay policy alignment.
- Cultural Divide: Enduring bias against Reservists affects equity in benefits and recognition.
- Resourcing Constraints: Staffing shortages and financial pressures hinder implementation.
- Administrative Complexity and Digitization: Outdated directives and administrative procedures, and slow modernization impedes timely change.
Recommendation 1: Reserve Force Compensation Governance
By January 2027, the Canadian Armed Forces strengthen the governance framework for Reserve Force Compensation by finalizing the delegation of authority. This should include clearly defining roles, responsibilities, and accountabilities at all levels to ensure that compensation requests are reviewed and approved by the sole decision-making authority.
Recommendation 2: Digitalization of the Reserve Force Compensation application process and access to tools
By January 2027, the Canadian Armed Forces modernizes the Reserve Force Compensation application process by:
- Completing the digitalization of the Reserve Force Compensation form (from electronically submitting requests to adjudication decision),
- Ensuring that adjudication decisions are made within 30 days of the member’s application for compensation; and,
- Ensuring the Reserve Force Compensation application process and related tools are accessible to all members, administrators, and leadership.
By January 2027, the Canadian Armed Forces ensures that leadership and ill and injured Primary Reserve members have access to information about compensation options following an injury, illness or disease. This includes:
- Centralizing existing information on compensation options, entitlements and steps for submitting requests into one online product to help members make informed decisions.
- Ensuring that any relevant documents, policies, procedures and forms are available on externally accessible platforms, and a cyclical update process is established.
By January 2027, the Canadian Armed Forces complete updates of the Primary Reserve members health care entitlement and eligibility policies by allocating additional resources to expand capacity and strengthen expertise in drafting policies and directives, including the Reserve Force perspective.
Recommendation 5: Communication
By January 2027, the Canadian Armed Forces include health resources for Reservists in the letter issued to members deemed Non-Effective Strength, to provide information should an operational stress injury manifest after their release.
While the CAF has taken steps such as improving access to resources for Reservists through the MyCAF application, centralizing policy expertise to improve coordination, and aligning Reserve policies within the broader CAF, these efforts have not yet addressed the core inequities identified nearly a decade ago.
With renewed investments in defence and a focus on CAF Reconstitution, this is an ideal opportunity to ensure fair support for every CAF member who suffers from an illness or injury due to their military service. Implementing these recommendations will not only advance fairness for ill and injured Reservists but also strengthen the CAF’s overall readiness and resilience.
