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 CANADIAN FORCES COLLEGE / COLLÈGE DES FORCES CANADIENNES
CSC 31 / CCEM 31

EXERCISE/EXERCICE NEW HORIZONS

ADDRESSING THE CANADIAN AIR FORCE RECRUITMENT AND TRAINING

ISSUES WITHIN THE CONSTRAINTS OF A ‘DEGREED’ OFFICER CORPS

By /par LCol Conrad Namiesniowski

Term One, Syndicate 7

29 April 2005

nationale.EMC /P <
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BD35BT/TT2 1 Tf0.0009 Tw 12 0 10.98 305.999424c 0.0010 37043jETEMC /P <
/MCID 1
 2/34

ABSTRACT

This paper argues that officers recruited without a degree, for operational

occupations in the Canadian Air Force (CAF), should complete occupation training

before completing a degree. It opens with a discussion of the problems and limitations of

the CF officer recruiting programs. It then outlines the impact that the CF directive

known as MND 10 had on the Air Force, when it cancelled the Officer Cadet Training

Program and required that all officers have a degree. A presentation of the changing

demographics of the recruiting base demonstrates that the Air Force cannot recruit and

train enough officers to fulfill the shortages in operational occupations. The Canadian

education and officer entry programs are then compared with the United States Air Force

(USAF), and the Royal Air Force (RAF) programs. Finally, a hybrid of the RAF, USAF,

and CAF programs, is discussed and recommended as a solution to the operational

recruiting, education and training problems, by enabling occupation training to be

completed before university training.

 3/34

Many young men and women join the Canadian Air Force (CAF) with aspirations

to become a pilot, navigator or aerospace controller (AEC) but fail to achieve their

dreams due to the demanding training program. Before 1997, it was possible for an

individual to join the CAF as an officer, go directly into training for one of these

occupations, and never obtain a university degree. 1 In 1997, the Minister of National

Defence (MND), under a directive referred to as MND 10, directed that all Canadian

Forces (CF) officers require an under-graduate degree, unless commissioned from the

ranks. 2 As a result, all officers enter the CF under the Direct Entry Officer (DEO)

program (for those with a university degree), or under the Regular Officer Training Plan

(ROTP) (for those without a university degree). 3 ROTP officers spend their first four

years in the military at university, paid by the CF, before they start occupation training. 4

DEOs start occupation training immediately. 5 Of the DEO and the ROTP officers that

started occupation training over the past three years, 43 percent of the pilots, 20 percent

of the navigators, and 27 percent of the AECs failed to graduate. 6 With a 30 percent

average failure rate in these occupations, the CF is paying a large education bill for

1
Department of National Defence, CFAO 6-1: Enrolment Regular Force, available from
http://adminfincs.mil.ca/admfincs/subjects/cfao/006-01_e.asp; Internet; accessed 25 October 2004.
2
Colonel R.T. Wakelam, “So What’s in a Degree,” Canadian Military Journal, vol. 4, no 2 (24
Sep 2003) [journal on-line]; available from http://www.jounrnal.forces.gc.ca/engraph/Vol4/no2/wats_e.asp;
Internet; accessed 02 February 2005.
3
DND, CFAO 6-1: Enrolment Regular Force….
4
Department of National Defence, CFAO 9-12: Regular Officer Training Plan, available from
http://adminfincs.mil.ca/admfincs/subjects/cfao/009-12_e.asp; Internet; accessed 25 October 2004.
5
DND, CFAO 6-1: Enrolment Regular Force ….
6
Air Force Military Occupation Review Board (AMOR) Presentation slides from January 2005
provided by email from Captain George Trattner, CAS D Air PPD 2-2, 4 April 2005.
 4/34

ROTP officers to attend university first, before determining that they cannot do the job

that they were hired to perform. With the loss of the Officer Cadet Training Program

(OCTP), which recruited approximately 50 percent of the officers for these military

occupation codes (MOC, i.e. pilot etc), the CF lost a consistent source of recruits that

could be trained quickly and for a relatively low cost compared to ROTP. 7 This paper

will argue that officer candidates recruited without a degree, for operational occupations

in the Canadian Air Force, should complete basic officer training and occupation training

before completing a degree.

This paper will start with a short introduction to the current CF officer recruiting

programs and their limitations, followed by a discussion of the repercussions that MND

10 had on the Air Force. The paper will then outline the impact that social, demographic,

training, and manning trends are having on recruiting and training programs for

operational air force occupations. A brief description of the entry and education

programs for the United States Air Force, the Royal Air Force, and the Canadian Air

Force (CAF) will then be compared. Finally, this paper will introduce a proposed

recruiting and training program that will mitigate the CAF recruiting and training

problems by enabling occupation training before university training for operational air

force occupations. 8

7
Department of National Defence, Air Personnel Research Report 04/01:- Investigating the
Volume of Applications to the 32 Pilot MOC since 1987 (Ottawa: Chief of the Air Staff, 2004), 11.
8
The air force operational MOCs are Air Navigator (ANav), Pilot, and Aerospace Control (AEC).
AEC is an amalgamation of Air Traffic Control (ATC) and Air Weapons Control (AWC).
 5/34

Current CF Officer Recruiting Programs

ROTP is for high school graduates that do not have a university degree and will

attend either Royal Military College (RMC) or an approved Canadian university for a

maximum of five years at CF expense. ROTP candidates receive a salary while attending

university and graduates must serve an obligatory period of service for the education they

received. ROTP recruiting capacity is restricted by an annual budget and the availability

of RMC or civilian university training positions, and course loading for follow on

occupation training courses to meet a vacancy four to six years later.

ROTP university failures have the option of repeating up to two academic years at

their own expense, requesting release, or becoming a non-commissioned member

(NCM). Release without incurring a financial obligation is only an option at or before

completion of the first year of a Baccalaureate program. If repayment is not feasible, the

candidate performs administrative duties until reaching the end of obligatory service. 9

These failures represent a training delay if they repeat a year or a loss if they release or

become a NCM. Either way the scheduled training slot allocated for them when they

were hired may not be filled.

ROTP occupation training failures are slightly different from academic failures.

These officers have already completed four years of paid military service and received a

university education at CF expense. For a pilot candidate it could take two or more years

after university graduation before a candidate fails out of the program. A 30 percent

average failure rate, from operational MOC training, represents a large education expense

for university training that these MOCs will not be able to put to use. After an MOC

9
DND, CFAO 9-12: Regular Officer Training Plan ….
 6/34

training failure, the first step is to attempt to salvage the officer by finding an agreed

upon occupation that meets the needs of the CF and the desires and interests of the

individual. If an appropriate occupation transfer (OT) is not achievable and the

repayment of money owed for obligatory service is not feasible, similar to academic

failure, the officer performs administrative duties until the end of obligatory service,

which can be for four years or more. This solution, although not ideal, is a compromise

that allows the CF to regain some of the money invested but it still leaves a vacancy that

must be hired and trained. Many training failures do provide suitable candidates for

many other occupations, some of which are happy with the change and others are not.

Data was not available reflecting the numbers of compulsory occupational transfers that

put in their release immediately or after completing obligatory service. However, the

number of ROTP officers in general that released immediately following their obligatory

service is higher than that of DEOs. 10 Also of note is the fact that officers that enrolled

under OCTP had better retention than ROTP and DEO. 11

DEOs already have a degree from a recognized university and enter into the CF

training system as soon as there is a course available. The number of DEOs recruited

depends upon the maximum annual MOC manning requirements and training capacity.

DEO obligatory service is occupation dependant, which is relative to the cost of training

provided. 12 Since DEOs already have a degree, they commence basic officer training

10
Department of National Defence, Project Report 649: An Examination of Officer Retention and
Career Progression According to different Commissioning Plans Within the Canadian Forces, Vol. I,
(Ottawa: DND Canada: Dec 1993) 42.
11
Ibid, xvi.
12
Department of National Defence, CFAO 6-1: Enrolment Regular Force ….
 7/34

(BOTC), language training and then MOC training immediately after being recruited.

Their training schedule is efficient unless affected by a backlog in the system.

Impact of MND 10

Before MND 10, the OCTP was the primary recruiting method for the Air Force

to recruit operational MOCs officers. 13 . This recruiting program exclusively targeted

high school graduates who had the potential but did not plan to go to university in the

immediate future. 14 Between 1988 and 1992, the OCTP accounted for about 50 percent

of the applicants, followed by the DEO program and the ROTP. 15 Similar to the DEO

recruiting process, OCTP recruiting capacity was set at the maximum annual MOC

manning requirements and training capacity. The loss of the OCTP was a significant loss

to the Air Force recruiting capability and has contributed to current personnel

shortages. 16 In February 1998, Dr. J.L. Granatstein a professor from York University,

who wrote one of the studies used to draft MND 10, discovered that his work had

contributed to the demise of OCTP. In a letter he wrote to the MND, he stated it was not

his intention for the CF to eliminate OCTP and that some of the very best officers he

knew joined under OCTP. He also emphasised that the CF should not close off entry to

13
Department of National Defence, CFAO 9-26: Officer Candidate Training Plan, available from
http://adminfincs.mil.ca/admfincs/subjects/cfao/009-26_e.asp; Internet; accessed 25 October 2004.
14
Ibid.
15
DND, Air Personnel Research Report 04/01 …, 11.
16
Department of National Defence, DOR (Corp) Research Note RN 2004/14 Impact of Recruit
Age Distribution on the Probability of Reaching Senior Ranks, (Ottawa: DND Canada, December 2004),
12.
 8/34

bright high school educated candidates that do not have an immediate desire to continue

with university education. 17

OCTP recruiting standards were very similar to existing ROTP recruiting

standards. Candidates required a minimum of a high school leaving certificate that could

lead to university, with the potential to complete a four-year basic baccalaureate degree. 18

Before MND 10, many OCTP officers never acquired a university degree. However,

because of MND 10, many have now become university graduates through either CF

home study programs or CF sponsorship programs. This demonstrates that it is possible

to acquire a degree after MOC training, if the recruiting standard is maintained. It also

shows that a similar program to the OCTP could still meet the intent of MND 10.

Obligatory service for the OCTP gave the CF flexibility and provided adequate

payback to the CF for training received. 19 Unlike ROTP, the ability to easily transfer an

OCTP officer to a new occupation or release them for unsatisfactory performance did not

represent a large financial expense because less time and money was invested in their

training. This program ensured that only those with the required skills and potential for

advancement received a paid education and further training. If occupational training

occurred before university, the recruiting group could quickly respond to training failures

by immediately recruiting replacement candidates and occupationally transferring others

to MOCs that are short of personnel. This process reduces the costs of educating

candidates that release as soon as they are able. This also leads to a more consistent flow

17
Dr. J.L. Granatstein of York University, letter to Honourable Art Eggleton, Minister of National
Defence, 26 Feb 1998. Copy provided by email from LCol Donald Albert CAS D Air PPD, December
2004.
18
DND, CFAO 9-26: Officer Candidate Training Plan ….
19
Ibid.
 9/34

of trainees, as the training system could be more responsive to surpluses, shortages, and

the annual requirements of these MOCs.

From 1996 to 2000 and from 2002 to 2003 the Continuing Education Officer

Training Plan (CEOTP) replaced the OCTP program as an interim solution until

recruiting could catch up with demand. “… the CEOTP provided the option for

applicants to join as an officer with the understanding that they would complete their

degree on their own over a nine-year period.” 20 CEOTP was eliminated in 2003.

Nevertheless, if a revised recruiting program similar to CEOTP had been implemented, it

would have the flexibility to deal with the problems discussed above. CEOTP required

officers to get a degree, which met the objectives of MND 10. What it lacked was a more

formalized and dedicated process with an incentive program to make it work.

The Impact on the CAF by Social, Demographic, Training, and Manning Issues

From 1990 to 2002, the number of CF job applicants has been decreasing for

operational MOCs. 21 With ROTP and DEO as the only two recruiting programs for Air

Force officers, there is a problem in attracting and signing officers as Pilots and AECs. 22

From 2003 to 2005, the AEC and Pilot MOCs were understaffed by 10-15 percent. 23 The

quotas for DEO and ROTP are determined annually at the Air Force Military Occupation

Review (AMOR) and are set at levels designed to fill the training slots available and to

reduce the overall shortages in each MOC. Even with large numbers of OTs into these

20
Major P.J. Johnston and Major Larry Green, CAS D Air PPD, “Statement of Operational
Requirement – Air Officer Education Plan,” received by email, 1 February 2005.
21
DND, Air Personnel Research Report 04/01 …, 15.
22
Ibid, 20.
23
D Mil C 4 - Career Manager Briefings, 2004 and 2005.
 10/34

MOCs, the overall numbers are still deficient (See Appendix 1). Compensating for

recruiting shortages by exceeding the quota of OTs is increasing the average age of these

MOCs due to the extra time OTs spend retraining. This also upsets the normal even

distribution to other MOCs.

For the 2004/2005 training year, 12 percent of the CF flying training seats will be

vacant. 24 At the same time there are 125 pilots backed up in the training system,

available for training, but cannot get the prerequisite courses to fill the empty seats.25

Without the flexibility provided by the OCTP, the CF is struggling to fill the vacancies

and is having trouble due to the inconsistent student flow. The limited number of ‘on the

job’ (OJT) training opportunities in flying squadrons, requires that many pilot trainees

spend months performing administrative tasks at non flying units as they wait for

training. For example, one individual decided to stay in RMC for OJT and complete a

Masters degree before starting pilot training. This delayed him from pilot training even

further because he completed his Masters program even though a training slot became

available for him. 26 Delays in training can de-motivate the trainee or lead to failure due

to the amount of time between courses. These delays also cost the CF in extra flying

hours and classroom instruction required to re-establish proficiency to an appropriate

level for follow-on courses.

24
DND, Air Personnel Research Report 04/01 …, 6.
25
AMOR slides from January 2005 provided by email from Captain George Trattner, 4 April
2005.
26
Maj Carlow, D Mil C 4 pilot career manager, discussion with writer and other Career Managers
January 2004.
 11/34

In 2003, two reports were prepared for the CF concerning social attitudes and

interest in the CF. These studies demonstrated that only 13 percent of potentially

employable Canadians (15-39 years old) were interested in a career in the CF and only 26

percent of them selected the Air Force over the other two services. 27 In the 15-29-age

bracket (the primary target age for recruiting), only eight percent were interested in

having a full time career in the CF (12 percent with offers of paid education and 15

percent with signing bonuses). 28 Only 12 percent of those were interested in operational

MOCs. 29 Given these statistics, the body of potential candidates from the Canadian

civilian population for a full time military career in operational MOCs is small and

recruitment attempts via ROTP and DEO are not working. Therefore, based on this

information DEOs cannot reliably make up for the short falls of ROTP.

Many ROTP officers, while at university, request or are mandated to accept an

OT. Normally ROTP pilots do not request OT however, course failure and loss of

medical category results in compulsory OT. Over the past four years, AEC and ANav

have both had an average of four voluntary OTs per year. 30 This represents

approximately one quarter of the ROTP officers recruited for ANav and AEC each year

that do not start the originally planned and allocated training. This makes it difficult to

forecast the potential numbers for follow-on training slots as students may change MOC

27
CROP Inc (2003) “The Canadian Forces and Social Change in Canada,” Presentation for
NDHQ, August 2003, available from http://dgpaapp.mil.ca/eng/cs_e.asp?w=b; Internet; accessed 7 April
2005, Slides 16, 18.
28
Les Etudes de Marche Createc, Tracking Receptivity Toward Joining the CF – Wave 3 – Final
Report, Prepared for National Defence ADM (PA), (Montreal: June 2003) 21-27.
29
Ibid, 21-27.
30
 12/34

more than once. The frequency of OT for ROTP students is high enough for the

recruiting group to consider recruiting ROTP applicants to an element rather than a

declared MOC until after the second year. 31

Officer recruits are also getting much older. In 1982, 90 percent of all officers

recruited were under 26. However, by 2003, almost 50 percent were over 25 and 10

percent are over 37 years old. 32 This affects both DEO and ROTP recruits, however the

impact on ROTP is low. The loss of OCTP is the major reason for this aging trend. 33

Since the air force requires an equitable balance of junior officers as operators and

seniors officers as leaders, a process must be developed that identifies young officers

early in their careers that are destined for higher rank and ensure they get the training and

education required exactly when they need it. Young ROTP officers have traditionally

had higher potential to reach senior officer ranks. However, because the four years in

school count towards a pension, ROTP officers reach 35 years of service and retire before

compulsory retirement age of 60 years old (CRA 60). The time spent in training does not

guarantee earlier promotions because credit for mandatory time in rank does not start

until after MOC qualification. Therefore, with the addition of CRA 60, DEOs have

gained potential for higher rank as their time to serve can go to age 60. 34 With older

recruits and delays in training that affect both DEO and ROTP, it is possible that fewer

officers from operational MOCs will be competitive for promotion to General. It is likely

31
DND, CFAO 9-12: Regular Officer Training Plan….
32
DND, DOR (Corp) Research Note RN 2004/14 …, 3.
33
Ibid, 7-12.
34
Ibid, 7-32.
 13/34

that they will run out of time to serve because they reached 35 years of service or CRA

before they can be promoted.

United States Air Force (USAF) / Royal Air Force (RAF) / Canadian Air Force

(CAF) Education Programs

All USAF officers have university degrees gained either through the Air Force

Academy or through civilian universities and a Masters Degree is required for promotion

to major. 35 However, the USAF also has a very large population base from which to

recruit, allowing them to be more selective. The USAF is now starting to realize that just

having any Masters Degree is not an indicator of potential and they are changing their

assessment and development process to one of deliberate development and not on ‘square

filling.’ The USAF has gone so far as to conceal officer civilian education from

promotion boards and only officers sent for a post graduate degree by the air force,

related to their job, will be recorded as part of their service history.36 This indicates that

the USAF takes an enlightened view that acquiring knowledge pertinent to the MOC is

more important than just having a degree.

One benefit the USAF has for its officers is an education program designed to

facilitate the completion of postgraduate degree programs. Each USAF Air Force base

has an education office that is run by a mixture of civilians and military personnel. The

education office has representatives from local universities that provide counselling,

enrol students, manage teachers and schedule classes for military personnel on base, or in

35
Department of National Defence, Minister’s reports: Granatstein - The CF Education System,
available from http://www.forces.gc.ca/site/Minister/eng/Granatstein/gra2engsech.html; Internet accessed 2
February 2005.
36
Rod Hafemeister, “A New Degree of Anonymity – Civilian Education to be Hidden from
Promotion Boards,” New York Times: 14 February 2005.
 14/34

nearby areas. USAF Officers can have face to face counselling to determine the best

options for degree completion at any stage during their program. Having classes on base

in the evenings and on weekends, managed by the education office, enables flexible class

scheduling to accommodate base exercises. It is much easier for students to go to class

on base immediately after work with their co-workers than to go downtown or take

classes by correspondence. The use of an education office on Air Force bases in Canada

would similarly allow for the management and delivery of military continuing education

such as Officer Professional Military Education (OPME) and university courses as

well. 37

The Royal Air Force (RAF) does not require all its officers to have degrees upon

enrolment. The RAF has an education and enrolment program called “Open University”

which is designed to attract high school graduates directly into the Air Force to train as

pilots, ANavs, and ATC. 38 This program allows enrolees to learn to fly and acquire

credits towards a degree from RAF training. Enrolees will finish their degree later on in

their career as time permits. Study needs adjust around professional training and

operational commitments, which provides flexibility for the enrolee and the RAF. “This

strategy is very much a part of the RAF’s commitment to recruit, train and retain the

best.” 39 Credits recognized by the ‘Open University’, include the Junior Officer

Command Course and Command and Staff College, Pilot, Navigator, and ATC training

(outlined in Appendix 2).

37
Information gathered by author through interaction with the Education Office at Tinker Air
Force Base Oklahoma City, Oklahoma, 1999-2001.
38
Royal Air Force News, “The RAF In–Service Degree Scheme,” available from
http://www.learning-forces.org.uk/21-30/isds.htm; Internet; accessed 2 February 2005.
39
Ibid.
 15/34

The Canadian Air Force individual training and education goal is to create

officers that are capable of critical thinking, managing change, and allowing the CF to

develop its capabilities, thus creating a force ready for operations. The CF system is an

organized sequential process of training, education, self-development, and work

experience, with timed delivery to provide the required training at precisely the right time

for job execution. This includes formal training, continuation training and academic

upgrades, both military and civilian. 40

Unlike the USAF and RAF, the CAF has created a series of development periods

numbered one through four. In the first two periods, there are three programs for Air

Force officer development after basic MOC training. They are the Officer Professional

Military Education (OPME) program 41 , the Air Force Officers Basic Course (AFOBC) 42

and the Air Force Officer Advanced Course (AFOAC) 43 . OPME consists of four

university level courses and two professional level courses. These courses are part of the

RMC curriculum for all ROTP students and are required to be completed by all DEOs.

As of September 2004, OPME courses are available at the Management Development

40
Department of National Defence, DAOD 5031-2: Learning and Professional Development,
available from http://www.forces.gc.ca/admfincs/subjects.daod/5031/2_e.asp; Internet; accessed 25
October 2004.
41
Department of National Defence. “Air Force Officer Professional Military Education (AF-
OPME) Residential Program,” available from http://airforce.mil.ca/Canairgens/2004/121225Zjul04_e.htm;
Internet; accessed 25 October 2004.
42
AFOBC is for junior officers with 3 years operational experience and is designed to expand
upon the basics learned from BOTC for the subjects of leadership, resource management, doctrine, history,
staff skills, and the planning and conduct of aerospace operations.
Department of National Defence, “Air Force Officers Basic Course (AFOBC),” available from
http://airforce.mil.ca/Canairgens/2003/040900Zjun03_e.htm; Internet; accessed 25 October 2004.
43
AFOAC is a carry on from the basic course and is designed for newly promoted Majors. It will
focus on joint operations along with aerospace planning, operations, critical thinking and teamwork.
Department of National Defence, “Air Force Officer Advanced Course (AFOAC),” available from
http://airforce.mil.ca/Canairgens/2004/121221Zjul04_e.htm; Internet; accessed 25 October 2004.
 16/34

School in St Jean, Quebec, or as in the past by correspondence from home station. This

program is organized and managed by RMC. 44 The last two development periods are for

senior officers to assume the next level of command. 45

A Proposed Recruiting and Training Program

Air Force leaders need to be provided with a range of experience and

professional development over their career with which to acquire the breadth
and depth of aerospace knowledge required to effectively develop and
employ aerospace power across a spectrum of activity and conflict. Air
Force leaders who acquire this complete understanding of aerospace power
will become the thinkers, leaders and visionaries that the Chief of Defence
Staff describes as the foundation that will give the Canadian Forces future
operational advantage. The Air Force aims to develop these personal
qualities and abilities in Air Force commanders and leaders, and expects that
they will apply them to Air Force transformation as well as operations. 46

In keeping with the Air Force vision, if Air Force officers from operational MOCs

are to be competitive for promotion to senior rank, they need to gain both experience and

education as early and efficiently as possible. The current ROTP program treats

everyone as equal, thus education and lengthy operational training time is approximately

the same for all, regardless of potential. If MOC training was completed first, those with

high potential for advancement to senior officers could be identified early and sent to

school after their first tour. This would leave those with less potential for promotion to

maintain the operational capability as the line flyer. A proposed Air Force Regular

Officer Training Plan for Operational MOCs (AF-ROTP-OMOCs) and initial career path

is outlined in Appendix 3. Like the RAF program, it is based on credit for military

44
DND. AF-OPME.
45
D Mil C 4 Career Managers Brief at CFCSC, March 2005.
46
Department of National Defence. CFP A-GA-007-00 AF-004 Strategic Vectors: The Air Force
Transformation Vision. (Ottawa: DND Canada, 2004), 49.
 17/34

training and starts with MOC training before university. Unlike the RAF, those with

initiative and potential can be sent to school at the end of a first tour. This program does

not mean that the line flyer could not attain a degree; it just means it may take them

longer.

If training for the Air Force operational MOCs followed this model, responsive

and timely recruiting would be possible and would not be restricted by the current ROTP

university training capacity or budget. Course loading and scheduling would be easier as

all recruits (including DEOs) would follow the same program thus reducing delays

between courses, which would eliminate the need and cost of refresher training. Pilot

training phase I is only 10 weeks and Phase II is 29 weeks with a variable phase III based

on aircraft type selected. In theory, completing pilot training within two years is

attainable, rather than the four years it takes now, in addition to the four years for

university for ROTP pilots. This program would be responsive to the immediate needs of

the MOCs and would eliminate the problems associated with forecasting requirements

four years in advance.

Given the problems resulting from current hiring rules and practices,

demographics, and high failure rates, the operational MOCs are at risk of not being able

to provide an operational and combat capable expeditionary force in accordance with the

Air Force vision. 47 As the baby boomers in the CF start to reach retirement age, the CF

needs to find ways to attract more suitable candidates and to find a way to encourage

them to have a full career, thus minimizing the training bill and ensuring sufficient

manning to perform the tasks required by the government. It requires a lot of time,

money and effort to train an officer for one of these operational MOCs. Although each
 18/34

school is attempting to reduce the failure rate by looking for new and more effective

training methods, the skills that are required for these occupations require a combination

of spatial intelligence and bodily-kinesthetic intelligence. 48 These abilities and the level

of proficiency required are not readily attainable for all candidates, which has resulted in

high failure rates. The CF already recognizes the problem of baby boomer retirements

and has extended compulsory retirement age to 60 from 55, to try to mitigate this

problem, but this alone is insufficient.

The CF and the CAF already offer a number of degree completion programs that

allow those who do not have a baccalaureate diploma or a post graduate diploma to

further their education. The Canadian Defence Academy (CDA) is working hard to

expand the opportunities for CF members to obtain higher education. The CF University

Program (CFUP) and Campus Canada are two programs where agreements have been

made with universities in every Canadian Province to facilitate CF enrolment and

recognition of credits for military courses. Campus Canada is an online service. CFUP

has agreements with universities for conventional courses as well as correspondence

courses. 49 The CF currently subsidizes serving officers, without a degree, to complete

their degree part time and then fulltime under the Initial Baccalaureate Degree Program

47
Ibid, 41.
48
“Spatial intelligence: the ability to accurately perceive and think in terms of the visual qualities
of the world and its dimensions …[and] Bodily-kinesthetic intelligence: the ability to control one’s bodily
motions, the capacity to handle objects skilfully….”
Robert G. Owens, Organizational Behavior in Education: Adaptive Leadership and School
Reform, (Boston: Pearson Education, Inc., 2004), 58.
49
(Appendix 4 is a two page description of the program from the CDA web site)
Department of National Defence, “CDA – Member Support Services: CF Continuing Education
Program (CFCEP),” available from http://www.cda.forces.gc.ca/er/engraph/MSS/CFCEP/cfcep_e.asp;
Internet; accessed 15 March 2005.
 19/34

(IBDP) for up to 16 months fulltime schooling in a 20 month time period. 50 The Air

Force does the same thing under the Air Force Degree Completion Program (AF

DCOMP). RMC offers a Bachelor of Military Arts and Sciences (BMASC) under this

program and provides credit for military courses already completed. 51 For those officers

with an undergraduate degree there are subsidized programs called the Advanced Degree

for Regular Force Officer – Part-Time Program and Full Time Program. 52 These

resources could easily be used to support this new AF-ROTP-OMOC program.

The Canadian Air Force “Strategic Vision” already recognizes the value of

operational experience to achieve a high level of competency in the air force mission.

While a general understanding of aerospace power can be derived academically, a

more in depth understanding is gained through first-hand operational experience
and professional development. To this end, the Air Force will expose a greater
number of personnel to operations through its expeditionary focus and increase its
emphasis on aerospace power execution for all of its personnel. 53

By focusing on operational training first and academic upgrading second, recruits will

follow a process of indoctrination, training and life style adjustment. Gaining operational

experience and skills will provide a level of understanding that can lead to a motivated

and focused individual, which can be applied to university education.

50
Department of National Defence, DAOD 5031-7, Initial Baccalaureate Degree Program,
available from http://www.forces.gc.ca/admfincs/subjects.daod/5031/7_e.asp; Internet; accessed 25
October 2004.
51
Department of National Defence, Air Force Degree Completion Program (AF DCOMP) –
Selection for Academic Year 2003-2004, available from
http://airforce.mil.ca/Canairgens/2004/121221Zjul04_e.htm; Internet; accessed 25 October 2004.
52
Department of National Defence, Advanced Degree for Regular Force Officer – Part-Time
Program, available from http://vcds.mil.ca/vcds-exec/pubs/canforgen/2002/064-02_e.asp; Internet;
accessed 25 October 2004.
53
DND CFP A-GA-007-00 AF-004 Strategic Vectors …, 50.
 20/34

Using the AF-ROTP-OMOC concept, BOTC will be the first step in the vetting

process followed by second language training and then MOC training. The new officers

will be at their youngest age and normally their reflexes will be at their best. This puts all

ROTP and DEO in the same class where the more mature officers could aid the young

and vice versa. If recruits joined the Air Force to fly, then it is important to prove that

they are capable, before too much time and money is spent on them. There is also

synergy to be attained by being able to recruit all year long rather than just in time for the

school year. This also means that there will be no large flood of graduates in May each

year all waiting for course loading.

The proposed AF-ROTP-OMOC solution will be a hybrid of the USAF

continuing education program and the RAF program. Like the RAF, the Canadian Air

Force wants to recruit, retain and educate the best of the best. Like the new USAF

initiative, the priority will be to provide an education that is pertinent and timely to an

operational MOC career 54 . Similar to the USAF base education office, the CAF could

establish an education office at each base supported by the RMC or CDA. Since these

MOCs would not be attending RMC or civilian universities upon initial entry, there

would potentially be money and extra personnel available to support this program at the

bases. Along with running the OPME program, the base education office could schedule,

run, administer, or arrange classes, etc with local universities or the RMC. A

combination of courses taught on base, supplemented by self-study courses if required,

could produce great results in a short time. These education offices could also run

54
Since any degree program is allowable for these MOCs, it would be beneficial to have a more
pertinent and focused education by including a few core courses in the program of study like OPME and
military history.
 21/34

language training for personnel on base. Like the RAF, credits achieved for actual MOC

training could be used towards related degrees with a military focus. Regular ROTP can

be reserved for non-operational MOCs; their basic training requires that they have a

specific type of degree, before they can start MOC training (i.e. Aeronautical Engineers).

However, DEOs from these MOCs could benefit from the OPME program on base.

Rather than have OPME with only four university credit courses, all six should be

at the university level, starting at a first year level and progressing to higher levels. Since

some universities provide three year degrees, those candidates that do not plan on doing a

post graduate degree could obtain a three year degree with the option to upgrade to a four

year program with a few additional requirements such as thesis development, research

methods and an honours paper, which all could be pursued at a later date. This would

streamline the degree process and provide a more useful education that could meet the

needs of the individual, the MOC and the Air Force.

To implement this initiative the Air Force would need to build the time into

weekly schedules for newly qualified ANavs, Pilots or AECs to attend classes. Since

AF-ROTP-OMOC will be working with DEOs, there is already a requirement for both of

them to do OPME. DEOs are currently recruited under a higher pay scale due to their

degree. AF-ROTP-OMOC promotion and pay system could be designed to commence at

a basic level at the completion of MOC training and increase as education increases to

eventually be the equivalent of DEO pay upon completion of a degree. A system like this

would provide additional incentive and motivation to complete a degree. Completion of

a degree also makes them competitive for promotion under the current promotion system,
 22/34

which would then put them on par with the DEOs, only younger and possibly with more

potential.

Junior officers need to start their careers by establishing good work habits and

study habits thus developing the skills that will benefit them as they advance. It would

not be too hard to arrange for junior officers to attend classes on base for two afternoons

a week unless there was an exercise or an operational deployment. With an education

office on base, a councillor would be better able to anticipate, plan and adjust for major

operational events such as deployments and exercises. Correspondence type courses

might also be a solution based on the individual’s interest and ability. Those MOCs that

work shifts could easily put some of their quiet hours to use. By starting this process as

early as possible after MOC training, candidates would be in the routine of studying in

the evenings and on weekends to meet the demands of MOC training. Highly motivated

officers may even apply more time to study early in their careers before they have to

worry about the demands of a family. Moreover, starting MOC training first, would

encourage candidates to adapt to the demands of an Air Force life style and dedicate

themselves to the program from day one, if they want to succeed.

The objective of the AF-ROTP-OMOC is not just to get a degree but also to

acquire the correct type of knowledge and experience required of an Air Force officer.

DEOs will also have to acquire similar knowledge despite the fact that they already have

degrees. Doctors and other professional occupations have regulating bodies that ensure

continuing education is done on a yearly basis. An established Air Force education office

could run a similar continuing education program in the CAF, which may lead to

sponsored postgraduate training. The main idea is to set up a training plan that is
 23/34

interesting and would expose Air Force officers to air force doctrine and history once

they have an MOC, thus reinforcing their ability to relate to operational events rather than

trying to visualize it from a book. Those officers that have the core qualities of military

leadership such as integrity and dedication (listed in Appendix 5) will excel under a

system like this. Those who have the potential to reach senior ranks will be able to do so

because they will have more time left to serve after completing training, before having to

retire.

The size of the USAF makes on base education offices a financially viable option.

In Canada, with the proposed AF-ROTP-OMOC program, the numbers would be

sufficient to justify the expense on a smaller scale. In addition, other occupations on

base, including DEOs, would benefit from this resource. It could also become a forum

for dispersing new professional education for all officers. For example, it could

distribute the new doctrine designed by the Air Warfare Centre.

Conclusion

The demographics of the recruiting base in Canada have changed and the CAF

cannot recruit and train sufficient quantities of suitable officers in an efficient manner for

operational MOCs. This is having a negative impact on the trained effective strength of

these MOCs and will eventually affect the combat capability of the Air Force. With an

average MOC training failure rate of 30 percent, the Air Force cannot afford the time and

money to pay officers to attend university before the validation of their occupational

skills. Most of the subsidies and processes already exist to be able to create a new

proposed recruiting and training program. This program will send all Air Force

operational MOC officers to MOC training before providing a university education for
 24/34

those who do not have one. After MOC training the Air Force will provide time for

university courses on base, on a part-time basis, facilitated by an Air Force base

education office to manage the program. Under its own mandate, CDA is already

establishing agreements with universities and arranging for the granting of equivalencies

for military training. Similar to the RAF, the CAF needs to recruit the best officers

available, identify those with high potential early, and provide opportunity for them to

receive special coursing after MOC training and a first operational tour. All officers

including DEOs will have to accomplish OPMEs but officers requiring a degree will get

university credit for completing OPME and can continue their studies on base as time

permits. This program introduces these officers to a life style of training, learning and

development. Officers that possess the CF core qualities of military leadership will excel

and become the leaders of the future. The Air Force needs highly competent officers to

maintain an operational combat capability and have the potential for promotion to high

levels of leadership and responsibility. The Air Force already recognizes the value of

experience. If the Air Force is to continue to be a viable force, it must capitalize on the

advantages of recruiting officer candidates without university degrees for operational

occupations, and have them complete basic officer training and occupation training

before completing a degree.

 25/34

Appendix 1

MOC – Recruiting Deficiencies

MOC – DEO Quota ROTP Quota OT Quota Overall Failure

Recruiting Shortage Rate over
Deficiencies after adding the past 2
over the past 2 DEO, ROTP years
years and OT.
AEC 19 of 50 = 30 of 35 = 33 of 12 = -3 27 %
38 % (-31) 85 % (-5) 2.8 % (+21)
ANAV 19 of 20 = 20 of 29 = 12 of 8 = -5 20 %
95 % (-1) 69 % (-9) 1.5% (+4)
PILOT 120 of 340 = 62 of 60 = 29 of 30 = -119 43%
50 % (-120) 1.03 % (+2) 97% (-1)
55

55
Summary of data from the AMOR slides from January 2005 provided by email from Captain
George Trattner, 4 April 2005.
 26/34

Appendix 2

RAF COURSES ACCREDITED WITH THE OPEN UNIVERSITY -

CREDIT ACCUMULATION TRANSFER (CAT) POINTS

The Open University has awarded a General Credit Rating the courses listed below. The
CAT Points are available for courses that started on or after the date shown, the first
courses to qualify for the award of CAT points are indicated in brackets.

COURSE TITLE CREDIT POINTS FROM DATE/ COURSE NO.

Officer Training
The Initial Officer Training Course 30 Level 1 Jul 98 (No 181)
Individual Staff Studies Course (Single
15 Level 2 Jul 00 (No 62)
Course)
Individual Staff Studies Course (Module 1) 15 Level 2 Feb 99 (No 60)
Individual Staff Studies Course (Module 2) 15 Level 2 Feb 99 (No 60)
Junior Officer Command Course 15 Level 2 Jul 98 (No 230)
10 Level 2
Intermediate Command & Staff Course Jul 98 (No 214)
10 Level 3

Pilot Training
Joint Elementary Flying Training Course 30 Level 1 Jan 99 (No 25)
Basic Fast Jet Flying Course 30 Level 1 Jul 95 (No 146)
Advanced Fast Jet Flying Course 40 Level 1 Mar 94 (No 8)
Single Engine Rotary Wing Course 35 Level 1 Jan 99 (No 29)
Multi-Engine Rotary Wing Course 35 Level 1 Jan 99 (No 15)
Multi-Engine Advanced Flying Training
30 Level 1 Nov 99 (No 137)
(Long) Course
Multi-Engine Advanced Flying Training
30 Level 1 Nov 99 (No 137)
(Short) Course

ANav and ATC are on the next page.

 27/34

Appendix 2

Navigator Training
Basic Navigator - Tutor/Bulldog and
30 Level 1 Jan 92 (No 420)
Tucano Courses Together
Basic Navigator - Dominie Course 20 Level 1 Oct 99 (No 458)
Advanced Navigator - Low Level Dominie
25 Level 1 Jan 99 (No 458)
Course
Advanced Navigator - Hawk Course 25 Level 1 Jan 97 (No 441)
Navigator Rotary Wing Training Course 40 Level 1 Jan 99 (No TBN)
Advanced Navigator - Maritime Dominie
20 Level 1 Oct 99 (No 458)
Course

The following courses have a Specific Credit Rating with the Open University.

Air Traffic Control Training

Joint Air Traffic Controller Course 30 Level 1 Jan 01 (No 324)
Area Radar Training Course 10 Level 1 Nov 99 (No 206)
56

56
RAF News, “The RAF In–Service Degree Scheme,”.
 28/34

Appendix 3

Proposed ROTP Operational MOC Training Plan and Career Path

MILITARY TRAINING EDUCATION - Courses and Credits

BOTC Credit for BOTC – Course in

leadership and resource management
Second Language Training Language Course credit – University
level dependent upon language ability
MOC Training Credits similar to RAF plan Appendix
When complete promoted to 2Lt 2
First Operational Tour OPME 6 courses
Promoted to Lt and Capt based on time University courses as able / available**
in rank Second Language Training credits
throughout career
Officers Basic Course (AFOBC)
Second Operational Tour University courses every semester.**
NOTE: High potential officers go to Officer Advanced Course (AFOAC)
school to complete a min of a 3-year
degree, remainder continue with second
tour and work on a degree part-time.
Staff Tour CF Command and Staff College
Promoted to Major before or during Basic degree should be complete by
tour. this time and MDS or other Masters
degree could be started
Follow-on Career development as it Masters degree or PhD based upon
exists in each MOC MOC requirements, potential, and
desires of the individual.

**Note: civilian Universities offer a number of summer compressed courses, which limits
the number that can be done during the summer semester but would shorten the time
spent at school. RMC will also have to offer summer courses in this manner.
 29/34

Appendix 4

“CFUP - Canadian Forces University Program

Members of the Defence Team looking to pursue university studies have a variety of
options through the Canadian Forces University Program (CFUP). The benefits of
applying for academic courses through the CFUP at either the University of Manitoba or
Télé-université include:

on-going academic counselling;

simplified transfer of academic credits from other institutions; credits for certain
military courses;
waiving of normal residency requirements;
timetable allowances for operational commitments; and
a variety of different teaching methods.

Each university has a coordinating office to answer enquiries and to provide

assistance. CFUP credits are obtained through correspondence courses, regular day or
evening classes at some bases, on-site weekend workshops, summer sessions,
audio/video assisted distant learning courses.

University of Manitoba in Winnipeg, Manitoba and Télé-université in Quebec City,

Québec offer services in English and French, respectively, under the CFUP. Courses may
be taken through correspondence or by attending classes at one of the member
universities. Similarly, students may request permission to take correspondence or on-
campus courses from other universities as a visiting student, and have these accredited
toward a University of Manitoba or University of Quebec degree program.

In addition, the Royal Military College of Canada (RMC)/Division of Continuing

Studies in Kingston, Ontario, offers members of the military, their spouses and civilian
employees of the Department of National Defence degree programmes. These are
designed to permit students to acquire a university degree regardless of where they live or
work, or their commitments to families or careers. The degrees are thoroughly grounded
in the elements of the military profession, integrating in-service training and experience
with special and standard university courses. Courses are offered in English and French
and students can complete assignments and exams in the official language of choice.” 57

A list of Universities in the CFUP is on the following page.

57
DND, “CDA – Member Support Services: CF Continuing Education Program (CFCEP)….
 30/34

Appendix 4

Universities in CFUP

Alberta Saskatchewan
Athabasca University First Nation University of Canada
University of Alberta University of Regina
University of Calgary University of Saskatchewan
University of Lethbridge
Ontario Nova Scotia
Brock University Acadia University
Carleton University Dalhousie University
Laurentian University Mount Saint Vincent University
Lakehead University Saint Francis Xavier University
McMaster University Saint Mary's University
Queen's University Technical University of Nova Scotia
Royal Military College of Canada Université Saint-Anne
University of Guelph University College of Cape Breton
University of Ottawa University of King's College
University of Toronto
University of Waterloo
Univeristy of Western Ontario
University of Windsor
York University
P.E.I. Newfoundland
University of PEI Memorial University of Newfoundland
Manitoba New Brunswick
University of Manitoba Mount Allison University
University of Winnipeg Université de Moncton
Brandon University University of New Brunswick
Québec British Columbia
Bishop's University Royal Roads University
Concordia University Simon Fraser University
McGill University of British Columbia
Université de Sherbrooke University of Victoria
Université de Québec à Chicoutimi University of Northern British Columbia
Université de Québec à Montréal
Université de Québec
Université Laval
Université de Montréal
58

58
DND, “CDA – Member Support Services: CF Continuing Education Program (CFCEP) ….
 31/34

Appendix 5

Leadership Qualities, Attributes, and Performance Factors

The Core Qualities of Other Necessary Indicative Performance

Military Leadership Attributes Factors

Integrity Dedication Sets the example

Courage Knowledge Disciplines subordinates
Loyalty Intellect Accepts responsibility
Selflessness Perseverance Stands by own
Self-discipline Decisiveness convictions
Judgement Analyzes problems and
Physical robustness situations
Makes decisions
Delegates and directs
Supervises (checks and
rechecks)
Accounts for actions
Performs under stress
Ensures the well-being of
subordinates
59

59
Department of National Defence, Somalia Inquiry Report, available from
http://www.forces.gc.ca/site/reports/somalia/vol10/VOS1_e/asp; Internet; accessed 14 March 2005.
 32/34

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