All the recommendations from all of the reviews and the Defence’s whole of enterprise approach for execution, which is Pathway to Change, and then Air Force’s interpretation and internal strategies for delivery is New Horizon.24 Air Force has also supplemented New Horizon with particular initiatives as a direct response to the recommendations:25 They’ve both been running in tandem…so there’s been the intervention to really shift hearts and minds and that’s New Horizon. And New Horizon creates an environment where…you can get the women in, you can create policy and opportunities. But if it’s a shit place to work the women won’t stay, so you’ve got to have all of the stuff that Broderick recommended and then you need to have an environment that actually fosters and makes them feel like they want to stay.26 Air Force is also focussed on ensuring the sustainability of these reforms: …each process that Air Force has undertaken, they have tried to put in the quality of the project wedge at the end so that we don’t fall backwards. So I think, absolutely, this stuff is sustainable.27 I often make the point that behaviour is genderless but we’re very upfront about the capability linkage as a workforce issue – in the conversation we would tie behaviour to capability through retention. So if you’re not comfortable and happy in your workplace, you won’t stay – you will leave. That’s a loss and, not only that, you go out and you tell people what it was like and that’s a double loss. That’s reputational loss.28 Notwithstanding these successes, each Service pointed to particular challenges they have faced in terms of implementation. Navy Navy identified challenges with regard to attitudes, workforce shortages and structures:
Personally I think the idea of gender targets specifically in the military is ridiculous… The person who’s supposed to be standing on the bridge is supposed to be there as a result of merit and ability. Quite frankly…we don’t give a rat’s arse what gender they are.59 We’ve got females in our category who have been in but haven’t reached the seniority and they’ve been promoted... You’ve got males that have…got more experience, but they’re not getting it. We’re just pushing the females through.60 Some women in particular did not support some of the recommendations: As a female I believe that we’re degrading our expertise…to meet a quota.61 I hate to say there are some of my own gender…that utilise those weaknesses and those uncertainties and play the female card…Which doesn’t help for those that 100% want to be here and do the right thing.62 The organisational culture has female officers running around saying, ‘I was promoted before Broderick so my promotion is valid’. If you’ve got female officers saying that, what chance do we have?63 It’s a two-edged sword… These reviews are trying to help. I’m sure they do and they bring ideas into the table, but by the same token you will get flak just for trying to help women in the [Service].64 I’m being promoted next year and comment was made to me… ‘Aren’t you lucky you got promoted before Broderick came’. [And I replied] ‘I know what you’re angling at by making that comment. And no, I got promoted on my merit’. That’s what everyone is thinking now and that is so unfair.65 …you get tarred with the Broderick brush - you only got something because you’re a chick.66 People are getting kept in their positions because they don’t want to be seen to dismiss someone because they’re female.67
Communicating change Given the cultural tensions reflected above, the importance of accurate, timely and targeted messaging and communication cannot be overstated. All Services indicated that communication and filtering change through to all levels of the organisation was a major challenge. Few people with whom the Audit spoke were aware that the ADF Review’s recommendations were underpinned by the aim of building sustainable Defence capability and operational effectiveness. Others were not aware that the recommendations were largely gender neutral and were designed to benefit the ADF as a whole. However one officer stated: It’s about making the workplace fairer and…moving along with the times, making it more family [friendly]…and for people to want to come and stay.68 The following statements are typical of the feedback the Audit received on the messaging about change and cultural reform: Canberra is very good at producing policy, but then actually pushing it down to the lowest levels is something that we don’t do well.69 [My Service’s] sales pitch since this has begun appears very shallow…It feels like in our organisation, ‘send an email, mate, she’ll be right’. That’s what it feels like.70 I don’t even know that we’ve even talked about a communication strategy for the COSC outcomes.71 I think the problem for me and I’m not sure whether anyone else feels the same is [cultural reform] has not been explained to us well at all…even after sitting there for two hours, with someone rabbiting on, we still have no idea what it’s about, what they’re actually trying to achieve.72 I think we have some resistance out there [from people] in key positions who are not necessarily pro the strategic direction, who therefore filter it and apply their own views or messaging.73
Content of the ‘Women in the ADF’ Report Women’s participation The ‘Women in the ADF’ Report provides excellent information on women’s participation. The Audit looks forward to tracking progress in the future as information becomes available on particular recruiting initiatives and numbers of women accessing mentoring/sponsorship opportunities. Occupational segregation In relation to measures of occupational segregation Defence sought the following clarification:32 Recommendation three, sub para A requests data outlining ‘the number and proportion of women in targeted occupations which are highly gender segregated’, while separately requesting data on ‘measures of occupational segregation’. We believe that detailing the number and percentage of women in every occupational group in the ADF will fulfil both of these data requirements. Can you please advise if this will meet your expectation? The Commissioner’s response stated that:33 The intent of this part of the recommendation was to create a tool which would allow Defence to identify potential workforce concerns, and areas in which women’s representation is low. The two possible concerns with this approach are: 1. That ‘occupational groups’ may not be defined with enough clarity to enable areas to be identified, and area specific solutions examined. 2. The information may be presented in a way which is difficult to understand (eg large tables full of numbers and statistics where ‘highly gender segregated’ occupations are not highlighted). It would be important to ensure that these concerns were addressed in any work done in this area.
59 Director General Personnel – Air Force, Brief for CAF: Development of new Performance Appraisal System, AB14041593, June 2013. 60 Director General Personnel – Air Force, Brief for CAF: Development of new Performance Appraisal System, AB14041593, June 2013. 61 This is a combined figure of those who ‘slightly agree’, ‘agree’ or ‘strongly agree’, Air Force Safety Culture Survey 2013 – Perceptions of Negative Organisational Behaviours. 62 This is a combined figure of those who ‘slightly agree’, ‘agree’ or ‘strongly agree’, Air Force Safety Culture Survey 2013 – Perceptions of Negative Organisational Behaviours. 63 Chiefs of Service Committee Outcomes, Agendum 69 of 13: Framework for Gender Inclusion in the Australian Defence Force – Implementing Recommendations from the Review into the Treatment of Women in the Australian Defence Force – Phase 2 Report, 2012, 18 October 2013, Attachment C at [4(c)], provided to the Audit by ODU, 29 November 2013. Paragraph 4(c) lists these as ‘changing operational context, unforseen personnel impacts and resource constraints etc’. 64 Royal Australian Navy, Royal Australian Navy Audit Summary Report in Response to the Review into the Treatment of Women in the Australian Defence Force (Phase 2 Report) 2012, 30 August 2013, pp 6-10. 65 Primarily in response to an identified ‘lack of consistency and a tendency toward inflation’ (Directorate of Officers’ Career Management – Army, Guidance for the Completion of AE359 Performance Appraisal Report (ePAR)). 66 Director General Personnel – Air Force, Branch Level Instruction – Air Force Group Equity Coordinator, November 2011. Chapter 5: Principle 2: Diversity of leadership increases capability Key findings of ADF Review The ADF Review stated that harnessing all available leadership talent, and employing a diversity of thought and experience, was critical to increasing capability, and to more effective problem solving. It noted that the ADF was an organisation largely comprised of white Australian men, which lacked the perspectives and experiences of women, Aboriginal and Torres Strait Islander peoples, and those of culturally and linguistically diverse backgrounds.
Figure 8: Proportion of women and men, Army other ranks, financial year 2012/2013 Figure 9: Army women senior non-commissioned officers, 2010/2011 and 2012/2013 Rank 2010/2011 Number and proportion of total women (and men) / rank 2012/2013 Number and proportion of total women (and men) / rank SGT + [SSGT, 2011] 293 (men 2512) 10.4% 299 (men 2367) 11.2% WO2 + [SSGT, 2013] 169 (men 1822) 8.5% 181 (men 1758) 9.3% WO1 + RSM-A 56 (men 629) 8.2% 64 (men 606) 9.6% Army, officers The overall representation of women among Army officers has improved since 2011 (15.2% in 2013, compared to 14.5% in 2011).43 Representation at the more senior ranks (COL and BRIG) has also improved, and the Audit is aware that one woman was promoted to MAJGEN in financial year 2013/2014, the first female general service officer to reach that rank.44 Figure 10: Proportional representation of women, Army officer ranks, financial years 2010/2011 and 2012/2013 Figure 11: Women and men as a proportion of each Army officer rank, financial year 2012/2013
Number and proportion of total women (and men) / rank Number and proportion of total women (and men) / rank SGT 283 (men 1482) 15.9% 259 (men 1375) 15.9% FSGT 102 (men 624) 12.7% 107 (men 617) 14.8% WOFF + WOFF-AF 44 (men 527) 7.7% 41 (men 504) 7.5% Air Force, officers The overall representation of women among Air Force officers has risen since 2011 (19.8% in 2013, compared to 19.3% in 2011). Representation at the more senior ranks has improved between the ranks of SQNLDR and AIRCDRE, however there is no woman at the rank of AVM in 2013. Figure 16: Proportional representation of women, Air Force officer ranks, financial years 2010/2011 and 2012/2013 Figure 17: Women and men as a proportion of each Air Force officer rank, financial year 2012/2013 Figure 18: Air Force women senior officers, 2010/2011 and 2012/2013 Rank 2010/2011 Number and proportion of total women (and men) / rank 2012/2013 Number and proportion of total women (and men) / rank SQNLDR 178 (men 896) 16.6% 199 (men 896) 18.2%
Army has seen large increases in numbers of women in command positions, particularly over the previous two years. Women’s representation on Subject 1 for SGT (the promotion course that is a prerequisite for promotion to SGT for all Army trades) is slightly below the target. Air Force Air Force is exceeding its target for female representation at ACSC in 2013 and 2014. Based on information published in the ‘Women in the ADF’ Report, Air Force is exceeding its target for female representation at CDSS. Air Force also notes that, of 83 current O5 command appointments, 72 are male (86%) and 11 are female (14%).73 All Services have contributed information about their achievements in this area to the ‘Women in the ADF’ Report and, as set out in the Performance Framework, will be required to continue to do so through COSC. Figure 19: Navy officer gateways, women’s representation 2012/2013 2012/2013 Proportion of women in competitive pool (target) Representation of women (achieved) Total in competitive pool Women in competitive pool % women in competitive pool (target) Total places/ appointments No of women % women achieved ACSC 729 136 19% 25 6 24% CDSS 117 17 15% 5 1 20% Command appointments 117 17 15% 8 2 25%
Figure 20: Navy officer command and charge board recommendations for 2014/2015 Total positions Male Female Female % Notes ACSC 31 24 7 23% Includes reserve positions Shore command 3 2 1 33% Shore charge 11 8 3 28% MWV sea command 22 20 2 9% Sea charge 44 36 8 18% Figure 21: Navy other rank gateways, women’s representation 2012/2013 2012/2013 Proportion of women in competitive pool (target) Representation of women (achieved) Total in competitive pool Women in competitive pool % women in competitive pool (target) Total places/ appointments No of women % women achieved LSPC (AB) 2917 599 21% 844 128 15% POPC (LS) 873 178 20% 216 32 15% CPOPC (PO) 711 76 11% 119 16 13% Figure 22: Army officer gateways, women’s representation 2012/2013 2012/2013 Proportion of women Representation of women
Figure 24: Army other rank gateways, women’s representation 2012/2013 2012/2013 Proportion of women in competitive pool (target) Representation of women (achieved) Total in competitive pool Women in competitive pool % women in competitive pool (target) Total places/ appointments No of women % women achieved Subject 1 for SGT 3984 512 13% 1198 126 11% Figure 25: Air Force officer gateways, women’s representation 2012/2013 2012/2013 Proportion of women in competitive pool (target) Representation of women (achieved) Total in competitive pool Women in competitive pool % women in competitive pool (target) Total places/ appointments No of women % women achieved ACSC 122 16 13% 36 7 19% CDSS 150 16 11% 6 1 17% Command appointments 521 71 14% 30 4 13% Figure 26: Air Force other ranks gateways, women’s representation 2012/2013 2012/2013 Proportion of women in competitive pool (target) Representation of women (achieved) Total in competitive pool Women in competitive pool % women in competitive pool (target) Total places/ appointments No of women % women achieved
We already have some people doing various elements of the courses. There’s been two women from [a specific category] who’ve just gone and done that, so I’m hoping to catch them and interview them and talk about their experiences, how they were treated, what worked, what didn’t, what they experienced, how we can make it better.147 This planning and continual improvement directly supports the recommendation and will assist in ensuring that these environments are supportive and conducive to effective mixed gender performance. Army has also provided examples of individual management for women transferring into combat categories. Air Force has advised that the Air Force Workforce Diversity team will work closely with commanders of units that women will enter for the first time. The Audit welcomes the commitment by each of the Services to work closely with personnel and to tailor strategies that will work in different environments. However, the Audit also heard that these initiatives may require further work: I am concerned it is not in a suitable format or depth to ensure that [my Service] has sufficiently delivered a cultural change program for the removal of gender restrictions.148 We talk about being diverse and what the female will bring to the organisation. But that’s where it stops. I think we need to …get it in terms of why… How is this going to improve capability and so forth? Once you get that message to [the member] at the bottom, he’s got his male testosterone boiling up, give him something practical and give him something meaningful.149 She’s been basically, I wouldn’t say thrust upon us because we knew it was coming, but there’s been no training direction, briefing to the staff here at all, young or old, on how to deal with that interaction.150 I just think a heads up for the boys on how it’s going to be dealt with, how their daily interactions are going to change, what they have to look for, how to deal with those issues where there might’ve been a bit of inappropriateness…151 These challenges are recognised by the Services and the Audit agrees with the observation noted in COSC Agendum 69 of 13 that:
recording, photographing or transmitting incidents and images of sexual misconduct. SeMPRO coordinates Defence’s response to the ‘high and critical’ end sexually based incidents. Its Standard Operating Procedures (SOPs) for caller intake are intended to guide the professional judgment of the SeMPRO staff to inform them whether cases are best managed by SeMPRO or by the Values, Behaviours and Resolutions Branch (VBR).16 Prior to the establishment of SeMPRO, the victim support mechanisms in relation to sexual offences were principally provided through ADFIS, whose primary role is investigative.17 A dedicated victim support unit has been welcomed by ADFIS, whose Director advised the Audit that: We’ve got a good working relationship [with SeMPRO]... I’ve got one officer who will commit at least once a week to develop further in relation to SEMPRO requirements now that we’ve introduced the limited disclosure reporting.18 Provide a 24 hour/seven day a week telephone hotline and online service (click, call or text access) that is staffed by personnel with expertise in responding to complainants – female and male – who report sexual harassment, sex discrimination and sexual abuse. SeMPRO’s 24 hour/seven day a week advice and counseling service went live in July 2013. During business hours the service is staffed by SeMPRO specialist staff. The after-hours component of the service is managed by a specialist contractor. The contract for the after-hours service is for six months until March 2014.
66 Updated Broderick Phase One Audit’s Proposed Further/Alternate Actions, provided to the Audit 17 December 2013, p 6. 67 Updated Broderick Phase One Audit’s Proposed Further/Alternate Actions, provided to the Audit 17 December 2013, p 6. 68 Updated Broderick Phase One Audit’s Proposed Further/Alternate Actions, provided to the Audit 17 December 2013, p 6. 69 Recommendations Progress: Review Implementation Team, provided to the Audit 17 December 2013, p 5. 70 Royal Australian Navy Recruit School, 1RTB Kapooka, and 1RTU RAAF Wagga. 71 Royal Australian Naval College, Royal Military College – Duntroon, and Officer Training School. 72 COMDT B Kafer, email to the Audit, 22 November 2013. 73 Directorate of Strategic People Research, Australian Defence Force Academy 2013 Unacceptable Behaviour Survey Interim Report, DSPR Report No. 14/2013, November 2013, p 67. 74 COMDT B Kafer, email to the Audit 22 November 2013. 75 Directorate of Strategic People Research, Australian Defence Force Academy 2013 Unacceptable Behaviour Survey Interim Report, DSPR Report No. 14/2013, November 2013, p 72. 76 COMDT B Kafer, email to the Audit 22 November 2013. 77 This represents 30% of presentation at Duntroon Health centre and is therefore very significant, see Review into the Treatment of Women at the Australian Defence Force Academy Audit Report 2013, p 119. 78 Updated Broderick Phase One Audit’s Proposed Further/Alternate Actions, provided to the Audit 17 December 2013, p 6. 79 Updated Broderick Phase One Audit’s Proposed Further/Alternate Actions, provided to the Audit 17 December 2013, p 6. 80 Updated Broderick Phase One Audit’s Proposed Further/Alternate Actions, provided to the Audit 17 December 2013, p 6. 81 Updated Broderick Phase One Audit’s Proposed Further/Alternate Actions, provided to the Audit 17 December 2013, p 6. 82 Recommendations Progress: Review Implementation Team, provided to the Audit 17 December 2013, p 5. 83 Email to Director RIT, Subject: Actions from the Developing Partnerships Meeting – 18 Sep 13, provided to the Audit 15 November 2013. 84 Email to Director RIT, Subject: Developing Partnerships with Support Agencies, provided to the Audit 15 November, 2013. 85 Review into the Treatment of Women at the Australian Defence Force Academy Audit Report, 2013, p 17.