Review of Operation Respect’s Strategy and Plan
13 December 2024
Air Marshal Tony Davies
Chief of Defence Force
New Zealand Defence Force
Defence House
34 Bowen Street
WELLINGTON 6011
Tēnā koe Air Marshal Davies
Review of Operation Respect’s Strategy and Plan
In 2020 an independent review commissioned by the Ministry of Defence recommended that the Office of the Auditor-General (OAG) audit New Zealand Defence Force’s (NZDF) progress in meeting the objectives of Operation Respect. The objectives are to eliminate inappropriate and harmful behaviour and create a safe, respectful, and inclusive environment.
The Chief of Defence Force invited the OAG to review the progress that NZDF is making in meeting Operation Respect’s objectives every two years for the following 20 years.
We published our first two reports in March 2023; our first audit report and a monitoring report which established a baseline for measuring NZDF’s progress over time.
Our first audit report focused on how well NZDF had designed and set up Operation Respect to achieve its aims. Although we saw leadership commitment and a genuine willingness to change, we found a range of areas that required improvement for Operation Respect to succeed. Our monitoring report also identified continued and sometimes serious harmful behaviours within NZDF.
At that time, NZDF did not have a clear and well considered strategy for implementing Operation Respect. This meant that actions were not well co-ordinated or targeted at the right issues.
NZDF has now developed a new strategy for Operation Respect. We have carried out an audit of the new strategy and associated implementation plan, to assess whether NZDF is now better positioned to meet the programme’s objectives. We summarise our findings in this letter.
By providing feedback to NZDF in this early stage of implementation we aim to support NZDF to make any further adjustments before we carry out our next full performance audit which is currently scheduled to commence in May 2025.
Summary of our findings
To meet the challenges of the 21st century, NZDF needs to attract and retain people with a wide range of skills and perspectives. Creating safe and cohesive teams and work environments is fundamental to this. Continued commitment to Operation Respect is therefore critical to NZDF’s overall success.
In my view, NZDF has identified what it needs to create long-term, sustainable change which will address the drivers of harmful behaviour over time. It has invested the initial resources needed to achieve this but ongoing commitment will be needed to sustain progress.
NZDF also needs to develop more robust implementation planning for a programme of this complexity and duration. NZDF recognises this and work is underway to address it.
The new Operation Respect strategy
NZDF has reset Operation Respect’s direction. Since we completed our first performance audit, NZDF has developed an evidence-based strategy for Operation Respect. It makes a clear case for how Operation Respect will create the safe and cohesive teams and work environments that are needed for operational effectiveness.
This is an important shift in thinking which ensures the rationale for Operation Respect aligns with the purpose and values of NZDF.
Implementation of the strategy
The approach NZDF is taking to implementing the strategy appears appropriate. NZDF is prioritising activities that have the potential to bring about lasting change. It is also using lessons from past experiences to design and implement activities effectively.
NZDF is focusing its initial efforts on the response system,1 improving data and information management, and creating safe working and living environments in all defence areas. It also has work planned in equipping leaders to manage harmful behaviour and set a healthy culture.
NZDF’s work on improving the response system has the potential to build trust in reporting inappropriate and harmful behaviours. This was a key concern raised in our 2023 audit report. NZDF is introducing more independence in reporting pathways and more resolution options. We expect that, if these are well implemented, trust in reporting of inappropriate and harmful behaviour will increase. For this to happen, internal policies need to be appropriately aligned and provide clear communication and guidance that supports people to understand the new approach. This work is under way.
The work NZDF has planned is ambitious. Significant programmes of work are being led out of different parts of the organisation. NZDF knows what needs to be done but programme implementation planning needs to be further developed. This will ensure that the multiple streams of work can be sequenced and co-ordinated effectively. This will support effective governance of the programme and give NZDF the most benefit from the activities it is implementing.
Monitoring progress
NZDF has a plan to monitor the overall benefits of the programme. As this work progresses, NZDF also needs to ensure it has identified what impacts it expects from the different programme activities and how these impacts will contribute to achievement of long-term benefits. For example, what impacts it expects from the leadership development activities it is implementing, and how this will contribute to creating safe and cohesive work environments.
We understand that this work is underway. This will assist NZDF and those governing the programme to identify whether the activities are having their intended effect, and which are making the most difference.
Resourcing Operation Respect
The investment and priority NZDF has provided for Operation Respect following our 2023 audit has put the programme on the right path to succeed, and trust in NZDF’s commitment to this work is increasing in the organisation. The new Operation Respect team was set up with the right expertise and experience to manage a complex programme of culture change. The benefits of this are reflected in the new strategy.
However, uncertainty about the programme’s future resourcing creates risks. We heard that this is already starting to affect programme delivery, including work on leadership development, defence area plans, and infrastructure. To maintain people’s trust in Operation Respect, it is important to continue the momentum the programme has generated. NZDF will be able to sustain progress only if it resources the programme to succeed.
Given the public interest in this work I intend to provide the Foreign Affairs, Defence, and Trade Committee with a copy of this letter and attachment and to publish them on my website.
I am happy to discuss any questions you may have about this letter and the more detailed findings.
I thank your staff who took the time to talk to my team and look forward to the next phase of this work in 2025.
Nāku noa, nā
John Ryan
Controller and Auditor-General
1: The response system is the systems, processes, and activities that make up how NZDF responds to incidents of inappropriate and harmful behaviour. This includes the complaints and discipline systems, as well as processes and personnel (such as SAPRAs, Social Workers, and leaders) who respond and support people when harm occurs.