I think the biggest piece is the fear of reprisal. I'm not sure how you can include something to enforce consequences if there's reprisal. If we look at the civilian piece, we see the public service employee survey was done in 2011. In there, question 43 is very specific to reprisal for a public service employee using the system and for DND. If you look at that piece, the question reads:I feel I can initiate a formal recourse process (grievance, complaint, appeal) without fear of reprisal.
DND scored 50% positive answers. That means 50% were negative answers, so half the people fear using existing mechanisms. On the CF side, it's the same. They do a survey every three years called “Your-Say”. The 2009 survey asked exactly the same question, and it was 52%.