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Report on Federal Policing Sustainability

Foreword from the Lead of MAB’s Federal Policing Taskforce

December 2023

As a Taskforce of the Management Advisory Board (MAB), we have undertaken an exploration of the Royal Canadian Mounted Police’s (RCMP) Federal Policing program, through which we have come away with a greater appreciation of the tremendous significance of the program.

We, like many Canadians, are faced with almost daily reports of malicious cyber attacks, foreign interference in democratic institutions, threats against political figures and journalists, ideologically-motivated violent extremism, drug networks spanning continents, money laundering, and so on. As Canada’s federal law enforcement authority, the RCMP’s Federal Policing program is uniquely, and often solely, responsible for combatting such domestic and international criminal threats against Canada, its people and interests.

The importance of Federal Policing to the safety and security of Canada’s economic, political, and social structures must not be understated, nor should the importance of Federal Policing on the international stage. Yet, Federal Policing has faced significant capacity erosion over the years, as it has been required to do more with less; all the while, the program faces governance, financial, training and human resources challenges that impede in the program’s delivery of its mandate. The Federal Policing program has now reached a critical stage in regards to it’s sustainability.

Based on a fundamental belief that Federal Policing’s sustainability is crucial to Canada, the MAB Taskforce has developed this advisory report founded on the following three principles, which are underpinned by the need for strong internal and external communications:

  1. It is critical to establish a clear Federal Policing identity and capability with Ministerial support;
  2. There is a need to develop structures to deliberately sustain the Federal Policing identity and capabilities; and,
  3. A trained workforce with the necessary specialized skillsets is essential to deliver on the modern Federal Policing mandate.

It is evident that true transformative change of Federal Policing is vital not only to the RCMP as Canada’s national police force, but also to the Government of Canada given the significant risks to national security, public safety, and the economy. As a result, the Taskforce commits to advocating for Federal Policing’s sustainability to the Minister of Public Safety, Democratic Institutions, and Intergovernmental Affairs, while also urging the Commissioner to continue to implement strong and vital change to strengthen and enhance Canada’s federal police force in recognition of today’s complex and borderless criminal landscape.

Lastly, as the Taskforce Lead, I’d like to extend my sincerest gratitude to the RCMP for the access they afforded us, and great thanks to my fellow Taskforce members – Audrey Campbell, Randy Ambrosie, and Maureen Kempston Darkes – without their time and expertise, this advisory report would not be possible.

Mr. Douglas E. Moen
Lead of the MAB Taskforce on Federal Policing

On this page

Executive Summary

The RCMP Federal Policing program is responsible for ensuring the public safety and security of Canada, its people, and its interests from the most serious national and international criminal threats. This involves highly complex investigations related to national security, serious and organized crime, cybercrime, and financial crimes to ensure the stability of Canada’s political, economic, and social security.

In today’s criminal landscape and policing environment, Federal Policing faces exponentially growing governmental and public demands and expectations, which are juxtaposed by deteriorating resources and policies that may not adequately support the needs of its mandate. These factors have significantly impacted its sustainability and may further impact Canada’s credibility within the global policing and political space amongst its allies and international partnerships. This challenge has become particularly salient as the Canadian government assesses the future of policing in the face of multiple reviews and reports, as well as in the context of the upcoming renewal of contracts for local and regional policing services in 2032.

This advisory report by the MAB Taskforce on Federal Policing follows in the footsteps of numerous other reviews and recommendations related to Federal Policing, the most recent of which is the mandate review of Federal Policing published in November 2023 by the National Security and Intelligence Committee of Parliamentarians (NSICOP).

It is important to note that both the RCMP and the Minister of Public Safety, Democratic Institutions, and Intergovernmental Affairs have a distinct and shared responsibility to the Federal Policing program and its transformation efforts.

Based on research and interviews, the Taskforce has developed the following findings and recommendations to advise the RCMP on the modernization of Federal Policing:  

Overarching Principle 1: It is critical to establish a clear Federal Policing identity and capability with Ministerial support

Finding 1: Federal Policing requires adequate resourcing and a distinct identity, due to safety and economic risks.

Finding 2: Federal Policing will benefit from continued strong leadership to prioritize true change.

Overarching Principle 2: There is a need to develop structures to deliberately sustain the Federal Policing identity

Finding 3: The Federal Policing Transformation Strategy should have evidence-based objectives that are communicated across the RCMP.

Finding 4: Certain policies may present barriers to staffing the unique Federal Policing workforce.

Finding 5: Federal Policing requires enabling functions HR resources for effective staffing and workforce transformation.

Overarching Principle 3: The delivery of the Federal Policing mandate requires a workforce with specialized skillsets

Finding 6: Federal Policing would benefit from alternative training structures to specifically address the unique needs and role of the program.

Dedication

To all members of Federal Policing - past, present, and future - who contribute to the safety and security of Canada, we recognize your commitment both at home and abroad.

Acknowledgements

In recognition of the utmost importance of truth and reconciliation, the MAB Taskforce on Federal Policing respectfully acknowledges the historical and current relationship that First Nations, Inuit, and Métis across Canada have with the land all Canadians live on and enjoy. From coast to coast to coast, we are grateful for all of the contributions and knowledge of the First Nations, Inuit and Métis.

The Taskforce acknowledges the many individuals who shared their knowledge, insights, and lived experiences with us, so we could better understand the Federal Policing program. The Taskforce would like to thank the Federal Policing program, as well as the offices of the Chief Human Resources Officer and Chief Financial Officer, for making themselves and information available. The Taskforce would also like to thank the Federal Policing Strategic Management branch, which consistently provided timely and thoughtful information and support.

Objective and Scope

The MAB Taskforce on Federal Policing was formed in September 2022 composed of four Board members: Doug Moen (Taskforce Lead); Audrey Campbell; Randy Ambrosie; and Maureen Kempston Darkes. The Taskforce focused its scope on risks and challenges of governance and human resources (HR) in relation to the sustainability of the Federal Policing program. The Taskforce sought to develop informed and evidence-based recommendations to guide the modernization of Federal Policing, while contributing to the ongoing discussions and decisions on the future of policing in Canada. The Taskforce acknowledges the complexity of the issues and the existence of other factors that influence the sustainability of Federal Policing that may be outside of the scope of this report.

Methodology and Approach

Since its formation, the Taskforce met virtually and in-person 25 times to conduct extensive research and numerous interviews regarding Federal Policing and its sustainability. Over the course of its work, the taskforce collected quantitative and qualitative data through close collaboration with stakeholders from across the RCMP.

The Taskforce examined a vast variety of documents with historic and current information on Federal Policing, including records of decisions, briefing material, external and internal reviews and reports, communications, policy and analysis papers, research documents, presentations, and datasets. In addition, the Taskforce held 12 interviews with a variety of stakeholders to gain a deep understanding of challenges, experiences, and culture, including key interviews with: current and retired senior RCMP executives; and, current and retired Federal Policing and RCMP personnel (headquarters and divisional perspectives).

Context

Situated within the RCMP, Federal Policing is a core law enforcement program with a distinct and essential mandate defined by over 250 federal statutes and Acts of Parliament to ensure the public safety and security of Canada, its people, and its interests. Federal Policing conducts complex and sophisticated investigations, spanning years, to target the most serious and complex criminal threats with a federal and international scope. In 2021 alone, it conducted 132 major federal investigations (prioritized major investigations), and successfully laid 8,994 charges against 8,520 people under the Criminal Code or other federal acts.

The Federal Policing mandata includes:

National security:
Canadian extremist travelers, ideologically-motivated violent extremism, foreign actor interference, terrorism, espionage, sabotage, and protecting critical infrastructure;

Transnational and serious organized crime:
traditional organized crime groups, outlaw motorcycle gangs, drugs, border integrity, irregular migration, illegal weaponry, human trafficking, and corruption;

Financial crime:
money laundering, proceeds of crime, capital markets, and frauds;

Cybercrime:
ransomware, advanced persistent threats, malware, identity thefts, intellectual property infringement, and attacks on infrastructure; and,

Other specialized programs and services:
sensitive and international investigations (e.g. war crimes and corruption), protective policing, federal witness protection, international policing, air carrier program, and more.

Federal Policing operates within a constantly evolving criminal threatscape, while also facing increasing expectations in relation to federal leadership, service delivery, capacity and capability, and accountability. This includes many of the high-level criminalities and priorities under recent political discussion, such as foreign interference, enhanced protective services for politicians, cyberattacks against key institutions, ideologically-motivated violent extremism, and so on. Federal Policing also regularly responds to numerous modernization reviews and reports, such as the 11 external reviews and 2 annual reports supported by the RCMP in 2021. Overall, there has been a significant erosion of Federal Policing human and financial resources (capacity) over the years in relation to its mandate and expectations, and it has now reached a current critical state in its sustainability.

This critical stage of Federal Policing’ sustainability also impacts Canada on the international security, policing, and political stages. Federal Policing represents Canada at numerous global platforms and partnerships (e.g. Five Eyes [FVEY]), manages Canada’s international peacekeeping police program and INTERPOL/EUROPOL program, and works with foreign police services to contribute to global peace, security, and stability. However, Federal Policing’s overall eroding capacity may have implications for the credibility of Canada’s federal police force and its investigations on the international stage. Ultimately, this may influence Canada’s overall approach and standing in international politics, including its ability to advance global priorities.

Current Landscape

Canada is currently examining the future of policing, as contracts for local and regional RCMP policing services are up for renewal in 2032. Canadian media outlets have reported that key stakeholders, such as the Prime Minister and the previous Minister of Public Safety, may be examining transforming the Federal Policing mandate of the RCMP to become the “FBI of the North”. However, the federal government has not confirmed this transformation in any formal announcement at the time of this report.

Key reviews and reports have further recently highlighted the need to determine the future approach to policing in Canada. Notably, the 2023 Mass Casualty Commission (MCC) recommended that following a review of the RCMP, “Public Safety Canada and the federal Minister of public safety [should] establish clear priorities for the RCMP, retaining the tasks that are suitable to a federal policing agency, and identifying what responsibilities are better reassigned to other agencies… this may entail a reconfiguration of policing in Canada”. The review of Federal Policing by the NSICOP also raised considerations regarding the mandate and direction of Federal Policing.

The MAB Taskforce on Federal Policing was formed in September 2022, due to the sustainability challenges faced by Federal Policing and the discourse regarding the future of policing in Canada. The Taskforce sought to develop evidence-based findings and recommendations to support the modernization of Federal Policing, while signalling the importance of a sustainable Federal Policing program to Canadian and global safety, security, and stability. Given the breadth and nuance of the subject, the Taskforce anticipates that the MAB may revisit Federal Policing to provide additional advice or recommendations in the future.

The Importance of a Sustainable Federal Policing Program

Although the mandate of Federal Policing and its role in Canada’s safety and security may not be known to all, the risks stemming from Federal Policing’s sustainability challenges are evident. Canada and its people have already begun to see the repercussions of the Federal Policing program being stretched thin.

While Federal Policing is currently responsible for investigating a spectrum of serious financial and economic crimes, the Government of Canada has announced its intent to establish a new Canada Financial Crimes Agency (CFCA). The 2022 and 2023 Budget noted that the CFCA is expected to act as the lead enforcement agency against financial crime. The Government has since provided $2 million to Public Safety Canada to develop options for the design of the CFCA.

As Federal Policing is currently responsible for responding to serious and complex crimes, including in relation to financial crimes, the creation of the CFCA may signal government call for a more comprehensive enforcement response. However, Federal Policing has been operationally limited from intensifying its focus on one type of criminality over another (i.e. financial crime), due to an erosion of its financial and human resources, which is further exacerbated by other competing urgent criminal priorities (e.g. national security).

Indeed, the 2022 Cullen Commission observed that “the primary cause of the poor law enforcement results [for money laundering] in [British Columbia] is a lack of [RCMP] resources”, which was exacerbated by reassignment of resources “to deal with other federal priorities”.

Essentially, Federal Policing is simply stretched too thin to undertake the expected level of policing response to specific types of criminalities. The program faces growing mandate and priorities, and increasing policing costs, in sharp contrast to its diminishing financial and human resources. Despite its challenges, Federal Policing has had countless successful investigations against major criminal threats, which indicates that the program can grow and better respond to the evolving criminal environment and shifting governmental priorities with adequate resources, training and structures.

Findings and Recommendations

Although Federal Policing has a unique and essential role in Canadian and international public safety, it is evident that under-resourcing and select policies have challenged its sustainability, impacted its ability to execute its Federal Policing mandate, and limited its ability to keep pace with the changing threat environment.

It is important to recognize that while the RCMP Commissioner and the RCMP’s Senior Executive Committee have an integral role in managing the Federal Policing program, it is Ministerial direction that determines the overall identity, mandate, and capability of Federal Policing. Thus, modernization efforts will be dependent on strong and involved Ministerial leadership to effect true change and sustainability.

The findings and recommendations outlined in this report aim to address a number of significant challenges and risks, and are underpinned by the need for strong internal and external communications.

Overarching Principle 1: It is critical to establish a clear Federal Policing identity and capability with Ministerial support.

Finding 1: Federal Policing requires adequate resourcing and a distinct identity, due to safety and economic risks.

Federal Policing has an extensive all-encompassing mandate when compared to its multiple separate law enforcement counterparts in the United States. This includes the Federal Bureau of Investigation (FBI), Drug Enforcement Administration (DEA), Department of Homeland Security, Secret Service, US Marshalls Service, US Border Patrol, US Coast Guard, and more.

While these counterparts may be well-known around the world, the Federal Policing role is not well known or understood by the public. This may have contributed to the resource depletion that Federal Policing has faced over the years, despite the ever-growing demands it faces. For example, due to governmental cost reduction exercises over 2008-2012, Federal Policing’s budget was reduced by $150 million, and financial pressures have continued to persist. The reduced funding has shrunk Federal Policing’s human resources, which in turn have significantly impacted its investigative capabilities, overtaxed its workforce, diminished its sustainability, and ultimately reduced its ability to respond to the Federal Policing mandate and governmental priorities.

Federal Policing operates within a setting of shifting political priorities, and an evolving criminal landscape with an unprecedented global interconnectedness, sophistication and complexity. In the face of such growing expectations and eroding resources, the Taskforce notes that it is critical to define a clear and distinct identity, mandate, and capability for Federal Policing’s sustainability of operations. The Government of Canada and Canadians need to understand the specific role and responsibilities of Canada’s federal police force that are critical to the safety of the country, such as Federal Policing’s role in cybercrime, transnational organized crime, terrorism, major national or international frauds, foreign interference, etc. Robust communications are key in ensuring a better understanding amongst Canadians on the risks of the Federal Policing sustainability challenges, as well as the importance of a highly effective Federal Policing program.

It is also important that the Government of Canada consider the role of Federal Policing, the critical stage of its sustainability, and the program’s modernization efforts, as it may participate in further expenditure reduction exercises in the future. Canada depends on its international partners, as they likewise depend on Canada, to address complex international criminal threats – Federal Policing must be properly acknowledged and resourced according to its role as Canada’s federal police force. This will better enable Federal Policing to act as a valuable and legitimate partner to its international allies (e.g. Five Eyes), supporting Canada’s international standing and priorities.

Recommendation 1a: The RCMP should clearly communicate to the Minister of Public Safety, Democratic Institutions, and Intergovernmental Affairs and others the risks of under-resourcing Federal Policing.

The strength and effectiveness of Federal Policing needs to be regarded as high-priority given the risks to public safety, national security, and the economy. The RCMP’s Federal Policing program is the legislative and financial responsibility of the federal government of Canada, in contrast to other RCMP programs that have multi-jurisdictional agreements, such as Contract and Indigenous Policing or Specialized Police Services. The Minister of Public Safety, Democratic Institutions, and Intergovernmental Affairs (hereafter referred to as the Minister) has a unique and critical role in the identity, capability, future, and sustainability of Federal Policing.

NSICOP also reinforced the federal responsibility to the Federal Policing program in its review, where it noted that “the only part of the RCMP for which the federal government is solely responsible is Federal Policing: it must clarify that the mandate is a priority and that it supports reforms in this area”. It further outlined several recommendations for federal action, such as “the Minister of Public Safety provide clear and regular direction to the RCMP to strengthen Federal Policing, including in areas of governance; financial controls; human resources, recruiting and training; and information management.”

Ultimately, there are a number of potential public safety, political, social, economic, and financial risks stemming from Federal Policing’s challenges regarding sustainability, limited resources, and ever-growing mandate. These risks must be clearly communicated to the Minister, while clearly noting the repercussions for Canadians, and the distinct responsibility of the Government and Minister. For example, government-wide cost reduction exercises beginning in 2008 led to $150 million reduction of Federal Policing and a consequent erosion of its capacity as it faced growing priorities, such as financial crime. In the face of Federal Policing’s limited capacity, the Government recently provided $2 million to develop CFCA options to tackle economic crimes, and may need to further invest several more millions of dollars to establish such an agency. It is apparent that reducing Federal Policing budget not only leads to future costs for the government, but also has repercussions for the public safety of Canadians.

The RCMP should also communicate such risks to other bodies, such as central agencies, parliamentary bodies, and senate committees, to develop a broader political understanding and support for Federal Policing’s sustainability. It is critical that the Federal Policing remit and risks are told at the highest of levels, underscoring that adequately resourcing Federal Policing is in the national interest and responsibility.

Recommendation 1b: The RCMP should develop a semi-annual communication mechanism with the Minister to regularly advocate and update on the sustainability of Federal Policing.

The Government of Canada has distinct responsibilities in relation to Federal Policing unlike other RCMP policing program with multi-jurisdictional stakeholders. Thus, the Taskforce builds on recommendation 1a to advise that the RCMP develop a biannual direct communication mechanism with the Minister to discuss Federal Policing. This is a crucial recommendation as the Minister’s engagement and decision-making plays a unique role in setting the identity, capability, direction, and future of Federal Policing. Given this role, the Minister has a responsibility to Federal Policing and its identity beyond ad-hoc engagement. For example, when the Government underwent the 2023 budget reduction exercise, it would have been within the Minister’s authorities to advocate for the necessity of sufficiently funding Federal Policing during the budget cuts. Federal Policing provides a unique and essential policing service to Canadians that must be continued with sufficient funding, or public safety, political, social, economic, and financial risks may be realized in the future. Furthermore, limiting the RCMP’s capacity may impact its ability to respond to growing expectations of public accountability and change in a timely manner.

In addition, the Government of Canada regularly establishes its priorities for public safety and security, such as enhanced efforts into ideologically-motivated violent extremism or requests for increased protective services for political figures and dignitaries. As the Government aims to build international partnerships and respond to federal criminal threats, Federal Policing is frequently a core program in delivering on such priorities. However, the Taskforce has found that Federal Policing has been significantly hindered by its resourcing and sustainability challenges effecting its ability to fully respond to governmental priorities, while also meeting the demands of its extremely broad mandate at times.

As Federal Policing undergoes transformative change, it is within the Minister’s interest to ensure the program’s sustainability challenges are addressed. The Minister should also share the governmental vision for the program, which will allow for Federal Policing to better deliver on its mandate and governmental priorities. Consequently, the Taskforce recommends the development of a biannual communication mechanism, which will focus on providing updates on Federal Policing’ sustainability and modernization efforts.

Finding 2: Federal Policing will benefit from continued strong leadership to prioritize true change.

Strong leadership is crucial in driving significant change in all organizations, particularly as resistance to change is expected. There have been many calls for change to the RCMP, as evidenced by the myriad of recent public reports and inquiries calling for a host of adjustments, including changes to the governance, transparency, and sustainability of the RCMP. Among such expectations, the RCMP has signaled its willingness to evolve and modernize as an organization in response to such expectations. The Taskforce recognizes the importance of the newly created “Reform, Accountability, and Culture” sector in providing continued leadership on RCMP organizational reform, accountability, and culture change.

The Taskforce also firmly believes that when driving change, leaders must not be inhibited by resistance to change, as some discontent is expected when implementing organizational change. For example, the Federal Policing Regional Reporting Model, which proposes a strong governance structure, was postponed in March 2023 for the second time, following a first delay in April 2022. A renewed implementation date of the Model has yet to be announced. Strong leadership is responsible for striving for evidence-based change, even if it must move beyond some resistance to change. 

Recommendation 2: The RCMP should acknowledge Federal Policing Transformation as an organizational priority in upcoming RCMP-wide strategies and plans.

The Taskforce recommends that the RCMP acknowledge Federal Policing Transformation as an organizational priority, signaling their dedication to true change. Building on the RCMP’s ongoing efforts regarding organizational reform, the Taskforce recommends that the RCMP reflect Federal Policing Transformation in upcoming organizational strategies and plans, such as the 2024-2028 Strategic Plan, Departmental Plan, and other such documents. The Taskforce further recommends that clear public-facing performance indicators and targets be established to measure the modernization of Federal Policing. These measures will ensure that Federal Policing transformation is a clear and accountable priority for the RCMP as an organization.

Overarching Principle 2: There is a need to develop structures to deliberately sustain the Federal Policing identity.

Finding 3: The Federal Policing Transformation Strategy should have evidence-based objectives that are communicated across the RCMP.

In 2021, Federal Policing established its Transformation Office and initiated a Transformation Strategy to establish Federal Policing as a world leading police agency over four years (2022-2025), with additional support provided through the newly created RCMP Reform, Accountability, and Culture sector. The Federal Policing Transformation Strategy aims to effect change across: governance; capability; operational priority management; funding; technology; and, workforce. This has led to the development of various initiatives, such as the Regional Reporting Model, transformation of Federal Policing HR, and enhanced alignment with Government of Canada priorities and highest operational priorities. In support of the Transformation Strategy, Federal Policing has contracted the services of an external firm to develop several foundational documents, which include a current state assessment and a change management strategy.

The Taskforce acknowledges that the Transformation Strategy work is ongoing, although it reinforces that successful organizational change is dependent on a clear understanding of the objective, as well as an evidence-based approach to achieve the objective. Consequently, it is critical to establish a common understanding of the ideal Federal Policing program and capabilities across the RCMP, Senior Executives, and amongst its key stakeholders and officials, including the Minister.

Recommendation 3a: The RCMP should prioritize establishing actionable timelines and milestones for Federal Policing transformation, including for the Regional Reporting Model.

The Taskforce advises that the RCMP should prioritize establishing and communicating actionable timelines and milestones, including for the Regional Reporting Model. The ongoing work to establish an actionable clear vision, objectives, milestones, and associated timelines should be completed as soon as possible. Further, the timelines, milestones, and vision should be shared broadly with all implicated stakeholders and partners to foster a unified vision of a sustainable Federal Policing program, which will contribute to the successful implementation of the Federal Policing Transformation Strategy. 

The Federal Policing Regional Reporting Model is a critical component of a strong governance structure. It proposes establishing regional hubs in four of the largest metropolitan areas across Canada with a distinct reporting structure to allow Federal Policing personnel to focus and advance the Federal Policing mandate. Currently, Federal Policing staff work across Canada, despite evidence clearly demonstrating that the criminal threats with the highest impact on Canadian safety (e.g. national security) are distinctly centred on Canada’s major urban metropolises. The focus of Federal Policing staff is frequently shifted from the Federal Policing mandate (e.g. foreign interference) towards divisional and local pressures (e.g. local gangs) instead, since Federal staff have specialized expertise and experience, close proximity to detachments, and report in-part to divisional Commanding Officers.   

92% of the 119 investigations deemed a top priority in 2021 were based in only six of Canada’s largest metropolitan areas. 

At the December 15, 2022 MAB meeting, the Taskforce noted the importance of the Regional Reporting Model to the sustainability of Federal Policing. The Regional Reporting Model was initially planned for implementation in April 2023, however, in March 2023, the implementation was postponed by the RCMP Senior Executive Committee (SEC) for the second time to allow for the completion of work with an external firm. The Taskforce builds on its previous observation to advise that the RCMP urgently establish concrete timelines for the implementation of the Regional Reporting Model. The RCMP should also communicate the timelines with clearly expressed support for the Model to all implicated partners and stakeholders. This recommendation is based on the evidence that the implementation of the Regional Reporting Model is critical to the sustainability of Federal Policing and its ability to deliver on the Federal Policing mandate.

Recommendation 3b: The RCMP should ensure that consistent communications are shared across the organization on key Transformation milestones.

A strong communications strategy is critical and the underpinning of all successful change. Clear and timely communications can facilitate a common understanding, dispel concerns, generate consensus, and allow for accountability and transparency. The Taskforce has found that while the importance of communications is not lost, Federal Policing faces numerous administrative and procedural challenges in executing a strong communications strategy.

While Federal Policing has had success in other areas, such as the ability to transmit updates to all Federal Policing employees, changes to the Federal Policing program impact all other programs and divisions of RCMP to varying degree. Thus, the Taskforce recommends that the RCMP support Federal Policing in establishing consistent and regular communication on key Transformation milestones throughout the organization, including business lines and divisions. The Taskforce further advises information and updates also be relayed through the external RCMP website to ensure external stakeholders (e.g. political officials, policing partners, and citizens) are made aware of the ongoing changes, recognizing that some sensitive information and updates may not available for public sharing.

Finding 4: Certain policies may present barriers to staffing the unique Federal Policing workforce.

The RCMP workforce is comprised of three employee categories: Public Service Employees; Civilian Members; and Regular Members (RM). RMs represented approximately 62% of the RCMP workforce in 2021-2022, and play an integral role in conducting criminal investigations, such as ability to arrest and apprehend, laying federal criminal charges, and more. The RCMP has long faced challenges recruiting and retaining its workforce, especially RMs. In recognition of the challenges with the overall recruitment process not unique to Federal Policing (e.g. vetting and talent processes), the MAB will continue to provide advice to the Commissioner on the shared priority of recruitment. For the purposes of this advisory paper on Federal Policing, the Taskforce focused on the recruitment challenges most significant to the program to provide the necessary recommendations to guide change.

The Taskforce conducted extensive research and interviews to examine the HR challenges faced by Federal Policing. While there are both existing RCMP documents (e.g. Federal Policing Skills Gap and Needs Analysis) and ongoing efforts (i.e. through the development of the Federal Policing Recruit Development Program) to identify the type of specialized skillsets needed by Federal Policing, the Taskforce assessed certain governmental and organizational policies and processes present barriers to staffing the unique Federal Policing workforce.  This includes: limitations releasing RMs from one business line to another, policies and procedures prohibiting the intake of new RM recruits into Federal Policing, compensation rates that are unable to compete with market rates for highly skilled personnel, and more.

This has deeply impacted the Federal Policing workforce, as it has experienced a drastic reduction in its RM complement by 1,000 members, or 24% of its RM workforce, over a 10-year period from 2011-2012 to 2019-2020, while also facing a cumulative loss of 485 total employees from 2013-2014 to 2021-2022. The overall reduction in Federal Policing’s capacity, as well as its eroding investigative capacity represented by RMs, has led the program to reallocate resources to government priorities (e.g. growing Federal Policing protective policing services pressures) at the expense of core operations on occasions.

Recommendation 4a: The RCMP should explore, with Treasury Board of Canada Secretariat (TBS), developing special allowances for Federal Policing to align with market salaries for highly specialized skillsets.

In today’s society, modern criminal organizations and actors regularly exploit technology and sophisticated systems to commit crime. Federal Policing’s work is dependent on its ability to recruit individuals with highly specialized skillsets to conduct complex investigations and uphold its mandate in today’s world. However, such individuals are relatively rare in the labour market, and highly sought after by numerous private industries, as well as other organizations from the Canadian security and intelligence community.

Federal Policing and other RCMP programs requiring specialized skillsets are uniquely encumbered by existing processes compared to both the private sector and the security and intelligence community that are able to offer significantly more competitive pay rates and other advantages to potential recruits. Other governmental organizations that are part of the security and intelligence community hold a ‘separate employer’ status [e.g. Canadian Security Intelligence Service (CSIS) and the Communications Security Establishment (CSE)], which allows them to operate outside the TBS pay rates and HR policies and offer pay rates and bonuses that are more competitive with private industries. The RCMP remains subject to TBS pay rates and HR policies, which uniquely impedes Federal Policing in the race for recruiting and retaining highly specialized employees and consequently impacts its ability to fully meet its Federal Policing mandate. The 2010 Final Report of the RCMP Reform Implementation Council also identified this challenge and recommended that the Government should “establish the RCMP as a separate entity from government with separate employer status” to meet the “needs of an operational police force”.

Given the evidence of long-standing challenges in this regard, the Taskforce recommends that the RCMP work with TBS to explore developing a framework for special allowances to better align with the market salaries for specialized skillsets. This exploration should build-in processes of consultation with the relevant labour organizations representing employees, as collective bargaining and negotiations are a part of the process to seek allowances. The RCMP and its Federal Policing program are currently uniquely impeded by TBS HR policies even in comparison to their interdepartmental peers within the security and intelligence community (i.e. CSIS and CSE). The Taskforce acknowledges the complexities of implementing this recommendation, however, it is clear that Federal Policing must be granted allowances to be able to compete in today’s labour market to recruit skilled candidates in order to advance complex federal and international investigations and uphold the Federal Policing mandate.

Recommendation 4b: The RCMP should examine the processes and policies that may present barriers to staffing Federal Policing, and mitigate as necessary.

The Taskforce has found that there are a number of policies and procedures, both organizational and Treasury Board-mandated, that contribute to the workforce challenges faced by Federal Policing. The RCMP Reform Implementation Council determined that “the rules imposed by Treasury Board on the RCMP are often not appropriate to the needs of an operational police force”. Based on further evidence, the Taskforce notes the need to identify the select Treasury Board policies that may limit staffing for Federal Policing, and outline mitigation recommendations as necessary (see Recommendation 4a on the need for special allowances from Treasury Board pay rates).

In relation to organizational policies, Federal Policing relies on the discretionary release of RMs from other business lines to fill capacity needs, especially Contract Policing. However, the release-ability of an RM is dependent on a number of factors, including a) the completion of a minimum of 3 to 5 years in Contract Policing, b) a readily available replacement, and c) no urgent operational needs for the RM as decided by the relevant Division’s management. As the RCMP faces an overall recruitment challenge, Divisions are limited in their ability to find replacements to release RMs to Federal Policing. In practice, the Taskforce found that the organizational release-ability policies prioritize the needs of Contract Policing due to contractual obligations, but to the detriment of Federal Policing staffing. The NSICOP also concluded that “the RCMP’s model of training and recruitment is oriented towards its Contract Policing obligations under the Police Service Agreements.”

Due to organizational policies, the current RCMP intake of RMs is unable to counterbalance the attrition rate, which averaged approximately 150 RMs annually over the last 3-5 years, much less contribute to the highly needed program growth. This has had a trickle-down effect in Federal Policing, where in absence of new resources, program areas within Federal Policing must gain resources from other Federal Policing program areas. As a result, capacity gaps remain unresolved, and operational teams in particular are working below critical mass of needed resources. The situation is unsustainable and if the status quo is maintained, then issues such as the resourcing crisis, occupational stress injuries, employee burnout, and limited capacity to deliver on the Federal Policing mandate will likely be further exacerbated. The RCMP must ensure that its organizational policies have equitable impacts across its programs, or mitigate the policy effects accordingly.

Consequently, the Taskforce recommends a systematic and comprehensive analysis of organizational and TBS policies that may contribute to the resource challenges experienced by Federal Policing. It is apparent that given the unique needs of Federal Policing, it can be indirectly and unintentionally effected by policies and procedures that may not consider its unique operating environment and demands. Thus, the Taskforce further recommends that the RCMP leverage the assessment to amend organizational policies and/or align its transformation and modernization objectives to overcome gaps in an evidence-informed manner. 

Finding 5: Federal Policing requires enabling functions HR resources for effective staffing and workforce transformation.

The term “enabling functions” collectively refers to personnel related to HR, financial management, staffing, security screening, and other similar functions, all of which enable or underpin the hiring, resourcing, onboarding, and training of employees. The RCMP’s enabling functions are shared by all programs in the organization. Current shortages of the RCMP enabling functions have had significant impacts on the recruitment and staffing efforts of Federal Policing and exacerbated the already lengthy staffing process through delayed hiring, security, and onboarding processes.

This challenge is particularly salient for Federal Policing, as it faces competition from the private industry and other security and intelligence agencies for rare and highly-skilled individuals required for advancing complex modern investigations. The lengthy hiring and onboarding process can frequently mean that prospective employees may accept other opportunities, leaving Federal Policing unable to sufficiently staff its workforce to meet its various exponential demands and impede its delivery of the Federal Policing mandate. This also represents a drain on already stretched resources for no net gain, in that significant effort and time dedicated to recruiting, assessing, and screening a candidate bears no fruit.

In addition, the RCMP HR program is currently limited in its capacity to provide strategic support and advice to various workforce transformation initiatives, including in relation to the Federal Policing Transformation Strategy. This can contribute to drawn out workforce modernization initiatives, while also limiting the strategic guidance to fully develop evidence-based initiatives.

As a result, the Taskforce highlights the importance of exploring HR practices to specifically support Federal Policing’s unique resource needs, which are significant even within the RCMP’s overall recruitment challenge. As a Federal Policing-specific HR program may create unintentional duplication of efforts and other inefficiencies, the Taskforce encourages that the existing HR model thoughtfully, meaningfully, and accountably develop avenues and practices to support Federal Policing HR needs.

Recommendation 5: The RCMP should communicate with central agencies the necessity of investments for enabling functions, and seek funding for enabling functions and HR resources to enhance staffing and modernization efforts.

The research and interviews conducted by the Taskforce clearly illustrated that the foundational internal infrastructure must be in place for Federal Policing and the RCMP to build a skilled and flexible workforce. However, it is evident that Federal Policing has been facing challenges in obtaining investments for these core enabling functions, particularly in recent times of governmental fiscal restraint. The Taskforce has found that Federal Policing has occasionally received funding for recruiting Regular Members (RMs) and other employees for government priorities without reciprocal or other supporting funding for the underpinning enabling functions on several occasions. This has resulted in a situation where Federal Policing has funding for employees, but is left without the means (enabling functions) to recruit, hire, onboard, and train such members.

While the RCMP may continue to experience challenges obtaining the necessary funding, the Taskforce feels there is a need for the RCMP to communicate with the government’s central agencies on the critical need for reciprocal funding for enabling functions for all investments. The RCMP should also ensure it contextualizes its advocacy for enabling functions by sharing the circumstances and challenges of the RCMP in relation to recruitment and HR as a policing organization, especially for Federal Policing.

As previously noted, the unique circumstances of the RCMP and Federal Policing include, but are not limited to, the recruitment and workforce challenges, pay rates that are not competitive with private industries and other government organizations part of the security and intelligence community, unique onboarding processes (e.g. additional security) due to the RCMP mandate, limited design and delivery capacity for learning and career paths. In recognition of such challenges, the Taskforce further recommends seeking funding specifically for enabling functions for Federal Policing staffing and dedicated HR resources for workforce transformation initiatives. This will allow for the RCMP to build its HR, financial management, and other core enabling functions, which will directly contribute to the organization’s ability to deliver on its mandate and address a variety of governmental safety and security priorities through a robust workforce. The dedicated HR resources for workforce transformation will also allow for thoughtful and evidence-based guidance of the numerous ongoing workforce initiatives.

Overarching Principle 3: The delivery of the Federal Policing mandate requires a workforce with specialized skillsets

Finding 6: Federal Policing would benefit from alternative training structures to specifically address the unique needs and role of the program.

Regular Members (RMs) are a critical category of employee in the RCMP that represent its front-line operational and investigative capacity. The RCMP approaches recruitment and training with the objective of developing generalist RMs that are crucial in delivering daily policing functions across the unique communities of Canada. However, as the Federal Policing mandate is to investigate and disrupt the highest criminal threats to Canada, this generalist approach minimally benefits the needs of Federal Policing. The modern criminal landscape requires that Federal Policing disrupt complex criminal threats through highly specialized skills and training, such as for cyber and financial crime. However, the generalist recruitment and training processes are not built to deliver the specialized skills and training needs for Federal Policing.

“I look forward to working with you to accelerate RCMP reform over the next two years by improving RCMP recruitment at all levels to better reflect the communities it serves, in particular Indigenous and Black communities, and recruiting more members with the skills necessary to combat sophisticated crimes.”
- Mandate Letter for the RCMP Commissioner by Minister Mendicino 

The NSICOP similiarly observed that “Federal Policing’s approaches to recruitment and training do not sufficiently support the Federal mandate. Federal Policing has struggled to source all the skills, education and experience required to conduct increasingly complex and specialized investigations in the modern criminal threat environment.”

Recommendation 6a: The RCMP should seek funding for the human resources and structures needed to implement specific Federal Policing training.

Under current RCMP policies and procedures, individuals are recruited and trained as cadets under the 26-week Cadet Training Program at Depot, and then gain experience as RCMP police officers under mentorship as part of a six-month Field Coaching Program. During this time, new RCMP officers perform everyday police duties under supervision in various detachments across Canada, and remain in local policing for 3-5 years at a minimum. This approach to recruitment, training, and coaching allows the RCMP to develop a much-needed generalist Regular Member (RM) that may be placed as a highly capable police officer anywhere across Canada and perform daily police functions.

However, this system does not train RMs for the unique needs of Federal Policing, particularly as they pertain to specialized investigative skillsets. In addition, existing organizational training structures are not set up to capitalize on the pre-existing skills or experience a cadet may have (e.g. forensic accounting) that would benefit advancing complex investigations in Federal Policing. This means that Federal Policing has had to train and coach RMs for the unique needs of sophisticated federal investigations separate from the RCMP’s overall training approach. 

“Finding 2.2: The Cadet Training Program curriculum requires a comprehensive review to ensure that it reflects today’s cadets and prepares them for modern‐day policing in Canada.”
- 2022 MAB Training and Education Taskforce 

The Taskforce appreciates the notable work underway by Federal Policing to address the current training gaps. Federal Policing has developed an orientation program, and recently started the development of various training streams that develop critical skills amongst RMs and other categories of employees for a variety of specialized work under the Federal Policing mandate, such as protective policing, border enforcement, covert operations, intelligence, and much more.

The Taskforce advises that the RCMP seek funding for the functions and structures needed to sustainably design, develop, implement and deliver Federal Policing-specific training, in lieu of, or in addition to, the current general training. Based on an evidence-informed needs assessment, this funding request may include investments into human resources with various skills and expertise (e.g. administrative functions and training specialists), as well as training facilities. That said, the Taskforce also cautions that Federal Policing explore all options in the future to prevent drastic re-location of recruits for long periods of time for training purposes if possible, as this may present challenges for recruiting mature and/or diverse candidates. 

Recommendation 6b: The RCMP should prioritize the recruitment and direct entry of candidates to Federal Policing through the Federal Policing Recruit Development Program, as well as other initiatives.

Federal Policing has done extensive work to modernize its HR practices, and enhance and develop many programs. In particular, the Taskforce acknowledges Federal Policing’s robust efforts to close significant HR gaps, like the previously noted release-ability policies, by allowing for direct entry into Federal Policing through the newly developed pilot Federal Policing Recruit Development Program. The Federal Policing Recruit Development Program is an approximately 2+year program that provides core policing skills and training, as well as specific training and education for Federal Policing. Once candidates are selected, they undergo orientation and training for 15 weeks. Upon graduation, they receive competency-based coaching and undergo investigative training or other specialized training for 1-2 years, which allows candidates to efficiently develop highly specialized expertise in complex areas. This is a highly innovative program that bypasses the current 3-5 years minimum period to solely obtain new Regular Members (RMs), who then undergo additional Federal Policing training over time. The Taskforce highlights the necessity of the Federal Policing Recruit Development Program, as it fills critical recruitment and training gaps that cannot be addressed through current means, and effectively mitigates key Federal Policing sustainability challenges.

The Taskforce further acknowledges the Experienced Police Officer Program and the Civilian Criminal Investigator program, which respectively aim to recruit experienced Canadian police officers and highly skilled individuals (e.g. forensic accountants) into Federal Policing to advance complex federal investigations.

The modern labour market has shifted as many Canadians indicate valuing a meaningful career over a high-paying career. The numerous recruitment initiatives allow Federal Policing to leverage the unique opportunity presented by the modern labour market to utilize its ‘noble cause’ to recruit members seeking meaningful and impactful work. This also includes those who may have not traditionally considered policing as a career, or understood their skills and expertise to be of benefit in a policing environment. The Taskforce recommends continued and prioritized work on such innovative recruitment initiatives to attract highly-skilled and experienced personnel directly into Federal Policing to fulfill the Federal Policing mandate in relation to complex and sophisticated crimes with highly-capable and diverse employees. The Taskforce acknowledges and looks forward to the completion of ongoing work to enhance recruitment at various levels, including as leaders and investigators.

Conclusion

The Taskforce concludes that Federal Policing needs to be adequately resourced, as it has an integral role in Canadian and global safety and security. It is responsible for the stability and protection of economic, political, and social systems from national and international criminal threats, such as national security, cybercrime, transnational and serious organized crime, and financial and economic crimes. Given this critical mandate, the sustainability of Federal Policing has impacts on the entire Canadian policing system and criminal environment.

Further, as a vital international partner to many like-minded countries, the sustainability and success of Federal Policing is critical to international security and politics. Consistent and strong evidence indicates that the program has long faced complex and interlocking challenges with its identity, governance, resources, policies and structures, recruitment and training, and more. Federal Policing has now arrived at a critical juncture of its sustainability, which present risks for the national security and safety of Canada, its people, and its interests.

Current events and public appetite further seek a more transparent and accountable policing system that is open to reform and change. There have also been numerous reviews, reports, and inquiries calling for modernization over the years, the most recent of which include the review of Federal Policing by the NSICOP, and the MCC public inquiry.

The findings and recommendations of the MAB Taskforce on Federal Policing are timely in today’s landscape of evolution and change. As the only agency designated and capable of handling investigations of the most significant national criminal threats across jurisdictions, the Federal Policing program is a key piece within these discussions of the future of policing and calls for modernization and change. However, the RCMP cannot implement the necessary changes alone. After all, the remit of Federal Policing is at the very core of the mandate of the RCMP, Public Safety Canada, and the Government of Canada. As a result, Federal Policing’s modernization efforts are not only the responsibility of the RCMP, but also are dependent on the Minister for setting the direction on the role, identity, and mandate of the Federal Policing program.

The Taskforce has found that despite years-long and quite complex challenges, Federal Policing has proved itself to be a highly impressive and capable program time and time again. While facing deteriorating resources and ever-growing expectations, its members have gone above and beyond their duties to ensure the safety and security of Canadians, and successfully investigated and disrupted some of the most serious criminal threats, not just in Canada, but in the international space. If it is provided with resources and structured for success, Federal Policing can only improve in its ability to deliver on its core operations and governmental priorities. Thus, the Taskforce looks forward to the RCMP’s Management Response Action Plan on the implementation of the recommendations to modernize the RCMP Federal Policing program.

Appendix A: Management Response Action Plan (template)

Management Response

[Insert RCMP Management Response]

Example: Senior officials responsible for the Program reviewed the report and accept/partially accept/ does not accept the findings and recommendations proposed by the Management Advisory Board’s Training and Education Taskforce. These recommendations will serve as a catalyst to modernize the current program and help in achieving the RCMP’s strategic outcome of a safe and secure Canada, through the delivery of trained and operational RCMP Regular Members.

Action Plan

Action Plan
# Recommendation Response (Accept/Partially Accept/Do not Accept) Lead / Area of Responsibility Planned action Diary date
1a The RCMP should clearly communicate to the Minister of Public Safety, Democratic Institutions, and Intergovernmental Affairs and others the risks of under-resourcing Federal Policing.        
1b The RCMP should develop a biannual communication mechanism with the Minister to regularly advocate and update on the sustainability of Federal Policing.        
2 The RCMP should acknowledge Federal Policing Transformation as an organizational priority in upcoming RCMP-wide strategies and plans.        
3a The RCMP should prioritize establishing actionable timelines and milestones for Federal Policing transformation, including for the Regional Reporting Model.        
3b The RCMP should ensure that consistent communications are shared across the organization on key Transformation milestones.        
4a The RCMP should explore, with Treasury Board of Canada Secretariat (TBS), developing special allowances for Federal Policing to align with market salaries for highly specialized skillsets.        
4b The RCMP should examine the processes and policies that may present barriers to staffing Federal Policing, and mitigate as necessary.        
5 The RCMP should communicate with central agencies the necessity of investments for enabling functions, and seek funding for enabling functions and HR resources to enhance staffing and modernization efforts.        
6a The RCMP should seek funding for the human resources and structures needed to implement Federal specific Policing training.        
6b The RCMP should prioritize the recruitment and direct entry of candidates to Federal Policing through the Federal Policing Recruit Development Program, as well as other initiatives.        

Appendix B: Acronyms List

CFCA - Canada Financial Crimes Agency

CSE - Communications Security Establishment

CSIS - Canadian Security Intelligence Service

DEA - Drug Enforcement Administration

EUROPOL - European Union Police Office

FBI - Federal Bureau of Investigation

FVEY - Five Eyes [intelligence alliance]

HR - Human Resources

INTERPOL - International Police [International Criminal Police Organization]

MAB - Management Advisory Board

MCC - Mass Casualty Commission

NSICOP - National Security and Intelligence Committee of Parliamentarians

NHQ - National Headquarters

RCMP - Royal Canadian Mounted Police

RM - Regular Member

TBS - Treasury Board of Canada Secretariat

US - United States of America

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