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Report on Indigenous Recruitment

Land Acknowledgment

This report was developed by four members of the Management Advisory Board, who collectively reside on Treaty 4, encompassing the land of the Cree, Saulteaux, Dakota, Nakota, Lakota, and on the homeland of the Métis Nation; on the unceded and unsurrendered traditional territory of the Anishinaabe Algonquin Nation; and on the unceded traditional territory of the Kanien’kehà:ka, a place which has long served as a site of meeting and exchange amongst many First Nations including the Kanien’kehà:ka of the Haudenosaunee Confederacy, Huron/Wendat, Abenaki, and Anishinaabeg; and on the traditional and ancestral land of the Massachusett. The Taskforce respectfully recognizes and acknowledges the relationship that the First Nations, Inuit, and Métis across Canada have with the land all Canadians live on and enjoy. We encourage all Canadians and visitors to learn about and regularly acknowledge the historical, cultural, spiritual, and environmentally sustainable connection to the land that the First Nations, Inuit, and Métis peoples and ancestors have inhabited since time immemorial. We also encourage all Canadians to consider how they can personally contribute to improving Canada’s relationships and moving towards reconciliation with Indigenous Peoples.

Foreword from the Lead of the Indigenous Recruitment Taskforce

October 2023

Since its establishment in 1873, the Royal Canadian Mounted Police (RCMP) has been a Canadian institution. As Canada’s national police service, the RCMP works at the municipal, provincial, and territorial levels in over 700 detachments, providing policing services in more than 600 Indigenous communities, across the country. The RCMP is also the federal policing service of Canada, tasked with investigating and disrupting the most serious national and international criminal threats against Canada, its people, and its interests, such as national security, cybercrime, as well as transnational and serious organized crime. 

The RCMP is a complex and multi-faceted organization seeking change and modernization in some key areas. Indigenous recruitment plays a critical role in the development of a modern RCMP representative of the communities it serves. The Management Advisory Board (MAB) established a Taskforce on Recruitment in 2020. The MAB chose to focus on Indigenous recruitment given concerns about inequitable Indigenous representation within the RCMP and the implications of this for Canada’s, and the RCMP’s, commitments to improving relations with Indigenous peoples and moving towards reconciliation. Over the course of its work, the Taskforce identified a number of areas that the MAB could explore further in the future. These include the retention and talent management of First Nations, Inuit, and Métis (FNIM) employees, and the RCMP’s approach to Indigenous Policing. Please reference Appendix A for a list of all acronyms used in this report.

In 2021 the Taskforce submitted an initial report (referenced as Appendix B) which was revisited in 2022-2023. This work included conducting additional research and focus groups with retired and serving Indigenous RCMP members, and incorporating within the report the RCMP’s recent and ongoing initiatives to address Indigenous recruitment efforts. Data collected during this process illustrates that self-reported FNIM Regular Member (RM) representation has fallen dramatically in recent years, requiring urgent, bold actions to address. Recommendations for such actions are set out in the present report.

The MAB acknowledges with appreciation the collaboration and support of the RCMP throughout the course of its mandate. In particular, the Taskforce thanks the Chief Human Resources Officer (CHRO) and her team, the Commanding Officers (COs) and staff; representatives of the provincial governments; the Indigenous Pre-Cadet Training Program team; as well as current and former FNIM RMs who provided the Taskforce with open and candid data, information, and expertise. While completing this work a new Commissioner and new Minister have been appointed; however, no new mandate letters or ministerial direction have been provided that would overwrite or change the direction of our work at the time of authoring this report. 

"As you know, the Prime Minister has given me a mandate to act in several important areas, and many of these touch upon the work of the RCMP. Most notably, he has asked me to prioritize policing reform. My central objectives are ensuring the RCMP meets the needs of Canadians, addressing systemic racism, eliminating harassment & discrimination and creating a culture of accountability, diversity and inclusion.”
- Minister Mendicino’s mandate letter to Commissioner Lucki (May 27, 2022)Footnote 1

Prof. Angela Campbell

Lead of the Recruitment Taskforce, Management Advisory Board

On this page

Executive Summary

From November 2020 to March 2021, the Management Advisory Board’s (MAB) Recruitment Taskforce focused on gathering information about the RCMP’s modernization of recruitment programs with a specific focus on Indigenous recruitment, including First Nations, Inuit, and Métis (FNIM) communities. This area was selected to help ensure that hiring strategies address the RCMP’s diversity and inclusion objectives. The Taskforce reviewed existing approaches to enhance the likelihood of recruiting sufficient and suitable FNIM candidates for the organization’s multi-faceted policing mandate, and conducted focus groups with Assistant Commissioners, Superintendents, Inspectors, and current and retired COs from divisions across the country, including Depot, the RCMP Training Academy.

From October 2022 to June 2023 the Taskforce reconvened to gather additional information and conduct further interviews and focus groups with various RCMP employees and provincial stakeholders. Interviews and focus groups were held with: current and retired FNIM Regular Members (RMs) of a variety of ranks from across Canada, provincial officials involved in Indigenous policing initiatives, COs from RCMP divisions, and members tasked with leading the Indigenous Pre-Cadet Training Program (IPTP). Discussions concentrated on RCMP programs related to Indigenous recruitment (both old and new), successful provincial programs to address this issue, and the experiences of retired and current RMs of the RCMP, some of whom were members of troops during their training at Depot composed uniquely of Indigenous cadets.

These additional interviews and focus groups, information shared at various MAB presentations, and material shared by the RCMP inform the Taskforce’s findings and recommendations as set out in this report. Findings are organized across four broad themes, summarized below. A more detailed explanation of these findings and their corresponding recommendations begins on page 13 of this report. The Taskforce is aware of the heavy use of acronyms in this report which are listed in Appendix A and re-spelled out in the report when deemed helpful.

Theme 1: Barriers Limiting Indigenous RM Recruitment

Finding 1.1: Barriers in the overall application process and factors that limit the attractiveness of the RCMP as a prospective employer must be identified and addressed.   

Finding 1.2: A unique, flexible, and adaptable approach to personal circumstances is needed in Indigenous recruiting, as some barriers to recruitment for Indigenous RM applicants are surmountable with appropriate measures that reflect the lived experiences of FNIM persons.

Theme 2: Developing Trust and Fostering Partnerships within Indigenous Communities 

Finding 2.1: FNIM experiences, languages, histories, and contemporary experiences must be reflected in RCMP communications and recruitment initiatives.

Finding 2.2: The RCMP must make every effort to leverage all opportunities to identify and share best practices, locally and nationally, related to Indigenous RM recruitment.

Finding 2.3: Existing RCMP mobility requirements for RMs limits the RCMP’s ability to build relationships of trust with Indigenous communities.

Theme 3: Enhancing the Indigenous Cadet Training Experience to Increase Recruitment 

Finding 3.1: The RCMP has demonstrated success in FNIM recruitment through the establishment of Indigenous-only troops. Other attempted measures have not been effective. 

Finding 3.2: The Indigenous Pre-Cadet Training Program (IPTP) is a crucial recruitment tool for Indigenous RMs.

Finding 3.3: Indigenous cadets’ and RMs sense of belonging within the RCMP will be enhanced by deepening recognition and celebration of Indigenous presence within and contributions to the RCMP.

Theme 4: Indigenous Recruitment as a Named Strategic Priority for the RCMP

Finding 4.1: Indigenous representation within the RCMP RM population is at a precipice. While recruitment of RMs is in a general state of crisis, the RCMP’s stated goals of modernization and reconciliation cannot be reached without the development of a clear, strategic plan focused on Indigenous recruitment. This initiative must be data-driven and evidenced-based. It must come from the centre and the top and be developed in clear and ongoing collaboration with the divisions and with FNIM communities from coast to coast to coast.

Finding 4.2: The current centralized recruitment model does not support the objective of boosting recruitment, especially Indigenous recruitment.

Overview

The RCMP has expressed a commitment to increasing diversity amongst its Regular Member (RM) applicants and cadets. To support this commitment, the organization has worked to modernize screening tools to promote broader social representation while seeking to ensure that applicants and cadets have the characteristics and attributes required to address current and future police workforce needs. These tools include screening for bias, racism, and discriminatory attitudes and beliefs. The RCMP is also increasing diversity among proactive recruiters to pursue the goal of equitable representation among RM applicants and cadets. 

The Taskforce was created in 2020-2021 to study and advise on the RCMP’s modernization agenda, specifically vis-à-vis strategies that seek to boost diversity and inclusion. Given the challenges of attracting qualified candidates to policing positions Canada-wide, the Management Advisory Board (MAB) believed that it could and should narrow its focus to the issue of recruitment. 

While the Taskforce’s original mandate was focused on recruitment generally, it determined – following presentations from and exchanges with the RCMP’s Chief Human Resources Officer (CHRO) and their team – that it ought to focus its work on Indigenous recruitment. Data collection was carried out throughout 2020. Although Indigenous RMs representation within the organization was considered relatively stable at that time, there was evidence of its decline. 

More specifically, the preliminary report of the Taskforce submitted in June 2021 (Appendix B) notes that the decision to focus on Indigenous recruitment was based on the following factors: 

The Taskforce further recognized how important representation is given that the RCMP supports 22% of Canada’s population, a significant proportion of which is located in the more than 600 FNIM communities served by the RCMP.Footnote 2  According to 2021 Census data, FNIM peoples represent 5% of the total Canadian population. Given these numbers, Indigenous representation and recruitment is vital to the future success and credibility of the RCMP. As of December 31, 2022, 5.9% of the RCMP’s workforce (RCMP Members, Civilian Members, and Public Service Employees) self-identified as Indigenous. It is for this reason that the RCMP has set 10% as its representation target for Indigenous RMs. Currently, on the basis of self-reporting only, 2% of recruits in 2021/2022 were Indigenous. This is 80% below the RCMP’s target. 

As the Taskforce’s initial report illustrates, Indigenous representation within the RCMP RM population has been stable for the last two decades; however, RCMP data shows there has been a slow decline over the last ten years. 

As of November 2022, data shows that Indigenous persons make up 6.78% of RMs in the RCMP. It is important to note that Employment Equity (EE) information is recorded within the RCMP’s human resources system on a self-reported voluntary basis and may underreport employees’ current EE profile. Even with this caveat in mind, it is clear the RCMP is not meeting its 10% target for FNIM representation within the organization. 

Recruitment data from 1996 to 2022 indicate the percentage of Indigenous cadets dropping from 14% in 1996/97 to 2% in 2021/22. The decline has been gradual and holds steady between 3-6% since 2006/07. Of note, this does not include other overall impacts on Indigenous representation in the RCMP such as retention and attrition. A more significant decline in Indigenous RM representation is projected once those recruited in Indigenous-only troops from 1999 to 2001 retire. Indeed, more recently, self-reported Indigenous representation has fallen from 4% in 2020/21 to only 2% in 2021/22. These data highlight the increasing urgency of the situation.

Prof. Angela Campbell (Taskforce Lead), Mr. Douglas E. Moen, Dr. Elaine Bernard, and Dr. Ghayda Hassan re-ignited the Taskforce in Fall 2022 to delve deeper into the issue of Indigenous recruitment, building from the research, findings, and recommendations of its original report. This deeper dive included conducting focus groups with divisional COs, provincial officials, and current and retired FNIM RMs, as well as an analysis of information and data. Between the initial and later phases of the Taskforce, the RCMP has established several Indigenous recruitment initiatives as part of the EDI Strategy, Vision 150, as well as other key organizational initiatives, some of which include: 

The RCMP in Saskatchewan launched an Indigenous Recruitment Unit (IRU) in September 2022. The IRU prioritizes the proactive recruitment of Indigenous persons to ensure the RCMP in Saskatchewan is representative of the many Indigenous communities they serve and to increase Indigenous representation within the division. 

The RCMP-Indigenous Collaboration Co-Development and Accountability (RICCA) Unit was established in May 2021, as part of Vision 150 and RCMP’s commitment to Reconciliation by: creating a distinction-based approach to strengthen relationships with Indigenous communities through active outreach with FNIM; continuously promoting the recruitment, retention, and advancement of FNIM employees and navigating Indigenous HR solutions; cultivating a workforce that is sensitive, engaged and trained on FNIM cultures, histories and realities, while fostering a culturally safe work environment; and modernizing and sensitizing internal policies, processes and programs to better support Indigenous employees in the context of reconciliation.

The RCMP also piloted the Assisted Application Training Program (AATP) in Nunavut. The program was developed in 2019 to assist Inuit applicants in Nunavut to pass the RCMP Police Aptitude Test (RPAT). The program was funded by the Makigiaqta Inuit Training Corporation. The AATP focused on the unique needs and barriers of the Inuit of Nunavut. Identified barriers to Inuit recruitment include: the requirement for an unrestricted driver’s license (waived by National Recruiting at the initial stage, obtained during the AATP); hearing and vision tests (waived by National Recruiting at the initial stage and obtained upon completion of the AATP if the participant wants to proceed); RPAT entrance exam (completed during AATP); and first aid/CPR (delivered in the AATP during the second cohort). Further to this, the AATP also introduced a literacy program that provided a custom-designed, holistic literacy and numeracy program that would assist Inuit peoples in Nunavut to pass the RPAT exam, which has been a longstanding barrier to equitable Inuit recruitment. The AATP program, despite Covid-19 pandemic impacts, had 24 participants and the program met its goal of 15 Inuit participants passing the RPAT over two years (2020/2021). Following the AATP, further challenges were identified in the application process and resulted in participants either withdrawing their application (for various personal reasons) or being unsuccessful in the interview, polygraph, security and/or medical stage. This resulted in no participants making it through the application process to become a cadet. 

Nationally, the RCMP has several Indigenous-focused initiatives in place. An Indigenous Recruitment Strategy has been developed under the guidance of the Resource Management and Operations Directorate and CHRO. An external Indigenous consultant has been engaged for program design and development. This resource will begin work on a key pillar of the strategy, pre-Depot training, by Summer 2024. MAB looks forward to future engagement and discussion on this strategy. 

The Recruitment Modernization team has identified five priorities under the RCMP FNIM Recruitment Strategy: identifying resources, providing support, developing training and tailoring Recruitment Evaluation Centres (RECs), reducing immediate barriers, and collaborating with communities and policing associations.  

In addition, the RCMP recently launched the Diverse and Inclusive Pre-Cadet Experience (DICE) pilot as part of its efforts to improve the equitable representation of the communities the RCMP serves. DICE is focused on removing systemic barriers to joining the RCMP for members of racialized and/or underrepresented communities. In September 2023, the first troop of DICE participants will attend a three-week training session hosted at Depot to get a first-hand look at a policing career. Each participant will be supported by a mentor through each stage of the recruitment process.

The aforementioned initiatives highlight the important work underway within the RCMP that is connected to the goal of deepening Indigenous RM recruitment. The Taskforce acknowledges and accounts for these initiatives in the analysis that follows. 

Objective and Scope

The re-ignited Taskforce on Indigenous Recruitment focused on conducting research and analysis and making recommendations to the Commissioner. Through the present report, it seeks to make sustainable, measurable, and achievable recommendations that are aligned with the RCMP’s modernization agenda, as well as the Government of Canada’s commitment to reconciliation.

The Taskforce focused on Indigenous recruitment to ensure concrete recommendations could be provided within a reasonable timeline; however, the Taskforce understands that long-term commitment to the equitable representation of Indigenous RMs is necessary and extends well beyond recruitment. This sustained work must concentrate on Indigenous-RCMP relations and Indigenous talent management and retention. Improvements in these areas are necessary to improve service to Indigenous individuals and communities, and also to improve work with Indigenous service-providers including self-administered Indigenous police services. These are critically important topics to which the MAB may return and explore further in the future.

Focusing on Indigenous recruitment has allowed the Taskforce to concentrate on developing recommendations related to national leadership, enhancing the Indigenous experience, building trust and fostering relationships with and within FNIM communities, and addressing systemic barriers limiting access to recruitment, including barriers that are especially difficult for Northern and remote applicants to overcome in cases where access to services and technology is even more limited. This focus on Indigenous recruitment aligns with the modernization of the RCMP including the EDI Strategy, the RCMP Reconciliation Strategy, First Nations and Inuit Policing Program, and the 2019 and 2021 Speech from the Throne and the Commissioner’s 2018 and 2022 Mandate letters.  

It is the Taskforce’s view that the RCMP must take urgent action to undertake these measures, as the organization is faced with a critical need to rapidly increase the representation of qualified FNIM RMs.  

Methodology and Approach

As mentioned, in Fall 2022, this Taskforce was re-ignited to delve deeper into issues explored in its earlier study and report on the question of Indigenous RM recruitment. To this end, the Taskforce held focus group sessions with: the CHRO; subject matter experts; FNIM serving and retired members; select COs of RCMP divisions; and provincial partners involved in Indigenous Policing. Through these focus groups, the Taskforce was able to gain valuable perspectives from a range of stakeholders and substantive knowledge on the design and effectiveness of specific programs, including the IPTP and Saskatchewan’s IRU.

The Taskforce met virtually and in-person eleven times in 2022-2023, over the course of which it collected and analysed quantitative and qualitative data in close collaboration with RCMP officials, and current and retired COs from divisions across the country. The CHRO and their team also shared important reports and information to help inform the Taskforce’s research and advice. From this data, the Taskforce opted to develop a new report that would update advice provided within its earlier report (2021). This new report thus could integrate information and reflections related to relevant new developments within the RCMP.

The initial Taskforce gathered preliminary information from a variety of background documents on RCMP RM recruiting. The majority of this initial information was provided by the CHRO in the form of a presentation and a question-and-answer document created via detailed questions that the Taskforce had raised to RCMP management about recruitment. The CHRO also provided an analysis of the results of consultations with proactive recruiters that was completed between August 14 and September 19, 2020. Stock-taking included discussions surrounding basic statistics, measures, and dashboards used for the recruiting program and/or for workforce planning.

The Taskforce held focus group sessions over 2022-2023 that provided an opportunity to hear directly from and foreground the experiences of both RCMP senior management both in the divisions and National Headquarters, as well as serving and retired Indigenous RMs. Data drawn from these focus groups was qualitative in nature, and analysed alongside available quantitative data as well as other relevant qualitative material (i.e., policy documents and program overviews). All data were critically assessed to form the basis of the findings and recommendations presented herein.

This report and its recommendations have as their principal intended audience the RCMP Commissioner and Senior Executives of the RCMP responsible for Indigenous recruitment.

Key Findings and Recommendations

The Taskforce recognizes the significance of the historical relationship between FNIM peoples and the RCMP. The Taskforce also recognizes the diversity of Indigenous communities across Canada, and that each of those communities are themselves not homogenous. Thus, policing work with Indigenous populations is complex and requires community-centred approaches. The RCMP would benefit from proactive engagement in open, iterative dialogue with Indigenous communities, their leadership and members especially on the issue of recruitment. Additionally, while collaboration with Indigenous persons within the RCMP is sorely lacking, its need is obvious and urgent; indeed, many Indigenous focus group participants remarked that the Taskforce’s engagement with them was one of the first times they had ever been asked to share their experiences as FNIM RMs.

Throughout its research and analysis, the Taskforce heard personal accounts of strong relationships between detachment members and Indigenous leaders and community members. However, due to the often-fraught relationship between Indigenous peoples and the organization, many FNIM peoples feel discouraged from or hesitant about joining the RCMP.  

The RCMP is working to strengthen trust with FNIM communities across Canada. This work is built on acknowledging past harm, listening with respect and humility, and taking positive actions to improve the shared future. The RCMP’s Vision 150 is also committed to positive change through a renewal of the force’s vital relationship with Indigenous peoples. The RCMP Path of Reconciliation: Strengthening Trust in the RCMP report,Footnote 3 as well as divisional reconciliation strategies, highlight the organization’s awareness that the RCMP’s future depends on building trusting relationships with FNIM communities. The Taskforce recognizes the steps the RCMP is taking toward reconciliation and improving its relationship between with FNIM communities across the country, and stresses the importance of drawing from these movements to inform recruitment strategies.

The Taskforce further acknowledges and appreciates the willingness of the RCMP’s serving and retired FNIM members to share their experiences. Insights from these members have played a significant role in the development of the Taskforce’s findings and recommendations set out herein.

The report now turns to delineating in detail the Taskforce’s findings and recommendations. As signaled above, this discussion is organized under four broad themes. Recommendations set out within each theme are achievable, measurable, sustainable, and connected to addressing a particular area where a need for reform was identified. The Taskforce is confident that, if effectively implemented, these recommendations will succeed in boosting Indigenous representation, furthering the RCMP’s reconciliation objectives, and enhancing the organization’s overall effectiveness in delivering public safety services across our country.

Theme 1: Barriers Limiting Indigenous RM Recruitment 

The application and training process to become a RM is intense and lengthy. Even before applying, interested individuals are expected to meet a list of qualifications and requirements such as the following: be of “good character” and uphold the highest ethical standards both on and off duty; complete vision and hearing exams; and begin completing required forms and collecting required documents. 

As per the RCMP’s website,Footnote 4  the application process is extensive, and includes the following seven steps:   

  1. Submit online application
  2. Learn more about a career in policing: attend a career presentation 
  3. Submit all required forms and documents
  4. Complete a suitability assessment and undergo a Right Fit Interview
  5. Complete various background checks including previous and current employers
  6. Undergo medical and psychological assessments 
  7. Undergo a field investigation and security assessment

In November 2020, the Taskforce heard that, on average, the time to recruit and process an application is 480 days or 16 months. Through the creation of an HR Modernization team, progress has been made to address these timelines. By June 2023, the Board heard that timelines have since been reduced to 333 days or 11 months. 

The Taskforce salutes the efforts that have led to reduced timelines for the application process; nonetheless, these delays could be shorter still. Even more relevant to the subject matter of this report is the fact that there remain multiple, well-known, and recurrent systemic barriers that disproportionately affect actual and prospective Indigenous applicants. These challenges, which require urgent and immediate action to address, are set out in detail in the discussion that ensues. 

Finding 1.1: Barriers in the overall application process and factors that limit the attractiveness of the RCMP as a prospective employer must be identified and addressed. 

FNIM representation is essential to the future success of a modern RCMP. Targeted and enhanced recruitment strategies are vital to increase representation, and these strategies must address systemic barriers that impede, discourage, or block entry of Indigenous applicants into the organization as a member of its workforce. The Taskforce also acknowledges the importance of bringing an intersectional lens to this work and urges that particular attention be given to the unique experiences and barriers of FNIM women and gender minorities. It is important to ensure the RCMP seeks to identify and address recruitment barriers both for FNIM peoples broadly speaking and for FNIM women and gender minorities specifically. The presence of more FNIM women and gender minorities within the RCMP could have strong and lasting impacts on multiple levels internal and external to the organization.  

The systemic barriers Indigenous peoples face may contribute to alienation, and demand perseverance and resilience from applicants from the very start of the application process. The Taskforce heard of the following examples of such barriers: driver’s license requirements; disqualification resulting from holding a criminal record due to a minor offence (e.g., excessive speeding, drug possession, and public disturbance are minor offences that could result in an applicant’s deferral depending on recency and frequency); official language requirements; internet access; and literacy requirements. With regard to this last factor, the Taskforce notes that “literacy” is not subject to a singular definition within the RCMP and that it is a capacity assessed through a series of evaluations of 18 attributes. One of these is data literacy, described as “the ability to process different data points and draw conclusions quickly.”Footnote 5  The vagueness in some of these attributes that are assessed for the purposes of admission as an RCMP RM applicant troubled the Taskforce.

The RCMP does not allow applicants to list relatives as references to support application and security processes. The Taskforce heard that this presents an additional barrier for some Indigenous applicants, many of whom have an extensive kinship network that makes up a large segment of their communities. Applicants would benefit from these references being asked to remain impartial and objective, while still providing the necessary information. It is important to note that these barriers are especially difficult for Northern and remote applicants to overcome in cases where access to services and technology is even more limited.

In recognition of recruitment as a key modernization pillar, the RCMP has built a Recruitment Modernization team that conducted an end-to-end review of the recruitment process in November 2022. This review yielded 20 key action items approved for implementation in January 2023. The Recruitment Modernization team is responsible for creating a new approach to recruitment with a focus on recruitment renewal and continuous review of a broader recruitment program. This approach includes appointing and supporting proactive recruiters in the divisions who are responsible for promoting careers within the RCMP. It has also involved a pilot of the Recruitment Evaluation Centres (RECs), which took place virtually and in-person over an intensive two-day period where the applicants took part in bias assessments using purposefully designed scenarios. The integration of RECs into the suitability process provides a more holistic view of applicants and will likely improve the recruitment experience. Further to these new approaches, a number of initiatives are ongoing, including liaising with the National Police Federation on alignment of outreach efforts, conducting market research, and assessing advertising campaign options. Proactive recruitment is also being developed and organized with divisions through coordinated outreach strategies. This work has been underway since early 2022.

In 2021 National Recruiting worked with Learning and Development to develop a standardized work description and training curriculum for proactive recruiters. This initiative occurred in response to recommendations made in a June 2020 Integrated Assessment report of the program and was implemented in October 2021. A focus group of six proactive recruiters developed the new competency profile, associated skills, and training plan for proactive recruiter positions. 

The resultant proactive recruiter training plan includes a revised competency profile, knowledge and skills associated with the organizational and functional competencies, a training schedule for onboarding with courses to be completed by the first year, and courses for continuous learning.                            

As the proactive units are divisional resources, each division is responsible for implementing this training. 

The Taskforce heard, on several occasions, the need for an end-to-end review of the RM recruitment process, so as to render it more accessible and effective. This review should include an evaluation of service standards, language requirements, and assessment techniques. For example, participants in Taskforce discussions noted that assessments use some colonial language and approaches, with scenarios that do not represent the lived experiences of FNIM peoples. Participants also suggested that assessors require cultural safety capacity and be sensitized to Indigenous cultural norms and lifestyles, as well as the impact of trauma, both direct and intergenerational. Many assessors may not have the cultural competency to understand the increased exposure to the suicidality risks and experiences of Indigenous peoples including negative experiences with police and the criminal justice system.  Additional, meaningful cultural training and trauma-informed approaches are integral to understanding the social and economic situations of FNIM peoples and designing processes that reflect these realities with care and sensitivity. 

Increasing the attractiveness of the RCMP is another barrier for overall recruitment. The RCMP is investing in advertising and marketing materials to attempt to address this. Data provided by the CHRO in June 2023 show a significant decline in credible RCMP RM applications over the past five years. There may be many underlying reasons, including the competition in which the RCMP finds itself for recruitment with other police services in Canada. It is clear that the RCMP would benefit from a comparative analysis to ensure the RCMP is the employer of choice for those considering public safety professional pathways.

GBA Plus is an equity-anchored analytical competency to assess how diverse groups of people may experience and be impacted by policies, programs, services and initiatives. The organization is deepening efforts across the organization to identify and remove barriers for diverse groups of people in RCMP policies, programs, and operationsFootnote 6  to better meet community needs and foster a more inclusive workplace. GBA Plus reviews have led to policy changes in many areas, from recruitment to operational equipment. GBA Plus analyses have identified barriers in the recruitment process, which informed the recruitment modernization plan.Footnote 7  The Taskforce believes more can be done to address the systemic barriers limiting Indigenous recruitment.

Recommendations: 

1.1a: Undertake an external end-to-end review of the application process through an EDI/GBA Plus lens. The external reviewer(s) must be provided full access to RM recruitment materials and processes. Likewise, the reviewer(s) will require the ability to invite RCMP applicants currently in the application process to interviews and/or group discussions. The review should be undertaken by a person or organization who is external to and at arm’s length from the federal government. The reviewer’s mandate must include the task of identifying and providing recommendations for the reduction and removal of barriers to access to and success within the RCMP RM application process for members of equity-deserving groups, especially Indigenous persons. The mandate must also expressly include the requirement to consult with FNIM communities served by the RCMP and FNIM applicants, cadets, and RMs.  

1.1b: Regularly review the applications of candidates who have self-identified as FNIM to monitor their progression through the application process. Track, over a two-year period, the points at which FNIM applicants are most likely to be diverted out of/deferred from the process, thereafter studying and making recommendations how to boost success at these points in the process, specifically for FNIM applicants.

1.1c: Undertake a comparative analysis of the training allowance paid to cadets in other Canadian law enforcement agencies and comparable industries. Once this study is completed, efforts should be made to increase the RCMP allowance to be commensurate with or to surpass other, similar organizations, thereby increasing the attractiveness of the RCMP as a prospective employer for FNIM cadets and all other cadets.

Finding 1.2: A unique, flexible, and adaptable approach to personal circumstances is needed in Indigenous recruiting, as some barriers to recruitment for Indigenous RM applicants are surmountable with appropriate measures that reflect the lived experiences of FNIM persons. 

The Taskforce heard that a unique, flexible, and adaptable approach is essential for both potential and actual applicants who require support throughout the application process. Building a personal connection to individual recruiters is key for FNIM applicants. The Taskforce also heard that more can be done to encourage community stakeholders and partners to identify prospective excellent Indigenous RMs and to encourage and support their applications.   

Personalized Approach and Connection to FNIM Peoples

A promising practice for Indigenous recruitment could be a long-term approach of contacting potential applicants while they are adolescents to encourage early engagement with the RCMP. In this way FNIM youth potentially interested in a career with the RCMP can be made aware of requirements for application and supported in a way that avoids or reduces the impact of encounters with barriers during the application process. 

Connecting with Indigenous youth through online advertising and popular social media platforms would be beneficial to forging connections between FNIM peoples and the RCMP. Advertising campaigns should showcase Indigenous RMs so that future applicants can see themselves reflected in the RCMP and as future RCMP officers. More traditional forms of media (e.g., radio and print) should be considered in remote areas with limited internet. The Taskforce acknowledges the work the RCMP is undertaking in their marketing and advertising campaigns in this realm. It hopes to see focus, measurement, and adjustment of these efforts informed by the results of the campaign. Consideration should also be given to developing recruiting content in collaboration with key partners and stakeholders, such as the National Police Federation. 

Strengthening Relationships and Communication between Proactive Recruiters and Applicants

The current recruitment and application process including online applications, security, and RECs pose barriers for Indigenous recruitment. Applicants who do not qualify are notified of this outcome without any explanation. It is completely antithetical to the goals of reconciliation and of boosting recruitment for the RCMP to disqualify applicants, notably FNIM applicants, without providing reasons that could inform opportunities for improvement with a view to reapplication. 

As noted above, divisional proactive recruiters are responsible for promoting careers with the RCMP and administering the RCMP Police Aptitude Test (RPAT). They attend job fairs, school/university events, sporting events, community centre events, and other similar events to promote careers within the RCMP.Footnote 8  A feedback loop to proactive recruiters in the field is integral to the successful recruitment of FNIM peoples. In other words, the recruiters need to know how applicants that they recruited fare in the process so that they can provide advocacy, support, and mentorship to these applicants throughout and beyond the application and training processes. Beyond individual cases, this feedback also can provide high-level information to recruiters about the strategies that have proven effective (or not) in yielding strong applications to the RCMP. The Taskforce was pleased to learn that proactive recruiters have received training to utilize the RCMP’s existing tracking system that allows them to follow and check in on applicants and provide them with mentorship and assistance as required throughout the recruitment process. 

Develop Training to Expand the Capacity and Knowledge Base of RCMP Staff

The RCMP would further benefit from partnering and collaborating with FNIM communities to develop and deliver training to RCMP staff, especially those tasked with recruiting and evaluating applicants, to ensure a solid understanding of factors impacting FNIM peoples. Training should include an assessment of staff members’ knowledge base and capacities in regard to Indigenous traditions and experiences both generally and in relation to the RCMP and policing more broadly. It also should be a prerequisite to participation in recruiting and evaluating FNIM applicants. Ideally the training would involve:

Dedicated Mentorship and Assistance to Acquire Necessary Skills, Similar to the Aboriginal Cadet Development Program (ACDP)

The ACDP program was created in 1995 to support the recruitment of FNIM individuals who did not initially meet the RCMP’s basic entrance requirements but showed promise as excellent candidates. The program aimed to improve participants’ skills over a two-year period with a view of preparing them for the RCMP RM application process and training experience.

Participants took part in a three-week assessment at Depot where their academic, physical fitness, driving, first aid/CPR, and public speaking competencies were assessed. Following this, participants returned to a detachment in their home province or territory, and were typically assigned a mentor. The program included partnerships with colleges where participants received tutoring in a structured environment. While upgrading their skills, participants also had an opportunity for experiential learning at detachments. At the discretion of detachment commanders, they were able to perform tasks similar to those of RCMP summer students.Footnote 9

The ACDP provided an Intensive opportunity for participants to upgrade academically while gaining valuable work experience. This differs from the Indigenous Pre-Cadet Training Program (IPTP) as, in the ACDP context, the RCMP fostered partnerships with colleges to support participants in their academic upgrading. The IPTP, while potentially identifying a need for upgrading, does not provide further assistance to participants who would need to initiate and complete the required improvements without RCMP support. 

The Taskforce heard that the success of the ACDP program gave Indigenous participants the opportunity to experience Depot for three weeks then return to their communities to work with mentors and acquire the necessary skills to meet the application requirements.

According to evaluations of the ACDP program by Marie Ross and Associates in 2000, out of the 204 candidates who participated in the program, 110 completed the ACDP upgrading program, 81 entered Depot, and 74 graduated.Footnote 10 During focus group sessions, the Taskforce heard from some of these participants, who were vocal proponents of the program’s success, notably in relation to increasing Indigenous RM representation.

Analyze and evaluate the success rate for Recruitment Evaluation Centres (RECs)

The Taskforce was provided information on the key drivers for the RECs and how it was a priority initiative for the RCMP’s Recruitment Modernization team. RECs were developed to assess candidates across the RCMP’s new attributes, improve candidates experience, and reduce processing times through an immersive two-day event. The Taskforce understands that the REC pilot has been largely successful with respect to FNIM applicants, but also heard that more could be done to make them culturally relevant to Indigenous peoples. Information received from the CHRO on early results of REC pilots, indicate higher than average scores for Indigenous peoples, racialized persons, and women. Of note, 15 of the 138 REC applicants, or nearly 11%, self identified as FNIM.

The Taskforce also heard that the simplification of the application process would be a great benefit to recruiting FNIM peoples. Current processes are cumbersome, and on average take 333 days. Other large Canadian police forces, such as the Ontario Provincial PoliceFootnote 11, and Calgary PoliceFootnote 12, have much shorter processes (i.e., 3-6 months).

Indigenous-only RECs, which would address cultural needs and specificities, are essential. In their absence, personality assessments that form part of the recruitment process present potential barriers to Indigenous applicants. Notably there is a real risk of inherent bias infiltrating and tainting these assessments unless they can be carried out by Indigenous evaluators.

Recommendations:

1.2a: Evaluate the capacities and knowledge base of the RCMP staff tasked with recruiting and evaluating applicants to ensure a solid understanding of factors, including all of the following:

1.2b: Training must be developed in partnership with FNIM communities, ideally delivered by FNIM facilitators, and be delivered on an ongoing basis. Completion should be a prerequisite to participation in the screening and assessment of candidates.

1.2c: Establish and support clear, sustained, and coordinated channels for communication among RCMP recruiters, potential and actual applicants, evaluators, and FNIM stakeholders and partners. The goal should be to identify a shared vision, process, and mission among field reviewers, applicant assessors, and other centralized programs/services, notably in relation to FNIM recruitment and success. This should be informed through meaningful and ongoing consultation with FNIM community members. Established processes must ensure ongoing points of contact with FNIM applicants throughout the review of an application, while also maintaining contact with their recruiters to the extent that privacy rights allow. When an application is rejected, reasons must be given, focusing on skills or attributes that must be acquired or refined before a subsequent reapplication. 

1.2d: Dedicated mentorship and assistance to acquire necessary skills, which mirrors the support that had been provided to participants in the previous ACDP should be reinstated. This mentorship and assistance should be extended to support applicants in meeting requirements and developing skills needed even prior to application, such as obtaining an unrestricted driver’s license and reaching standards for literacy, numeracy, and physical fitness. Mentorship should be aimed at developing sustained supportive relationships between proactive recruiters and prospective applicants that will foster enthusiasm about a career in the RCMP.

1.2e: Indigenous-only RECs informed by Indigenous cultures are needed, staffed exclusively or predominantly by FNIM peoples. Staff require intensive ongoing training and capacity-building opportunities to understand the structural barriers that Indigenous applicants commonly face, as well as equitable ways to reduce or remove these. Meaningful consultation with FNIM RMs and community leaders is necessary to ensure that the RECs reflect the interests, needs, and experiences of actual and prospective FNIM applicants. The time these RMs devote to such consultations should be accounted for and recognized outside of the scope of normal job duties.

Theme 2: Developing Trust and Fostering Partnerships within Indigenous Communities

Given the RCMP’s difficult history with FNIM communities across Canada for the past 150 years, the RCMP acknowledges and understands that it is imperative for it to take steps to develop trust and foster partnerships with Indigenous communities. Achieving this outcome requires that the RCMP make a firm commitment to positive, concrete changes inspired by needs and goals articulated by FNIM communities.

The Taskforce has been advised that RICCA is creating a positive path to the RCMP’s reconciliation commitments and to repair, rebuild, and form relationships to influence positive outcomes for policing. This has involved a phased approach involving external engagement and consultations with Indigenous communities and with national and local Indigenous organizations and stakeholders.

Focus group participants with whom the Taskforce met stressed RCMP cultural competency as a prerequisite to the organization’s ability to develop authentic and sustained relationships of trust within Indigenous communities. Multiple prongs of action are required for such competency to be built. There is no doubt, however, that increased Indigenous representation within the RCMP RM workforce would support this goal, as it would ensure greater representation of RMs of whose lived experiences, cultural identities, and community relations position them well to understand and relate to the Indigenous communities that the RCMP serves. This deepened FNIM representation within the RCMP could go a long way toward mutual understanding and trust; however, the RCMP must ensure that the burden of cultural competence and enhancement is not shifted solely or predominantly to Indigenous members. Moreover, the RCMP cannot lose sight of the diversity among and within Indigenous communities, and thus avoid presumptions that an Indigenous RM’s experience will necessarily match those of other Indigenous community members served by the RCMP. These factors should be integral to the work of the RCMP-Indigenous Collaboration Co-Development and Accountability (RICCA) unit, which has as one of its strategic pillars the building of cultural competency, knowledge of, and respect for, FNIM cultures, histories, and realities that promote culturally safe and an inclusive work environment.

Finding 2.1: FNIM experiences, languages, histories, and contemporary experiences must be reflected in RCMP communications and recruitment initiatives.

Hiring Indigenous proactive recruiters is of utmost importance in the RCMP’s recruitment efforts and initiatives, strengthening the RCMP’s ability to build rapport with FNIM applicants. All proactive recruiters – whether Indigenous or not – should be expected to remain in contact with applicants throughout the application process. The RCMP requires a needs assessment to determine whether its complement of proactive recruiters is adequate; if it is not, further hiring in the area will be required and that undertaking should be carried out with an eye to boosting the number of Indigenous recruiters.

Stating within RCMP RM recruitment postings that fluency in one or more FNIM languages is an asset is an easy step that can have a broad, positive impact. Not only would recruitment of Indigenous language-speakers boost the RCMP’s ability to work constructively with Indigenous communities across the country, but this inclusion within position postings would telegraph a strong signal about Indigenous inclusion within the RCMP. The Taskforce also takes the view that promotion of Indigenous languages can and should go even further by translating recruitment calls in local Indigenous languages.

Successful campaigns from other jurisdictions, which centre and speak to Indigenous populations, could prove informative. For example, New Zealand launched a recruitment campaign designed to attract people who would normally be less likely to consider becoming a police officer. Recruitment videos feature diverse representation of women and racialized people, and focus on empathy and other personality traits that make an ideal police officer. Traits include those who care about the individuals in their community, want to help, and have a desire for a socially meaningful career. This campaign was launched in 2017 and by 2020, New Zealand’s police representation of women had increased by 34%, Indigenous Maori by 23%, and racialized people specifically those of Asian heritage, by 87%.Footnote 13 This example highlights the effectiveness of a recruitment strategy that reflects local demographics.

Recommendations:

2.1a: Conduct a needs assessment of the number of proactive recruiters, especially those who are FNIM, to determine whether the current complement can meet the goals of an Indigenous strategic hiring effort for the RCMP that will meet established and ambitious targets. This should be used to inform an implementation plan to address the results of the needs assessment. 

2.1b: Include “fluency in one or more Indigenous languages” explicitly as an asset in recruitment calls and materials.

2.1c: Offer RCMP recruitment calls and materials in local Indigenous languages.

Finding 2.2: The RCMP must make every effort to leverage all opportunities to identify and share best practices, locally and nationally, related to Indigenous RM recruitment.

Building successful relationships with Indigenous communities requires recognition that each community has its own needs, successes, and challenges. At the same time, opportunities remain for sharing best practices tied to Indigenous recruitment, notably in relation to how to tailor strategies to match the particular realities and needs of local communities.

Throughout its focus group discussions, the Taskforce heard of the importance of community-based initiatives across the country. Provinces with a large contract policing presence like British Columbia, Alberta, and Saskatchewan provided examples of local initiatives supporting FNIM communities in their provinces. For example, as mentioned previously, the RCMP in Saskatchewan’s local initiatives and Indigenous Recruitment Unit (IRU) have been proactive and effective in their Indigenous recruitment efforts. An RCMP forum, wherein proactive recruiters within and across divisions could come together to discuss and share what is working and what is not, would benefit Indigenous recruitment.

Another example provided by RCMP-Indigenous Collaboration Co-Development and Accountability (RICCA) was the unit’s successful co-development of a Pocket Translator with Nova Scotia members and the Mi’kmaw community to support Indigenous language initiatives in the RCMP. The Pocket Translator is a double-sided card with common Mi’kmaw phrases used by RCMP employees translated from English. The card is designed to fit in RMs’ operational notebook or vest pocket for ease of access and has received much positive feedback from users and community members.

Recommendation:

2.2: Develop communities of practice within and across divisions to identify and develop promising practices for Indigenous RM recruitment, support, and promotion, while remaining mindful of the uniqueness of, and diversity among, each FNIM community and nation.

Finding 2.3: Existing RCMP mobility requirements for RMs limits the RCMP's ability to build relationships of trust with Indigenous communities.

As a national organization, the RCMP requires that RMs be willing to relocate with their families to any detachment across Canada. While cadets may be asked to submit preferred options for consideration in advance of their first posting, decisions are based on operational needs. These mobility requirements can constitute a barrier to Indigenous recruitment for members who want to be able to serve particular communities.

A commitment to offering pre-posting to Indigenous RMs interested in returning to their home province/territory or even their preferred community could be integral to encouraging RM Indigenous recruitment and building trust between the RCMP and local communities. Such postings should be offered as an option, not a requirement, following graduation from Depot since some Indigenous RMs might prefer postings outside their home communities.

Relatedly, RMs who have built strong relationships with Indigenous communities that they serve might not wish to be transferred to another detachment. That wish to stay in place might be shared by the community in question. Relocating an RM in such circumstances would have the dual impact of lowering morale for the RM and reducing trust-building opportunities between the RCMP and Indigenous community. Decisions about posting should account for existing rapports between officers and local communities, and should be flexible enough to allow RMs to stay in place for an extended time where this serves the community’s interests and where it aligns with the RM’s own professional objectives.

Recommendations:

2.3a: FNIM cadets should be given the option to return to their home community, another Indigenous community, and/or their home province/territory, should they desire, upon graduation from Depot. 

2.3b: Similarly, all RMs, whether Indigenous or not, who are stationed at detachments that serve Indigenous communities should be given the opportunity to be posted for extended periods provided this is supported by a review that includes feedback from the local FNIM communities served by the officer(s) in question. This will ensure that RMs who so wish are allowed to stay over a sustained period to build rapport with the community leadership and members.

Theme 3: Enhancing the Indigenous Cadet Training Experience to Increase Recruitment

Given that becoming an RM requires successful completion of the Cadet Training Program (CTP), increasing Indigenous recruitment to the RCMP requires attention to the experience of Indigenous cadets enrolled in this program. Experiences of isolation or alienation at Depot, the training site for the CTP, presents real retention risks for Indigenous cadets. The Taskforce spent extensive time contemplating the experiences of cadets who had taken part in Indigenous-only troops or as part of clusters of Indigenous cadets within regular troops. The establishment of Indigenous clusters and uniquely Indigenous troops presents measures that stand to enhance the CTP experience for Indigenous cadets, and potentially boost success rates, thereby contributing to the goal of increasing Indigenous RM representation.

The Taskforce also heard how important the inclusion and celebration of key cultural, equity, and diversity elements is for all cadets at Depot.

Additionally, the curriculum at Depot must reflect experiences of Indigenous peoples in Canada. As previously noted in the MAB’s Training and Education Taskforce Report on the Cadet Training Program, the CTP could:

“…better prepare cadets by enhancing cultural and diversity training within the curriculum, including content related to hate crimes, cultural awareness/humility, culturally-appropriate responses, unconscious bias, racism, and Canadian commitments to reconciliation, notably through the Report of the Truth and Reconciliation Commission of Canada.” (2015)Footnote 14

The integration of Indigenous traditions, languages, history, and cultures within the CTP would support the goal of Indigenous cadets seeing themselves represented and welcome within the Depot culture. Such measures would also serve to familiarize other, non-Indigenous cadets with aspects of FNIM cultures.

Finding 3.1: The RCMP has demonstrated success in FNIM recruitment through the establishment of Indigenous-only troops. Other attempted measures have not been effective.

Many current and retired FNIM RMs the Taskforce spoke with noted that Indigenous-only troops have been successful in increasing Indigenous recruitment and representation. These troops create an environment that fosters camaraderie among Indigenous cadets and decrease the risk of isolation and alienation at Depot. As one cadet explained:

“About a month or so before having to report for training, I was contacted about whether I wanted to go into another troop a few months later. I asked, ‘Why can’t I go in this troop that I was originally offered?’ and it was explained to me that they were putting together an all Saskatchewan Troop of First Nations descent. I was so excited I said yes immediately, I asked if this person and that person where going to be put in that troop and was told yes. From what I had learned already I would be walking in the door with familiar faces.”
– Indigenous-Only Troop Graduate

The past successes of Indigenous-only troops are illustrated in recruitment data from 1996/97, 1997/98, 1999/00, and 2000/01, that is, years in which Indigenous-only troops were available. These data reflect a significantly higher percentage of Indigenous cadets ranging from 9-14%. 

While Indigenous-only troops were noted to have significant benefits, such as providing comfort and familiarity to participating cadets; the Taskforce also heard that they could have potential drawbacks. These included potential for FNIM cadets to be perceived as not being up to the requirements of the of traditional Depot curriculum and as lacking the qualifications to be a successful RM after graduation. Accordingly, if Indigenous-only troops are instituted, measures to reduce the potential adverse impact on these troops are needed. Indigenous cadets also must be given an informed choice about whether to be part of an Indigenous-only troop, and not presumed to favour enrollment in a uniquely Indigenous cohort.

Beyond the “regular” and Indigenous-only troop models, the Taskforce also heard about a third option, that is, a troop that includes a critical mass or “cluster” of Indigenous cadets (e.g., a group of approximately eight Indigenous cadets) within it. The Taskforce sees this model as holding promise.

The pros and cons of each troop option should be presented to FNIM cadets in order to make an informed decision. For example, the Indigenous-only troop may take a longer time to fill compared to other troop options and these delays could result in the loss of quality candidates.

The IRU in Saskatchewan is currently prioritizing proactive recruitment of Indigenous persons with the primary goal of advancing two all-Indigenous troops through Depot in 2023. This work is ongoing, and the intention will be to post these cadets back to their home province following their graduation from Depot.

Regardless of the type of troop that an Indigenous cadet joins, the CTP curriculum must remain consistent for all cadets and must integrate content that speaks to the experience of Indigenous communities in a community safety context, so that all graduates of Depot are capable of carrying out their duties with intelligence and sensitivity when working with FNIM peoples and communities. Communication across the force is needed to ensure a solid understanding across all detachments and divisions that the curriculum at Depot does not change regardless of the nature of a cadet’s troop.

Tracking the success of RMs who complete the CTP within these specialized programs (Indigenous-only and Indigenous cluster troops) is critical for longitudinal analysis and to permit course correction, where needed, to ensure the fulsome, sustained success of Indigenous recruitment. Such study would also advance RCMP commitments towards continuous learning and critical self-evaluation.

Recommendations:

3.1a: The RCMP must look to establish and begin to offer within the next 12 months, troops that are Indigenous-only as well as troops that include clusters of approximately 8-12 Indigenous cadets. Whether a FNIM cadet enters an Indigenous-only troop, a troop with a cluster of FNIM cadets, or a traditional troop should be up to the cadet; the choice cannot be made by the RCMP on their behalf. Necessary information about the implications of such a choice must be given to cadets before they decide.

3.1b: Develop KPIs to regularly and systematically monitor and report on the impact, in the short- and medium-terms, of Indigenous-only troops and clusters both on FNIM recruitment and on the experience of cadets who graduate from such troops once they are RMs. This is to be complemented by a longitudinal survey for FNIM cadets after completion of the CTP and over their career, at three- to five-year intervals, to assess their experiences and to detect whether the type of troop in which they were enrolled at Depot affected their experience as a RM. The resulting data must be analyzed and acted upon to support the success of FNIM RMs.

Finding 3.2: The Indigenous Pre-Cadet Training Program (IPTP) is a crucial recruitment tool for Indigenous RMs.

The IPTP is an RCMP recruiting initiative designed to give young FNIM peoples first-hand exposure to a career in policing, while preparing them to be competitive in the application process. The programs national oversight and administration is the responsibility of the RCMP’s Indigenous Relations Services (RIRS) and is run once per year.

The program offers a three-week (96 hour) training at the RCMP Academy (Depot Division) in Regina. It is open to FNIM individuals aged 19-29 from across Canada who have the opportunity to take part in a modified Depot training experience. Since its inception in 1994, hundreds of participants have completed the program, with nearly 50 moving on to become RCMP members.

During its focus group sessions, the Taskforce heard consistently that this program is integral to the recruitment of FNIM RMs. These sessions also suggested that successful completion of the IPTP could lead to a less extensive and onerous application process. For example, IPTP participants would no longer have to complete a presentation on the overview of an RCMP career or attend one of the RECs, as the successful completion of the IPTP would cover this content.

Throughout the Taskforce’s focus groups, particularly those with current and retired Indigenous RMs, it heard how challenging it can be for FNIM applicants to acclimate to the environment at Depot, particularly for those from smaller, remote, and/or isolated communities. The IPTP allows participants to experience Depot over a time period much shorter than the CTP and exposes participants to the Depot experience before they apply to become a RM and commit to the 26-week CTP program. The IPTP also could inform the development of pre-departure onboarding materials (that could be offered through a multitude of media – e.g., print, video, interactive chat) for Indigenous cadets who do not take part in the program, which would provide valuable information for cadets on what to expect at Depot.

IPTP participants are hired using a 90 working day public service casual contract, and the current program is held over only 15 days (3 weeks) of that contract. Saskatchewan IPTP participants in 2023 were offered the chance to continue their contract via summer employment to further their exposure and experience with the RCMP, with four of them accepting the offer. These participants were assigned administrative duties and invited to participate in various community events and day trips to different RCMP units to get a first-hand view of the different opportunities available as they consider a career in policing. This highlights the value of divisions budgeting for and extending the IPTP contract up to the 90 days envisaged for the program, allowing the additional experience and potential references that could thereafter assist them in the RM application process.

A majority of IPTP participants surveyed before and after completion of the IPTP from June 27, 2022, to July 15, 2022, stated they were considering an RCMP career to make a difference for Indigenous peoples and their communities. Their main concerns about becoming an RCMP member included: not being able to complete the application process, leaving their community, and meeting the physical fitness and training requirements. All participants agreed that the IPTP training was a valuable experience and the majority stated an intention to apply to become a RM.

IPTP thus merits prioritization within the RCMP. Focus group participants noted that investment, through both human and financial resources, would help stabilize and expand the program to be run more frequently and effectively across all divisions and at RCMP National Headquarters.

Recommendations:

3.2a: IPTP should be prioritized, expanded, and resourced appropriately, with support extending to divisions and flexibility extended to the local/divisional level to determine particular elements of the program that reflect the needs and experiences of local FNIM communities. To assess the success of the IPTP, KPIs are needed. KPI assessments should be subject to data analytics with reports deriving therefrom made publicly available at two-year intervals.

3.2b: Require divisions to ensure, to the extent possible, that successful IPTP participants are provided an opportunity to experience the full 90 days of their contracts in divisions/detachments to gain valuable work experience and potential references.

3.2c: Integrate, in a streamlined way, the IPTP within the larger recruitment and application processes. This calls for leveraging results of screening and assessments from participation in the IPTP so that applicants do not have to duplicate any steps completed in the IPTP and to streamline access to the broader recruitment process (e.g., using the results of preliminary security screening and not having to repeat the career presentation and REC if successfully completed).

3.2d: Develop and deliver in collaboration with Indigenous RMs pre-departure and onboarding materials offered through multi-media formats for successful FNIM applicants who did not participate in the IPTP.

Finding 3.3: Indigenous cadets’ and RMs sense of belonging within the RCMP will be enhanced by deepening recognition and celebration of Indigenous presence and contributions to the RCMP.

Further to the findings and recommendations of the CTP Report (Appendix C), Indigenous traditions, languages, knowledge, and culture should be further developed and integrated into the physical space and curriculum at Depot. The Taskforce heard that Depot should infuse Indigenous culture and languages throughout the training experience, and that the facilitator complement at Depot must have equitable FNIM representation. Such factors would support Indigenous troops by making Depot feel more inclusive, as a space within which they see themselves reflected and where they believe can flourish. This would further boost the learning and cultural competence of all cadets in relation to Indigenous histories and experiences.

The CO of Depot provided the Taskforce examples of FNIM cultural practices and items being incorporated into the Depot experience, such as:  the appointment of a Knowledge Keeper, cultural practices (e.g., smudging), as well as the creation of a teepee and sweat lodge. Additions like these to Depot’s physical space and curriculum should be reviewed continuously with Indigenous leaders and updated when needed, remaining mindful of the importance of reflecting the diversity within FNIM lived experiences and traditions.

More Indigenous cultural and spiritual leadership is needed within the RCMP to support Indigenous cadets and RMs in both the immediate and longer terms. Measures must be designed with the understanding of the heterogeneity of FNIM cultures, traditions, practices, and histories. Efforts in this regard must integrate recognition that Indigenous cadets and employees may need psychosocial support and/or a trauma-informed approach in their learning. This is especially the case when they encounter or are required to work on difficult or sensitive files by which they or their communities may have been personally impacted (e.g., Missing and Murdered Indigenous Women, Girls and 2SLGBTQI+ people; Indian Residential Schools; Indigenous child welfare).

Recommendations:

3.3a: Further to the recommendation provided in the Training and Education Taskforce Report on the Cadet Training Program, an independent end-to-end review of the CTP is needed to ensure the meaningful integration of content relevant to FNIM experiences and histories, ensuring that all Depot graduates have a shared, baseline understanding and appreciation of Indigenous histories and lived experiences, and the points at which these intersect with past, current, and future responsibilities of community safety officers in Canada.

3.3b: Further to the recommendation provided in the Training and Education Taskforce Report on the Cadet Training Program, a facilitator recruitment strategy must be developed for Depot to increase facilitator diversity and reach equitable representation of Black, Indigenous, and racialized people within the CTP facilitator complement.

3.3c: In the immediate term (i.e., within one year), appoint an Elder- or Knowledge-Keeper In-Residence to Depot whose presence is intended to provide support for FNIM cadets and facilitators, as well as cultural guidance for RCMP leadership. In the medium-term (i.e., within five years), establish culturally-specific supports for FNIM RMs so that supports provided at Depot are sustained for officers once in the field.

Theme 4: Indigenous Recruitment as a Named Strategic Priority for the RCMP

Indigenous recruitment must be explicitly named as a strategic priority with an increase in national leadership, including the creation of an evidence-based national standards/framework, as well as a review of the current centralized model for recruitment.

The Taskforce was advised that 2023 provisional Regular Member application targets have been shared with COs and are currently under discussion with divisional career development and resource advisors. National application targets total 5,120 overall, which includes: 1,270 (25%) women, 993 (19%) racialized persons, and 224 (4%) Indigenous peoples. Recruitment targets are rooted in concerns arising from an estimated application attrition rate of 75% and seek to ensure that each year the RCMP will recruit 40 troops of 32 cadets each (i.e., 1,280 cadets/annually). Each division will receive targets that reflect labour market availability by equity group for each divisional region.Footnote 15 Current targets are insufficiently ambitious to reach equitable FNIM RM representation.

Finding 4.1: Indigenous representation within the RCMP RM population is at a precipice. While recruitment of RMs is in a general state of crisis, the RCMP’s stated goals of modernization and reconciliation cannot be reached without the development of a clear, strategic plan focused on Indigenous recruitment. This initiative must be data-driven and evidenced-based. It must come from the centre and the top and be developed in clear and ongoing collaboration with the divisions and with FNIM communities from coast to coast to coast.   

As mentioned above, the RCMP would benefit from the creation of national standards and a national framework for Indigenous RM recruitment. While divisions should be responsible for implementing their own approaches based on the needs and realities of their respective communities, National Headquarters must set standards and provide adequate resources. The critical importance of Indigenous recruitment must be highlighted to all divisional COs, and ambitious yet achievable minimum targets for representation must be set, with responsibility for these targets resting jointly with National Headquarters and divisional COs. These targets should be more ambitious than the current 4% target, to make up for retirements from a generation that had the advantage of Indigenous-only troops, and recent and significant declines in the number of Indigenous cadets that the RCMP has recruited.

The Taskforce’s attention was also drawn to the importance KPIs to ensure measurable progress toward organizational goals. KPIs are increasingly used within the private and public sectors; for the Government of Canada, they are a defined set of quantifiable measures that are used to uphold departmental accountability.Footnote 16 In the context of recruitment, KPIs will establish shared responsibility among all those involved in the recruitment process. It is essential that the establishment of KPIs related to recruitment avoid downloading responsibility onto the shoulders of field recruiters, especially those who are FNIM, as this could result in unintended adverse burdens for those whom these initiatives are intended to support.

Recommendations:

4.1a: The RCMP must communicate its commitment to Indigenous representation as a priority clearly, publicly, and repeatedly through both internal and external channels. Headquarters and divisions must be on the same page about this objective and speak with one voice about the importance of this initiative to the success of the organization.

4.1b: The RCMP requires a national Indigenous recruitment strategy that sets ambitious yet achievable, minimum divisional and national targets for FNIM representation. The strategy must be developed by Headquarters in proximate, ongoing collaboration with divisions and FNIM communities. Responsibility for reaching divisional targets ought to rest with COs, who must report annually on related work and progress. National and divisional progress in relation to this strategy, including toward reaching targets, should be publicly communicated, with milestones celebrated in a way that showcases Indigenous excellence within the RCMP.

4.1c: Recruiters require KPIs and ambitious yet realistic FNIM recruitment targets, so that they can benchmark their work. KPIs and targets must account for the range of factors that can impact a recruiter’s success in meeting goals, and the fact of not meeting targets cannot be considered the responsibility of a recruiter alone.

Finding 4.2: The current centralized recruitment model does not support the objective of boosting recruitment, especially Indigenous recruitment.

The RCMP’s current centralized recruitment model presents challenges for adapting to the diverse realities of Indigenous peoples and communities Canada-wide. Ongoing dialogue between those who assess applications, local RCMP detachments, and/or proactive recruiters appears limited. This precludes detachments and proactive recruiters from knowing where applicants are in the application review process, advocating for them, and providing context and reasons to applicant who are denied. While some centralization in the recruitment process is needed, the Taskforce consistently heard about the importance of a “personal touch” recruitment approach, that is more human and less bureaucratic, especially for FNIM applicants. Allowing the divisions to play a lead role in recruiting also complements an increased willingness in the RCMP to allow cadets to return to their home divisions and, when possible, preferred communities.  

The absence of a feedback loop between National Recruiting and the divisions and field recruiters hinders recruitment efforts to support Indigenous applicants to the RCMP. This in turn presents a major disincentive to the divisions to invest in Indigenous recruitment since, if applicants are “lost” (i.e., attrition during the application process) or disqualified during the application system, there appears to be no way to retain them for future reapplications. The fact that reasons for disqualifications are not provided precludes the ability to build capacity for subsequent successful reapplication.

Administrative solutions exist. For example, upon applying, self-identified FNIM applicants should be asked if they would be willing to be contacted by a recruiter from their home community or province or territory to support them throughout the process. This would help prevent applicants from feeling “lost in the system” and encourage more consistent communication between applicants and recruiters, fostering trust and relationship-building and lending itself to the overall goal of enhancing FNIM RM recruitment. It would also help alert potential recruits to the option of returning to their home divisions upon graduating.

Recommendation:

4.2: A collaborative recruitment model between National Headquarters and the divisions, which requires on-going communication and two-way visibility into recruitment efforts and the progression of applications, is needed. While National Headquarters ought to retain core responsibility for the development, implementation, and success of a new Indigenous RM recruitment strategy, divisions need autonomy and flexibility to design programs and solutions adaptable to local realities, especially those pertaining to Indigenous communities. Even with ongoing national oversight, more responsibility and visibility on recruitment must be devolved to the COs, which in turn ought to incentivize recruitment efforts for the organization as a whole, notably those tied to the goal of increased representation of FNIM cadets and RMs.

Conclusion and Next Steps

The RCMP’s stated objectives of reform and modernization, which include a commitment to building a more representative and inclusive workforce, are dependent on its ability to enhance Indigenous representation. The same is true regarding the RCMP’s current mandate delivered by the previous Minster of Public Safety, that is, “RCMP Commissioner will be expected to accelerate reform within the RCMP.”Footnote 17

This report proposes a series of concrete recommendations to further the RCMP’s commitments to transformative measures that will modernize the force and take proactive, effective steps toward reconciliation. The Taskforce has shared the present report with the MAB as existed in June 2023 and its members unanimously approve its findings, recommendations, and final submission to the RCMP.

The Taskforce is hopeful that RCMP Senior Management will take seriously our findings and recommendations. We ask that it provide, within three months, a formal written Management Response and Action Plan to our recommendations. This plan should set out the RCMP’s response to each recommendation herein, that is, whether the RCMP accepts, partially accepts, or does not accept each recommendation, as well as a rationale for its decision and, for those measures that are accepted in whole or in part, an implementation plan that includes timelines and key milestones toward progress and achievement.

Thereafter, the Taskforce requests regular updates to the MAB every six months, until all actions are deemed complete, on the implementation of accepted or partially accepted recommendations.

The MAB looks forward to continuing to provide its advice as the RCMP moves forward with its crucial modernization agenda, which will benefit its members and the communities it serves, thus contributing to the deepening of public trust and confidence in the organization overall.

Appendix A - List of Acronyms

AATP – Assisted Application Training Program

ACDP – Aboriginal Cadet Development Program

CHRO – Chief Human Resources Officer

CO – Commanding Officer

CTP – Cadet Training Program

EDI – Equity Diversity and Inclusion

EE – Employment Equity

FNIM – First Nations, Inuit, and Métis

GBA Plus – Gender-Based Analysis Plus

HR – Human Resources

IPTP – Indigenous Pre-Cadet Training Program

IRU – Indigenous Recruitment Unit

KPI – Key Performance Indicator

MAB – Management Advisory Board

MMIWG – Missing and Murdered Indigenous Women and Girls

RCMP – Royal Canadian Mounted Police

REC – Recruitment Evaluation Centre

RPAT – RCMP Police Aptitude Test

RICCA – RCMP-Indigenous Collaboration Co-Development and Accountability

RIRS – RCMP Indigenous Relations Services

RM – Regular Member

2SLGBTQI+ – Two-spirit, Lesbian, Gay, Bisexual, Transgender, Queer, Questioning, Intersex, plus

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