2023–2024 Annual Report on the Private Security and Investigative Services Branch

1. Message from the Solicitor General

As we reflect on another year of progress and dedication, I am pleased to see the private security and investigative services industry’s continued support of our government’s vision and commitment to build a stronger, safer Ontario.

The industry continues to grow, increasing by 16% annually over the past three years. With demand for security services in many business sectors expanding, I’m glad to see this industry helping build a better economic future for the people of Ontario.

This year, my ministry made significant progress in modernizing services and streamlining processes. We were the first province in Canada to transition to digital licences, and made improvements to the service platform used to register training entities and test candidates.

I’m especially proud of the work to launch new public-facing licensing and registry portals. These efforts have made these portals convenient and user-friendly, enhanced application process and created easy access to critical information. We also made notable improvements to the service platform used to register training entities and test candidates.

Looking ahead, our government is excited to continue our journey towards a safer Ontario. Together with industry partners, we will strive to keep improving service delivery and embrace innovation. By addressing challenges head on and seizing opportunities, we will continue to keep Ontario’s communities safe and secure.

Signature
Signed in original

Hon. Michael Kerzner
Solicitor General of Ontario

2. Message from the Registrar

I am pleased to present the Ministry of the Solicitor General’s Private Security and Investigative Services Branch’s 2023-24 Annual Report. This report:

• provides the public and industry partners with an overview of Ontario’s dynamic private security and investigative services industry
• celebrates key achievements
• outlines efforts to tackle industry challenges and modernize the regulatory landscape

Continuing with its efforts to increase efficiency and transparency, the ministry launched two new digital portals this year. The licensing portal was introduced to simplify the submission and tracking of licence applications and to reduce processing times and administrative burden. The new public registry portal offers a transparent and easily accessible database of licensees. Integrated QR codes in the new digital licences provide both the public and employers with the ability to verify an individual’s licence status against the public registry.

The branch remains committed to addressing the compliance challenges presented by a rapidly growing industry. By working closely with key partners, including other government agencies, municipal by-law enforcement, and local police, the branch continued to educate licensees and stakeholders, promoting a culture of awareness and adherence to regulatory standards. The branch also engaged with the industry to identify opportunities to modernize training and testing requirements, with the goal of addressing compliance challenges more effectively.

I extend my gratitude to all partners for their steadfast cooperation and to security guards and private investigators for their unwavering commitment to protecting the people of Ontario.

As we look to the future, we remain dedicated to being an innovative and responsive regulator of the private security and investigative services industry in Ontario.

Signature
Signed in original

Catherine McLinden
Director/Registrar
Private Security and Investigative Services Branch

3. Private Security and Investigative Services Branch Overview

The Ministry of the Solicitor General’s Private Security and Investigative Services Branch (PSISB) regulates the private security and investigative services industry that consists of security guards and private investigators, agencies that sell or retain their services, and businesses that directly employ them. It is the regulator of Canada’s largest private security and investigative services industry.

PSISB is responsible for administering and enforcing the Private Security and Investigative Services Act, 2005 (PSISA), which sets out the legal and regulatory framework for the private security and investigative services industry in Ontario. Consistent with the ministry’s public safety mandate, PSISB provides oversight of the industry through the following:

• training and testing
• licensing
• a formal public complaints process
• compliance inspections for licensed agencies and individuals
• enforcement of the PSISA

Regulation of the industry is overseen by an appointed registrar, and supported by staff that fulfill licensing, inspection, investigation, program development, and other operational functions.

4. Regulating an evolving industry

Since the enactment of the PSISA nearly 20 years ago, PSISB has been committed to ensuring security guards, private investigators, licensed agencies, and registered employers operate in a professional, safe, and lawful manner throughout Ontario.

As such, the ministry assesses the overall effectiveness of the legislative and regulatory framework, as well as its program policies, on an ongoing basis to identify gaps and opportunities. In August 2023, the ministry conducted a comprehensive survey of key industry stakeholders, including licensees and training providers, to gather feedback on their experiences with the training and testing regulatory requirements under the PSISA. This was followed by targeted discussion sessions with stakeholders and other jurisdictions in March 2024, to further explore the survey results and discuss outstanding issues.

The ministry will use the outcomes of these engagements to inform next steps as it also examines other opportunities to enhance the legislative and regulatory framework. The sector will continue to be engaged to make sure industry challenges and perspectives are considered, while upholding the ministry’s public safety mandate.

5. The industry at a glance

As of April 2024, the regulated industry was made up of:

• security guards: 96%
• private investigators: 1.5%
• dual (security guards and private investigators): 1.4%
• licensed agencies and registered employers: 1.1%

The private security and investigative services industry has continued to experience substantial and rapid growth. Over a three-year period, the industry has grown by an average of 16% annually, a 3% increase from the previous three-year average of 13%.

6. The industry workforce

Licensing requirements

Individuals seeking a licence as a security guard or private investigator must complete mandatory training as per the ministry’s legislative and regulatory requirements. Once training has been completed, individuals are required to take a final examination and pass.

Employee demographics

According to data from the Ministry of Labour, Immigration, Training and Skills Development^{footnote 1[1]}:

• 75% of individuals employed as security guards and in related security service occupations are men
• 50% of those working in the industry are between the ages of 15 and 34 years old
• 43% are between 35 and 64 years old
• 8% are older than 65

Income prospects

According to available labour market information, the median income for security guards, private investigators, and related security service occupations in Ontario is $17.56 per hour (an increase of $0.36 from 2022-23) compared to $18.64 across Canada.^{footnote 1[1]}

The hourly wage for those in the profession across Ontario and Canada, as of the third quarter of 2023, was as follows^{footnote 2[2]}:

Hourly wages across Canada

Key industry trends

Although 54% of Ontario jobs are in the Toronto region, the majority of job postings are concentrated in southwestern and northern Ontario.

Regions with the highest employment:^{footnote 3[3]}.

1. Toronto: 54%
2. Ottawa: 14%
3. Hamilton-Niagara Peninsula: 7%

Employment outlook

According to labour market information^{footnote 4[4]}, the employment outlook for security guards, private investigators and related security service occupations in Ontario for 2024-25 will be “moderate”, compared to the “good” outlook observed last year. This is due to the following factors:

• employment growth will lead to a moderate number of new positions
• opportunities will become available due to retirements
• there is a moderate number of unemployed workers with recent experience in this occupation

The employment outlook ratings for regions across Ontario for 2024-2025 are as follows^{footnote 5[5]}:

Across Canada, Yukon has a very good employment outlook; British Columbia, Saskatchewan, Nova Scotia, and Quebec have a good employment outlook; Alberta, Manitoba, Newfoundland and Labrador, Nunavut, New Brunswick, and Prince Edward Island have a moderate outlook; and Northwest Territories has a limited outlook.

7. Program highlights

A. Training and testing

Training and testing are essential components of the private security and investigative services industry. Both training and testing are designed to equip individuals entering the industry with the necessary knowledge and skills to carry out their duties in a professional, safe, and lawful manner.

Training overview

Security guard and private investigator candidates must successfully complete a training program that complies with the relevant ministry syllabus. Security guard applicants are also required to be trained in emergency first aid upon initial licensure.

Training can be provided by the following institutions:

• public universities
• community colleges
• career colleges
• agencies licensed to provide security guard or private investigator services
• registered employers that employ in-house security guards

To ensure training entities meet ministry standards, the ministry has continued to perform targeted inspections of training programs. This targeted compliance effort has contributed to a 10% annual decrease in the number of training entities, enhancing overall training program quality.

In 2023-24, there were a total of 297 training entities across the province.

Upgrades to the training registration venue

The Training Registration Venue (TRV) is used by the ministry’s third-party testing vendor, Serco Canada Incorporated (Serco) to house data related to training entities and test candidates. This registry allows training entities to enter test candidates’ information and confirm when they have completed all training requirements to allow for testing and licensure.

In 2023, the TRV was updated to enhance and streamline the user experience and improve processes. Changes include adding:

• the ability for training entities to declare whether they are a training-only entity while enrolling
• a date range for when individuals begin and finish their training, giving the ministry insight into the quality of training provided by the training entities
• the ability for training entities to add their licence/registration expiry dates to their profile and receive reminders to renew their licence to maintain access to the TRV

Testing overview

Upon completing the mandatory training, candidates must pass an online or in-person ministry test to be eligible to apply for a licence.

Key facts and figures

In 2023-24, a total of 75,361 tests were conducted online and in-person for security guards and private investigators. Of the total, 87% of test takers passed in 2023-24.

There was an average annual growth rate of 32% in the number of tests conducted over the past three years.

Compared to 2022-23, the number of security guard tests conducted increased by 27% and the number of private investigator tests conducted increased by 5% in 2023-24.

Out of the 75,361 tests conducted, 87% of test takers passed, representing a 3% increase in the passing rate for security guard and private investigator tests compared to 2022-2023.

The overall trend in the number of tests conducted in 2023-24 points to continued demand and growth in the industry.

In 2023-24, 83% of tests were conducted online, an increase of 45% from last year. In comparison, in-person testing experienced a 21% decrease.

The top three testing centres are in Toronto, Ottawa and the Hamilton-Niagara Peninsula Region.

Testing integrity improvements

Effective September 2023, all online test candidates were required to download a new safe exam browser prior to their test date.

The software temporarily turns any computer into a secure workstation, and controls access to resources like system functions, other websites, and applications.

By being able to detect and prevent cheating, the safe exam browser has significantly enhanced the integrity of the examination process.

B. Licensing and registration

Since 2014, the ministry has collaborated with ServiceOntario to process licence applications and provide customer service for the private security and investigative services industry. ServiceOntario processes applications, renewals, and restorations for security guard or private investigator licences, as well as registrations for businesses that employ in-house security personnel.

Individual security guard and private investigator licences are valid for two years, while security guard and private investigator agency licences are valid for three years, after which they may be renewed up to 90 days before the licence expires.

Key facts and figures

A total of 120 registrations from registered employers (including new, renewed, and restored) were received in 2023-24, of which 75 were approved.

A total of 105,676 individual and dual security guard, private investigator and agency licence applications were received in 2023-24, representing an increase of approximately 23% compared to 2022-2023. In the same period, PSISB issued a total of 99,739 individual and agency licences, an increase of approximately 17% compared to 2022-23.

In 2023-2024, there were a total of 215 security guard agency licences issued, reflecting a 26% decrease compared to last year. The number of private investigator agency licences issued decreased by 54% compared to last year, with 62 licences being issued. The number of dual agency licences issued was 44, a decrease of 62% from last year. The decreases observed in the number of agency licences issued are attributable to the three-year term that licenses are valid for, which causes fluctuations in the number of renewals.

Licensing and registration innovations

In 2023-24, PSISB made significant advancements to modernize the licensing and registration processes, and introduced a more efficient, accessible and transparent system for all applicants. These enhancements reflect the ministry’s commitment to leveraging technology and improving service delivery, in alignment with the province’s broader goal of making government services more digitally accessible, responsive and flexible.

Digital licences

In September 2023, Ontario became the first province in Canada to issue all licence cards exclusively in a digital format.

When an application is processed and approved, a digital licence is automatically generated that can be downloaded and printed. Licensees are required to always carry either a digital version or a printed copy of the licence and present it upon request. The digital licence includes a QR code that can be scanned to verify its validity.

The volume of licence applications has been increasing by an average of 16% per year for the past three years and the transition to digital licences mitigates the operational burden caused by the issuance of physical licences while enhancing the convenience, reliability and digital accessibility of a government service.

The ministry continues to gain insights into this new digital licence model and will continue to refine and explore measures to enhance their security as needed.

Licensing portal

In February 2024, PSISB launched a new licensing portal, which allows qualified candidates to:

• apply for or renew a security guard, private investigator or agency licence
• check the status of an application
• update their contact information through a self-serve online channel

Applying for or renewing a licence online is now faster, more efficient and user-friendly, which can be attributed to a mobile-friendly design and additional help text available to the applicant throughout the application process.

Public registry

In February 2024, PSISB’s new public registry portal went live. Previously, anyone using the registry would be limited to seeing only active licences and registrations. If a licensee or registrant was not actively licensed, the search results would show no record. A search on the new registry now yields additional information, identifying whether a license or registration is active, expired, suspended or revoked.

Additionally, employers and members of the public could previously only search for a licensee if they had the licence or registration number or knew the exact legal name of an agency. The new registry allows searches by:

• licence number or exact spelling of name for individuals
• licence number or legal name or business name for agencies
• registration number or legal name or business name for registered employers

The changes to the public registry will make it more convenient for members of the public to look up the status of a licensee, thereby improving transparency.

Licence application record check requirement

The ministry previously conducted the Criminal Record and Judicial Matters Check (CRJMC) required for licensure on behalf of all applicants using the Canadian Police Information Centre (CPIC). Due to the federal government removing the ministry’s access to CPIC in February 2024, all applicants applying for or renewing an individual or agency licence are now required to obtain their own CRJMC and submit it. Out-of-province police record checks that are equivalent to a CRJMC may be accepted from applicants who reside outside of Ontario.

Licence application processing service standards

Despite an increase in both testing and high pass rates, which resulted in a higher volume of licence application submissions, application processing has exceeded its targets for individuals and agencies.

C. Public complaints

Anyone may submit a complaint against a security guard, private investigator or licensed security guard, or private investigator agency if they have reason to believe that they failed to comply with the PSISA or its regulations. Violations of the PSISA can result in the revocation and/or suspension of a licence, laying of charges, and/or the impositions of remedial conditions put on a licence.

PSISB reviews all complaints and exercises discretion to determine the appropriate course of action. Depending on the nature of the complaint, potential actions may include:

• initiating an investigation into possible violations of the PSISA
• referring the matter to the relevant police jurisdiction or to another office or ministry
• conducting an inspection if the complaint involves an agency
• referral to facilitation if the complaint is regarding a Code of Conduct violation
• dismissal of a Code of Conduct complaint that is deemed to be frivolous, vexatious, or not made in good faith

This structured approach ensures that all complaints are handled efficiently and appropriately.

In late 2023-24, PSISB completed a thorough review of its complaints process to identify opportunities to improve how the ministry communicates with individuals involved in the process. Improvements included enhancing communication materials to complainants by implementing response timelines for various stages of the process and providing contact information for support. Additionally, the public complaints webpage was updated to provide the public with more comprehensive information about the complaints process, making all stages of the process, along with potential actions and outcomes, more transparent.

Key facts and figures

PSISB received 227 public complaints in 2023-24, representing a 22% increase compared to the previous fiscal year.

The outcomes of the 72 complaints related to Code of Conduct violations and the nine complaints related to PSISA and Code of Conduct violations included 26 referrals to facilitations, one licence suspension and two complaints being withdrawn by the complainants.

Most Code of Conduct violations involved allegations around the use of profane, abusive or insulting language, or actions that are otherwise uncivil to a member of the public.

Despite an overall increase in the total number of complaints for 2023-2024, there was a notable decline in those specifically related to PSISA violations and combined PSISA and Code of Conduct breaches, while the number of complaints deemed to be out of scope more than doubled.

D. Compliance and enforcement

PSISB takes a proactive approach to compliance by clearly communicating expectations and providing compliance assistance, guidance, education and other tools through a range of accessible channels including:

• website updates
• memos to industry
• regular engagement of the industry and industry associations
• discussions during site checks and inspections to facilitate compliance

PSISB conducts compliance checks of sites where security guards are employed, as well as inspections and investigations of licensed security guard and private investigator agencies and individual licensees. The Registrar or Deputy Registrar can place conditions on, suspend or revoke a licence due to a breach of the PSISA or its regulations.

Educational outreach

PSISB’s team of compliance inspectors work directly with the industry through on-site visits to engage and educate licensees. As part of PSISB’s education efforts this year, the compliance inspections team conducted four presentations on the PSISA and PSISB for businesses, law enforcement and municipalities.

These informational sessions enhance understanding of the PSISA and its regulations by providing clear guidance on some of the industry’s top compliance issues, including uniform and proof of licensure requirements. These sessions help audiences better navigate regulatory standards and adopt best practices in security management.

Compliance activities in the entertainment sector

In 2023-24, PSISB’s compliance inspection team conducted 10 joint inspections with the support of the Alcohol and Gaming Commission of Ontario and various municipal by-law enforcement partners and police services to target non-compliance in entertainment districts. Joint inspections have allowed PSISB to continue to educate licensees and entertainment establishment owners and provide education, while also improving PSISB’s visibility as a regulator across the province through increased awareness of and compliance with the requirements of the PSISA.

Key facts and figures

Industry compliance rate and compliance activities conducted

In 2023-24, the industry’s rate of compliance among licensed agencies was 54%, a 16% decrease when compared to 2022-23. A total of 1,080 compliance checks were conducted, with all compliance activities including inspections decreasing by 31% when compared to 2022-2023.

The decline in the rate of compliance among licensed agencies can be attributed to the targeted compliance campaign initiated last year, which intensified efforts on training program reviews and found a significant number of reviewed training programs to be non-compliant with ministry requirements. The resources dedicated to these efforts have impacted PSISB’s ability to conduct other core inspection activities, leading to the overall decline in total compliance activities this year.

The PSISA can be enforced through the laying of charges or Provincial Offence Notices (PON) under the Provincial Offences Act to licensees who are found to be in violation of the PSISA and its regulations. This year, there was a 41% increase in PONs laid.

E. Suspensions and revocations

The Registrar or Deputy Registrar have the authority to suspend or revoke a licence for an individual or agency if there is a violation of the PSISA or its regulations.

When a licence is suspended or the Registrar has the intention of revocation, the individual or agency is able to present their case to the Registrar or Deputy Registrar in a formal hearing. This hearing allows the individual or agency to review the evidence supporting the licensing decision made by the Registrar or Deputy Registrar and present their own evidence to demonstrate their suitability for holding a licence.

In 2023-24, there were eight suspensions for offences listed in Ontario Regulation 37/08: Eligibility to Hold a Licence – Clean Criminal Record. Additionally, there were five individual licence revocations, three of which involved charges for offences listed under the same regulation, and one agency licence revocation.