The National Security and Intelligence Review Agency will continue initiatives to raise awareness among staff on how to incorporate GBA+ analytical processes into our work and decision-making, including initiatives led by the Champion for Employment Equity, Diversity and Inclusion.
In the year ahead, NSIRA will develop an employment equity strategy to increase representation and to ensure it reflects the diversity of the Canadian public. This will incorporate baseline data derived from employee self-identification.
NSIRA will analyze trends in complaints to identify potential biases and discrimination and to collect demographic data about complainants to assess whether certain population groups are more frequently involved in grievances with the security agencies.
NSIRA will continue to engage with diverse stakeholder groups to better understand concerns regarding the differential impacts of national security and intelligence activities.
NSIRA will promote training tools for staff to ensure that considerations related to GBA+ are incorporated into our work.
Highlights of GBA+ Results Reporting Capacity by Program
National security and intelligence reviews and complaints investigations
For each program in the department’s Program Inventory, answer the following questions:
Does this program have impacts that support the pillars and goals of the Gender Results Framework? Yes. Access to justice.
Does this program collect sufficient data to enable it to monitor and/or report program impacts by gender and diversity (GBA+)? No. NSIRA will analyze trends in complaints to identify potential biases and discrimination and to collect demographic data about complainants to assess whether certain population groups are more frequently involved in grievances with the security agencies.
The Government of Canada defines the term “gender-based analysis plus” (GBA+) as an analytical process used to help identify the potential impacts of policies, programs and services on diverse groups of women, men and non-binary people. The “plus” in GBA+ acknowledges that the gender-based analysis goes beyond biological (sex) and socio-cultural (gender) differences. All individuals have multiple identity factors that intersect to make them who they are, for example, race, national and ethnic origin, Indigenous origin or identity, age, sexual orientation, socio-economic condition, place of residence and disability.
The Government of Canada is committed to supporting the full implementation of GBA+ across federal departments so that differential impacts on diverse groups of people are considered when policies, programs and legislation are developed.
More information on GBA+ is available on the GBA+ Portal in GCpedia.
Institutional GBA+ Capacity
The National Security and Intelligence Review Agency’s (NSIRA’s) mandate includes the review of any activity carried out by a department or agency that relates to national security or intelligence, including issues related to bias and discrimination. Its mandate requires NSIRA to report publicly, in an unclassified manner, on its findings and recommendations.
NSIRA ensures that GBA+ considerations continue to be made, and that the entire agency is accountable for integrating GBA+ into its decision-making processes.
Highlights of GBA+ Results by Program
Investigation of complaints against the Canadian Security Intelligence Service
NSIRA systematically follows a well-documented process in all cases to ensure equal access to justice for all complainants.
NSIRA has begun to analyze trends in complaints to identify potential biases and discrimination and to collect demographic data about complainants to assess whether certain population groups are more frequently involved in grievances with the security agencies.
NSIRA’s staffing practices consider gender-based analysis plus objectives. NSIRA hired a diverse group of employees with a mix of experience and skills to fulfil its broad mandate. For the 2019–20 period, the number of women hired was more than twice that of men; nearly 20% of the total hires were members of visible minority groups. This breadth of experience and competencies provides the agency with high-quality, diverse advice and support.
NSIRA engages with a broad and diverse range of stakeholders and community groups to inform its review priorities, demystify the complaints investigation process, and help with recruiting an elite workforce.
It is an honour and a privilege to be named the inaugural Chair of the National Security and Intelligence Review Agency (NSIRA).
NSIRA is comprised of seven appointed members, working with a Secretariat with expertise in review, law, national security and policy. NSIRA has a mandate to review any Government of Canada national security and intelligence activities to ensure that they are lawful, reasonable and necessary. NSIRA also investigates complaints from members of the public regarding national security agencies and activities. Its recent creation fills a longstanding gap in Canada’s national security architecture and significantly strengthens our framework for national security accountability.
NSIRA will report on its work through a variety of mechanisms. It is required to produce an unclassified annual report summarizing the full range of its activities, findings, and recommendations. This annual report is to be submitted to the Prime Minister and tabled in both Houses of Parliament. NSIRA is also required to submit annual reports to the Minister of Public Safety and the Minister of National Defence regarding the activities of the Canadian Security Intelligence Service (CSIS) and the Communications Security Establishment (CSE), respectively, as well as an additional annual report to the Minister of Public Safety regarding disclosures under the Security of Canada Information Disclosure Act (SCIDA). As the Chair of NSIRA, I am required on an annual basis to brief the Minister of Public Safety on CSIS’ exercise of its powers, duties and functions, and to do the same for the Minister of National Defence with respect to CSE.
NSIRA will also work with the National Security and Intelligence Committee of Parliamentarians (NSICOP) and the Privacy Commissioner on issues of common interest, to maximize both the effectiveness and the efficiency of national security review activities.
I am grateful for the support that I have received thus far in my new role, and I look forward to continuing to work with my colleagues in the year ahead in fulfilling NSIRA’s important new mandate.
Murray Rankin, Q.C.
Chair, National Security and Intelligence Review Agency
Message from the Executive Director
It is my pleasure to submit the first Departmental Plan for the National Security and Intelligence Review Agency, for 2020-21.
During our first full year of operation, we will focus on transitioning to a much broader mandate, which now includes review of national security and intelligence activities across the Government of Canada, as well as the investigation of complaints related to CSIS, CSE, and national security complaints related to the Royal Canadian Mounted Police (RCMP).
We will focus on building a strong network of partnerships to help us define our research priorities and deliver on our mandate in an increasingly complex national security environment. In doing so, we also want to be more transparent with Canadians. A longer term vision is being developed and will be articulated in greater detail in our forthcoming annual report. Ensuring a healthy work environment so that all employees feel valued and included is key to attaining this vision.
I hope that you find the information below useful in detailing how NSIRA is resourced and intends to fulfill its mandate in the year ahead.
John Davies Executive Director
Plans at a glance
Established in July 2019, NSIRA represents a significant enhancement for national security accountability in Canada. NSIRA has a statutory mandate to review the activities of CSIS and CSE, as well as the national security and intelligence activities of all other federal departments and agencies. To fulfill its review mandate, NSIRA has unfettered access to classified information other than Cabinet confidences. In addition, NSIRA inherited the complaints investigation functions of the Security Intelligence Review Committee (SIRC), which was responsible for hearing complaints from members of the public regarding the actions of CSIS, as well as those related to the revocation or denial of security clearances. Going forward, it will also hear complaints regarding the CSE, as well as national security-related complaints regarding the RCMP.
In its first full year of operations, NSIRA will focus on ensuring it transitions effectively to a much larger organization with a much broader mandate. This includes: securing new accommodations; effective staffing and knowledge development; establishing strong working relations with review partners and other Canadian review bodies; and, delivering on mandatory reporting requirements as noted in the National Security and Intelligence Review Agency Act. Going forward, as NSIRA’s institutional capacity adapts, reviews will grow in complexity and sophistication, with an increasing focus on inter-agency activities. A key planning tool to be developed is a three-year research plan. This plan will guide resource allocation and staffing decisions over the medium term.
NSIRA is committed to: openness and transparency to connect better with Canadians; methodological excellence to ensure the quality of our work; and, forward thinking and innovation, including how we consider the impacts of new technology and an ever-changing national security environment. NSIRA understands the importance of organizational health and wellness as fundamental to our success. As we act on these values, NSIRA expects to be well positioned to deliver on our mandate.
For more information on the NSIRA’s plans, priorities and planned results, see the “Core responsibilities: planned results and resources, and key risks” section of this report.
Core responsibilities: planned results and resources, and key risks
Assist the National Security and Intelligence Review Agency
Description
The Secretariat will assist NSIRA members in fulfilling the agency’s mandate. The Secretariat will conduct a range of activities to support the agency, including accessing relevant information and providing strategic and expert advice in the conduct of reviews, quasi-judicial investigation of complaints and the development of reports. It will also provide administrative support in arranging for briefings, hearings and consultations with stakeholders and international counterparts, and support to ensure compliance with security requirements.
Planning highlights
NSIRA will directly contribute to enhancing scrutiny of, and accountability for, national security and intelligence activities undertaken by Government of Canada institutions. This will increase public confidence that these activities are thoroughly reviewed and assessed as to whether they are lawful, reasonable and necessary.
Work in the year ahead will focus on adapting to NSIRA’s broad new mandate. This will involve building knowledge of the national security and intelligence activities of departments and agencies across the Government of Canada, in support of both the review and complaints investigations functions. Staffing new positions with high-quality candidates who can bring specialized knowledge and expertise to the organization will be a key priority.
NSIRA will carry out a number of activities in 2020-21 in support of its new mandate, including:
Supporting the development of reports, including on specific annual mandatory reviews and the NSIRA’s annual public report, which will be submitted to the Prime Minister;
Developing a medium-term research plan that reflects the broad scope of NSIRA’s new review mandate and the modern realities of inter-agency cooperation in the field of national security;
Working actively with its counterparts at the NSICOP, the Office of the Privacy Commissioner, and the Office of the Intelligence Commissioner to foster productive collaboration within the Canadian review community;
Undertaking the investigation of complaints, updating procedures and establishing protocols in relation to the newly expanded aspects of this function;
Exploring ways to continue to build relationships with like-mandated international review bodies to participate in the exchange of best practices; and,
Enhancing NSIRA’s engagement with Canadians on matters of national security and intelligence in order to build public trust.
Gender-based analysis plus
NSIRA is committed to developing a diverse and inclusive workforce comprised of individuals with a broad range of backgrounds and perspectives. The NSIRA Secretariat recently issued its first employee survey to establish baselines on employee demographics as well as on matters related to workplace wellness. In the year ahead, a number of steps will be taken to follow up on this initiative and to foster an inclusive and positive work environment. Greater diversity in the workforce is an important staffing objective for the organization.
NSIRA is also mindful of the potential impact that national security and intelligence activities can have on diverse communities in Canada. This and related issues can arise in the context of reviews as well as complaints, and NSIRA has the authority to scrutinize national security and intelligence activities for signs of bias and discrimination.
In the year ahead, NSIRA will engage Canadians to discuss research planning and priorities, as well as findings and recommendations of interest, and to better understand concerns regarding differential impacts of national security and intelligence activities. This engagement will include a diverse range of stakeholder groups.
NSIRA is also aware of concerns about bias and unfair targeting in the context of new and emerging technologies. In the year ahead, we will work to better understand this issue and the implications that it entails for Canadians. We are also exploring training tools for NSIRA staff to ensure that considerations related to Gender-based analysis plus are incorporated into our review methodology.
Key risks
The ability to hire a sufficient number of qualified personnel within relevant timelines remains a short- and medium-term risk for NSIRA, particularly given the specialized knowledge and skillsets required for many positions. This is further compounded by the requirement for candidates to obtain a Top Secret security clearance, which can incur significant delays.
The ability to expand into additional secure accommodations in a timely manner is also a significant risk for NSIRA, given that its mandate requires it to operate within a high security zone. A lack of secure accommodations would negatively impact the ability of NSIRA to hire large numbers of staff, impeding its ability to deliver on its mandate.
The ability to ensure that NSIRA’s work is conducted in accordance with the highest security standards remains top-of-mind for the organization. In the year ahead, we will work to ensure that employees are aware of and abide by all relevant security protocols, while ensuring that our accommodations and information systems are fit-for-purpose. In this regard, we will work with the national security community to ensure that they have confidence in our approach.
The ability of NSIRA to access the information it needs to do its work and speak to the relevant internal stakeholders to understand policies, operations and ongoing issues is closely tied to the reviewed departments’ capacity to respond to the demands of NSIRA. The resource constraints of the reviewed departments could delay NSIRA’s ability to deliver on its mandate in a timely way.
Mitigation measures for the risks outlined above will be developed and factored into NSIRA’s work throughout the year ahead.
Planned results for assisting the National Security and Intelligence Review Agency
NSIRA’s Departmental Results Framework, with accompanying results and indicators, is under development. Additional information on key performance measures will be included in the 2021- 22 Departmental Plan.
Financial, human resources and performance information for NSIRA’s program inventory is available in the GC InfoBase.
Planned budgetary financial resources for assisting the National Security and Intelligence Review Agency
2020–21 budgetary spending (as indicated in Main Estimates)
2020–21 planned spending
2021–22 planned spending
2022–23 planned spending
11,309,411
11,309,411
12,107,192
13,842,015
Financial, human resources and performance information for NSIRA’s program inventory is available in the GC InfoBase.
Planned human resources for assisting the National Security and Intelligence Review Agency
2020–21 planned full-time equivalents
2021–22 planned full-time equivalents
2022–23 planned full-time equivalents
48
75
75
Financial, human resources and performance information for NSIRA’s program inventory is available in the GC InfoBase.
Internal Services: planned results
Description
Internal Services are those groups of related activities and resources that the federal government considers to be services in support of Programs and/or required to meet corporate obligations of an organization. Internal Services refers to the activities and resources of the 10 distinct services that support Program delivery in the organization, regardless of the Internal Services delivery model in a department. These services are:
Management and Oversight Services
Communications Services
Legal Services
Human Resources Management Services
Financial Management Services
Information Management Services
Information Technology Services
Real Property Management Services
Materiel Management Services
Acquisition Management Services
Planning highlights
In this first full year of operations, NSIRA will focus on expanding into additional secure facilities and on staffing vacant positions. The Secretariat is working with officials from the Privy Council Office and Public Services and Procurement Canada to identify opportunities for expansion into an additional high security zone, as well as opportunities to retrofit existing spaces for eventual occupation. On the issue of human resources, the Secretariat is recruiting with a view to ensuring that new staff are diverse and have the necessary skills and core competencies that will provide NSIRA with high-quality support it requires over the long term.
The Secretariat will also work to ensure that staff are equipped with the necessary Information Management/Information Technology (IM/IT) systems, equipment and support services to perform their work, as the organization grows.
Planned budgetary financial resources for Internal Services
2020–21 budgetary spending (as indicated in Main Estimates)
2020–21 planned spending
2021–22 planned spending
2022–23 planned spending
12,975,559
12,975,559
12,107,192
4,614,005
Funding for 2020-21 and 2021-22 is higher than ongoing funding figures due to plans for funds being used for the building and refurbishing of additional office space.
Planned human resources for Internal Services
2020–21 planned full-time equivalents
2021–22 planned full-time equivalents
2022–23 planned full-time equivalents
22
25
25
Financial, human resources and performance information for NSIRA’s program inventory is available in the GC InfoBase.
Spending and human resources
This section provides an overview of the department’s planned spending and human resources for the next three consecutive fiscal years, and compares planned spending for the upcoming year with the current year’s spending.
Planned spending
Departmental spending 2017–18 to 2022–23
The following graph presents planned (voted and statutory) spending over time.
The figures in the graph above reflect the fact that NSIRA was established part-way through the 2019-20 fiscal year, with a coming-into-force date of July 12, 2019. Fiscal Year 2019-20 presents forecast spending for the current fiscal year. Fiscal years 2020-21 to 2022-23 present planned spending based on approved authorities. The planned spending for 2020-21 and 2021-22 includes funding for construction and fit-up of secure office space required by NSIRA for its activities.
Budgetary planning summary for core responsibilities and Internal Services (dollars)
The following table shows actual, forecast and planned spending for NSIRA’s core responsibility and for Internal Services for the years relevant to the current planning year.
Core responsibilities and Internal Services
2017–18 expenditures
2018–19 expenditures
2019–20 forecast spending
2020–21 budgetary spending (as indicated in Main Estimates)
2020–21 planned spending
2021–22 planned spending
2022–23 planned spending
National Security and Intelligence Reviews and Complaints Investigations
N/A
N/A
2,964,990
11,309,411
11,309,411
12,107,192
13,842,015
Subtotal
N/A
N/A
2,964,990
11,309,411
11,309,411
12,107,192
13,842,015
Internal Services
N/A
N/A
4,984,840
12,975,559
12,975,559
12,107,192
4,614,005
Total
N/A
N/A
7,949,830
24,284,970
24,284,970
24,214,384
18,456,020
As NSIRA was created on July 12, 2019, there is no comparative information to provide for prior years. Numbers for 2019-20 are for the reporting period July 12, 2019 – March 31, 2020.
Due to delays in acquiring and fitting up a second office site for the growing organization, NSIRA is expected to lapse funds, allocated for construction and equipping office space in 2019-20. Planned spending for 2022-23 shows the ongoing financial authorities after completion of the office expansion project.
Planned human resources
The following table shows actual, forecast and planned full-time equivalents (FTEs) for the core responsibility in NSIRA’s departmental results framework and for Internal Services for the years relevant to the current planning year.
Human resources planning summary for core responsibilities and Internal Services
Core responsibilities and Internal Services
2017-18 Actual full-time equivalents
2018-19 Actual full-time equivalents
2019-20 Forecast full-time equivalents
2020-21 Planned full-time equivalents
2021-22 Planned full-time equivalents
2022-23 Planned full-time equivalents
Assist the National Security and Intelligence Review Agency
N/A
N/A
24
48
75
75
Subtotal
N/A
N/A
24
48
75
75
Internal Services
N/A
N/A
15
22
25
25
Total
N/A
N/A
39
70
100
100
Accommodations challenges as well as security clearance requirements pushed anticipated staffing actions to future reporting periods. As NSIRA evolves, it will need to prioritize staffing efforts in order to fulfill its expanded mandate.
Estimates by vote
Information on NSIRA’s organizational appropriations is available in the 2020–21 Main Estimates.
Condensed future-oriented statement of operations
The condensed future-oriented statement of operations provides an overview of NSIRA’s operations for 2019–20 to 2020–21.
The amounts for forecast and planned results in this statement of operations were prepared on an accrual basis. The amounts for forecast and planned spending presented in other sections of the Departmental Plan were prepared on an expenditure basis. Amounts may therefore differ.
A more detailed future-oriented statement of operations and associated notes, including a reconciliation of the net cost of operations to the requested authorities, are available on NSIRA’s website.
Human resources planning summary for core responsibilities and Internal Services
Financial information
2019-20 Forecast results
2020-21 Planned results
Difference (2020-21 planned results minus 2019-20 Forecast results)
Total expenses
8,924,002
25,780,059
16,856,058
Total revenues
248
248
0
Net cost of operations before government funding and transfers
8,923,754
25,779,811
16,856,058
The large increase between planned results for 2020-21 and forecasted results for 2019-20 is due to the later-than-expected royal assent of the National Security and Intelligence Review Agency Act and the coming-into-force of the NSIRA. The difference has been further compounded by the challenge of finding suitable highly secure accommodations and the resulting inability to complete planned hiring in 2019-20.
Corporate Information
Organizational profile
Appropriate minister: The Right Honourable Justin Trudeau, Prime Minister of Canada Institutional head: John Davies, Executive Director Ministerial portfolio: Privy Council Office Enabling instrument:National Security and Intelligence Review Agency Act Year of incorporation / commencement: 2019
Raison d’être, mandate and role: who we are and what we do
“Raison d’être, mandate and role: who we are and what we do” is available on NSIRA‘s website.
Operating context
Information on the operating context is available on NSIRA’s website.
Reporting framework
NSIRA’s Departmental Results Framework, with accompanying results and indicators, is under development. Additional information on key performance measures will be included in the 2021- 22 Departmental Plan.
Supporting information on the program inventory
Supporting information on planned expenditures, human resources, and results related to NSIRA’s program inventory is available in the GC InfoBase.
Supplementary information tables
The following supplementary information tables are available on NSIRA‘s website.
Departmental Sustainable Development Strategy
Gender-based analysis plus
Federal tax expenditures
NSIRA’s Departmental Plan does not include information on tax expenditures that relate to its planned results for 2020–21.
Tax expenditures are the responsibility of the Minister of Finance, and the Department of Finance Canada publishes cost estimates and projections for government-wide tax expenditures each year in the Report on Federal Tax Expenditures. This report provides detailed information on tax expenditures, including objectives, historical background and references to related federal spending programs, as well as evaluations, research papers and gender-based analysis. The tax measures presented in this report are solely the responsibility of the Minister of Finance.
Organizational contact information
National Security and Intelligence Review Agency P.O. Box 2430, Station “D” Ottawa, Ontario K1P 5W5
Any authority of Parliament to pay money out of the Consolidated Revenue Fund.
budgetary expenditures(dépenses budgétaires)
Operating and capital expenditures; transfer payments to other levels of government, organizations or individuals; and payments to Crown corporations.
core responsibility(responsabilité essentielle)
An enduring function or role performed by a department. The intentions of the department with respect to a core responsibility are reflected in one or more related departmental results that the department seeks to contribute to or influence.
Departmental Plan(plan ministériel)
A report on the plans and expected performance of an appropriated department over a 3‑year period. Departmental Plans are usually tabled in Parliament each spring.
departmental priority(priorité)
A plan or project that a department has chosen to focus and report on during the planning period. Priorities represent the things that are most important or what must be done first to support the achievement of the desired departmental results.
departmental result(résultat ministériel)
A consequence or outcome that a department seeks to achieve. A departmental result is often outside departments’ immediate control, but it should be influenced by program-level outcomes.
departmental result indicator (indicateur de résultat ministériel)
A quantitative measure of progress on a departmental result.
departmental results framework(cadre ministériel des résultats)
A framework that connects the department’s core responsibilities to its departmental results and departmental result indicators.
Departmental Results Report(rapport sur les résultats ministériels)
A report on a department’s actual accomplishments against the plans, priorities and expected results set out in the corresponding Departmental Plan.
experimentation(expérimentation)
The conducting of activities that seek to first explore, then test and compare the effects and impacts of policies and interventions in order to inform evidence-based decision-making, and improve outcomes for Canadians, by learning what works, for whom and in what circumstances. Experimentation is related to, but distinct from innovation (the trying of new things), because it involves a rigorous comparison of results. For example, using a new website to communicate with Canadians can be an innovation; systematically testing the new website against existing outreach tools or an old website to see which one leads to more engagement, is experimentation.
full‑time equivalent(équivalent temps plein)
A measure of the extent to which an employee represents a full person‑year charge against a departmental budget. For a particular position, the full‑time equivalent figure is the ratio of number of hours the person actually works divided by the standard number of hours set out in the person’s collective agreement.
gender-based analysis plus (GBA Plus)(analyse comparative entre les sexes plus [ACS Plus])
An analytical process used to assess how diverse groups of women, men and gender-diverse people experience policies, programs and services based on multiple factors including race ethnicity, religion, age, and mental or physical disability.
For the purpose of the 2020–21 Departmental Results Report, those high-level themes outlining the government’s agenda in the 2019 Speech from the Throne, namely: Fighting climate change; Strengthening the Middle Class; Walking the road of reconciliation; Keeping Canadians safe and healthy; and Positioning Canada for success in an uncertain world.
horizontal initiative(initiative horizontale)
An initiative where two or more federal organizations are given funding to pursue a shared outcome, often linked to a government priority.
non‑budgetary expenditures(dépenses non budgétaires)
Net outlays and receipts related to loans, investments and advances, which change the composition of the financial assets of the Government of Canada.
performance (rendement)
What an organization did with its resources to achieve its results, how well those results compare to what the organization intended to achieve, and how well lessons learned have been identified.
performance indicator(indicateur de rendement)
A qualitative or quantitative means of measuring an output or outcome, with the intention of gauging the performance of an organization, program, policy or initiative respecting expected results.
performance reporting(production de rapports sur le rendement)
The process of communicating evidence‑based performance information. Performance reporting supports decision making, accountability and transparency.
plan(plan)
The articulation of strategic choices, which provides information on how an organization intends to achieve its priorities and associated results. Generally, a plan will explain the logic behind the strategies chosen and tend to focus on actions that lead to the expected result.
planned spending(dépenses prévues)
For Departmental Plans and Departmental Results Reports, planned spending refers to those amounts presented in Main Estimates.
A department is expected to be aware of the authorities that it has sought and received. The determination of planned spending is a departmental responsibility, and departments must be able to defend the expenditure and accrual numbers presented in their Departmental Plans and Departmental Results Reports.
program(programme)
Individual or groups of services, activities or combinations thereof that are managed together within the department and focus on a specific set of outputs, outcomes or service levels.
program inventory(répertoire des programmes)
Identifies all the department’s programs and describes how resources are organized to contribute to the department’s core responsibilities and results.
result(résultat)
A consequence attributed, in part, to an organization, policy, program or initiative. Results are not within the control of a single organization, policy, program or initiative; instead they are within the area of the organization’s influence.
statutory expenditures(dépenses législatives)
Expenditures that Parliament has approved through legislation other than appropriation acts. The legislation sets out the purpose of the expenditures and the terms and conditions under which they may be made.
target (cible)
A measurable performance or success level that an organization, program or initiative plans to achieve within a specified time period. Targets can be either quantitative or qualitative.
voted expenditures(dépenses votées)
Expenditures that Parliament approves annually through an appropriation act. The vote wording becomes the governing conditions under which these expenditures may be made.
The National Security and Intelligence Review Agency (NSIRA) experienced significant growth and transformation in the 2019-20 fiscal year. With the coming into force of the National Security and Intelligence Review Agency Act in July 2019, our focus has been on transitioning the Security Intelligence Review Committee (SIRC) to an organization with a much broader mandate.
This has involved hiring and accommodating the talent required to deliver NSIRA’s expansive mandate, roughly doubling the staff complement throughout the fiscal year. It also has involved scaling up physical, personnel and information security practices, and implementing new policies and procedures for pay and finance systems.
In our first year, we have established strong working relationships with organizations newly subject to review. We have also worked to ensure effective collaboration with other accountability bodies, such as the National Security and Intelligence Committee of Parliamentarians, the Office of the Privacy Commissioner, and the Civilian Review and Complaints Commission for the RCMP. These relationships will continue to serve our respective organizations well in the management of complaints investigations and as the review agenda grows in complexity and sophistication, with an increasing focus on interagency activities. To this end, 2019-20 marked the establishment of NSIRA’s first three-year review plan, which reflects the broader scope of NSIRA’s review mandate.
With respect to complaints investigations, NSIRA’s mandate expanded from complaints related to the Canadian Security Intelligence Service to include complaints related to the Communications Security Establishment and, where there is a close nexus to national security, the Royal Canadian Mounted Police. Work in 2019-20 included updating procedures and establishing protocols for the new aspects of this function. Our work reforming the complaints investigations process so that it is more timely and more accessible to the public will continue into 2020-21.
NSIRA’s core values centre on public engagement and transparency. With the support of staff, NSIRA members held numerous outreach and stakeholder engagement sessions in 2019-20, including to explain our new mandate, learn about stakeholder priorities and demystify the complaints process. NSIRA also began releasing online redacted versions of SIRC reports that had previously been released to applicants under the Access to Information Act. Our intention is to enhance public dialogue on issues related to national security and intelligence. Going forward, NSIRA is committed to proactively, in consultation with relevant ministers, redacting and releasing our reviews as they are completed throughout the year.
I am extremely proud of the way that NSIRA staff have adapted to NSIRA’s expanded mandate, and of the professionalism, objectivity and energy that they bring to their work, even more so during the ongoing COVID-19 pandemic. I wish to thank NSIRA staff for their continued commitment to and flexibility regarding new work arrangements during this especially challenging time.
I am confident that this enthusiasm and hard work will find us in good stead in the year ahead as we continue to expand our corporate infrastructure to facilitate growth, and as we embark on an ambitious agenda of review, complaints investigation and stakeholder engagement.
John Davies Executive Director National Security and Intelligence Review Agency
Results at a glance and operating context
Actual spending
2019-20 : $6,921,056
Actual human resources
2019–20 full-time equivalents : 36.9
The total actual spending and actual human resources used over fiscal year 2019-20 comprises resources spent and used by SIRC until July 2019 and by its successor NSIRA from July 12, 2019, until year-end.
On July 12, 2019, Canada’s framework for national security accountability underwent a major transformation with the creation of the National Security and Intelligence Review Agency (NSIRA), the coming into force of the NSIRA Act and by the earlier passage of Bill-C59 – National Security Act, 2017.
Although NSIRA inherited some corporate infrastructure from SIRC, NSIRA’s mandate extends far beyond SIRC’s focus on activities performed by the Canadian Security Intelligence Service (CSIS). NSIRA is an independent organization mandated to review all Government of Canada national security and intelligence activities to assess whether they are lawful, comply with ministerial direction, reasonable and necessary.
NSIRA’s complaints investigation mandate also extends beyond CSIS, to include complaints regarding the Communications Security Establishment (CSE), as well as complaints related to national security activities of the Royal Canadian Mounted Police (RCMP).
With these significant changes taking effect in 2019-20, activities have mainly focused on establishing the necessary foundation for delivering on the expanded mandate.
Some of the key results achieved over the course of 2019-20 by SIRC and NSIRA include the following:
Better inform Canadians and Parliamentarians
To reflect its expanded mandate, NSIRA created new teams to build capacity in reviewing all of the federal departments and agencies engaged in national security and intelligence activities.
This fiscal year, NSIRA approved and completed five reviews: three focused on CSIS activities; one was a review of CSE activities; and one was the first NSIRA interdepartmental review, which examined how six federal departments implemented ministerial direction. NSIRA developed a risk-based approach for choosing the subjects of reviews to ensure close and continuous scrutiny of high-risk areas, emerging threats, intelligence priorities and activities identified in the course of the reviews. NSIRA also adopted a longer-term approach to planning its reviews and developed a three-year evidence-based, comprehensive review plan, to ensure that programs and activities span the entire national security and intelligence community and will better inform Canadians and parliamentarians. The NSIRA members approved the review plan in February 2020. During the course of this fiscal year, NSIRA also took steps toward redacting SIRC’s classified reviews and translating them, in preparation for publication on its website.
Finally, NSIRA’s Chair continued to engage with ministers and departments and agencies at senior levels. As well, NSIRA briefed the Minister of Public Safety and Emergency Preparedness and the Minister of National Defence both verbally and in writing, as required under the NSIRA Act.
Continue to improve access to justice
The process for the investigation of complaints is continuously being refined and streamlined through the implementation of best practices and procedures to promote access to justice and ensure timeliness in the conduct of investigations. On receiving its mandate, NSIRA continued to build on SIRC’s knowledge while expanding the complaints investigation process to include investigations of complaints related to CSE and complaints referred to it by the Civilian Review and Complaints Commission for the RCMP. This fiscal year, NSIRA finalized two investigations that SIRC had started; one recommendation was issued with respect to CSIS’s actions.
Staffing was a main priority over the course of 2019–20 in anticipation of NSIRA’s needs under its mandate. NSIRA was able to attract many talented reviewers, lawyers, and support staff to position it for success in 2020.
For more information on NSIRA’s plans, priorities and results achieved, see the “Results: what we achieved” section of this report.
Results: what we achieved
The core responsibility, description and results reported here are specific to SIRC. Although SIRC became NSIRA partway through the 2019-20 fiscal year, NSIRA’s Departmental Results Framework, with accompanying results and indicators, is still being developed. It will be implemented starting in 2021-22. Consequently, 2019-20 actual results for NSIRA are not available. Nonetheless, this section also describes NSIRA’s efforts to establish a strong foundation for executing its mandate.
Core responsibility
Investigations of Canadian Security Intelligence Services’ operational activities
Description:
SIRC is an external independent review body responsible for: reviewing the Canadian Security Intelligence Service to determine whether its operational activities complied with the law and ministerial direction; investigating complaints by any person about any action of the Service, including denials of security clearances; and, certifying the Canadian Security Intelligence Service Director’s annual report to the Minister of Public Safety and Emergency Preparedness to determine whether any activities were not authorized, contravened ministerial direction, or involved any unreasonable or unnecessary exercise of powers. SIRC makes findings and, where appropriate, recommendations designed to improve performance and prevent non-compliance. The results of this work, edited to protect national security and personal privacy, are summarized in an annual report, which is tabled in Parliament by the Minister.
Results:
The Canadian Security Intelligence Service complies with the law and its actions are reasonable and necessary.
With SIRC dissolving in June 2019, actual 2019-20 results are not available. NSIRA will be implementing a new Departmental Results Framework starting in 2021-22.
Review of national security and intelligence activities and outreach
Between April 1, 2019, and July 12, 2019, three in-depth reviews of CSIS activities were undertaken. These reviews were completed and approved by NSIRA in Fall 2019. These reviews examined a cross-section of national security and intelligence activities, including internal security, intelligence collection and disposal, and information sharing.
In December 2019, NSIRA completed its first review of CSE; and in February 2020, NSIRA’s first interdepartmental review was finalized, which focused on the implementation of a ministerial direction by several federal departments and agencies.
To maximize coverage and understanding of the national security and intelligence community in Canada, NSIRA members and NSIRA staff actively engaged with a range of government and non-governmental partners including academics and civil society representatives. NSIRA also continued to build relationships with counterpart organizations, including the National Security and Intelligence Committee of Parliamentarians and the Office of the Privacy Commissioner.
Investigation of complaints against the Canadian Security Intelligence Service
Between April 1, 2019, and July 12, 2019, SIRC issued one final report regarding a complaint investigation against CSIS. The report did not contain any recommendations and the complaint was dismissed.
As of July 12, 2019, NSIRA took over SIRC’s investigations process. Outstanding complaints and new complaints received were processed as quickly as possible. This included informal resolution efforts and quasi-judicial hearings when necessary.
The investigation process relies heavily on its information resources to effectively fulfil its mandate. This year, NSIRA strengthened processes and procedures to improve information management and increase effectiveness.
Gender-based analysis plus
The new NSIRA mandate includes review of any activity carried out by a department or agency that relates to national security or intelligence, including issues related to bias and discrimination. Its mandate also requires NSIRA to report publicly, in an unclassified manner, on its findings and recommendations.
In complaints investigations, NSIRA systematically follows a well-documented process in all cases to ensure equal access to justice for all complainants. NSIRA has also begun to analyze trends in complaints to identify potential biases and discrimination and to collect demographic data about complainants. The aim is to assess whether certain population groups are more frequently involved in grievances with the security agencies.
NSIRA’s staffing practices consider gender-based analysis plus objectives. NSIRA hired a diverse group of employees with a mix of experience and skills to fulfil its broad mandate. For the 2019-20 period, the number of women hired was more than twice that of men; nearly 20% of the total hires were members of visible minority groups. This breadth of experience and competencies provides the agency with high-quality, non-partisan advice and support.
Furthermore, NSIRA engages with a broad and diverse range of stakeholders and community groups to inform its review priorities, demystify the complaints investigation process, and help with recruiting an elite workforce.
Experimentation
Given the functions and responsibilities of SIRC and NSIRA, the agencies did not pursue experimentation activities.
Results achieved
Departmental results
Performance indicators
Target
Date to achieve target
2017–18 Actual results
2018–19 Actual results
2019–20 Actual results*
* SIRC’s changeover to NSIRA requires significant changes to the Departmental Results Framework, expected results and indicators. Consequently, 2019–20 actual results for NSIRA are not available. NSIRA will implement a new Departmental Results Framework starting in 2021–22.
CSIS complies with the law and its actions are reasonable and necessary
Percentage of high- and medium-risk operational activities reviewed annually
80%
2019–20
79%
86%
Not applicable (N/A)
Degree to which the parties to complaints are satisfied with the complaints process
N/A
2022–23
N/A
N/A
N/A
Percentage of recommendations accepted by CSIS
90%
2018–19
95.7%
N/A
N/A
Percentage of recommendations advanced by CSIS
80%
2019–20
66.7%
82%
N/A
Budgetary financial resources (dollars)
Departmental results
Performance indicators
Target
Date to achieve target
2017–18 Actual results
2018–19 Actual results
2019–20 Actual results*
* Actual spending in 2019–20 can be broken down by agency as follows:
SIRC: $814,874
NSIRA: $3,009,066
CSIS complies with the law and its actions are reasonable and necessary
Percentage of high- and medium-risk operational activities reviewed annually
80%
2019–20
79%
86%
Not applicable (N/A)
Degree to which the parties to complaints are satisfied with the complaints process
N/A
2022–23
N/A
N/A
N/A
Percentage of recommendations accepted by CSIS
90%
2018–19
95.7%
N/A
N/A
Percentage of recommendations advanced by CSIS
80%
2019–20
66.7%
82%
N/A
Financial authorities were transferred from SIRC to NSIRA in 2019–20.
Human resources (full-time equivalents)
2019–20 Planned full-time equivalents
2019–20 Actual full-time equivalents
2019–20 Difference (Actual full-time equivalents minus Planned full-time equivalents)
* Actual spending in 2019–20 can be broken down by agency as follows:
SIRC: 4.8
NSIRA: 17.5
24.5
22.3*
(2.2)
SIRC’s current staff carried over to NSIRA and formed the basis of the new NSIRA.
Financial, human resources and performance information for NSIRA’s Program Inventory is available in GC InfoBase.
Internal Services
Description
Internal Services are those groups of related activities and resources that the federal government considers to be services in support of programs and/or required to meet corporate obligations of an organization. Internal Services refers to the activities and resources of the 10 distinct service categories that support Program delivery in the organization, regardless of the Internal Services delivery model in a department. The 10 service categories are:
Acquisition Management Services
Communication Services
Financial Management Services
Human Resources Management Services
Information Management Services
Information Technology Services
Legal Services
Material Management Services
Management and Oversight Services
Real Property Management Services
Results
Over the course of 2019-20, the priority of internal services functions has been ensuring the successful transition from SIRC to NSIRA. This involved overhauling existing or developing new human resources, financial, accommodation and security policies, practices and systems.
Budgetary financial resources (dollars)
2019-20 Main Estimates
2019-20 Planned spending
2019-20 Total authorities available for use
2019-20 Actual spending (authorities used)
2019-20 Difference (Actual spending minus Planned spending)
* Actual spending in 2019–20 can be broken down by agency as follows:
SIRC: $480,875
NSIRA: $2,616,241
1,402,384
1,402,384
16,624,630
3,097,116*
1,694,732
Financial authorities were transferred from SIRC to NSIRA in 2019–20.
Human resources (full-time equivalents)
2019–20 Planned full-time equivalents
2019–20 Actual full-time equivalents
2019–20 Difference (Actual full-time equivalents minus Planned full-time equivalents)
* Actual spending in 2019–20 can be broken down by agency as follows:
SIRC: 3.5
NSIRA: 11.2
7.5
14.7*
7.1
SIRC’s current staff carried over to NSIRA and formed the basis of the new NSIRA.
Analysis of trends in spending and human resources
Actual expenditures
Departmental spending trend graph
The following graph presents planned (voted and statutory spending) over time.
Text version of Figure 1
Departmental spending trend graph
2017-18
2018-19
2019-20
2020-21
2021-22
2022-23
Statutory
332,840
357,096
517,233
1,483,914
1,704,632
1,704,632
Voted
5,841,352
4,635,457
6,403,823
22,801,056
22,509,752
16,751,388
Total
6,174,192
4,992,553
6,921,056
24,284,970
24,214,384
18,456,020
The graph illustrates SIRC’s and NSIRA’s spending trend over a six-year period from 2017-18 to 2022-23. Fiscal years 2017-18 to 2019-20 reflect the organization’s actual expenditures as reported in the Public Accounts. Fiscal years 2020-21 to 2022-23 represent planned spending.
The decrease of $1.2 million in spending from 2017-18 to 2018-19 is mainly explained by the SIRC relocation project, including the information management/information technology modernization project in 2017-18. SIRC changed office space at the end of fiscal year 2017-18.
The increase from 2018-19 to 2019-20 is mainly explained by the cost of additional resources hired as part of the transition from SIRC to NSIRA.
The variance between actual spending in 2019-20 and planned spending for 2020-21 is due to the timing of the approval of the NSIRA Act and the creation of NSIRA, as well as delays in the identification of a short- and long-term accommodation strategy. These delays held back accommodation, infrastructure and system projects required to support NSIRA’s mandate.
The increase is also attributable to a year-over-year increase in spending authorities for NSIRA’s new, broader mandate. Starting in fiscal year 2022-23, NSIRA’s planned spending will decrease by almost $6.0 million due to the sunset of some of the funding for new office space.
Budgetary performance summary for core responsibilities and Internal Services (dollars)
SIRC
Core responsibilities and Internal Services
2019-20 Main Estimates
2019-20 Planned spending
2020-21 Planned spending
2021-22 Planned spending
2019-20 Total authorities available for use
2017-18 Actual spending (authorities used)
2018-19 Actual spending (authorities used)
2019-20 Actual spending (authorities used)
Investigations of Canadian Security Intelligence Services’ operational activities
3,752,433
3,752,433
0
0
815,364
2,894,198
2,648,567
814,874
Subtotal
3,752,433
3,752,433
0
0
815,364
2,894,198
2,648,567
814,874
Internal Services
1,402,384
1,402,384
0
0
480,875
3,279,994
2,343,986
480,875
Total
5,154,817
5,154,817
0
0
1,296,239
6,174,192
4,992,553
1,295,749
NSIRA
Core responsibilities and Internal Services
2019-20 Main Estimates
2019-20 Planned spending
2020-21 Planned spending
2021-22 Planned spending
2019-20 Total authorities available for use
2017-18 Actual spending (authorities used)
2018-19 Actual spending (authorities used)
2019-20 Actual spending (authorities used)
Investigations of Canadian Security Intelligence Services’ operational activities
0
0
11,309,411
12,107,192
6,695,628
0
0
3,009,066
Subtotal
0
0
11,309,411
12,107,192
6,695,628
0
0
3,009,066
Internal Services
0
0
12,975,559
12,107,192
16,143,755
0
0
2,616,241
Total
0
0
24,284,970
24,214,384
22,839,383
0
0
5,625,307
Actual human resources
Human resources summary for Core Responsibilities and Internal Services
SIRC
Core responsibilities and Internal Services
2017-18 Actual full-time equivalents
2018-19 Actual full-time equivalents
2019-20 Planned full-time equivalents
2019-20 Actual full-time equivalents
2020-21 Planned full-time equivalents
2021-22 Planned full-time equivalents
Investigations of Canadian Security Intelligence Services’ operational activities
18.7
18.1
24.5
4.8
0.0
0.0
Subtotal
18.7
18.1
24.5
4.8
0.0
0.0
Internal Services
10.0
10.8
7.5
3.5
0.0
0.0
Total
28.7
28.9
32.0
8.3
0.0
0.0
NSIRA
Core responsibilities and Internal Services
2017-18 Actual full-time equivalents
2018-19 Actual full-time equivalents
2019-20 Planned full-time equivalents
2019-20 Actual full-time equivalents
2020-21 Planned full-time equivalents
2021-22 Planned full-time equivalents
*Over the course of 2019-20, funding for an additional 26 FTEs was received to account for the expanded mandate of NSIRA. These FTEs are not accounted for in the planned 2019-20 FTEs.
Investigations of Canadian Security Intelligence Services’ operational activities
0.0
0.0
0.0
17.5
48.0
75.0
Subtotal
0.0
0.0
0.0
17.5
48.0
75.0
Internal Services
0.0
0.0
0.0
11.2
22.0
25.0
Total
0.0
0.0
0.0
28.7
70.0
100.0
In the next two years, NSIRA will be focused on hiring up to 100 FTEs to deliver on its new mandate.
Information on the alignment of NSIRA’s spending with the Government of Canada’s spending and activities is available in GC InfoBase.
Financial statements and financial statements highlights
Financial statements
SIRC’s and NSIRA’s financial statements (unaudited) for the year ended March 31, 2019, are available on NSIRA‘s website.
Financial statement highlights
Condensed Statement of Operations (unaudited) for the year ended March 31, 2020 (dollars)
SIRC
Financial information
2019-20 Planned results
2019-20 Actual results
2018-19 Actual results
Difference (2019-20 Actual results minus 2019-20 Planned results)
Difference (2019-20 Actual results minus 2018-19 Actual results)
Total expenses
6,074,207
1,723,632
5,539,131
(4,350,575)
(3,815,499)
Total revenues
0
0
(490)
0
490
Net cost of operations before government funding and transfers
6,074,207
1,723,632
5,538,642
(4,350,575)
(3,815,010)
NSIRA
Financial information
2019-20 Planned results
2019-20 Actual results
2018-19 Actual results
Difference (2019-20 Actual results minus 2019-20 Planned results)
Difference (2019-20 Actual results minus 2018-19 Actual results)
Total expenses
0
6,330,487
0
6,330,487
6,330,487
Total revenues
0
0
0
0
0
Net cost of operations before government funding and transfers
0
6,330,487
0
6,330,487
6,330,487
Difference between 2018-19 actual results and 2019-20 actual results:
The agency’s actual net cost of operations before government funding and transfer for 2019-20, as compared with 2018-19, increased primarily as a result of the transition from SIRC to NSIRA and the additional resources hired to support NSIRA’s new mandate.
Difference between 2019-20 actual results and 2019-20 planned results:
The agency’s actual net cost of operations from continuing activities was higher than the planned results for the fiscal year as a result of the transition from SIRC to NSIRA.
Condensed Statement of Financial Position (unaudited) as of March 31, 2020 (dollars)
SIRC
Financial information
2019-20
2018-19
Difference (2019-20 minus 2018-19)
Total net liabilities
1,412,420
1,494,816
(82,396)
Total net financial assets
1,315,658
1,355,974
(40,316)
Departmental net debt
96,762
138,843
(42,081)
Total non-financial assets
80,751
1,399,684
(1,318,933)
Departmental net financial position
(16,011)
1,260,841
(1,276,852)
NSIRA
Financial information
2019-20
2018-19
Difference (2019-20 minus 2018-19)
Total net liabilities
2,029,928
0
2,029,928
Total net financial assets
1,627,351
0
1,627,351
Departmental net debt
402,577
0
402,577
Total non-financial assets
1,075,318
0
1,075,318
Departmental net financial position
672,741
0
672,741
In 2019-20, the agency’s net liabilities and net financial assets increased primarily due to the transition from SIRC to NSIRA.
Additional information
Organizational profile
Appropriate minister: The Right Honourable Justin Trudeau, Prime Minister of Canada
Institutional head: John Davies, Executive Director
Raison d’être, mandate and role: who we are and what we do
“Raison d’être, mandate and role: who we are and what we do” is available on NSIRA‘s website.
Reporting framework
SIRC’s Departmental Results Framework and Program Inventory of record for 2019-20 are shown below.
Text version of Figure 2
Core Responsibility: Investigations of Canadian Security Intelligence Services’ operational activities
Departmental Results Framework
CSIS complies with the law and its actions are reasonable and necessary
Indicator: Percentage of high- and medium-risk operational activities reviewed annually
Internal Services
Indicator: Degree to which the parties to complaints are satisfied with the complaints process
Indicator: Percentage of recommendations accepted by CSIS
Indicator: Percentage of recommendations accepted by CSIS
Program Inventory
Program: Review of CSIS operations
Program: Investigation of complaints against the CSIS
SIRC became NSIRA partway through the 2019-20 fiscal year. NSIRA’s Departmental Results Framework, with accompanying results and indicators, is under development. Additional information on key performance measures will be included in the 2021-22 Departmental Plan.
Supporting information on the program inventory
Financial, human resources and performance information for NSIRA’s Program Inventory is available in GC InfoBase.
Supplementary information tables
The following supplementary information tables are available on NSIRA‘s website.
Gender-based analysis plus
Federal tax expenditures
The tax system can be used to achieve public policy objectives through the application of special measures such as low tax rates, exemptions, deductions, deferrals and credits. The Department of Finance Canada publishes cost estimates and projections for these measures each year in the Report on Federal Tax Expenditures. This report also provides detailed background information on tax expenditures, including descriptions, objectives, historical information and references to related federal spending programs. The tax measures presented in this report are the responsibility of the Minister of Finance.
Organizational contact information
National Security and Intelligence Review Agency P.O. Box 2430, Station “D” Ottawa, Ontario K1P 5W5
The phone number is temporarily disabled Fax: 613-907-4445
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