Transition Book - 2025

Overview of the Public Prosecution Service of Canada

Who We Are / What We Do

As of March 1, 2025, the PPSC had 1251 employees, of which approximately 43% are prosecutors. The remainder of the PPSC staff is comprised of paralegals, support staff, functional specialists and management. In addition to its own prosecutors, the PPSC retains the services of 240 private-sector prosecutors known as Agents.

PPSC Headquarters is located in Ottawa, and the organization maintains a network of regional and local offices across Canada. The PPSC must provide prosecutors in each judicial district in Canada and has at least one permanent office in each of the three territories and each province, except Prince Edward Island.

Mandate

The mandate of the PPSC is set out in the DPP Act. Pursuant to the Act, the PPSC provides prosecutorial advice to law enforcement agencies and acts as prosecutor in matters that fall within the authority of the Attorney General of Canada.

Areas of Prosecution

The PPSC’s main areas of prosecution are the following.

Controlled Drugs and Substances Act and Cannabis Act

In most provinces and all territories, the PPSC is responsible for prosecuting all drug offences under the Controlled Drugs and Substances Act (CDSA) and the Cannabis Act, regardless of whether a federal, provincial, or municipal investigative agency lays the charges. The exceptions are the provinces of Quebec and New Brunswick, where the PPSC only prosecutes drug offences if they were investigated by the Royal Canadian Mounted Police (RCMP).

On October 17, 2018, the Cannabis Act came in effect and thereby altered Canada’s approach to cannabis. As of this date, serious cannabis offences, such as sale, importation, and exportation, previously prosecuted under the CDSA, fall under the jurisdiction of the new Cannabis Act. The PPSC is responsible for the prosecution of both criminal and regulatory offences under the Act.

In August 2020, a new guideline was issued by the DPP about the prosecution of simple possession offences under the CDSA. This new guideline provides guidance to prosecutors in determining the appropriate approach to the prosecution of such offences. The policy directs PPSC prosecutors to pursue prosecution only in the most serious cases raising public safety concerns and to otherwise pursue suitable alternative measures and diversion from the criminal justice system for simple possession.

Criminal Code

In the Yukon, Nunavut, and the Northwest Territories (NWT), the PPSC has exclusive jurisdiction for prosecuting all Criminal Code offences including homicides, sexual offences, other violent offences, firearms and other weapons offences, driving offences, property crimes and offences against the administration of justice.

In the provinces the PPSC has concurrent jurisdiction with provincial prosecution services to prosecute certain Criminal Code offences such as terrorism, criminal organization offences, money laundering and proceeds of crime, and fraud. Upon request of a provincial Attorney General or under specific arrangements with the provinces, the PPSC may also prosecute Criminal Code offences that are otherwise within provincial jurisdiction when the accused also faces charges within federal jurisdiction.

Federal Statutes

In all provinces and territories, the PPSC prosecutes violations of all other federal statutes, such as the Fisheries Act; the Income Tax Act; the Excise Act; the Customs Act; the Canadian Environmental Protection Act, 1999; the Competition Act; and the Immigration and Refugee Protection Act; as well as conspiracies and attempts to violate these statutes. In total, the PPSC may be called upon to prosecute offences under any of 250 statutes. In practice, however, the PPSC more routinely advises on and prosecutes offences under approximately 36 federal statutes.

Human Resources Overview

The PPSC is a medium-sized organization that is spread throughout the country with 79% of employees working in regional offices and 21% located at Headquarters in Ottawa.

Regional Distribution

Map of Canada with PPSC Locations
Map of Canada with PPSC Locations
Text Version

A black and white map of Canada with the locations of PPSC offices designated with color-coded circles.

  • Ottawa, Ontario (Headquarters & National Capital Region) – Red star
  • Kenora, Ontario – Green
  • Kitchener, Ontario – Light green
  • London, Ontario – Grey-blue
  • Newmarket, Ontario - black
  • Thunder Bay, Ontario- Light grey
  • Toronto, Ontario – Yellow
  • Brampton, Ontario – Light purple
  • Halifax, Nova Scotia – Periwinkle
  • Moncton, New Brunswick – Mint Green
  • St-John’s, Newfoundland and Labrador – Light pink
  • Montreal, Quebec – Blue
  • Quebec City, Quebec – Light orange
  • Winnipeg, Manitoba – Purple
  • Saskatoon, Saskatchewan – Aqua Blue
  • Regina, Saskatchewan – Orange
  • Edmonton, Alberta – Grey
  • Calgary, Alberta – Forest green
  • Vancouver, British Columbia – Dark pink
  • Surrey, British Columbia - Brown
  • Whitehorse, Yukon – Magenta
  • Yellowknife, North Western Territories - Beige
  • Iqaluit, Nunavut – Burgundy

Our Employees

The majority of PPSC employees are involved in delivering prosecution services. Approximately 80% are in legal positions and 20% in non-legal positions.

Employees can be categorized into the following key segments:

Key Employee Data

Organizational Structure
Organizational Structure
Text Version
  • Director of Public Prosecutions
    • Office of the Director of Public Prosecutions
    • Advancement Centre for Employment Equity, Diversity, Inclusion, and Accessibility
    • Finance and Acquisitions
    • Internal Audit and Evaluation
    • Supreme Court Litigation Coordination
    • Corporate Services
      • Administration Services
      • Agent Affairs Program
      • Communications and Parliamentary Affairs
      • Human Resources
      • National Fine Recovery Program
      • Strategic Planning and Performance Measurement
    • Deputy Director of Public Prosecutions - Carol Shirtliff-Hinds
      • Atlantic Region
      • British Columbia Region
      • Northwest Territories Region
      • Nunavut Region
      • Québec Region
      • Yukon Region
    • Headquarters Counsel Group
    • Deputy Director of Public Prosecutions - David Antonyshyn
      • Alberta Region
      • Manitoba Region
      • National Capital Region
      • Ontario Region
      • Saskatchewan Region

Agents Overview

The PPSC executes its mandate through in-house counsel and private sector lawyers known as agents. The agents represent the PPSC in areas of Canada where it is impractical or otherwise not cost-effective for staff counsel to do so.

Overview

Pursuant to subsections 7(2) and 9(1) of the Director of Public Prosecutions Act, the Director of Public Prosecutions (DPP) may retain private-sector lawyers to perform any of the duties and functions of a crown prosecutor. The PPSC operates a regime of five year fixed-term agreements for agents. The DPP appoints agents following a competitive process. The PPSC may on occasion retain an ad hoc agent for a specific assignment.

As of March 13, 2025, the PPSC retained 93 agent firms representing 240 designated counsel.

Agent Firms and Agents
OfficesNumber of Agent FirmsNumber of Agents
Atlantic1744
Québec35
National Capital Region2138
Ontario2574
Manitoba14
Saskatchewan818
Alberta815
British Columbia840
Yukon00
Northwest Territories22
Nunavut00
All regions93240

Agent Affairs Program

The Agent Affairs Program (AAP) ensures that agents provide high-quality legal services at a reasonable cost. To attain this goal, the AAP undertakes a variety of activities including direct regional supervision, operational policy development, coordination, and corporate/Headquarters (HQ) management.

The AAP is comprised of a division at HQ and agent supervision units in eight regional offices. The units have experienced counsel who assist agents and monitor their work.

Finance Overview

Comptrollership Considerations during Transition Period

Funding Process - Approval and Reporting Dates

Government expenditure Report Cycle
Expenditure Cycle
Expenditure Cycle
Text Version
  • April 1
    • Beginning of Fiscal Year
  • June 23
    • Tabling of Supplementary Estimates (A)
    • Introduction of Full Supply for the Main Estimates and Supply for Supplementary Estimates (A)
  • December 10
    • Tabling of Public Accounts
    • Tabling of Supplementary Estimates (B)
    • Tabling of Departmental Results Reports
    • Economic and Fiscal Update
    • Introduction of Supply for Supplementary Estimates (B)
  • March 26
    • Tabling of Supplementary Estimates (C)
    • Budget Presentation
    • Tabling of Main Estimates
    • Tabling Departmental Plans
    • Introduction of Supply for Supplementary Estimates (C) and Interim Supply for the Main Estimates

In order to make expenditures, the government must receive Parliament’s approval, either through previously adopted legislation or, on an annual basis, through the introduction and passage of appropriation bills. Prior to the introduction of each bill, the President of the Treasury Board tables an Estimates publication (Main or Supplementary) in Parliament to provide information and details on spending authorities sought.

Departmental Authorities

MainPPSC
Main EstimatesPPSC Authorities 2024-25
Vote 1 – Program Expenditures188 321 173 $
Statutory20 131 848 $
Total208 453 021 $
Voted Authorities
Statutory Authorities

Departmental Forecasts

Financial Resources (dollars)
Core responsibilities and internal services 2024-25 Budgetary Spending
(as indicated in Main Estimates)
2024-25 Planned spending 2025-26 Planned spending 2026-27 Planned spending
Prosecution Services 178,679,052 178,679,052 178,910,322 178,942,962
Internal services 29,773,969 29,773,969 29,986,235 30,056,211
Total 208,453,021 208,453,021 208,896,557 208,999,173

The PPSC’s planned spending is intended to support its mandate as an independent, accountable national prosecution service, whose primary objective is to conduct prosecutions under federal jurisdiction fairly and without undue influence.

Human Resources (full-time equivalents)
Core responsibilities and internal services 2024–25 planned FTEs 2025–26 planned FTEs 2026–27 planned FTEs
Prosecution services 880 880 880
Internal services 259 259 259
Total 1,139 1,139 1,139

Major Impact on the PPSC Financials

In the 2023 budget, the government committed to reducing spending by 14.1 billion dollars over the next five-year, starting in 2023-24, and by 4.1 billion annually after that. As part of meeting this commitment, the PPSC is planning the following spending reductions:

Reductions 2023-24 2024-25 2025-26 2026-27 and ongoing
Notional Reductions for Professional Services and Travel 972,000 1,766,000 1,766,000 1,766,000

Please note that the 2024 federal budget conveys that the second phase will rely on ‘historical rates of natural attrition’ to decrease the public service by 5000 full-time equivalent positions from the current figure of about 368,000. The PPSC was exempted from this phase.

Previous Federal Budgets

The previous federal budgets have included the following items, which have had a positive impact on the organization’s funding:

Ongoing funding has been granted for the following initiatives:

Year-end Results 2022-23

Financial Reporting & Submissions

Reports Timing Director to Approve Minister to Approve Memorandum to Minister
Financial Statements Send to the Treasury Board at the beginning of September Yes No No
Letter of representation June Yes No No
Annual Report on Travel, Hospitality and Conferences Expenditures Published in June Yes No No
Quarterly Financial Reports Published 60 days after the end of the quarter Yes No No
Proactive disclosure of contracts 30 days after the end of the first 3 quarters and 60 days after the end of the 4th quarter Yes No No
Proactive disclosure of travel and hospitality expenses Monthly Publication Yes No No
Budgetary Appropriation Before the end of March Yes No No
Indigenous Procurement Planning Beginning of April Yes No No
Adhoc requests – Expense reimbursement in the event of an extension or exception to the provisions of the NJC Travel Directive Not applicable Yes No No
Departmental Plan (DP)
  • Expenditure plans for 3 year period
Tabled in March Yes Yes No
Departmental Results Report (DRR)
  • Account of actual performance against the DP for 1 year (including departmental financial statements)
Tabled in December Yes Yes No
Public Accounts of Canada
  • Detailed report of the financial transactions of the department
Tabled in December Yes No Yes
Treasury Board Submissions
  • Document seeking specific authorities or approvals from the Treasury Board to help implement a new program or a project
As required Yes Yes No
Legal Assistance and Indemnification Submissions
  • Approval for the provision of legal assistance to employees
As required Yes Yes No
Main, Interim and Supplementary Estimates
  • Identifies the spending authorities(votes) and the amounts to enable the department to proceed with its spending plans.
Throughout the funding process Yes No Yes

National Fine Recovery Program

Mandate

In 2007, the Attorney General of Canada assigned the function of recovering federal fines to the DPP under paragraph 3(3)(g) of the DPP Act. The National Fine Recovery Program’s (NFRP) mandate is to enforce sentences by recovering outstanding fines ordered against individuals and companies convicted under federal statutes. The NFRP’s mandate starts when a fine goes into default of payment according to the court order and ends with the remittance of the money recovered by the NFRP to the provinces and territories, or the write-off of the debt when deemed non-recoverable.

Background

The NFRP is a national program. It is part of the Corporate Services Branch and currently employs twenty one (21) full-time employees (FTEs) located in various regional offices across Canada. The NFRP is a multidisciplinary team composed of Recovery Officers, Paralegals, a Legal Advisor, Administration Officers, and Program Support Clerks.

The federal fine regime in Canada is extremely complex. Sections 734 to 738 of the Criminal code (C.c.) provide a variety of powers the NFRP may use in the recovery of fines, such as the suspension of federal licenses and permits, the use of various civil recourses, warrants of incarceration, fine option programs, and others. While these provisions appear effective on paper, there are several gaps in the provisions pertaining to fines and forfeiture, which undermine the proper administration of justice in Canada. The Government continues to have very little leverage to enforce the payment of its federal fines. It does not issue the most common licenses, fine option programs have not been created at the federal level, and the Government does not have access to fine option programs in the provinces and territories where they do exist.

In 2020, the PPSC submitted a proposal to the Minister of Justice to consider amending sections 734.4 to 734.6 of the C.c. to reflect the provisions contained in sections 55.1 and 60 of the Cannabis Act.This would enable the PPSC to enter into agreements with the provinces and territories to benefit from their fine enforcement programs and infrastructure to enforce the payment of outstanding federal fines. The proposed legislative amendments are intended to preserve the integrity of the criminal justice system and confidence in public institutions, by providing additional tools for the enforcement of fines imposed under the C.c. and other federal legislations, and by ensuring that offenders do not intentionally default on paying fines with impunity.

Fine Inventory

As of March 2025, fines in default of payment that are due to the Government represent Twenty-nine thousand (29K) files, for a total value of two hundred and sixty one million dollars ($261M). The NFRP processes, on average, five thousand (5k) files per year and recovers between one and three million dollars per year. Despite the provisions in the C.c. under s. 734(2) regarding validation of an individual’s financial capacity to pay at the time of sentencing, this remains one of the biggest issues in the fine regime. In the last decade, only 5.3%Footnote 4 of the federal fines ordered have been paid, according to the court order. Inquiry into the ability to pay may be seen as perfunctory, rather than a necessary source of reliable and useful information. Civil enforcement mechanisms are onerous and costly, and they depend on the PPSC having access to current financial information. At the same time, the law also requires that mandatory minimum fines and fines ‘in lieu of forfeiture’ be imposed on people with no means to pay, for certain offences. Work has begun to reintroduce a chapter in the PPSC Deskbook to build Crown Prosecutors’ awareness of this problematic issue, but the PPSC must continue to work with the Attorney General of Canada to develop solutions to stop the surge of unpaid fines resulting from PPSC’s prosecutions and sentences.

Program Reform

In 2019, the PPSC took steps to modernize its program operations and to experiment with new initiatives to increase recoveries. The NFRP has implemented a hybrid recovery model using new Government partners and programs and several external partners. A new online payment portal was launched in January of 2023, offering additional payment options to Canadians with outstanding fines. An agreement has been reached with the Canada Revenue Agency (CRA) to share information on fine defaulters to allow the NFRP to undertake advanced civil recoveries.

While many new initiatives have already been implemented as part of the ongoing program reform, the NFRP continues to work on addressing its two main challenges: the development of a direct link to all provincial & territorial court registries and the implementation of a functional IT solution to manage its recovery operations.

PPSC National Committees

The PPSC has created a number of national committees to ensure appropriate governance and stewardship over how it delivers on its mandate, achieves its corporate priorities and conducts its operations.

Committees on Legal Issues

These committees deal with the legal issues that arise in the course of conducting prosecutions or providing legal advice to federal investigative agencies.

The most experienced prosecutors from every region sit on these committees and assist the PPSC’s Prosecution Policy and Knowledge Integration Division in ensuring nation-wide consistency in the delivery of the PPSC’s legal mandate.

There are three legal committees:

National Prosecution Policy Committee
Acts as a sounding board on significant legal issues and policy advice on matters that affect the PPSC nationally. It also makes recommendations on AG Directives issued under s. 10(2) of the DPP Act, DPP Guidelines used under s. 3(3)(c) of the DPP Act and other memoranda or advice to federal prosecutors on legal issues that require national consistency.
National Litigation Committee
Makes recommendations on appeals and interventions in the Supreme Court of Canada.
Indigenous Justice and Reconciliation Committee
Examines how Indigenous people interact with the criminal justice system as victims, witnesses, accused, jurors, PPSC employees and members of the public. The committee reviews prosecution directives and policies in light of the 94 calls to action of the Truth and Reconciliation Commission.

National Management Committees

The PPSC has eight national management committees. These committees are: Executive Council, Senior Management Team, Resource Management Committee, Security and Information Management Committee, Mental Health and Wellness Steering Committee, National Occupational Health and Safety Policy Committee, National Labour Management Consultation Committee, and Official Languages Committee.

The following three national management committees are mandated by legislation or by central authorities in the federal government. They are chaired by national champions who tend to be from the management ranks of Headquarters (HQ) and regional offices.

These committees are:

The committee members are experienced employees from across the country with a particular interest in the committee’s objectives and mandate.

Membership in the remaining five management committees has traditionally been from the most senior levels of management, which typically included Chief Federal Prosecutors (CFPs) from the PPSC’s regional offices and HQ management at the executive level.

These committees are:

Executive Council
Sets the strategic priorities and directions of the PPSC on legal, policy, corporate management, and law practice management issues. The committees listed below, as well as the National Labour Management Consultation Committee, and the Official Languages Committee all report to the Executive Council.
Senior Management Team
Is not a decision-making body. It is a forum to discuss trends and issues and share information on current sectoral developments and substantial management and legal issues.
Resource Management Committee
Oversees budgeting, spending, and Human Resources management, and ensures compliance with legislative and federal policy authorities.
Security and Information Management Committee
Supports the deputy head in the effective management of security, information technology and information management to support PPSC program and service delivery.
Mental Health and Wellness Steering Committee
Provides advice and guidance to the PPSC on strategies, programs, initiatives and employee communication and engagement in order to create a culture that enshrines psychological health, safety and well-being in all aspects of the workplace through collaboration, inclusivity and respect.

Federal Provincial Territorial Heads of Prosecutions

The Federal, Provincial and Territorial (FPT) Heads of Prosecutions Committee was established in 1995. The Committee members are the heads of each of Canada’s 12 prosecution services. This includes the heads of prosecution for the ten provincial prosecution services, as well as the Director of Public Prosecutions and the Director of Military Prosecutions. The committee’s goal is to promote mutual assistance and cooperation on operational issues. The Director of Public Prosecutions (DPP) is a permanent co-chair of the Committee and a provincial co-chair is designated on a rotating basis. The PPSC also provides logistical support and secretarial services to the Committee.

Mandate

The mandate of the Committee is to:

Since its inception, the Committee has helped promote assistance and cooperation among prosecution services and facilitated the coordination of national prosecution issues and the adoption of a consistent prosecution position on those issues whenever possible.

The Committee has formed a number of subcommittees and working groups of expert federal and provincial prosecutors to inform prosecution heads on emerging issues in various areas such as Information Technology, notably for file management, digital evidence and interface with courts and law enforcement agencies, Cybercrime, Domestic Violence, Social Media and Regulatory Prosecutions: perhaps the most well-known of these is the Wrongful Convictions subcommittee, which has produced a seminal report that is updated regularly and that has been quoted by courts, including the Supreme Court of Canada.

The Committee has also produced MOUs and protocols that jurisdictions have entered into to harmonize practice in areas such as interprovincial issues and transfer of charges, anti-terrorism, security and protection of prosecutors, law office searches, disclosure, etc.

The Committee also serves as a national advisory body on prosecution issues in Canada, providing a venue where stakeholders can consult and seek the views of the Canadian prosecution community.

The Committee meets twice a year. Each prosecution service hosts a meeting on a rotating basis, with the head of the hosting agency acting as co-chair until the next meeting. The Committee may also meet on an ad hoc or urgent basis by teleconference or videoconference. The Committee also administers the National Prosecution Awards and its annual ceremony.

Depending on the topic, outside partners can be invited. The Department of Justice Canada are frequently invited to attend meetings to get the prosecution perspective on various policy issues.

Strategic Organizational Priorities

The PPSC has four main organizational priorities for 2024-2026: Foster a Culture of Trust and Engagement; Advance Equity, Diversity, Inclusion and Accessibility in the Workplace; Take Action against Systemic Discrimination and Racism in the Criminal Justice System; and Modernize the Way we Work.

Foster a Culture of Trust and Engagement

This priority is about fostering a culture of trust and engagement, where all PPSC employees are treated with respect, dignity, and fairness. It focuses on promoting public trust in the criminal justice system by enhancing its engagement with external stakeholders and court participants.

Key activities for 2024-25 include:

Advance Equity, Diversity, Inclusion and Accessibility in the Workplace

This priority is about the organization continuing to build an accessible, inclusive, diverse, and equitable workplace environment where all employees can thrive.

Key activities for 2024-25 include:

Take Action against Systemic Discrimination and Racism in the Criminal Justice System

This priority is about the PPSC continuing to contribute to the change necessary to support a criminal justice system that is more equitable and fair to all Canadians.

Key activities in 2024-25 include:

Modernize the Way We Work

Innovation is the way forward to building an agile workforce and a modern criminal justice system. This priority is about continuing to modernize PPSC tools and procedures, as well as prosecutorial policies and practices.

Key activities in 2024-25 include:

Equity, Diversity, Inclusion and Accessibility at the PPSC

The PPSC has intensified efforts to achieve an equitable and inclusive workplace that is more responsive to the realities of people who are Indigenous, Black, from historically marginalized groups or with disabilities. The PPSC has an Advancement Centre for EDIA, which is led by our Senior Designated Official for EDIA. The PPSC also has National Councils of Employees (NCE) (Black, Indigenous, Racialized, Persons living with a disability and 2SLGBTQIA+), which are consultative groups. The initiatives described below will increase long-term employee engagement and satisfaction and ensure better representation of employment equity, diversity, inclusion and accessibility groups at all levels.

As stated in our Equity, Diversity, Inclusion, and Accessibility (EDIA) Action Plan, our EDIA Commitments are:

We remain focused on two broad but critical objectives:

Our EDIA Governance Structure is essential to our EDIA maturity. The Advancement Centre for EDIA has hosted quarterly meetings of the co-leads of our five National Councils of Employees (NCEs), as well as our 11 Regional EDIA Committees (REDIACs). Sharing information regularly with both groups, supporting their priorities and working to alleviate their concerns, is central to building trust within the organization.

Progress Related to Accessibility

Accessibility remains a priority at the PPSC.

The new Accessibility Support Centre (ASC) for employees with a disability, an injury or an illness has quickly become the centre of expertise for all matters related to accessibility and workplace adjustments. In 2024, the centre processed 104 requests, a 50% increase from the previous year.

The ASC’s vision statement is to offer comprehensive, high quality and personalized services to persons with a disability, an injury or an illness and their managers, with a clear focus on fostering a respectful workplace that values employee well-being, inclusion and belonging.

Overrepresentation and Systemic Discrimination in the Criminal Justice System

The PPSC has a key role to play in the changes needed to address systemic discrimination against and overrepresentation of Indigenous, Black, and historically marginalized people in the Canadian criminal justice system.

The initiatives described below illustrate the measures the PPSC has taken to fulfill its mandate while building trust within the different communities that make up Canadian society.

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