2024–2025 Annual Report on the Private Security and Investigative Services Branch

Message from the Solicitor General

Reflecting on this past year, I am proud of the critical role the private security and investigative services industry continues to play in helping protect Ontario’s people, property, and businesses.

This year, my ministry advanced its commitment to protect Ontario by modernizing and improving services for the private security and investigative services industry. We streamlined the licensing process for security guards, making it more accessible and efficient, including expanding eligibility so both private businesses and police services can provide police record checks. These improvements make the process faster for applicants while maintaining the integrity of the checks.

To further protect Ontarians, we introduced a new mobile-friendly public complaints portal. This tool makes it easier to submit and track complaints, strengthens oversight and provides valuable information to help build a stronger and more accountable industry.

Looking ahead, our government remains steadfast in its mission to protect Ontario. Through innovation and close collaboration with industry partners, we will strengthen public safety, support the private security and investigative services sector, and safeguard the well-being of communities across the province.

Signature

Signed in original

Hon. Michael S. Kerzner
Solicitor General of Ontario

Message from the Registrar

I am pleased to present the Ministry of the Solicitor General’s Private Security and Investigative Services Branch 2024-25 Annual Report. This report provides the public and industry partners with an overview of Ontario’s private security and investigative services industry, celebrates key achievements and outlines our strategic efforts to address industry challenges and modernize our regulatory framework.

The private security and investigative services industry continued to grow in 2024-25, increasing in size by 2 per cent across all licence categories. While the growth of the industry has slowed compared to last year, it highlights the sector’s enduring vitality and reinforces the importance of maintaining a strong regulatory framework while addressing both legacy and emerging challenges.

This year, the ministry launched a new public complaints portal, which complements the existing email and phone channels already available to the public. With an intuitive, mobile-friendly interface, the portal allows the public to submit their complaints efficiently and monitor their status from start to resolution. This initiative builds upon the licensing and public registry portals introduced last fiscal year and demonstrates the ministry’s commitment to digitize public services and enhance transparency and accessibility in service delivery.

In addition to driving digital advancements, the ministry has maintained a strong focus on compliance and regulatory modernization, including through collaborative industry engagement. At the same time, targeted inspection efforts have significantly contributed to enhancing the quality of training across the industry. These efforts affirm the ministry’s commitment to maintaining a robust and effective regulatory environment.

I offer my gratitude to every professional within the industry whose efforts help protect Ontario. Looking ahead, we remain committed to pioneering innovative and responsive regulatory practices to meet the dynamic needs of the private security and investigative services industry in Ontario.

Signature

Signed in original

Catherine McLinden
Director/Registrar
Private Security and Investigative Services Branch

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 includes security guards and private investigators, agencies that sell or retain their services and businesses that directly employ them. PSISB serves as 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 outlines the legal and regulatory framework governing Ontario’s private security and investigative services industry. In alignment with the ministry’s public safety mandate, PSISB oversees 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

An appointed registrar oversees the regulation of the industry, supported by staff responsible for licensing, inspection, investigation, program development and other operational functions.

Regulating an evolving industry

Driven by a commitment to continuously improve and respond to industry needs, the ministry regularly evaluates the effectiveness of the PSISA, as well as its program policies, to identify gaps and opportunities for improvement.

In November 2024, as part of the Safer Streets, Stronger Communities Act, 2024, the ministry committed to examining opportunities to engage on and modernize the PSISA.

Between November 2024 and January 2025, the ministry conducted consultations on proposed targeted regulatory amendments through the Ontario Regulatory Registry and direct stakeholder engagement. The consultations focused on proposed regulatory amendments aimed at:

• enhancing use of force reporting by requiring licensees to report incidents to the registrar within 30 days
• updating uniform requirements to ensure security guard uniforms are clearly distinguishable from police uniforms, with consideration for potential exemptions in sensitive settings such as long-term care homes
• updating vehicle requirements to ensure private security vehicles are easily distinguishable from police vehicles

The sector will continue to be engaged to make sure industry challenges and perspectives are considered, while upholding the ministry’s public safety mandate.

The industry at a glance

As of March 2025, the regulated industry was comprised of:

• security guards: 96.2%
• private investigators: 1.4%
• dual (security guards and private investigators): 1.4%
• licensed agencies and registered employers: 1%

While the private security and investigative services industry continues to grow, its growth rate has noticeably slowed compared to previous years. Over a three-year period, the industry has grown by 2% across all licence categories, compared to 16% in 2023-24 and 13% in 2022-23. PSISB is monitoring this trend. Recent changes to federal policies, among other factors, are also being examined for their potential influence.

The industry workforce

Licensing requirements

Individuals seeking a security guard or private investigator licence must complete mandatory training following the ministry’s legislative and regulatory requirements. Once training is completed, individuals are required to take a final examination and pass. To be eligible to apply for a licence, individuals must:

• be 18 years of age or older
• be legally entitled to work in Canada
• have a clean criminal record (have not been convicted of any offences listed in the PSISA and have not received a pardon or record suspension)
• have a valid criminal record and judicial matters check (CRJMC)

Employment and demographic trends

According to data from the Government of Canada^{footnote 1[1]}:

• 53% of the industry workforce is based in Toronto, while most job postings are concentrated in southwestern and northern Ontario
• 77% of those employed in the industry work full-time, while 23% work on a part-time basis
• 59% work year-round, while 41% work on a seasonal basis
• less than 5% are self-employed individuals, in contrast to the 15% observed among all occupations in Ontario
• 25% of the industry workforce are woman, compared to 48% for all occupations

Education levels among professionals within the industry vary as follows:

• 31% of those employed in the industry hold a high school diploma or equivalent
• 7% have completed an apprenticeship or trades certificate or diploma
• 31% hold a college certificate/diploma or certificate below a bachelor’s degree
• 18% hold a bachelor’s degree
• 7% have a university certificate, degree, or diploma above bachelor level
• 6% do not have a high school diploma

Income prospects

According to available labour market information, the median income for security guards, private investigators and related security service occupations in Ontario is $19.00 per hour (an increase of $1.44 from 2023-24) compared to $20.00 across Canada.^{footnote 2[2]}

The hourly wage for those in the profession across Ontario and Canada, as of the third quarter of 2024, was as follows^{footnote 3[3]}:

Employment outlook

According to labour market information,^{footnote 4[4]} the three-year employment outlook for security guards, private investigators and related security service occupations in Ontario for 2024-2026 will be “moderate”, which is the same as last year. This is due to the following factors:

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

The three-year employment outlook ratings for regions across Ontario and Canada for 2024-2026 are as follows:

Program highlights

Training and testing

Training and testing are critical components of the private security and investigative services industry. Both training and testing are designed to provide individuals entering the industry with the essential knowledge and skills needed to perform 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 have completed emergency first aid training prior to initial licensure.

Training can be provided by the following:

• public universities
• community colleges
• career colleges
• agencies licensed to sell the services of security guards or private investigators
• registered employers that employ in-house security guards

To ensure training entities meet ministry standards, the ministry has continued its targeted inspection campaign of training programs that began in December 2022. At that time, 331 training entities were enrolled with the ministry. That number has dropped to 181 as of March 31, 2025, a decrease of 45%, as a result of the ministry’s compliance enforcement efforts. These efforts have enhanced overall training program quality across the province and ensured a more skilled and prepared workforce.

Testing overview

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

Key facts and figures

In 2024-25, a total of 60,520 tests were conducted online and in-person for security guards and private investigators. Of the total, 87% of test takers passed in 2024-25, representing no change in the passing rate for security guard and private investigator tests compared to 2023-24.

In 2024-25, the number of security guard tests conducted decreased by 21%, while the number of private investigator tests conducted increased by 59%, compared to 2023-24.

The overall trend in the number of tests conducted in 2024-25 indicates a slowing of growth in the industry. Testing has decreased by 20% this year compared to a 27% increase in 2023-24 and a 37% increase in 2022-23.

In 2024-25, 82% of tests were conducted online, a decrease of 1% from last year. In comparison, in-person testing experienced a 1% increase.

The top three testing centres are in Toronto, Mississauga and Ottawa.

Licensing and registration

Since 2014, the ministry has partnered with ServiceOntario to process licence applications and offer customer support for the private security and investigative services industry. ServiceOntario processes applications for security guard and private investigator individual and agency 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. Individuals may renew their licence up to 90 days before the licence expires.

Key facts and figures

A total of 376 registrations from registered employers, including new and renewed, were received in 2024-25, of which 79% were approved.

A total of 115,384 individual and dual, security guard, private investigator and agency licence applications were received in 2024-25, representing an increase of approximately 9% compared to 2023-24. In the same period, the PSISB issued a total of 101,618 individual and agency licences, an increase of approximately 2% compared to 2023-24.

In 2024-25, there was a total of 168 security guard agency licences issued, reflecting a 22% decrease compared to last year. The number of private investigator agency licences issued increased by 3% compared to last year, with 64 licences being issued. The number of dual agency licences issued was 42, a decrease of 4% 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.

Enhancing licensing and registration efficiency

In 2024-25, PSISB continued its efforts to modernize the licensing and registration process to evolve along with the needs of applicants.

Following a change in federal policy, applicants have been required to obtain and submit their own CRJMC since February 2024.

In response to industry feedback, the strong integration between police services and third-party providers issuing CRJMCs, and the ease of obtaining an online third-party police record check, PSISB began accepting CRJMCs from authorized third-party providers in July 2024.

Expanding access to allow individuals to obtain and submit online CRJMCs aligns with the ministry’s commitment to modern, responsive, flexible and digitally accessible service delivery, and has resulted in fewer returned CRJMCs, while preserving the integrity and reliability of CRJMCs.

Licence application processing service standards

In 2024-25, there was a significant decrease in the proportion of individual online and mailed licence applications processed within service standard targets. This decrease is attributable to technical issues experienced with the adoption of the new licensing system between April 1 and July 10, 2024, which, along with the new requirement for applicants to submit their own CRJMCs, caused delays in the processing of applications and issuing of licences. PSISB worked with the appropriate ministry and service delivery partners to address the technical challenges and restore the prompt processing of licence applications. As a result, service standards have been met from July 2024 onwards.

Public complaints

Anyone may submit a complaint against a security guard, private investigator or licensed security guard agency, or private investigator agency if they suspect non-compliance with the PSISA or its regulations. Violations of the PSISA may lead to actions such as licence revocation and suspension, the filing of charges and the imposition of remedial conditions on a licence.

PSISB evaluates all complaints and uses its discretion to determine the most appropriate course of action. Depending on the characteristics of the complaint, next steps could include:

• referral to regulatory partners including a police service
• inspection if the complaint involves an agency
• referral of code of conduct violations for facilitation
• investigation of a breach of the PSISA or licence conditions
• dismissal if deemed to be frivolous, vexatious or not made in good faith

This approach ensures all complaints are thoroughly reviewed and addressed in a fair and timely manner.

Key facts and figures

PSISB received 292 public complaints in 2024-25, representing a 22% increase compared to 2023-24.

A majority of the code of conduct violations reported involved allegations around the use of profane, abusive or insulting language, or actions that are otherwise uncivil to a member of the public.

Public complaints portal

In April 2024, PSISB advanced its commitment to modernizing services by launching its public complaints portal. While complaints can still be submitted by email or phone, since April 2024, people can submit complaints on mobile devices and track the progress of their complaint from submission to resolution.

As a result of this initiative, complaint forms emailed to PSISB fell by 9% in Q2 (July-September 2024) compared to Q1 (April-June 2024) while complaints submitted through the online portal increased by 32%, reflecting growing public adoption of the new platform. Over the course of 2024-25, 39% of all complaints were submitted through the public complaints portal.

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

To ensure adherence to legislative and regulatory requirements, PSISB routinely performs compliance checks at locations employing security guards, as well as inspections and investigations of licensed security guard and private investigator agencies and individual licensees. The Registrar or Deputy Registrar has the authority to 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 in 2024-25, the compliance inspections team conducted five presentations on the PSISA and PSISB for businesses, law enforcement and municipalities.

By focusing on the industry’s top compliance issues, including uniform and licensure requirements, these informational sessions offered actionable guidance that helped participants understand and apply the requirements of the PSISA and its regulations effectively. This proactive compliance activity promotes a culture of continuous improvement and enhances the quality of service delivered across the industry.

Compliance activities in the entertainment sector

In 2024-25, PSISB’s compliance inspection team conducted 10 joint inspections in coordination with 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 partners to be more aware of and better understand the PSISA, resulting in better identification and focus on specific areas or locations of concern, such as those affected by serious shootings, violence and issues with security staff, for additional cooperative action.

Industry compliance rate and compliance activities

In 2024-25, the industry’s rate of compliance among licensed agencies was 60%, a 6% increase when compared to 2023-24. A total of 892 compliance checks were conducted, with all compliance activities including inspections decreasing by 5% when compared to 2023-24.

The increase in the rate of compliance among licensed agencies observed this year can be attributed to the success of the targeted inspection campaign, as well as the education efforts and proactive work completed by PSISB’s inspection team.

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 12% decrease in PONs laid.

Suspensions and revocations

Under the PSISA, the Registrar or Deputy Registrar have the authority to suspend or revoke a licence if an individual or agency violates the PSISA or its regulations.

In instances where a licence has been suspended or revocation is being considered, the affected individual or agency may appeal the decision through a formal hearing with the Registrar or Deputy Registrar. This process provides individuals and agencies with an opportunity to review the evidence that led to the initial licensing decision and present additional evidence supporting their continued eligibility to hold a licence.

In 2024-25, there were three suspensions of individual licences as a result of charges related to offences listed under the PSISA, as well as alleged participation in hate-related incidents. Additionally, there were nine individual licence revocations, three of which involved charges for offences listed under the same regulation and two agency licence revocations.