Chapter 4: National Security and Intelligence Activities
International security programming
Special Report on the National Security and Intelligence Activities of Global Affairs Canada

International security programming

136. The government has long recognized that Canada's national security is inextricably linked to global stability. The 2004 national security policy, Securing an Open Society: Canada's National Security Policy, outlines the government's three core national security interests: protecting Canadians at home and abroad, ensuring Canada is not a base for threats to its allies, and contributing to international security. To protect those interests, the government committed to addressing threats before they reach Canada's shores by increasing stability in fragile states, preventing the proliferation of weapons of mass destruction, and enhancing states' capacity to combat terrorism and crime. ^{Footnote 309}

137. Since the early 2000s, the Department's International Security and Political Affairs Branch has established three key stabilization and capacity-building programs. The programs primarily involve the funding of projects abroad through the provision of grants and contributions. The Peace and Stabilization Operations Program is the largest of the three. It operates with an annual budget of $150 million and has a broad mandate to deliver conflict prevention, stabilization and peace-building projects abroad. ^{Footnote 310} The Weapons Threat Reduction Program operates with an annual budget of $73.4 million and has a mandate focused on countering threats posed by chemical, biological, radiological and nuclear proliferation and terrorism. The Counter-Terrorism Capacity Building Program and the Anti-Crime Capacity Building Program (hereafter Counter-Terrorism Program and Anti-Crime Program, respectively) operate with a total annual budget of $64.5 million and have a mandate to build states' capacity to respond effectively to threats posed by terrorism and serious organized crime. The Department's authorities, activities and governance for each program are discussed below.

Peace and Stabilization Operations Program

Background and authority

138. The Peace and Stabilization Operations Program (PSOPs) is the government's main platform for conflict prevention, stabilization and peace-building abroad. The origins of the program date back to 2005 with the creation of the Stabilization and Reconstruction Task Force (START) established to address a programming gap between immediate humanitarian assistance efforts and longer-term development and security interests in fragile states. ^{Footnote 311} The program provided a standing capacity to monitor crises abroad and deliver programs using the knowledge and capability of other federal departments. Following a comprehensive evaluation of the program from 2010 to 2015, the Department replaced START with PSOPs in 2016, narrowed its mandate to focus exclusively on peace and security in fragile and conflict-affected states, established a new performance measurement framework, and developed a variety of resources to reduce corporate memory loss. ^{Footnote 312} In 2018, PSOPs obtained ongoing authorities and updated terms and conditions. PSOPs further prioritized. its efforts in its 2019-2022 strategy by identifying priority countries for comprehensive engagement, focused engagement and conflict prevention. ^{Footnote 313}

139. The Department's legal authority for PSOPs derives from the Crown prerogative. Subsection 10(3) of the Department of Foreign Affairs, Trade and Development Act (DFATD Act) further describes their mandate to "develop and carry out programs related to the Minister's powers, duties and functions for the promotion of Canada's interests abroad." ^{Footnote 314} Like all programs, the Department derives its policy authority for PSOPs from Cabinet approvals, ^{Footnote 315} and its funding authorities from Treasury Board funding decisions. ^{Footnote 316}

Mandate and activities

140. The PSOPs mandate is to contribute to improved peace, security and stability for fragile and conflict-affected states. Under this mandate, the program has both a policy and a programming function. ^{Footnote 317} Its policy function is to provide leadership on the government's peace and stabilization efforts, including through the coordination of the government's response to political crises abroad. PSOPs provides policy advice on engagement in fragile and conflict affected states to missions, geographic desks and other government departments, leads the government's implementation of the Women, Peace and Security agenda, and develops the government's policy on peace operations. ^{Footnote 318}

141. The PSOPs programming function supports peace and security efforts by funding projects and facilitating the deployment of government experts. ^{Footnote 319} Eligible PSOPs programming activities include the provision of technical advice and assistance, training programs, the provision of equipment and services, and the provision of emergency assistance. ^{Footnote 320} PSOPs delivers over $110 million in grants and contributions annually in geographic and thematic priority areas. ^{Footnote 321} Between 2016 and 2021, PSOPs supported over 250 projects, with a median cost of $1 million per project. ^{Footnote 322} PSOPs funds projects with large multilateral organizations like the United Nations Development Programme (UNDP) and smaller non-government organizations like Lawyers without Borders. It supports initiatives like the UNDP Stability Fund in Libya and Afghan National Army Trust Fund of the North Atlantic Treaty Organization. The program also deploys Canadian police and civilian experts abroad and with international organizations. ^{Footnote 323} In 2018-2019, PSOPs coordinated the deployment of Canadian police officers to peacekeeping or peace support operations or bilateral missions, including in Haiti, Ukraine, and Mali; and 17 civilian experts to support allies' stabilization efforts in Syria and Afghanistan. ^{Footnote 324}

Governance

142. The governance structure for PSOPs activities comprises policies, procedures, oversight committees, and regular program monitoring and review. The program's terms and conditions serve as its central policy and procedures document. They outline the program's objectives, the criteria for eligible projects and funding recipients, and the maximum program expenditures. ^{Footnote 325} The document also describes the project approval process, and the financial and performance reporting requirements. ^{Footnote 326} Given the high-risk environment in which PSOPs-funded projects take place, the program has also developed a risk management framework and risk management guide to assess each project proposal in areas like reputation or security risks. ^{Footnote 327}

143. Three separate advisory groups provide oversight of PSOPs activities. The PSOPs Advisory Board is an interdepartmental forum held at the director general-level that consults and provides feedback on PSOPs policy, programming and priorities, and that discusses strategic policy objectives. ^{Footnote 328} The PSOPs Policy Board addresses issues related to strategy, policy, development and planning at the program level. Finally, the PSOPs Program Accountability Team endorses projects and confirms their alignment with PSOPs mandate and priorities.

144. PSOPs activities are assessed against a comprehensive performance measurement framework and are subject to regular evaluations and audits. The program is subject to Treasury Board's Policy on Results, which requires that departments establish performance information profiles detailing the program's objectives, expected outcomes and performance indicators. ^{Footnote 329} PSOPs developed its most recent performance information profile in March 2019. ^{Footnote 330} The Department also has a legal obligation under the Financial Administration Act toconduct reviews of ongoing programs every five years. ^{Footnote 331} PSOPs underwent a progress review in October 2018 and a formal evaluation of the program is scheduled to be completed by 2024. ^{Footnote 332} The program also produces an annual report on its results and activities, including its policy leadership and advocacy, programming, and deployment results. PSOPs program activities are included in GAC's annual Departmental Results Report. ^{Footnote 333}

Weapons Threat Reduction Program

Background and authority

145. The Weapons Threat Reduction Program is Canada's contribution to the G7 Global Partnership against the Spread of Weapons and Materials of Mass Destruction (the Global Partnership). ^{Footnote 334} In 2002, leaders at the then GS Summit established the GS Global Partnership as a 10-year initiative to address the threat posed by weapons of mass destruction to non-state actors and states of proliferation concern. ^{Footnote 335} While the initiative's initial focus was on Russia and countries of the former Soviet Union, GS leaders expanded its mandate at a summit in 2011 to encompass all countries that possess weapons of mass destruction or related materials and do not have the capacity to secure them. ^{Footnote 336} In 2018, the Global Partnership expanded its mandate to also support specific conventional arms regimes: the Arms Trade Treaty and the Anti-Personnel Mine Ban convention. ^{Footnote 337}

146. The Department's legal authority for this program derives from the Crown prerogative. Subsection 10(3) of the DFATD Act further describes the Minister's mandate to "develop and carry out programs related to the Minister's powers, duties and functions for the promotion of Canada's interests abroad." ^{Footnote 338} The Department derives its policy authority for this program from a number of Cabinet approvals, notably in June 2009, March 2012 and December 2016. ^{Footnote 339} Its funding authorities derive from two Treasury Board approvals dating from February 2011 and January 2018. ^{Footnote 340}

Mandate and activities

147. The Program's mandate is to reduce the threat posed by the proliferation and use of weapons of mass destruction and certain conventional weapons. The Program pursues this mandate through the funding of projects designed to address threats posed by weapons of mass destruction and to strengthen international non-proliferation regimes. GAC's Weapons Threat Reduction Program Division manages programming across five priority areas: Nuclear and Radiological Survey; Biological Security; Chemical Weapons; Conventional Weapons; and United Nations (UN) Security Council Resolution 1540, which aims to prevent non-state actors from acquiring weapons of mass destruction. ^{Footnote 341}

148. The program funds projects across a wide range of issues in partnership with domestic partners, allies and international organizations. Funded projects include needs assessments, provision of training or technical assistance, infrastructure improvements and awareness-raising activities on proliferation threats. ^{Footnote 342} Between 2015 and 2021, the program funded over 220 projects with a median cost of $625,000 per project. Initiatives funded during the review period include nuclear monitoring and verification activities in North Korea and COVID-19 vaccine research and development. ^{Footnote 343} The program works with domestic and international partners, including the Canada Border Services Agency (CBSA) and the U.S. Department of Energy, and international organizations like the International Atomic Energy Agency. ^{Footnote 344}

Governance

149. The governance structure for the program comprises policies, procedures, and regular program monitoring and review. The program's terms and conditions form the program's policies and procedures. ^{Footnote 345} They describes the program's objectives and performance indicators, the criteria for eligible projects and recipients, and details on expenditures. ^{Footnote 346} The document also describes the project proposal, assessment and approval process, and lays out the reporting requirements for recipient organizations, including requirements for progress reports and final reports on the project's successful implementation. ^{Footnote 347} Other documents detail the roles and responsibilities of project leaders, funding recipients and senior management throughout the project proposal review, approval, implementation and conclusion phases. ^{Footnote 348}

150. Programming priorities undergo regular review domestically and as part of the broader G7 initiative. The Global Partnership Working Group meets twice annually to assess threats posed by weapons of mass destruction, and to establish programming priorities. ^{Footnote 349} Canada has co-chaired several working groups over the course of its participation in the Global Partnership, including the working group on chemical security in 2016 and the working group on biological security in 2018. ^{Footnote 350} The program itself conducts annual priority review exercises to validate and update its programming priorities. As part of this review, the program consults relevant GAC stakeholders and other government departments, including DND/CAF, CBSA, RCMP, the Public Health Agency of Canada and Natural Resources Canada. ^{Footnote 351} The program formalized and strengthened its priority-setting process in 2018 in response to recommendations from an internal program evaluation. ^{Footnote 352} In line with the Department's obligations under the Financial Administration Act, the program is subject to regular internal evaluation and audit, most recently in 2017. ^{Footnote 353} The program's activities and programming results are also included in GAC's Departmental Plan and ann ual Departmental Results Report. ^{Footnote 354}

Counter-Terrorism Capacity Building and Anti-Crime Capacity Building programs

Background and authorities

151. The Counter-Terrorism and Anti-Crime Capacity Building programs were established in recognition of the threat posed by international organized criminal and terrorist activities to the security and prosperity of Canadians. The Counter-Terrorism Program was established in 2005 under the government's 2004 national security policy, Securing an Open Society: Canada's National Security Policy. The government provided the Counter-Terrorism Program with a global mandate to assist states in building capacity to counter terrorist activity. ^{Footnote 355} In 2010 and 2016, the government provided additional funding for programming in the Sahel region of Africa and the Middle East and North Africa, through the Sahel Envelope and the Middle East Strategy. ^{Footnote 356} The Anti-Crime Program was established in 2009 to address national, regional and international security threats posed by criminal activity, with a particular focus on programming in the Americas. ^{Footnote 357} The government provided additional funding under the Anti-Crime Program in 2012 to support the prevention of and response to human smuggling ventures destined for Canada.

152. The Department's legal authority for these two programs derives from the Crown prerogative. Subsection 10(3) of the DFATD Act further describes the Minister's mandate to "develop and carry out programs re lated to the Minister's powers, duties and functions for the promotion of Canada's interests abroad." ^{Footnote 358} Like all programs, the Department derives its policy authority for both programs from Cabinet approvals, and its funding authorities from Treasury Board funding decisions.

Mandate and activities

153. GAC's International Crime and Counter-Terrorism section manages the Counter-Terrorism and Anti-Crime programs. The programs' overarching purpose is to build the capacity of states that lack the resources or expertise to address organized criminal and terrorist activity. In doing so, the programs aim to increase the security of Canadians and Canadian interests. Both programs fund projects in concert with domestic and international partners. The programs pursue their objectives by funding capacity-building projects abroad, in coordination with domestic and international partners, including federal departments, foreign governments and non-governmental organizations. ^{Footnote 359}

154. The Counter-Terrorism Program operates with an annual budget of $21 million. ^{Footnote 360} The program's mandate is to assist states in building their capacity to prevent and respond to terrorism through the provision of training, equipment, funding, and legal and technical assistance. ^{Footnote 361} The program provides assistance in six thematic areas: border, transportation and critical infrastructure security; legislative assistance; law enforcement, security, military and intelligence; terrorist financing; countering violent extremism and foreign terrorist fighters; and countering improvised explosive devices. ^{Footnote 362} Between 2015 and 2020, the Counter-Terrorism Program funded over 130 projects, with a median cost of $500,000 per project. ^{Footnote 363} Implementing partners include DND/CAF, ***, the RCMP, INTERPOL, the UN Office of Counter-Terrorism and the World Bank. Examples of Counter-Terrorism Program projects include open source intelligence training *** and countering violent extremism programming *** in collaboration with the UN Educational, Scientific and Cultural Organization. ^{Footnote 364}

155. The Anti-Crime Program operates with an annual budget of $26 million. ^{Footnote 365} The program provides assistance in six thematic areas: illicit drugs; corruption; human trafficking and migrant smuggling; money laundering; security system reform; and crime prevention (including cyber crime). ^{Footnote 366} Programming focuses primarily on projects in the Americas and, under its Human Smuggling envelope, in Southeast Asia and West Africa. The funding envelope consists of $14 million for the overall program, $8.5 million for human smuggling and an additional $3.5 million earmarked for contributions to the Organization of American States and the UN Office on Drugs and Crime. Examples of projects funded under the Anti-Crime Program include the Intelligence Management and Operation Course to Combat Illegal Migration in Asia *** and the Enhancing Capacity of West African Law Enforcement to Prevent Human Smuggling in cooperation with INTERPOL. ^{Footnote 367}

Governance

156. The Counter-Terrorism and Anti-Crime programs' governance structure includes a combination of procedures, oversight, monitoring and evaluation. The programs' terms and conditions are the principal guiding document. They define the programs' objectives, expected outcomes and pe rformance indicators. They outline the types of projects that can be funded and the maximum amounts payable for each project annually. ^{Footnote 368} Finally, they lay out the project application and review process, and reporting requirements. ^{Footnote 369} The terms and conditions specify that projects are assessed based on their eligibility under the terms and conditions, the complexity of the project, the risks and the percentage of Canadian funding.

157. The programs' governance is supported by a two-tiered committee structure that provides strategic direction and oversight of project approvals. The first tier is a director general steering committee chaired by GAC that provides strategic direction, ensures the programs' alignment with government priorities related to counter-terrorism and anti-crime, and reviews the programs' annual performance. A second tier of review committees - one for the Counter-Terrorism Program and one for the Anti-Crime Program - support the director general steering committee. These review committees focus on the operational matters related to the implementation and delivery of the two programs, and are responsible for reviewing and endorsing project proposals. The steering committee includes directors general representing all federal departments with a direct mandate to address international crime and terrorism, including CSIS, CBSA, the RCMP and DND/CAF, whereas the review committees include directors and working-level officials from these same organizations. ^{Footnote 370}

158. The programs are subject to regular review. They conduct an annual priority-setting exercise, in consultation with government partners, to ensure activities are aligned with Canada's policies, practices, and national security and foreign policy interests. During this exercise, program officials consult stakeholders within the Department and across the government to determine priorities for the upcoming three years. Those priorities are assessed based on considerations of existing foreign policy priorities, threats and risks to Canadian interests, the efficacy of capacity-building programs in addressing those threats, the ability to coordinate with key allies, and the ability of the recipient state to implement capacity-building programming. ^{Footnote 371} The programs are subject to Treasury Board's Policy on Results and they developed their most recent performance information profile in March 2022. ^{Footnote 372} The programs are also subject to regular internal audit and evaluation; the most recent was in 2016. ^{Footnote 373}