Important Issues – Emergency Management

Table of Contents

Introduction

Canada's emergency management (EM) system is rooted in the need to coordinate a wide array of resources, stakeholders, and activities across an all-hazards landscape to effectively address the different phases of disaster response, including prevention/mitigation, preparedness, response, and recovery. This coordination involves not only governmental agencies but also non-governmental organizations, private sector entities, and the general public. The whole-of-society approach emphasizes the importance of collaboration and integration among all sectors of society to build resilience, enhance response capabilities, and ensure that communities can recover swiftly and sustainably from emergencies.

Public Safety Canada (PS) plays a leadership role in Canada's EM system by coordinating EM activities among federal institutions and in cooperation with the PTs and other entities. PS strengthens emergency responder capacity through targeted initiatives and programs designed to enhance preparedness, coordination, and resource availability. Through the Government Operations Centre (GOC), it leads the coordination of the federal response coordination among departments for events affecting the national interest and manages Requests for Federal Assistance (RFAs), which any province or territory may submit to the federal government to provide support in response to an emergency event that escalates beyond their capabilities. PS provides financial assistance to provincial and territorial (PT) governments through programs such as Disaster Financial Assistance Arrangements (DFAA), as well as a number of other initiatives aimed at mitigating disaster risks to help Canadians and their communities protect themselves from future emergencies.

Emergency Management Leadership (Governance, Engagement)

Climate change and the growing frequency of floods, wildfires and other environmental, natural, and human-induced disasters are leading to significant increases in the rate of occurrence, severity and cost of disasters in Canada. Response and recovery has cost the federal government over $9 billion through the DFAA since 1970, with over $5 billion in outstanding liabilities. Approximately 65% of these costs have been incurred in the last 10 years alone. As such, the leadership role that PS plays in Canada's EM system is becoming increasingly important in order to ensure an all-hazards and whole-of-society approach to strengthening Canada's resilience. There are many links between EM, disaster risk reduction, climate change adaptation, national security, and physical and economic resilience which are fostering discussions beyond traditional EM circles.

Emergency Management Framework and Strategies

The EM Framework for Canada aims to guide and strengthen the way governments and partners assess risks and work together to prevent/mitigate, prepare for, respond to, and recover from the threats that pose the greatest risk to Canadians. The Framework aligns with key international agreements to advance disaster risk reduction priorities including the United Nations Sustainable Development Goals, and in strategically building Canada's autonomous capacity for addressing domestic EM needs. Building on this foundation, the EM Strategy for Canada was approved by federal, provincial and territorial (FPT) Ministers responsible for EM and established five FPT priorities to strengthen the resilience of Canadian society by 2030:

Both the Framework and Strategy guide FPT EM cooperation and policy in Canada [REDACTED]. This work will continue to align with related and complimentary work such as that of the National Adaptation Strategy.

Federal, Provincial, and Territorial Emergency Management Engagement

Senior Officials Responsible for EM (SOREM): FPT engagement occurs through SOREM, which is responsible for coordinating a strategy for EM in Canada and for providing guidance and advice on how to enhance EM in Canada. The group typically meets on a monthly basis to identify priorities, key activities and funding requirements for those activities and make recommendations in that regard to the standing forum of FPT Deputy Ministers (DMs). It supervises the work of several FPT working groups (e.g.: the Public Alerting Working Group, EM Strategy Working Group, etc.).

FPT DM and Ministers Responsible for EM: FPT engagement also occurs at the DM and Ministerial levels, with the objective of fostering co-operation/discussion amongst governments with respect to EM in Canada. Meetings at both levels occur once a year, with the objectives of bringing forward items for decision and providing recommendations and direction to SOREM on files considered to be of shared priority within EM.

FPT DMs last met virtually in January 2025 to discuss lessons learned from the 2024 hazard season and to prepare for upcoming FPT Ministerial meetings. FPT Ministers last met in person in Ottawa, in February 2024. This meeting was directly preceded by one between FPT ministers and National Indigenous Organizations on shared priorities and strengthening Indigenous EM.

International Engagement

The Emergency Management and Programs Branch (EMPB) within PS engages with key like-minded international partners in the area of EM, including multilaterally where it has had longstanding relationships (such as with the United Nations Office for Disaster Risk Reduction) or with a limited role (Group of 20, and Group of 7 (G7)).

EMPB has developed a number of Memoranda of Understanding (MOUs) with key allies, which enable PS and partners to share best practices, lessons learned, and hold technical exchanges. Currently, we have four established arrangements with Australia, New Zealand, the United States (US) and the European Union (EU).

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Government Operations Centre and Current Operational Priorities

The GOC, on behalf of the Government of Canada, serves as the national-level coordination hub for the federal government's response to all-hazard events of national interest. It works in close collaboration with federal organizations, non-governmental organizations and provincial EM partners.

Canada's EM system is rooted in shared responsibilities across FPT, municipal governments, Indigenous communities, and private stakeholders. This collaborative model, guided by the Emergency Management Act (EMA) and operationalized through the GOC and the Federal Emergency Response Plan (FERP), is designed to address emergencies of all scales. The DM of Public Safety is the Federal Coordination Officer and lead Federal official under the FERP for national crises.

Each level of government plays a critical role, ensuring localized responses while enabling federal support during large-scale or multi-jurisdictional events. This decentralized approach fosters adaptability, but it also reveals challenges when facing increasingly complex emergencies.

Within this construct, the GOC is largely responsible for two of key EM pillars: preparedness and response. The GOC is responsible for both proactively strengthening Canada's ability to face emergencies through preparedness activities (e.g.: national level planning, integrated risk assessments, exercise program, situational awareness) and for leading and coordinating the federal government response when those emergencies occur (e.g.: co-ordination response efforts, facilitating resource allocation, strategic decision support).

Collaborative Governance is a key aspect of Canada's system. It leverages the strengths of diverse stakeholders, ensuring local expertise is central to emergency responses. The GOC does not direct or control any Federal or Provincial entity under the EMA or the FERP. Strategic efforts to render the system more integrated, balanced and responsive are underway across the entire policy suite.

The current system has served Canada well over many years, but disasters are expanding in scale and scope. The increasing frequency and intensity of Western Canadian wildfires have become a recurring event requiring significant federal financial aid and the deployment of the Canadian Armed Forces (CAF) for logistical support and evacuations. The reliance on international firefighters during peak seasons further exemplifies the stretched national resources. Major flooding events, such as those experienced in various provinces in recent years, have triggered substantial federal disaster relief funding and coordination efforts to support affected communities. [REDACTED]

A clear trend has been observed, towards greater reliance on the federal government for financial support, coordination, and resource mobilization. Simultaneously, the need for international assistance, particularly in managing large-scale events like wildfires, is also increasing, highlighting the interconnectedness of global emergency response networks.

The GOC is under pressure. On one hand, the frequency and intensity of natural disasters engaging federal response capacity are increasing. At the same time, the federal system is looking to the GOC to be engaged in an ever-broader range of issues, expanding the historic mandate and purview. The FERP is due for review and renewal. The role and resourcing of the GOC will need to be part of that process.

2025 Flood and Wildfire Forecast (Early Look)

The GOC continues to monitor flooding risks throughout the flood season to inform preparedness activities and activate federal response when required. While some flood risk is already emerging across the country as regions such as Atlantic Canada manage potential heavy rain and warming temperatures, the season is not expected to be severe and most events should be well managed at by local and PT governments. The GOC continues to maintain its 24/7 situational awareness to respond to emerging situations as necessary.

Overall, the scientific indicators paint a picture of heightened wildfire risk for the 2025 season. The combination of persistent drought conditions, potential for early snowmelt, and forecasted above-normal temperatures creates a conducive environment for wildfire development and spread. Western Canada, particularly British Columbia, Alberta, and adjacent regions of the Northwest Territories, face elevated risks due to ongoing drought.

The threat of holdover fires re-emerging from previous seasons adds another layer of complexity to the outlook. Climate change continues to amplify these risks, suggesting that intense fire seasons may become more frequent in the coming years.

While the exact severity of the 2025 season will depend on short-term weather patterns and human factors, the overall trend points towards an above-average fire season.

Key considerations:

G7 Safety and Security Planning and Exercise Approach

Canada assumed the Presidency of the Group of Seven (G7) and will organize the Leaders' Summit to be held in Kananaskis from June 15, 2025, to June 17, 2025. This will mark the highest-profile multinational event to take place in Canada in 2025, and will include participation from 70 official guests (leaders of G7 countries, invited outreach countries, key figures of international organizations such as the EU) as well as 2000 delegates, journalists, Global Affairs Canada's (GAC's) Summit Management Office (SMO) employees, and thousands of safety and security personnel.

GAC, the Royal Canadian Mounted Police (RCMP) and PS hold responsibilities related to each of the pillars of G7 Planning:

The GOC will support PS as the primary agency responsible for safety throughout Canada's G7 Presidency via operational planning and exercise support.

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Borders

[REDACTED] As the lead for federal response coordination for emergency events, the GOC is working to support to Canada Border Services Agency/RCMP in the enhancement of border activities and RFA coordination to leverage existing federal capabilities, specifically the CAF or our Humanitarian Workforce Program (HWF).

These efforts are aligned to and complementary to the efforts that are ongoing to address fentanyl and illegal southbound immigration.

Strengthening Pan-Canadian Response Capacity and Support for First Responders

Emergency Communications for First Responders and Public Awareness

Two pressing and solvable issues related to emergency response capability relate to communications. The first is how the public is notified in the case of an emergency event. The National Public Alerting System, publicly known as Alert Ready, warns the public of imminent or unfolding hazards through cell phones, television and radio is an important tool for Canadians. [REDACTED]

The second issue relates to the Public Safety Broadband Network, which involves reserving telecommunication spectrum for emergency communications during times of crisis. This is an essential requirement for first responders. [REDACTED]

Humanitarian Workforce Program

While PS itself does not own deployable assets or response capabilities, it is recognized that some circumstances require the deployment of "boots on the ground" apart from the engagement of the CAF. Through the HWF Program, PS funds the capacity development and the deployment of five national humanitarian organizations. They are the Canadian Red Cross, the Salvation Army, St. John's Ambulance, the Search and Rescue Volunteer Association of Canada, and Team Rubicon. [REDACTED]

Search and Rescue

Search and Rescue (SAR) is an essential function of EM. PS provides federal leadership to strengthen and coordinate this life-saving capability. To do this, the National Search and Rescue Secretariat leads the development and management of national SAR policies and programs in collaboration with other federal partners through the Interdepartmental Committee on SAR (ICSAR) (e.g.: CAF, Canadian Coast Guard, Parks Canada, RCMP), PTs through the Ground Search and Rescue Council of Canada (GSARCC), and other parties such as the three national SAR volunteer associations. PS is the Chair of ICSAR, and provides secretarial support to, and participation on GSARCC and the Volunteer SAR Council. PS co-chairs the Urban SAR Advisory Committee of SOREM.

This work spans the full spectrum of EM (i.e.: prevention, preparedness, response, and recovery). For example:

PS is currently leading efforts to improve the coordination of SAR amongst key FPT and local stakeholders in the North and Arctic regions.

Search and Rescue Satellite Aided Tracking

The ICS Programme is the international program that provides space-based monitoring and detection of over two million distress alert beacons carried on all International Civil Aviation Organization aircraft, all International Maritime Organization vessels subject to the Safety of Life at Sea convention and by hundreds of thousands of individuals operating in remote locations. Canada, as one of the original developers of the system, is one of four Parties to the ICS Programme Agreement and is responsible, along with the other three Parties (France, the US and Russian Federation (COSPAS is the Russian SARSAT)) for the administration and oversight of the 45-member state international organization. Canada is currently in the chairmanship of the organization.

PS is the designated cooperating agency to the ICS Programme and as such is responsible for the oversight of Canada's obligations under the agreement. It also appoints Canada's Permanent Representative to the ICS Programme. However, Canada's involvement is multi-departmental. Transport Canada is responsible for distress beacon carriage regulations, Industry Science and Economic Development Canada regulates within Canada the frequencies used by the Programme, multiple departments use the alert data and the Department of National Defence owns and operates the Canadian COSPAS-SARSAT infrastructure.

No action is required at this time. We will keep you apprised of progress as the new system is operationalized.

Post-Traumatic Stress Injuries in Public Safety Personnel

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Mitigating Disaster Risks

Integrated Flood Risk Management

Integrated flood risk management (IFRM) is a systems-based framework that promotes sustainable, long-term flood resilience by combining social, economic, financial, environmental, and institutional solutions. In essence, it manages the risk posed by floods to an acceptable and affordable level, rather than seeking to control the physical waters from floods of all magnitudes of floods.

Aspects of the IFRM are underway through advancing several flood risk reduction initiatives:

PS has developed data science and engineering capacity to provide technical expertise and conduct high quality risk assessments based on cutting-edge data, models, and analytical methods. The technical expertise and analysis are used to support public safety initiatives, and inform government-wide understanding of flood risk (e.g.: Bank of Canada and Office of the Superintendent of Financial Institutions).

Implementation of the new Disaster Financial Assistance Arrangements

Climate change-driven hazards, such as floods and wildfires, are increasing in frequency and cost, posing significant threats to Canadian communities and businesses. More importantly, federal support for disaster recovery has done little to date to incentivize the rebuilding of resilient homes and infrastructure – it is literally possible to compensate repeatedly to rebuild the same flood-prone home. After extensive consultation with PT partners, a modernized DFAA program came into effect on April 1, 2025.

The new program has a strong focus on disaster resilience and climate adaptation and improves supports for those who experience disproportionate disaster impacts, taking a human-centered view to reduce barriers to accessing aid. It also provides more flexibility for the kinds of costs that can be covered, more efficient program administration, faster payments, and significantly improved data collection on disaster recovery to better inform future policy development.

The various programmatic changes are designed to not only save the both federal and PT governments money in terms of avoided losses and damages, but even more compelling, to avoid or reduce disaster impacts to people: fewer deaths and injuries, lower mental health issues, and reduced business and economic disruptions.

Low-Cost Flood Insurance Program

Approximately one million homes nationally cannot access adequate or affordable insurance to protect themselves. This protection gap leaves many households financially vulnerable as they must rely on their own resources or limited post-disaster financial assistance from governments or not-for-profit groups to recover from flooding events.

Since 2020, the government has engaged PTs on the development and implementation of the low-cost flood insurance program, as well as the requirements for its long-term fiscal sustainability, including cost-sharing and risk mitigation. This work has occurred under the umbrella of the "Task Force on Flood Insurance and Risk Reduction", which concluded meetings in June 2024. Following the announcement of continued targeted engagement with PTs regarding flood insurance design parameters in the 2024 Fall Economic Statement, engagement has continued through the launch of the Working Group on Flood Insurance under SOREM in January 2025. Announcements include: Budget 2023 announced the intention to stand-up a low-cost flood insurance program to protect households at high risk of flooding and without access to adequate insurance. A separate affordability program, to be cost-shared between all levels of government, will serve policyholders who are at high risk of flooding. Budget 2024 reiterated the federal commitment naming the Canada Mortgage and Housing Corporation as the Crown parent to a to-be-formed subsidiary that will provide reinsurance to the market. The 2024 Fall Economic Statement announced targeted conversations with PT governments on potential flood insurance design parameters which are ongoing.

Federal Flood Risk Identification

To help screen federal investments, PS is leveraging a procured license of a Canada-wide Flood Hazard Model, to create an aggregation of flood hazard data to create the Federally Identified Flood Risk Areas (FIFRA), which allows for risk ratings to be provided for the whole country. The FIFRA Initiative will identify flood areas across Canada to screen federal investments to ensure we are collectively taking action to guide potential federal infrastructure investments and identify the appropriate mitigation conditions.

Flood Risk Awareness Portal (Digital Resource)

The digital resource will use the FIFRA and, when a user enters an address or coordinates, they will receive a rating of their flood hazard (low, moderate, high, extreme) based on probabilistic flood hazard and multiple flood types (fluvial, pluvial, and coastal). This rating provides a first step in understanding possible flood risk at a location but is only suitable for screening and is designed for the general public. Additionally, through the digital resource, we will provide a link to Canada's Flood Mapping Inventory, where people will be able to access local engineered flood maps, if available from the inventory for their area. We will also provide guidance on flood risk reduction actions. The Flood Risk Awareness Digital Resource is set to launch in Fall 2025.

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