If you cannot find a guarantor
If you have not known an eligible guarantor for at least two years, complete form PPTC 132 "Statutory Declaration in Lieu of Guarantor" available from any passport office or by telephone.
Important: A person listed as a reference on the Statutory Declaration in Lieu of Guarantor cannot be listed as a reference on the passport application.
The "Statutory Declaration in Lieu of Guarantor" form must be sworn to or declared before, and signed by, a person authorized by law to administer an oath or a solemn declaration. If completed outside Canada, a qualified official includes a Canadian or British diplomatic or consular representative, or a qualified local official (for example, a civil servant, or member of Parliament).
http://www.cic.gc.ca/english/passport/apply/guarantor-reference.asp