PUBLIC AGENDA SASKATOON BOARD OF POLICE COMMISSIONERS

Thursday, May 17, 2018, 4:00 pm Committee Room E, Ground Floor, City Hall COMMISSIONERS: Commissioner D. Brander, Chair Commissioner C. Inglis-McQuay, Vice Chair Commissioner Mayor C. Clark Commissioner J. Custead Commissioner K. Healy Commissioner D. Hill Commissioner M. Loewen

Pages

1. MINUTES/DELEGATIONS/PRESENTATIONS

1.1 Call to Order

1.2 Confirmation of Agenda

Recommendation That the agenda be confirmed as presented.

1.3 Adoption of Minutes

Recommendation That the minutes of regular meeting of the Board of Police Commissioners held on April 19, 2018 be adopted. 1.4 Delegations

1.4.1 Operational Review - Saskatoon Police Service 4 - 148

The Operational Review document is being provided in electronic format only.

● Representatives of Perivale & Taylor will be in attendance to provide an overview and presentation.

● Report (attached) and Presentation of Chief of Police re Implementation Plan.

Recommendation That the information be received and the Board receive regular progress updates as the recommendations are included in planning and operations.

1.5 Chair's Report

1.6 Chief's Report

1.7 Environmental Scan

2. CORRESPONDENCE/CITY COUNCIL REFERRALS

2.1 Request to Speak - Raj Randhawa - Noise Pollution 149 - 149

Request attached.

Recommendation That the information be received.

2.2 Communication - Nancy Kulbida - Noise Complaint Prairieland Park 150 - 151

Communication dated April 27, 2018 attached.

Recommendation That the information be received.

3. ROUTINE/STATISTICAL REPORTS

3.1 Air Support Unit Recommendation - Capital Purchase Approval, Update 152 - 153

Report dated May 4, 2018 attached.

Recommendation That the information be received.

2 3.2 Insightrix Community Satisfaction and Policing Priority Survey 154 - 157

Report dated May 1, 2018 attached.

Recommendation That the information be received.

4. RESPONSES TO BOARD REFERRALS

5. OTHER

5.1 Police Service Fee Review 158 - 161

Report dated April 30, 2018 attached.

Recommendation That an increase in the fees as outlined in the report of the Chief of Police dated April 30, 2018, be approved effective July 1, 2018.

5.2 Appointment of Chair and Vice-Chair - Board of Trustees - Retirement Plan for the Employees of the Board of Police Commissioners

The above matter was considered by the Board at its April 19, 2018 In Camera meeting.

Recommendation That the following be appointed to the Board of Trustees - Retirement Plan for Employees of the Board of Police Commissioners:

Chair - Dan Tkatchuk

Vice-Chair - Councillor Mairin Loewen

6. BOARD INQUIRIES

7. ADJOURNMENT

3 4 5 6

OPERATIONAL REVIEW SASKATOON POLICE SERVICE Saskatoon Board of Police Commissioners

perivale + taylor consulting August 2017

7 Operational Review of Saskatoon Police Service

Executive Summary

This Operational Review of the Saskatoon Police Service was initiated by the Board of Police Commissioners in November 2015 and commenced in April 2016.

The Review consulted widely including Service and City staff, practitioners, oversight bodies, and external stakeholders. A literature review of salient issues was conducted, including an examination of recent policing reviews across Canada and the United Kingdom. A number of comparisons were made enabling the Saskatoon Police Service (SPS) to be evaluated in both national and prairie contexts, including: staffing levels and types, use of technology, call load, crime rates and severity, costs, and leading policing practices.

The national and prairie police agency comparisons illustrate that, nationally, SPS has: a high ratio of civilian staff to sworn; one of the highest ratios of female officers; a below-average ratio of police to population; an above-average crimes-per-officer ratio; and an average ratio of incidents/calls for service per officer. The Saskatoon Crime Severity Index (CSI) is higher than the national average, and the SPS clearance rate is mid-range. The proportion of incidents/calls- for-service involving the effects of social problems and disorder in Saskatoon is high.

The Patrol Availability Factor (PAF), a comparison of allocated and unallocated patrol time, was measured and found to be lower than the 2004 SPS PAF Audit. Although there are some differences in PAF calculation, it can be presumed that SPS patrol officers are busier and have less proactive policing time than in 2004.

As part of the Review, a comparative analysis was conducted between demographic factors in Saskatoon and those of 23 Canadian cities in order to determine a predicted CSI which could be compared to the actual CSI. This process can be applied to Saskatoon development plans to gain a better understanding of the likely effects of increasing population and geography on future policing services.

The SPS has implemented (and continues to introduce) numerous leading practices in community policing. The role and expectations of the common law police are examined in view of the social factors affecting policing in Saskatoon.

Community policing concepts, uniform policing, and investigative operations were examined and proposals made for deployment models and calls-for-service triage.

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The SPS organizational chart was reviewed and a number of principles applied to determine the most effective leadership model. A new executive model is proposed and a realignment of the functional groupings of SPS units.

Performance analytics for the functions and components of the SPS were also researched, and a new model developed.

Additionally, various aspects of staffing were reviewed including SPS organizational culture, opportunities for civilianization, performance appraisals, promotional processes, and the duty to accommodate. The SPS administrative support components were examined.

The SPS analytical processes and information systems and components are recommended to be rationalized to a more effective and targeted process.

Information technology and processes were examined in detail and a range of observations made which could improve processes.

The format and content of the Community Satisfaction and Policing Surveys were examined, and potential improvements identified.

An asset management review, including facilities and the fleet, resulted in a number of observations to create more effective processes. Finance and overtime statistics were analyzed indicating a strategic approach is required.

The most important findings of the Review are that the challenges facing the SPS, the Board, and the City are long term and strategic: . an increasing demand for police services due to the increasing population and expanding geography of the city . a need to determine the type, level, and quality of police services desired, especially when considering the needs of many vulnerable persons coming to the attention of the police . a need to resource the SPS in view of the low PAF, and . a need to maintain sustainability

A Board and SPS Strategic Plan focusing on the above four points, complementing the SPS Business Plan and the City Strategic Plan, is essential. Collaboration and consultation with the City Planning and Development Department and Finance Department can ensure a cohesive and integrated approach.

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Table of Contents

Executive Summary 1

Table of Contents 3

Acknowledgements 5

Organization of the Report 5

Part One Recommendations and Implementation 6

1 Strategic Plan 6

2 Organization Chart 8

3 Increasing Patrol Availability Factor 18

4 Continuous Improvement - Performance Analytics - Performance Appraisal 25

5 Planning and Analytical Unit 30

6 Civilianization 35

7 Technology Services 41

8 Training 56

9 Value of Staff 61

10 Promotion 65

11 Duty to Accommodate 69

12 Telephone Response Unit 74

13 Hours of Work 76

14 Release of Information and Disclosure 78

15 Support of Community Policing Philosophy 80

16 Telecommunications Response Times 83

17 Overtime 85

18 Fleet 88

19 Facilities 91

20 Community Satisfaction and Policing Priority Survey 94

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Table of Contents

Part Two 97

21 Introduction & Methodology 97

22 Policing in Saskatoon and Saskatchewan Background 99

23 Review Analyses 107

24 Investigation Bureau 121

25 Administrative Support 128

25.1 Human Resources 128

25.2 Finance 128

25.3 Legal Services 129

25.4 Professional Standards 130

25.5 Central Records 130

25.6 Exhibit Control 130

25.7 Property - Lost and Found 131

25.8 Court Preparation 131

25.9 Public Affairs 132

Appendices 133 Appendices are numbered consistent with the relevant sections 2 Job Description SPS Executive Director 22.4 The Role of the Public Police - Peel's Principles 23.1 Literature Review Bibliography

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Acknowledgements

The Review team received support and cooperation from the staff of the SPS, especially the SPS Project Manager Superintendent Grant Foster. Chief Clive Weighill and his Executive, and more than 150 members of the SPS provided thoughtful and constructive ideas and information.

Saskatoon Police Commissioners, Provincial and City staff, and over fifty representatives of community organizations, social agencies, and other stakeholders contributed to ensure a comprehensive view of public safety.

The Review team is especially grateful to all these people who gave their time and ideas to the Review. They were well prepared and had often conducted preparatory background research.

The nature of organizational reviews is to focus on the opportunities for improvement. Much of the content of this report is has resulted from the contributions of the interviewees who were enthusiastic about positive change. When weighing these opportunities, it is important to see them against the backdrop of the SPS and staff who are providing a very good quality of public service.

Organization of the Report

This Report comprises two Parts. Part One relates to the 20 recommendations resulting from the Review. Each recommendation is accompanied by Background, Findings, Priority and Timing, Cost/Savings, Implementation, and Issues/Challenges.

Part Two comprises sections 21 to 25 and provides the Methodology, the detailed Review analyses narrative, and includes data charts and tables in support of the findings and recommendations. Part Two also includes the assessment of eleven SPS functions; however, they are not subject to recommendations.

The Appendix includes a draft Job Description for the proposed SPS Executive Director, which forms part of the recommendation concerning the revisions to the organizational structure, the Role of the Public Police - Peel's Principles (which provide the background to the origins and rationale for current policing in Saskatoon), and the Literature Review Bibliography.

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Recommendations and Implementation

1 Strategic Plan

1.1 Recommendations

The Review recommends the Board and SPS (including the bargaining associations), in consultation with the City Planning and Development Department and the City Finance Department, develop a ten-year Strategic Plan focusing on: . the increasing demand for police services due to the growing population and expanding geography of the city . a need to determine the type, level, and quality of police services desired, especially when considering the needs of many vulnerable persons coming to the attention of the police . a need to resource the SPS in view of the low Patrol Availability Factor . a need to maintain sustainability

The Review recommends the Board and SPS, in consultation with the City, and coordinated with the City‟s planning and financial cycle, establish an ongoing, integrated planning process using predictive measures to ascertain likely policing needs.

1.2 Background

The most important observation of the Review is that the challenges facing the SPS, the Board, and the City are long term and strategic, as described under 1 above.

1.3 Findings

The SPS Strategic Plan expired in 2010 and the SPS Business Plan 2015-2019 provides the internal goals for the organization. The City Strategic Plan 2013-2023 includes the concept to imagine a common vision for the future of our city.

The SPS forms an important part of the safety and security web, described as an increasing number of non-police organizations — including private security, local health professionals, community and municipal groups, and other government organizations — that now interact with one another and with police in the provision of safety and security.1 Based on this premise, a

1 Policing Canada in the 21st century: new Policing for new challenges. The Expert Panel on the Future of Canadian Policing Models 2014, page xi, found at http://www.scienceadvice.ca/uploads/eng/assessments%20and%20publications%20and%20news%20relea ses/policing/policing_fullreporten.pdf

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A Board and SPS Strategic Plan focusing on the above four points, complementing the SPS Business Plan and the City Strategic Plan, could be developed. 2 Collaboration and consultation with the City Planning and Development Department and Finance Department can ensure a cohesive and integrated approach. It is important to emphasize the narrow and focused approach: what level of policing services should be provided, what resources are required, and how these can be funded.

1.4 Priority and Timelines

This process should commence in 2017 and become ongoing.

1.5 Costs/Savings

There are no immediate direct costs other than the staff resources assigned to the task. Staff should be involved in the long-term planning function. This will mean a redirection or refocusing of that task. Should a stand-alone SPS public survey be deemed useful, as part of the community consultation process, the cost will be approximately $30,000. Conducting annual predictive measures to ascertain likely policing needs will require approximately 10 person days of SPS staff time, or if contracted out approximately $15,000.

1.6 Implementation Plan

The affected parties should commence the process through a workshop to determine the criteria, measurements, and process to be used for the Strategic Plan. The informed staff will then gather the appropriate quantitative and qualitative data, such as workload analyses and development plans, and consult with the relevant internal staff, the City, and community stakeholders as a foundation for the Plan.

1.7 Issues and Challenges

Determining what level of policing service is appropriate, affordable, and sustainable.

2 Under the authority of the Police Act, section 31, (1) (b) (ii) developing long-term plans

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2 Organizational Chart

2.1 Recommendation Summary

The organizational chart should be amended to reflect the identified leadership and management requirements outlined below.

2.2 Background

The Review’s evidence-based approach is to apply accepted principles to the SPS structure and leadership.

The Review adopted the following principles in assessing the organizational structure, the chain of command, and span of control, so that: . similar and related functions are grouped . form follows function . supervisors and managers have related and an optimum number of reports . ranks have equivalent responsibilities across the organization . individuals report to one position . direction and information flows through the chain of command and through planned policies and protocols . everyday operational decisions are based on policies and procedures providing immediate guidance . decisions are made at the earliest and most appropriate opportunity . the corporate services leadership is integrated into the senior executive

The Review examined Canadian police organizational structures and determined there is no standard model. Consequently, the Review facilitated a one-day workshop of experienced CAOs and human resources (HR) specialists to examine the SPS and determine the ideal grouping of functions and the most effective executive leadership model. The theoretical model applies to any police organization. The team identified four discrete groups of related functions within the SPS: primary services (largely Patrol and Traffic), secondary services (follow-up investigations), tertiary or police support services (Detention, Communications, Analysis, etc.), and corporate services (IT, HR, Finance, Fleet, Facilities).

The current executive structure includes the Chief, two Deputy Chiefs, and three Superintendents.

The Chief has four reports . Legal Services Division . Professional Standards Division

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. Operations Deputy Chief . Support Services Deputy Chief The Deputy Chief Operations Bureau has three reports . Patrol Superintendent . Criminal Investigations Superintendent . Public Affairs Director The Deputy Chief Support Services Bureau has five reports . Operational Support Superintendent . Central Records and Assets Management Division Director . Finance Division Director . Technological Services Director . Human Resources Director

The policing operational responsibilities of the two deputy chiefs' bureaus overlap: street level policing is carried out by both the Operations and Support Bureaus . An example of the overlap is Weekend Support Shift officers (Support) working alongside Division Patrol Officers (Operations).

The Support Services Bureau includes three distinct and disparate functions: street policing, police support functions, and four civilian-managed administrative corporate services functions, Records, Assets, Technology, and Human Resources. The May 2016 organizational chart illustrates three superintendents reporting to two deputy chiefs, and there is no executive (deputy level) representation for the specialized corporate services sections.

The Professional Standards Division reporting to the Chief includes . Internal Investigation . Planning and Research . Compstat These three functions are not complementary.

2.3 Findings

The current structure, as described above, does not provide for a logical division of responsibilities and accountabilities. Nor do the job descriptions adequately reflect the roles and responsibilities of a modern executive team.

As policing functions have become technically and scientifically more complex, the necessary corporate service functions have likewise increased in importance. The corporate support functions, often employing specialized administrative or technically skilled personnel, report to a sworn officer, a Deputy Chief.

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As well, It cannot be assumed or expected that a senior police officer is likely to fully understand the multifaceted financial, budget and reporting practices used by private and government entities. This knowledge and experience is important in the effective management and oversight of complex policing services with substantial operating and capital budgets. Such experience and knowledge also means that the executive management team encompasses a broad range of experience and skills, including a non-police perspective, which adds organizational and public value to senior corporate decisions.

Although the SPS currently has six civilian Directors, they are not represented at the deputy level - or vice president level in private industry. Interviewees supported the concept that Corporate Services needs a voice at the deputy level.

A contrary position could be that the experience of managing the administrative support function is an important foundation for a senior officer who intends, at a future time, to become a chief of police. The Review's perspective is that this would reduce the leadership of corporate services to a training function for other positions. It could also be suggested that the appointment of a civilian Executive Director would create a divide between the sworn and the civilian sides of the organization. The Review's perspective is that rather than dividing the sworn/civilian staff, the Executive Director would be an important statement of the importance of skilled non-sworn staff to the policing function.

The Professional Standards Unit, which reports to the Chief, includes responsibilities for Planning and Compstat. This affects the logical division of responsibilities of the overall analysis function. Consequently, a new Planning and Analytical Unit in the Operational Support Division is proposed.

Interviewees indicated unclear and confusing accountability and responsibility in the patrol functions and provided examples of independent and inconsistent instructions from various sources: Platoon Staff Sergeant (Watch Commander), Platoon Sergeant, Division Inspector, Division Staff Sergeant, Division Sergeant, and follow-up requests from Readers and investigative sections. Also, examples were provided where SPS processes did not fully utilize the training and skills of supervisors and that actions and decisions are delegated up to rank, rather than managed through policy and procedures or at the most appropriate and earliest level.

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Executive

Currently, the executive comprises three-levels and six-positions where three superintendents report to two deputy chiefs.3 The organizational structure shows several inconsistencies in the assignment of units to Primary Policing, Support Services and Administrative functions.

The approach of the Review was to examine the operational and administrative functions of the SPS and to place them into related groups or bureaus: . primary services (first responders, direct service to the public) . secondary services (follow-up service to the public) . tertiary support services (provided to the primary and secondary functions) . corporate services (business support services provided for the organization)

Two recommended executive models were developed.

A two-level structure comprising . the Chief . three Deputy Chiefs (Primary, Secondary, and Support) and . Executive Director at the Deputy level responsible for Corporate Services4

A three-level structure comprising . the Chief . a Deputy . three Superintendents, (Primary, Secondary and Support) and . Executive Director at the Superintendent level responsible for corporate services.5 Chief Executive The two-layer model, without the superintendent level, is preferred. However, the three-level Leadership model may provide an incremental process as some time and negotiation will be required. The first model moves from the current six-position, three-level executive, to a five-position, two- level executive. However, this arrangement is not consistent with the Executive Officers Agreement, expiring December 2016, where a minimum of two superintendents will be maintained. and will be a matter of negotiation.6

The proposed Professional Standards Division (see below) includes assessment of the organization, organizational components, and individual staff members' performance

3 Note: the fourth superintendent position currently managing the Review is not included 4 The term Executive Director is used, rather than CAO, to differentiate the function from the municipal CAO 5 Appendix 2 includes an example job description for the position 6 Article 24 (b)

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It is recognized that in both models, the workload of the deputy chiefs and superintendents will need to be balanced through organizational and external functions. Although not ideal, it avoids the greater problem of complementary practitioner functions being separated into different bureaus.

The Review further examined Canadian police organizational models and determined that it is becoming more common for the executive leadership of corporate services to be a non-sworn executive with considerable corporate skills, knowledge, and experience. The Review had previously consulted with a police service of similar size which had introduced a senior management team of the Chief, two Deputies, and one Executive Director (Deputy equivalent) approximately ten years ago, and had undergone a structural review two years earlier which confirmed the suitability of the structure.

Operations Bureau Leadership and Management

The interviews, job descriptions, and organizational chart were consistent in identifying tension between the divisional (West,7 Central, and East) geographic responsibilities, and the temporal (platoon shift), where the latter overrides the former. The leadership and management of the patrol function needs to be more cohesive and integrated to address these concerns. .

The current management staffing of these components includes four Inspectors and nine Staff Sergeants.8 Currently, the Watch Commander function is separate from the geographic management, in a different bureau, and is consumed by routine and clerical tasks. These tasks should be moved to the division administration Staff Sergeants and team Sergeants. The Watch Commander job description document date is 2007 and is not consistent with the 2016 organizational chart.

The principle of the recommendation is that all functions providing primary field services to the community are grouped under one command.

Consequently, the recommended model would combine the Watch Commander function into the Patrol Divisional management. The four Watch Commander positions should be moved to the East, West, Central, and Specialized Operations Divisions. Hence each of the four components of Operations would have one Inspector and two or three Staff Sergeants.

7 The nomenclature North West Division is not supported by geography. The division is geographically west of the river, to the south as well as the north. For clarity, the Report uses the term West Division 8 Staff Sergeants: three Patrol Divisions, two from Specialized Services, and four Watch Commanders

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Each Division will have an Administrative Staff Sergeant and an Operational Staff Sergeant (Watch Commander).

Operations

Inspector Inspector West * Inspector Inspector East Specialized Division Central Division Division Operations

St/Sgt St/Sgt St/Sgt St/Sgt Admin Admin Admin Admin

St/Sgt St/Sgt St/Sgt St/Sgt Ops Watch Ops Watch Ops Watch Traffic Cmdr Cmdr Cmdr

St/Sgt Ops Watch Cmdr

The rationale for this approach is that it is a philosophical and management change which can be implemented without affecting the Agreement between the Saskatoon Police Association and the Board of Commissioners9 (the Agreement) or staff hours, or the number of Staff Sergeants.10 The concept is for the Sergeants to manage and deploy their teams and the Watch Commander will become a strategic, city-wide function.

The job descriptions for Divisional Sergeant positions and the Crime Analysts overlap in the crime analysis areas and this was supported by interviews which indicated the divisional administration could be moved to the Divisional Staff Sergeant.11 Therefore, the Divisional Sergeant positions can be eliminated and replaced by Crime Analysts.

The function of the Watch Commander will be, more fittingly, operational leadership as required, and not hands-on supervision and clerical functions as is currently practised. Leadership, management, and supervision of the patrol teams will be the responsibility of the Sergeants. The Review was informed that the concept of making Sergeants responsible for their teams' deployment had been tried previously and was not successful - the suggestion was that the strategy failed due to a disconnect between the Sergeants in managing inter-divisional issues.

9 April 1, 2013 – December 31, 2016. Appendix A, Section 5 10 In the long term, a new deployment model is required which is described elsewhere in this Report 11 SPS Organization Chart May 2016 show two Divisional Sergeants for the three Divisions

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This is consistent with interviewees' views on the delegating up of decisions rather than dealing with issues at the earliest opportunity. The crucial element in the success of this, as with many other strategies, is to clearly delineate the responsibilities of managers and supervisors, underscore the need for accountability, and to communicate expectations.

The Sergeants will be responsible for roll-call briefings based on relevant and timely crime and incident analyses.12 Assignments, overtime and overtime leave will be the responsibility of the Sergeants. When one patrol division requires additional resources it will be the responsibility of the Sergeants to make the necessary adjustments.

There were select functions in Patrol which would be more appropriately moved to other bureaus. The following functions should be assigned to other divisions: . Cultural Resource -- to Operational Support . Aboriginal Recruiting -- to Human Resources . School Resources -- to Operational Support . Crime Free Multi Housing - to Operational Support

Investigation Bureau

The Criminal Investigation structure remains intact, but reporting to the Deputy Chief / Superintendent Investigation. The recommended changes to the Investigative Divisions are the potential change of leadership to a Deputy Chief and the addition of Analysts - see Analysts Section. Unusual in contemporary Canadian policing, the investigative functions within SPS utilize the Sergeant rank for practitioners, whereas in other bureaus the Sergeants are supervisors. Most Canadian police agencies assign Constables to the investigative function.

Operational Support Bureau

The Operational Support Bureau changes focus. The HQ Division remains largely intact including: . Detention . Communications . Sask 911 . Service Centre . Court Preparation . Court Liaison . Readers . RMS Liaison

12 Described in section 5 Analysis

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It is recommended the audio video release function will move to the newly created Release of Information function in Legal Services. The change does not include a physical amalgamation but the integration of the various processes and optimal use of knowledge and experience.

The Compstat and Crime Analyses functions (short- and medium-term) and Planning and Research (long-term) share a common interest in SIMS13 data. Long-term trends in crime and incidents will affect projected resource requirements. Compstat and Crime Analyses are combined to create timely and efficacious tools for targeting and deployment decisions.

Messages and initiatives from Public Affairs need to balance the immediate SPS and public interests with evidence from the analyst function. The functions of Public Affairs are described in section 29.9.

Corporate Services Bureau

The recommended Corporate Services Bureau comprises the services from the existing Support Services, Records & Assets, Finance, Technology, Human Resources, with the addition of Legal Services, including the new Release of Information function.

It is essential for Corporate Services to have representation and to participate in the leadership function of the executive level. The absence of Corporate Services participation at the Deputy level has resulted in a lack of resources for Corporate Services functions. For example, operational policing functions are well-supported by SIMS. It would be advantageous to have a similar suite of well-integrated systems in the administrative areas.

The capture and retention of electronic and documentary evidence and the processing of Freedom of Information (FOI) requests and other requests for release and disclosure is increasingly becoming more technically and legally complex. This creates a potential vulnerability and risk for SPS. Consequently, it is proposed that there is a greater integration of these functions along with increases of personnel who are trained to manage the processes and to respond to FOI inquiries.

2.4 Priority and Timelines

These organizational changes should commence in 2017 for completion in early 2018.

13 SIMS Saskatoon Information Management System

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2.5 Costs/Savings

The current executive model (Chief, two Deputies, three Superintendents), in 2016 salaries, costs approximately $1.193m.14

The recommended models would result in minor changes in costs. The five-executive model (Chief, three Deputies, and one Executive Director15) is estimated at $1.067m in 2016 rates.

The six-executive model (Chief, one Deputy, three Superintendents, one Executive Director) is estimated at $1.168m in 2016 salaries.

Other changes in the organization chart involve different grouping of sections and reporting relationships. They do not involve changes in classifications (other than the analysts' functions below) and will not create any additional costs.

The two Divisional Sergeants' positions can be replaced by Crime Analysts resulting in salary savings: the Sergeants' salary of $116,712 and a Special Constable III, $70,999.

The Job Descriptions will require development but these are not incremental costs as they currently require creation or updating.

The recruitment for the Executive Director position, if carried out commercially, may result in costs up to $50,000; however, tasks may be conducted by the SPS and/or City which would reduce costs but take staff time. There may be some relocation costs.

2.6 Implementation

The Review recommends the Board and SPS Executive affected parties commence the process through a workshop to determine the most appropriate model of executive leadership. Prior to implementation, position descriptions should be defined and introduced. The position description for the Executive Director should form part of the foundation for recruitment and selection, along with competency based selection. Given the unfamiliarity of the SPS to a civilian Executive Director, a guarantee of a two-year retention in the position should be one of the requirements for a search firm if one is engaged.

14 The Superintendent costs are based on the highest salary scale in the Agreement 15 The Executive Director salary is based on the equivalent Deputy or Superintendent salaries

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Performance appraisal processes should be developed for the Executive Director and the Deputies' positions, in line with findings regarding staff appraisal elsewhere in this Report.

The process should be top down, with the new executive model cascading the changes within each Bureau.

2.7 Issues and Challenges

The key issues are making decisions based on best practice and avoiding traditional views. This issue affects six existing positions and will also be affected by future leadership appointments.

Negotiation will be required to address positions included in the Agreements.

New job descriptions will need to be developed.

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3 Increasing Patrol Availability Factor

3.1 Summary of Recommendations

The Review recommends the Board and SPS explore ways to increase the Patrol Availability Factor (PAF).

The Review recommends SPS conduct ongoing PAF measurements.

The Review recommends the Board and SPS, in consultation with the City, and coordinated with the City‟s planning and financial cycle, establish an ongoing, integrated planning process using predictive measures to ascertain likely policing needs.

3.2 Background

Reactive policing, which occurs as a response to a criminal offence or calls for service, is characterized as allocated time. Unallocated time is defined as when officers are not logged or assigned to a crime investigation or other incident. Proactive policing or targeted or preventative or directed patrols and follow-up investigations require the flexibility of unallocated time for self- initiated activities.

The PAF is the percentage of on-duty time in which officers are available to engage in proactive problem solving and crime prevention activities vs. responding to calls. An SPS 2004 audit16 on Patrol staffing requirements reported that: 28 constable positions would be required to bring the Division's PAF up to 40%. Of greater significance, the audit included if more flexible scheduling is not pursued to balance staff deployment with call load, 45 Constables will be required.

Random preventative patrol continues across many policing jurisdiction despite weak evidence and any methodologically-strong literature to support its practice. Two early studies from the 1970s, suggest that random preventive patrol can have an impact on crime,17 while a study of patrol in Kansas City, with stronger evaluative components, found that the practice of preventive patrol does not.18

16 Robert Prosser & Associates. Audit Report on Saskatoon Police Services Patrol Staffing Requirements. 2004 17 Press 1971; Dahmann 1975 18 Kelling et al. 1974

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Proactive policing is a best practice as it enables officers to use unallocated time to engage in self-initiated activities that can prevent or even suppress crime in community trouble-spots. Hot- spot policing represents an important approach that illustrates innovation in the level of focus it demands of the police agency to identify specific places where crime and disorder are concentrated, and then focus resources at these locations. The effectiveness of the hot-spots policing approach has strong empirical support. 19 Studies that focused police resources on crime hot spots provide the strongest collective evidence of police effectiveness that is now available. A series of randomized experimental studies suggests that hot-spots policing is effective in reducing crime and disorder and can achieve these reductions without significant displacement of crime control benefits. Indeed, the research evidence suggests that the diffusion of crime control benefits to areas surrounding treated hot spots is stronger than any displacement outcome.20

Contradictory evidence found in earlier studies of patrol is thus not surprising. However, the analytics involved in assessing the efficiencies and effectiveness of a particular operational strategy are complex; and no one metric will give a complete and accurate picture of resource allocation. Therefore additional metrics, such as workload demands, need to be assessed beyond the intuitive approach to staffing deployment analysis which focuses on community demands.21 In assessing these workload difficulties, Griffiths stresses the importance of considering the nuances of CAD data which capture officer activities on a number of different dimensions, and only give a representation of officers‟ workload and time. For example, they suggest the analysis should consider the number of cancelled calls, the variations between districts, hours of the day and data errors with respect to entries and omissions under CAD. Considering this, they state a 50% allocated time for officers balancing both the community demands and officer availability.

The International City/County Management Association has stated: Generally when a department operates at optimum efficiency, patrol officers will spend approximately 30 to 35 percent of their time committed to calls for service. Spending 45 to 50 percent of patrol time on calls leads to call stacking, citizen dissatisfaction, neglect of crime prevention, and officer stress. This also means that there may not be enough time to conduct proper investigations. 22

19 Braga 2001; Sherman and Weisburd, 1995; Weisburd and Braga, 2003. The Effects of Hot Spots Policing Anthony A. Braga, Andrew V. Papachristos & David M. Hureau. Pages 633-663 | Published online: 16 May 2012 20 Weisburd 2004, p. 58 21 Griffiths, Pollard, and Stamatakis 2014 22 International City/County Management Association (ICMA). 1997. Comparative Performance Measurement: FY 1995 Data Report. Washington DC: ICMA, and also stated in VPD. Administrative Report to Vancouver City Council. Planning Research & Audit Section. March 2003

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26 Operational Review of Saskatoon Police Service

The above also underscores the importance and relevance of multiple sources of data to monitor and assess policing strategies. In practical terms, experiencing 70% allocated time is considered extremely high within the policing community, as at such levels the degradation of service is so severe that patrol officers are stretched beyond their ability to effectively respond to emergency calls. Any form of proactive policing is virtually non-existent, including core functions, such as traffic enforcement. Ultimately, it was found that best practice police departments usually strive to obtain an average utilization rate between 40% and 50%, depending whether the administrative time and meal breaks are included or not.23

The approach for these measurements in the Review was based on the assumption that the key issue is how busy are the actual police field units deployed, how much time is unallocated and available for proactive work. There were two sources of data for the measurement: 2015 patrol duty sheets and 2015 Computer Aided Dispatch (CAD) data. The patrol duty sheets for 2015 were analyzed and the numbers of police patrol resources were determined. Two groups were identified: . patrol: comprising patrol cars and patrol sergeants . all units: patrol (above), plus beats, bikes, and wagon

The differing groups were used to reflect the different deployment models for the patrol cars - general duty of response and proactive patrol; the beats and bikes - having a more visible and proactive preventative strategy; and the wagon - prisoner transportation. The numbers of police units working as indicated on the Duty Sheets were used to calculate the 'duty time' per day and night (one unit = twelve hours of duty time).

CAD data were analyzed to measure response, on-scene, and follow-up times to create allocated time. Administrative time, in consultation with SPS managers, was estimated, including: . pre-patrol briefing and preparation, equipment and vehicle check - 20 minutes . lunch and coffee breaks - 75 minutes . end-of-shift activities (dictating reports, follow-up phone calls, processing exhibits, etc.) - 55 minutes This totals 150 minutes or 20.8% and is rounded to 20% to be consistent with other studies.

3.3 Findings

The overall 2015 PAF for all police units (defined as police patrol cars, patrol sergeants, beats, bikes, and wagon) is 27.5%. For the patrol cars and patrol sergeants only, the PAF is 29.6%. The consistent pattern can be seen on Saturdays where PAF figures are the lowest. It was

23 VPD. Administrative Report to Vancouver City Council. Pg. 8, 990. Planning Research & Audit Section. March 2003

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27 Operational Review of Saskatoon Police Service noted that the PAF measurements were similar across the shifts and three Divisions, winter and summer, and the patrol and all calculations. The 2004 Patrol Audit identified the overall city PAF as 30.58%, with dayshift at 29.97% and nightshift at 31.16%.24

Patrol Sergeants had a PAF of approximately 60%, which is most likely misleading. Based on interviews, the administration time is probably far greater than the 20% used in this type of study, and Sergeants advised that they would be in-service (unallocated) while conducting administrative tasks. In addition, although they often attended incident scenes to consult with the investigating officers, they advised that they remained unassigned (unallocated) on CAD.

The PAF is affected by the temporal pattern of urgent calls for service. In the upper chart, the two low points reflect the two shift-change periods when approximately 50% of the police units are not available for dispatch.

The lower chart illustrates that the urgent calls continue through the afternoon shift change.

The current SPS patrol shift model largely deploys the same number of patrol officers each day and shift regardless of workload. The shifts are staggered (0600-1800, 0700- 1900, and 1800-0600, 1900-0700) to provide continuous coverage over shift changes through the twenty-four hours.

The Weekend Support Unit (WSU) provides additional resources on dayshift (T-W-T-F) and nightshift (W-T-F-S). The Agreement25 envisions up to 24 members but currently eight Constables and one Sergeant are assigned.26 The WSU operates on a twelve-hour shift, although the unit does not provide 24/7 coverage and therefore creates Earned Days Off (EDO).

24 Prosser 25 Article 55 b) also prescribes the days and hours of shifts 26 SPS Organizational chart May 2016, page 7

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The challenges of accurately determining the PAF are significant as described in the literature. The analyses conducted in this Review are measures based on the actual resources deployed. The issue is complicated by changing personnel levels from month to month regardless of the number of positions assigned to Patrol: unanticipated absences, promotions, and transfers will all create a constantly changing resource level.

The patrol deployment model does not follow the workload or calls-for-service; the model is based on tradition only. There is little value in adding personnel resources at large to the patrol function, as noted in the 2004 study:27

In order to raise the SPS 2015 PAF from 29% to 40%, under the current deployment model, an increase in staffing of 30% would be required.

The existing model can be improved by adding resources in a scientific manner: additional resources assigned to the WSU for example, or preferably, creating a new deployment model through a second layer of deployment in the busier periods, approximately 1400-0400 each day. The number of negative PAF occasions occurring on Saturdays underscores the value of scientific deployment.

An ideal deployment model would incorporate the following factors: Efficiency . deployment based on the temporal workload by area (W, C, E) o the areas may have different peak periods o minimum staffing city-wide 24/7 o additional resources during busier periods overlaid on the minimum level . appropriate span of control for Patrol Sergeants o the current model has a span up to 12 Constables which is the upper end of the range 28 . built-in training time which does not affect the day-to-day deployment . shifts that reflect a forty-hour week and do not create EDOs Wellness . compressed work week o for staff working weekends, public holidays, and un-social hours, the compressed work week with reasonable breaks between blocks of shifts is deemed essential . teams' schedules must be complementary o recognizing that many staff may be in relationships with other shift workers

27 Prosser 28 SPS Organizational Chart May 2016

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The implementation of an ideal staffing level for patrol relies on a number of factors: 1. the identification of a desired level of service, including PAF, to be agreed by the SPS, the Board, and the City (the stakeholders) 2. anticipated future deployment to the city development areas 3. agreement on an improved deployment model 4. sustainable funding, agreed by the stakeholders 5. the ability of the SPS to hire and to deploy any additional staff required

3.4 Priority and Timelines

The PAF measurement should occur annually.

An increase in patrol resources would need to be amortised over a number of years.

3.5 Costs/Savings

The cost for calculation of PAF values would depend upon the approach taken. In-house process development for tracking and computation of PAF would require investment of staff time, training for staff and management in the use of the new program and, possibly, purchase of commercial software.

The Review's analyses show that in order to increase the current PAF to 40%, using the current deployment model, an increase of 30% in patrol resources would be required. An accurate and ongoing PAF measurement will be necessary to design a more effective deployment model which, by its efficiencies, will likely save far more than the analysis development costs.

3.6 Implementation Plan

It is important to gain consensus among the stakeholders on the desired level of policing. If additional resources are required, ensuring the most effective deployment of existing resources is essential, followed by public consultation in order to gain support for the anticipated changes and costs.

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3.7 Issues and Challenges

Key to achieving an increase in PAF is the form of police service delivery. Changes in policing methods and organizational structure can positively impact the PAF, but such decisions will also affect overall police services to the community. In consultation with the community, the Board, and the City, the SPS must seek an equitable balance of service delivery versus costs.

The level and delivery of police service will also affect the PAF, and is part of Recommendation 1, Strategic Plan. Ongoing measurement of the PAF will provide evidence of service delivery levels and support a more effective deployment model.

The technical, operational, and procedural knowledge and skills exist within SPS, and the annual measurement of PAF could be accomplished internally. Alternatively, commercial software that could be adapted to provide a calculation of PAF may exist.

A more rationale deployment model will require a renegotiation of Agreements. The current ineffective deployment model is addressed under Recommendation 13.

3.8 Detailed Recommendations

The Review recommends the Board and SPS explore ways to increase the PAF: . encourage web reporting . explore telephone reporting in the same manner as web reporting . establish a pilot Telephone Response Unit . conduct a dialogue with the community and stakeholders to seek acceptable ways to reduce allocated time and the number and types of calls dispatched to Patrol . increase police patrol resources in a scientific manner

The Review recommends SPS conduct ongoing PAF measurements. . suitable CAD software and/or IT resources will be required

The Review recommends the Board and SPS, in consultation with the City: . establish an ongoing, integrated planning process, a Strategic Plan, using predictive measures to ascertain likely policing needs. . establish a process to determine the appropriate levels of police service in order to guide staffing levels.

These recommendation are shared with Recommendations in 1.

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4 Continuous Improvement - Performance Analytics - Performance Appraisal

4.1 Recommendations Summary

The Review recommends the SPS adopt the strategy of Continuous Improvement with incorporation of Performance Management through Key Performance Indicators.

The Review recommends the Board and SPS establish a Professional Standards and Performance Measurement Division, formed from the current Professional Standards Division.

The Review recommends the Board, SPS, and the Association should establish a performance appraisal working group.

4.2 Background

4.2.1 Performance Analytics and KPIs

Since the 1980s there has been considerable movement, especially in the UK, for policing to move from a public to a business-orientated organization and that organizational targets be agreed with local police authorities.29 In the 1990s, in a drive for efficiency, New Public Management and Policing by Objectives were emphasized,30 and the concept of Key Performance Indicators (KPIs) was introduced. A 2013 study by Public Safety Canada found there are no legislative requirements that control or require the use of specific performance measures in Canadian policing. Moreover, there are no evidence-based outcome performance standards or existing industry-accepted measurement frameworks available for police services to follow in Canada.31

The common themes in conducting a performance assessment of services provided by public organizations comprise the following:32 . this is the area or activity that we want to make a difference . these are the steps by which we expect our program or process will achieve its objectives . professional managers given greater discretion, to focus on customer satisfaction, linking organizational strategies and objectives to individual positions, and relying on clarification of goals and success . this is how we know that our program is on track to achieve its objectives

29 Drake and Simper, 2002 30 Association of Chief Police Officers (ACPO) 2008 31 Kiedrowski, J., Petrunik, M., Macdonald, T.& Melchers, R. (2013).Canadian Police Board Views on the Use of Police Performance Metrics. Ottawa, ON: Compliance Strategy Branch, Law Enforcement and Policing Branch, Public Safety Canada 32 Schacter, Mark, Institute of Governance, 2002

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The Government of Saskatchewan has introduced the Lean concept of managing provincial organizations, as has the Saskatoon Health Region. The City of Saskatoon has also introduced corporate performance measures. Performance improvement is a top priority for the City with a focus on improving transparency by providing citizens with an overview of the City’s progress and performance toward our strategic goals and our actions to deliver quality programs and services through continuous improvement.

Two of the City's stated goals directly impact policing with regards the focus of this Review. . Decrease overall crime rates by 5% annually over the previous five-year average… . The focus on reducing crime rates measures success in increasing public safety in our homes, on our streets, and in our overall community

The Continuous Improvement process adopted by the City incorporates a structured and focused review process which, currently, can be conducted by any department of the City in conjunction with the City Corporate Performance function.

4.2.2 Performance Appraisal

The current performance appraisal process is combined with the promotional process. The SPS Performance Appraisal Report lists ten dimensions or measurements, with ratings of unsatisfactory, developing skills, fully satisfactory, and exceptional. The measurements are commitment to public safety, leadership, relationship building, teamwork/team building, communication, professionalism, job knowledge, safety, attendance and punctuality, and quality image. The appraisal concludes with a promotion suitability section: not yet ready, should be considered (ten marks towards promotion), and not applicable. The promotion process is addressed in section 10 below.

The Appraisal Report also includes a process for the person appraised to dispute the measurements. No interviewees mentioned disputing an appraisal though many interviewees questioned the utility of the appraisal process.

4.3 Findings

The personal performance appraisal process should be reviewed for relevance and rationale and should complement the organizational performance analytics, and KPIs should be the measurement tool for both to provide a path forward.

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4.3.1 Performance Analytics and KPIs

Given the Province‟s and the City‟s established programs for Continuous Improvement and Management, it is logical for SPS to adopt a consistent process, and define performance management tasks and measures to support the City and SPS goals for community safety. Many of the SPS functions lend themselves to quantitative KPIs whereas others are primarily qualitative.

Managers and supervisors must: . examine their roles and processes . determine what has the greatest value in consultation with their staff and clients33 . identify KPIs to measure the success of their outputs in the high value areas

The current Professional Standards Division already has the status and accountability of reporting directly to the Chief. It would be logical to task the Division with the responsibility for implementing and reporting on Continuous Improvement related performance and management standards in the SPS. This function complements the Division's existing responsibility for individual standards. Given the expanded mandate of the Professional Standards Division, the title could appropriately be changed to Professional Standards and Performance Division.

4.3.2 Performance Appraisal

The appraisal process for individual staff does not include way-forward, that is, goals for the upcoming year. If the measurements were rated unsatisfactory, or even developing skills, it begs the question as to what the supervisor has been doing to assist the employee.

Other than providing ten marks towards promotion, the report does not form part of a cohesive coaching and mentoring process. As this applies to all promotional candidates and it appears all receive a score of ten marks, it has no value.

Such bald assessments place the supervisor under pressure to rate staff highly for morale purposes, and if a person is underachieving the supervisor will presumably address these issues regardless of the report. Furthermore, supervisors may be reluctant to give lower scores to under-achieving employees, out of concern that it will reflect poorly on their own efforts to address reasons for the low score.

33 Clients are the beneficiaries of the service, which may be the public or other components of the SPS

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The assessment process should be modeled on the proposed Performance Analytics and KPIs, where improved performance is a joint responsibility of individual and supervisor. Also, the appraisal should not be scored as part of the promotional process: the former is developmental, and the latter an assessment of professional fitness for additional responsibilities.

An assessment process should enable the supervisor and individual to identify goals for the coming year, including skills, knowledge, and abilities (SKA) for which improvement is desired, training/certification requests, assignments within the current function, and career path requests. Such information can promote and foster a mentoring and coaching relationship between the individual and supervisor, and also provide HR with the statistics for future assignments and training needs.

4.4 Priority and Timelines

The process should be developed in 2017 for implementation in 2018.

4.5 Costs/Savings

The changes are largely philosophical. There are staff resources required for the start-up of the Professional Standards and Performance Division and the development, orientation, and training for both organizational Performance Metrics and individual staff Performance Appraisal.

A shorter process may involve savings in overtime and/or contracted assistance.

4.6 Implementation Plan

The Board and SPS should establish the reorganized Professional Standards and Performance Division.

Consulting with local organizations practising continuous improvement (the City and the Health Region) provides the opportunity to gain from their experience.

The process must be top down, with the Executive leadership adopting, practising, and role modeling the policies and procedures. The Professional Standards and Performance Division will train and prepare managers and supervisors. Staff should actively participate in the process and take ownership of the outcomes.

The Performance Appraisal Group should develop a personal appraisal process based on KPIs, with the promotion-related scores removed from the promotional process.

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4.7 Issues and Challenges

The development and orientation time required, and the creation of the working environment whereby staff are positive in their role of identifying their high value outputs and identifying KPIs.

The liaison with the City Corporate Performance Department for start-up advice and periodic on- going consultation.

Ensuring that the KPI and performance appraisal processes do not become bureaucratic or perceived by staff as additional work, but rather as a natural process for increased ownership and management of their work, increasing effectiveness, and creating greater job satisfaction.

The personal performance appraisal is currently in the Agreement and will require renegotiation. See Promotion in section 10.

Supervisors must be trained in effective appraisal and development support for employees.

4.8 Detailed Recommendations

The Review recommends the SPS adopt the strategy of Continuous Improvement with incorporation of Performance Management through Key Performance Indicators.

The Review recommends the Board and SPS establish a Professional Standards and Performance Measurement Division, formed from the current Professional Standards Division.

The Review recommends the Board, SPS, and the Association should establish a performance appraisal working group chaired by the Director of Human Resources, comprising select HR staff, select supervisors, Constables, the Association, and an independent HR Consultant.

The performance appraisal working group will be tasked with developing a performance appraisal process that . identifies goals (KPIs) for the individual, for both supervisors and employees . allows employees to identify their own training needs . allows an individual employees to identify a preferred career path, within a foreseeable, reasonable time frame . ensures a valid and unbiased process . creates a process that encourages coaching, mentoring, and ongoing feedback by the supervisor, and recognizes the supervisor for this role

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5 Planning and Analytical Unit

5.1 Recommendation

The Review recommends the Board and SPS establish a new Planning and Analytical Unit in the Operational Support Division.

5.2 Background

Increasingly, policing is information driven and data are the foundation of evidence-based decision making. Data fuel a spectrum of inquiry ranging from operational analysis, which identifies service demands and crime trends as a basis for deployment, to strategic analysis for long-term planning with regards budgets, human resources, and facility requirements. The crucial element is for the SPS to gather relevant, diverse information and employ effective analysis to convert those data to actionable intelligence.

The Model Policy for Crime Analysis developed by the International Association of Chiefs of Police proposes that A formal crime analysis process is critical for the increased efficiency, productivity, and effectiveness of a departments tactical intervention, strategic planning and management analysis 34

Analysis is tactical, operational, or strategic.

Tactical analysis is focused on specific field enforcement functions, particularly related to a case or series of linked cases. These tasks may include: . identifying suspects, their associates and connections with criminal activity . identifying key investigative or information gaps in the processing of a criminal file . preparing profiles of known or suspected criminal . identifying modus operandi of suspects

Operational analysis is problem identification and priority setting. It is conducted in support of field supervisors and managers who are responsible for a jurisdiction-wide perspective. These tasks may include: . identifying short term trends in the analysis of a series of incidents . recognising trends which guide deployment over a broader geography than the tactical . distinguishing community disorders and their distribution which cannot be resolved through the conduct of isolated arrests

34 Haley, Beth, 1996, also, Criminal Intelligence Sharing: A National Plan for Intelligence-Led Policing at the Local, State and Federal Levels, IACP, 2002

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Strategic analysis provides a longer-term, comprehensive approach to the needs of personnel training and deployment. It further addresses other resources deployment such as how budget and facilities can be planned and apportioned to address emerging demands and crime trends. The tasks include: . identifying longer-term crime trends and patterns . identifying emerging threats to community order . identifying the potential effect upon safety and security of external factors such as technology, demographics or economics

Typical Police Crime Analysis Unit The members of the Crime Analysis Unit assist investigators, patrol officers, and managers by providing timely analysis and information on active suspects, crime patterns and trends. The information they obtain helps investigators solve crime, and guides the Department as to where to put resources – both short and long term. By forecasting crime developments, the VPD can be proactive in developing strategy to deal with it. The Crime Analysis Unit manages the Compstat program, where spikes in crime are identified through analysis, and targeted enforcement is used to combat it, ensuring the Department and our members are accountable for crime reduction in Vancouver.35

Typical qualifications A University Degree in criminology, geography, forensic sciences or related discipline. Competitive candidates will also have additional courses, certification or a degree from the BCIT Forensic Investigation Program (or equivalent) with a specialization in Crime and Intelligence Analysis. Note the minimum competency courses from BCIT are: Tactical Analysis, Crime Mapping, Applied Research Methods & Statistics in Crime Analysis and Introduction to Crime and Intelligence Analysis.36

The Calgary PS model The Real Time Operations Centre (RTOC) of the Calgary Police Service is open 24/7 to provide real-time intelligence and investigative support to both frontline patrol officers and detectives.

The RTOC Analysts provide up-to-date tactical and strategic crime analysis support to patrol units, and investigative analytical support to Major and Organized Crime Units. They are required to solve major public safety and law enforcement problems in real time, without the advantage of reflective time and with the likelihood that information they relay to frontline responders will be acted upon quickly. The CPS is currently examining various IT products to enhance its data analytics capacity, which will result in greater demand for the RTOC Analysts to engage in predictive and prescriptive analyses with respect to crime patterns and trends.37

35 VPD website 36 West Vancouver Police website 37 CPS website

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There is also a peripheral association between analyses and criminal intelligence. Criminal intelligence tends to be the gathering of information from documentary or human sources regarding an investigation of a specific case or series of cases, or an individual or group. One SPS criminal intelligence analyst is located in the Integrated Intelligence Unit of the Investigative Support Division. It should be noted that the function of the criminal intelligence analyst is structured differently from the other more technical analytical functions. The criminal intelligence analyst is more involved in investigations and linkages of offenders and working on specific files.

One SPS crime analyst is located in Central Division but provides services to the other two patrol divisions as well as other components of the SPS.

Beside generating its own, and supplying information to, the analysts at Criminal Intelligence Services Saskatchewan (CISS), SPS gains intelligence from CISS.

The Professional Standards Division currently includes the Planning and Research and Compstat Unit, with the manager-crime analyst, and two research coordinators. The Analyst in the Unit is usually focused upon corporate strategic planning. The Unit supports Compstat and conducts some, although limited, long-term planning functions.

In the SPS, there is a further form of analysis, that of the Predictive Analytics Lab, established by the Centre for Forensic Behavioural Science and Justice Studies in a three-way agreement with the Saskatchewan Ministry of Justice (Corrections and Policing) and Saskatoon Police Service. The lab is housed at Saskatoon Police Service.38

5.3 Findings

It was noted in the course of the Review that there is an absence of orchestration of the range of analysis and planning needs within the SPS, and members described the information overload of disconnected data. An examination of the organizational structure underscores this contention.

The analysts' roles overlap and common data support the broad range of analytical functions. The essential role of analysis is to determine the most important and emergent issues, where and how police resources are best deployed, and then to measure outcomes to assess success.

38 The Predictive Analytics Lab operates separately from these analytic functions. A status report of the Lab has been provided to the SPS but not released to the Review

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Interviewees also indicated: . the patrol analyst is focussed upon the operational needs of Central . there are select common denominators in the data sources used by all the analysts, however, there is limited liaison between the functions . that given the pressure of immediate workload demands, the analysts have limited time to utilise free-range exploration of data to identify short and long term issues. . Most analytical work is reactive in response to focused case- or issue-based requests from managers . with many analytical tasks not clearly delineated into tactical, operational or strategic, optimum use is not fully realised from the considerable collective analytical expertise in the SPS

5.4 Priority and Timelines

The changes can be planned and developed in 2017 for implementation in 2018.

5.5 Costs/Savings

The changes are philosophical. There are staff resources required for the orientation and change. The potential savings through civilianization are described in Section 6.

5.6 Implementation Plan

As part of the organization chart change, it will be necessary to re-orientate staff within the Unit and the SPS.

Protocols need to be developed for the direction of Unit personnel in support of SPS functions. It is essential that efficient and effective information requests and dissemination protocols are developed.

5.7 Issues and Challenges

It is important to develop information dissemination protocols that are timely (daily), targeted (delivered to specific teams and shifts), and tactical (there must be identifiable actions for team members to address the issues).

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Typical challenges include tendencies for information overload and lack of filtering of dissemination requests. These will be a matter of education, supervision and feedback on information volume and successes.

As with all such organizational changes, position descriptions must be developed and Agreements renegotiated.

5.8 Detailed Recommendation

The Review recommends the Board and SPS establish a new Planning and Analytical Unit in the Operational Support Division. . The Unit includes the current Planning and Research-Compstat Unit, the Central Crime Analyst, and the Criminal Intelligence Analyst, and all future analyst positions . The Criminal Intelligence Analyst and the Central Crime Analyst embedded in their current locations should report operationally to their current managers; but for purposes of training, standards, software, and mutual support, they will report administratively to the Manager of the Planning and Analytical Unit . The Divisional Sergeant positions in West and East Divisions should be eliminated and replaced by civilian Crime Analysts

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6 Civilianization

6.1 Recommendation

The Review recommends Board and SPS implement the civilianization of the positions described.

6.2 Background

Civilianization of police services is a term used to describe the identification of tasks and responsibilities currently performed by sworn police officers that could be carried out by non- sworn civilian personnel. Some argue that a readjustment of responsibilities between police and civilian personnel may result in increased effectiveness and economic efficiency in the delivery of policing services.39 On the other hand, others caution that civilianization must be implemented in a way that is mindful of the duties that require sworn officers and in ways that ensure the police service and the work environment would benefit from the integration of civilian personnel.40 41

Over the past twenty years there has been a move to civilianization of policing with the greatest changes being the number of management/professional positions, including managers, administrators, systems/computer analysts, and other skilled personnel. The United Kingdom (UK) has a 41% civilian rate or 1.4 police per civilian staff.42 For example, in the UK, the role of Scenes of Crimes Officers (SOCO)43 have been civilianized.

A review44 of selected police departments in Canada and the US revealed that: . civilians are filling a wide variety of positions in police departments that were traditionally occupied by sworn police officers . in many police departments, there are mixed units composed of sworn and civilian members . there are civilians in executive and senior management positions in police departments . there are police departments with sworn members in charge of mixed sworn/civilian units . there are police departments in which sworn members report to civilian managers45

39 Griffiths 2014 40 Morrell 2014; Peak 2010 41 Statistics Canada Police Resources in Canada 2015 42 Skinns, L. Police Custody: Governance, legitimacy and reform. Rouledge Taylor & Francis Group. London. 2011 43 Now referred to as Crime Scene Examiners (CSE) 44 Griffiths, C. Simon Fraser University. Civilianization in the Vancouver Police Department 2006 45 Including the SPS

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6.3 Findings

Interviewees mentioned the divide that continues within the SPS, causing non-sworn staff to feel less than full members of the SPS team. The issue is exacerbated by no deputy-level civilian executive leadership. Skilled corporate services professionals report to a sworn position (Deputy Chief) that does not have the corporate services background and experience of the specialized administrative and technical functions of a complex organization.

The rationale for civilianization includes both potential cost savings but, more importantly, it presents an opportunity for a better fit of skills and position requirements. The criteria used to assess whether a position can be considered for civilianization include: . does the position require Constable powers (i.e. powers of arrest, use of force, statutory requirements, possession of a firearm, for example) . are the skills, training , experience, or credibility of a sworn police officer required to fulfill the duties of the position . can the requirements of the position be fulfilled by a specially trained civilian 46

The SPS has a comparatively high ratio of civilian to sworn staff. However, there are opportunities for greater effectiveness and cost savings.

6A Detention

6A.1 Background

Detention services are provided through a state-of-the-art facility staffed by a shift team led by a Sergeant, comprising two Special Constables (one male, one female), one Commissionaire, and a Paramedic supplied through M.D. Ambulance Care Ltd. When the Sergeants are absent, replacement Sergeants or acting Sergeants are assigned from the Patrol Division.

The Police Act requires that the municipality shall provide adequate and reasonable facilities required for the policing services mentioned in clause 47 but does not limit how this may be provided.

46 Griffiths, C.T. Simon Fraser University. Civilianization in the Vancouver Police Department 47 Section 25 (c)

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Feedback from interviewees generally included a desire for the SPS not to provide detention facilities due to the many vulnerable arrestees in poor health lodged into the facility, and require more care than the SPS can provide.

The staff views on the management of the facility were contradictory, from insisting that a Police Sergeant is essential as the officer in charge, yet simultaneously expressing preference for a non- police detention facility. A police Sergeant is a valuable commodity; years of experience and training result in the SKA to perform a range of functions within the organization. The officer-in- charge position, although requiring peace officer status, does not require the full range of SKA (and costs) of the Sergeant.

The essential elements of the position require integrity, reliability, evidence-based decision making, interpersonal skills, and training in SPS systems and policies, and the laws of detention and release. These attributes are not restricted to Sergeants.

To staff the Detention officer-in-charge position 24/7 requires approximately 4.5 Sergeant FTEs. The backfilling due to annual leave, EDO, training, public holiday leave, and sick leave draws experienced Constables from Patrol, exacerbating the PAF challenge.

6A.2 Findings

Detention is an area which would benefit from specialized supervision, as it does not require the whole range of skills, knowledge, and abilities of Sergeants. There is the opportunity to create stand-alone staffing, comprising Special Constable supervisors with 'officer in charge' designation. (referring to section 498 of the Criminal Code). Establishment of these positions would create more career paths for Special Constables.

Ideally, a number of full- and part-time staff could create the ability to backfill staff vacancies which would avoid taking police staff from Patrol. Retired police officers, or other persons with suitable experience could assume the supervisory role and augment the cadre of part-time staff. The existing Detention Special Constables can be groomed to assume the officer in charge function as appropriate.

The 2016 salary of the Sergeant position is $116,712 and for a Special Constable III, $70,999. A Special Constable IV classification will be required to reflect the supervisory responsibilities, but it will be significantly less than the Sergeant salary.

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A further advantage is staff continuity as opposed to the current frequent rotation of Sergeants and acting Sergeants, drawn from Patrol, which affects PAF, and personnel and supervisory continuity.

6B Communications Centre

6B.1 Background

Currently the SPS Telecommunications Teams are supervised by Sergeants. When the Sergeants are on leave, replacement Sergeants or acting Sergeants are taken from the Patrol Division.

6B.2 Findings

The Review noted, underscored by interviewees, that the Sergeants assigned to the Communication Centre often have no experience in communications or radio systems prior to their transfer to that section. This places the Sergeant in the position of not being able to effectively supervise, and places burden on the very experienced radio and call-taking staff, who have much more experience with the call taking and dispatch function.

Radio and call taking staff respected the Sergeant‟s authority and operational experience, but questioned the effectiveness of having frequent turnover of supervisors without any experience in communication functions. Also, the use of supervisory personnel who are not fully familiar with Communications processes and protocols, raises the possibility of liability issues for SPS.

Other police communication centres identified this issue nearly twenty years ago and replaced sworn supervisory staff with civilians. While there were transitional issues, these did not relate to officer safety or operational effectiveness, and instead were due to cultural change. This approach, applied in the SPS, would creates a career path for communications personnel.

Ideally, a number of part-time staff could backfill staff vacancies, creating a stand-alone telecommunications function, which would avoid taking police staff from Patrol.

A further advantage is staff continuity as opposed to the current frequent rotation of Sergeants and acting Sergeants, drawn from Patrol, which affects PAF, and personnel and supervisory continuity.

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6C Violent Crime Linkage Analysis System (ViCLAS)

6C.1 Background

There is no job description on file for the ViCLAS function, which is currently a Sergeant position. Typically, the position would involve ensuring the completion of ViCLAS and other relevant databases used by investigators to track and/or link violent crimes. The function analyzes ViCLAS data and identifies crime trends and/or offenders, and acts as a resource to other police staff and agencies.

6C.2 Findings

Police powers are not required for the ViCLAS function: the skills are technical and analytical. A qualified civilian analyst (Special Constable) will provide greater continuity, fewer absences due to mandatory police certifications, and reduced turnover, at a lower cost.

6D Divisional Sergeants - Crime Analysts

6D.1 Background

The job descriptions for Divisional Sergeant positions and the Crime Analysts show overlap in the crime analysis areas. This conclusion was supported by interviews which indicated the divisional administration could be moved to the divisional Staff Sergeant and the analysis duties assumed by the new Analysts.

6D.2 Findings

The function of crime analysis is technical and analytical and does not require the range of SKA of a sworn officer. Therefore, the Divisional Sergeant positions can be eliminated and replaced by Crime Analysts.

6.4 Priority and Timelines

The planning should commence in 2017, but the contractual negotiations and development of job descriptions will likely take some time to full implementation.

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6.5 Costs/Savings

There will be some savings in salary costs, and these will be augmented by avoiding the ongoing mandatory training and certification time of sworn officers and fewer disruptions for the Patrol Division in supplying relief Sergeants to Detention and Communication Centre. There will be cost savings in the change from two Divisional Sergeant positions to Crime Analysts.

The 2016 salary of the Sergeant position is $116,712 and for a Special Constable III, $70,999. A Special Constable IV classification will be required to reflect the supervisory responsibilities of Detention and Communications, but it will be significantly less than the Sergeant salary.

6.6 Implementation Plan

SPS HR and bargaining units should work cooperatively to determine the most appropriate criteria for the job descriptions.

Selection and training of new staff will be carefully conducted to recognize the positions' skills, knowledge, and abilities, and also the essential reliability and security issues.

6.7 Issues and Challenges

Decisions must be based on evidence and good practice. Since the process of civilianization in policing began approximately fifty years ago, it has been frequently argued that 'only a police officer can do this job' and personnel who are resistant to civilianization should be disabused of this assumption. It is noted that SPS has one of the highest civilian/sworn ratios in the comparators.

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7 Technology Services

7.1 Recommendation

The Review recommends the SPS implement a range of information technology improvements which are described individually.

7A.1 Recommendation

The Review recommends the SPS implement a standardized set of recurring CAD/RMS analytical reports which track occurrence types and distributions, incident and unit status, system usage and section and member performance metrics that can be shared with operations, administrators, and SPS senior management.

7A.2 Background

SPS employs a standardized process for occurrence creation, initial patrol response, and investigative follow-up that is similar to that of most emergency service agencies across North America.

SPS utilizes both computer-assisted dispatch and records management systems48 (CAD and RMS). These systems are critical to all SPS operational work and are referred to collectively as SIMS.49 These systems are tightly integrated and function well.

The Technological Services Division has developed a number of analytical systems for workload analysis and tracking of SPS calls for service. Notable among these systems is a web-based unit status tracking application that interfaces with the CAD system, and allows staff to observe the current location and status of all police units within the city.

The Division also provides database extracts which are used by crime analysts at the operational level in Patrol, and staff in the Planning Section, which is responsible for Compstat within SPS.

48 VersaCAD and Versadex respectively 49 Saskatoon Information Management System

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7A.3 Findings

SIMS is capable of generating a number of statistical reports in regard to calls for service, incident and investigative response, and personnel deployment. The Review found, however, that this report set is not comprehensive, nor are the existing reports used as effectively as they could be by management and investigative and patrol supervisors in terms of making deployment decisions and evaluating SPS performance.

During the interviews, the complexity of the system, the follow-up requests for additional information, and the multiple points of contact for files including the Sergeant, Reader, and Staff Sergeant, were identified as frustrations. Staff described the considerable time required to successfully navigate the system.

During the Review‟s interviews it was noted that Crime Analysts have an intimate knowledge of data trends in the city, and that the Analysts‟ contribution to patrol and investigative activities is not fully recognized as being of value to decision makers. In the current data-driven policing environment, access to statistical analyses and reports should be part of both day-to-day management and strategic planning.

Within the current SIMS environment, advanced analytical work is made more difficult given the older architecture of the CAD and RMS systems. Patrol unit status change information, for example, is not captured by CAD in a standardized, consistent format. This makes detailed temporal analysis of patrol unit activities very difficult (see section 3). To gain such insight into the SPS data set, SIMS data must be exported from CAD/RMS and then further processed by external tools.

This export/analysis approach was also the path taken by the Review: a standalone analytical database was created by the consultants into which the exported SIMS data (excluding personal information) was loaded.

Ideally, SPS CAD/RMS systems would support these analyses natively. This would simplify real- time calculation of crime statistics, incident response times, and the PAF. The Technological Services Division, in collaboration with all concerned SPS sections, should work to develop a comprehensive report set that can better support strategic decision making and be used to monitor Patrol and Investigative activities within SPS.

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While both the CAD and RMS components of SIMS are well understood technically by IT staff, there is a disconnect between SPS operational users and IT in terms of communication and the understanding of the SIMS data set.

This is a case where IT is intimately aware of the scope of data which is collected by patrol members and investigators, but may respond to requests for information without the opportunity to fully discuss the subject. For example, the Review noted two examples of data requests (one to a Crime Analyst; the other to an IT database analyst) where the analysts had considerable ancillary information beyond that of the specific request, but there was no opportunity to provide that information.

In some interviews, the Review noted a lack of deeper understanding of the importance of information to decision making, and the importance of technology‟s role in being able to provide decision makers with valuable intelligence. Repositioning of IT to a more centralized position and better communication (collaboration) between IT data specialists and crime analysts and data requestors would generate significant operational and administrative efficiencies.50

Closer collaboration between the Division, crime analysts, and planning could result in much more informative crime trend reports.

During the Review it was noted that some daily statistical reports that are used by management and the Executive within the organization are generated manually.51 These reports could easily be generated automatically; however, they must currently be compiled manually by Watch Commanders and other staff on a daily basis.

The Technological Services Division is involved in ad hoc statistical requests related to calls for service, but there is no formal catalog of reports available and no repository or communication of statistical reports that could be used or enhanced by diverse sections within the organization.

7B.1 Recommendation

The Review recommends SPS ensures that high-liability incidents such as vehicular pursuits are more fully captured by CAD for potential future review . This recommendation is related to recommendation 7A.1 above.

50 This issue is addressed in the recommended organizational chart 51 For example, a daily report that breaks down calls for service by District. The information is collated manually from the duty sheets and overnight records and entered onto a form that is then made available to staff on an internal web page

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7B.2 Background

SPS patrol units receive occurrence assignments via voice radio and the laptop computers in their vehicles. Members interact with the dispatcher to advise of status changes (e.g. arrival on scene; back in service) either via voice radio or through their laptops. Dispatchers may also add updates to the incident. In each case, CAD records the update or status change through the creation of an additional record under the assigned occurrence number.

The record of unit assignments and status changes per incident contains valuable statistical information that may be used to closely track incident and unit response.

Incidents that progress to follow-up investigation are queued at intake points referred to as handles within the RMS. Handles exist for each unit within the Investigation Division.

Handles are managed by section supervisors within each unit. The supervisor will typically review the unit's handle and assign work based on the details of each incoming case. SIMS creates a record for each assignment or change to an investigative occurrence that includes date and time stamps, so each case may be tracked temporally, as well as via status changes or through forwarding of the occurrence to other units.

7B.3 Findings

The Review found that the rich data set associated with CAD and RMS incident response is not being efficiently leveraged. Fuller analyses of unit status change data, and the flow of investigative incidents through their responsible units could provide SPS with valuable investigative, training, and administrative information.

Within the current SIMS environment, advanced analytical work is made more difficult given the older architecture of the CAD and RMS systems. This makes detailed temporal analysis of patrol unit activities difficult.

To gain such insight into the data set, SIMS data must be exported from CAD/RMS and then processed by external tools. This was the path taken by the Review. Ideally, SPS CAD/RMS systems would support these analyses natively. This would simplify, for example, real time calculation of crime statistics, incident response times, and the PAF.

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It was observed during the Review that the Technological Services Division has developed a number of valuable analytical systems for workload analysis and tracking of SPS calls for service. Notable, however, is that the advanced statistical analysis has not been extended to the generation of periodic reports on incident type, response time, and geographic and temporal analyses of calls for service, or for follow-up investigations. Such reports could be of significant value to supervisors and senior management.

IT has the necessary technical skills for this analysis, as evidenced by the comprehensive 24/7 unit status displays that are available on several wall-mounted televisions at SPS headquarters. The Division's technical skills could be applied to generation of a fuller set of unit and incident activity reports, in consultation with operational and administrative staff. SPS would benefit from closer collaboration between operational staff and IT towards the generation of a fuller set of unit/officer and investigative unit activity reports, such as those which were developed specially for the Review.

SPS would benefit from closer collaboration with IT towards the generation of a more complete set of unit/officer and investigative unit activity reports, such as those which were developed specially for the Review.

7C.1 Recommendation

The Review recommends SPS develop a plan for the evolution of IT core systems and conduct an independent (i.e. non-vendor led) environmental scan for future planning.

7C.2 Background

Both the CAD and RMS components of SIMS are mature products that have been deployed in various versions at SPS and other police organizations for over twenty years. They may be considered core applications at SPS: those systems on which the agency‟s operation and public service depends and revolves.

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7C.3 Findings

Loss of SIMS would have critical impact on the SPS. A single-vendor dependency for both of SPS core systems exists, and this represents operational and administrative risk.

The complexity of CAD/RMS applications precludes internal development, but dependence on a single vendor for these services allows the vendor to decide on deployment of new features, dictate upgrade schedules and, in effect, to set organizational priorities.

Ideally, police core applications such as CAD/RMS should be based on open standards. This would allow agencies to pick and choose products (and vendors) to meet the various operational and administrative requirements.

While the systems‟ vendor is well-established and strives to provide enhancements to CAD/RMS and to meet new legislative requirements, from a risk management perspective, the ability of SPS to fully deploy a modern application framework is limited by this single vendor dependency.

7D.1 Recommendation

The Review recommends SPS implement better logging within CAD/RMS that will allow more granular tracking of incident response, unit and officer activity. . Implement changes to CAD that will track individual unit status changes and incident type code updates more efficiently and allow allocated and unallocated time (PAF) to be measured.

7D.2 Background

This recommendation is related to the work done by the Review to determine the PAF, and is closely related to recommendations 1 and 3 above.

Analyses were conducted on a subset of SPS 2015 SIMS (CAD and RMS) data. CAD data contained information related to patrol incident response, and the RMS component of SIMS allowed the Review to track follow-up investigative activity.

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7D.3 Findings

Statistical reports of officer and unit activity are available from SIMS, these reports are not comprehensive and do not contain the detail necessary for easy calculation of the PAF. The Review found it necessary to ingest a large extract of data from CAD (for use in PAF calculation) into a custom-designed database, and perform elaborate refinements of the raw CAD data in order to compute the PAF.

Lack of easily-accessible information, from which to calculate PAF, affects efficient deployment of patrol units and impacts SPS decision making. PAF should be an easy calculation and should be computed regularly.

With the exception of unit availability figures (due to the reliance of the patrol function on paper- based duty sheets), IT has the technical capability to recover the necessary data and develop a set of PAF reports such as were produced by the Review.

Ideally, paper duty sheets should be replaced with an electronic equivalent integrated with SIMS, but in the interim, even assigned data entry of duty sheets by support staff into a spreadsheet would allow SPS to compute PAF on a periodic, even real-time basis.

7E.1 Recommendation 5

The Review recommends SPS utilize the quality control (QC) facilities available within SIMS to track report acceptance and rejection, and reasons thereof.

7E.2 Background

One aspect of SPS that differs from some other agencies is the high reliance of members and investigators on the Reader function. Every SIMS report is reviewed by a Sergeant with training in police reporting requirements. Readers provide file review services to identify quality control issues and to ensure the completeness and correctness of all investigative reports.

7E.3 Findings

SIMS provides the electronic facility to flag an investigation as incomplete, along with reasons for this, but in practice the Readers do not utilize this facility. Deficient reports are brought to the

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54 Operational Review of Saskatoon Police Service investigators‟ attention by telephone or through email or other means, rather than using in-system facilities.

While members‟ reporting deficiencies are addressed through this undocumented error correction process, the lack of tracking of these deficiencies through SIMS deprives SPS of valuable statistical information that has strategic value. Reports that document incident reporting or investigative deficiencies could be used to improve reporting quality.

For example, if all incomplete reports were tracked through SIMS using the extant facilities in the system, statistical quality control reports could then be generated by section, division, or even by member. These reports could be used to identify training gaps, design SPS recurrent training, and support the concept of continuous improvement.

7F.1 Recommendation

The Review recommends SPS establish a fully-equipped standby computing infrastructure, especially for the CAD and RMS systems.52 . This will support business continuity in the event of a disaster or loss-of-data-centre incident

7F.2 Background

The Technological Services Division operates, a modern machine room and associated facilities.

7F.3 Findings

The SPS machine room and servers, as well as the core networking and backup facilities are located within the new police building. The machine room is modern and well-equipped. While effective procedures are in place for backing up SPS operational (SIMS) and administrative data (email and the like), it was noted during the Review that SPS lacks an alternate data centre to be used for emergency purposes, resulting in a significant risk to SPS.

Should the headquarters building be lost due to fire, electrical failure, water damage, or some other event, operational and administrative data would be restorable due to the existence of backups. However, there would be no server or network infrastructure to bring critical systems

52 The Technology Services Division has identified this vulnerability and it is included on the current project spreadsheet

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55 Operational Review of Saskatoon Police Service such as SIMS back up. Suitable space would have to be located, servers and network connectivity would have to be purchased and configured, and only then could the backed-up data be restored, to permit resumption of SPS business. Acquisition of new servers/network infrastructure and its deployment to bring systems back on line could take several weeks.

Consideration should be given to the establishment of a 'hot' or 'warm' standby computing infrastructure, especially for the CAD and RMS systems.53 Such a project would involve considerable planning and expenditure, but from a business continuity and liability perspective, the requirement needs to be addressed.

If SPS security requirements can be met (this will be a moderately complex task), then this is an area of potential collaboration with civic government.54

7G.1 Recommendation

The Review recommends SPS explore collaboration with the City of Saskatoon for acquisition of an industry-standard payroll/personnel management system. . Such collaboration should be dependent on the City being able to meet SPS security policy and clearance requirements

7G.2 Background

SPS administrative and office support systems are largely based on de facto standards such as Microsoft Windows, Office, and related applications. These systems are supported and maintained by IT staff, including deployment of application and security updates at regular intervals.

Some administrative systems have been developed in-house, but these are proving costly to maintain and to adapt to changing administrative requirements. An example is a staffing/payroll management system which was developed several years ago by the Division for SPS Finance. This system no longer meets all administrative requirements. The Division could either expend

53 The Technology Services Division has identified this vulnerability and it is included on the current project spreadsheet. Hot standby is having machines and networks and data primed so that if the main server/facility fails, the standby machine takes over seamlessly - instant cutover. Warm standby is having machines/servers/data ready, but having to perform some tasks to get the standby systems online: move network connections over, start databases, etc. 54 See the Review’s discussion of security below

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56 Operational Review of Saskatoon Police Service staff time to re-engineer the in-house system, or lead a project to acquire an industry-standard application.55

7G.3 Findings

In this case, rather than developing the new system in-house, a decision was made to acquire an industry-standard commercial payroll/personnel management system through a procurement process. This approach is reasonable, given the complexity of this type of system. IT development work can then be focused on more policing-specific applications such as the specialized statistical reporting, or SIMS enhancements described elsewhere in this report.

However, challenges of the procurement approach will include: . organizational coordination, as payroll/HR systems are critical to day to day operations, and policing has staffing and deployment idiosyncrasies which differ from those in the business world; . prioritization, as this is one of several projects assigned to the Technological Services Division by SPS Executive . staffing levels, as such projects exhibit both organizational criticality and technical complexity, and this frequently leads to need for unanticipated additional technical and administrative staff.

A collaborative opportunity potentially exists with civic government for this system, if the necessary police security requirements can be met. This would include security of the servers and network infrastructure which provides SPS connectivity to the system, security of the system and contained information, and personnel security related to city staff who will support and maintain the payroll/HR system.

7H.1 Recommendation

The Review recommends SPS develop a comprehensive security policy that formally defines standards for physical, personnel, information, and technological security and back up. This policy should be standards-based and leverage existing best-practice frameworks already utilized by major police agencies across Canada.56

55 A classic build-or-buy situation: a common debate in industry and government 56 For example, the federal “ITSG-33” standard is used by other police agencies (including the RCMP and all police agencies within the province of British Columbia) for security relating to information technology systems.

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7H.2 Background

Like many police agencies, SPS is generally security-aware but lacks formal structure in its security posture, presenting risk to the organization. The evolution of threats, especially in the information technology sector, places information at risk. The organization‟s current security is centred on traditional security: physical security, access restrictions, and personnel control.

7H.3 Findings

Current security standards and controls within SPS are not backed up by defined policy, nor are they subject to periodic review internally or externally. SPS has not identified best-practice standards against which to measure its security program. SPS lacks an agency-wide security policy and therefore has no benchmark or identified standard to which the agency can measure its security compliance or develop a security roadmap for the future. In practice, agencies' security policies are often integrated with risk management programs.

Comprehensive standards such as the federal government‟s IT Security Guidance Version 33 (ITSG-33) could be adopted in whole or in part by SPS to help modernize and better define the security posture.57 ITSG-33 is used by the RCMP, throughout the federal government, and by all police agencies in British Columbia as a suggested organizational security standard.58

SPS has reasonable physical security standards and good oversight of its facilities 24/7, but lacks documented physical security standards and policies. While all employees of SPS are subject to a criminal record and suitability background check, staff do not receive formal clearances from the RCMP, Treasury Board, PWGSC, or any other nationally recognized organization.

While lack of formal clearances has (to date) had minimal operational impact for SPS, adoption of a formal clearance process and clearance maintenance standard would elevate personnel assurance standards within the organization and ensure full interoperability of staff with other law enforcement agencies.

In the event of a cyber attack, SPS has no cyber security incident response plan. Lack of a response plan, and the lack of a predetermined cyber security incident response team would likely result in an inefficient response and uncoordinated handling of the event. The critical nature

57 See https://www.cse-cst.gc.ca/en/publication/itsg-33, “IT Security Risk Management: A Lifecycle Approach”. A publication of the Communications Security Establishment (CSE). 58 PRIMECorp‟s “Agency Security Policy”, available from PRIMECorp upon request

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58 Operational Review of Saskatoon Police Service of information held by police agencies demands a higher level of vigilance due to the potential impact on the community of information loss.

7J.1 Recommendation

The Review recommends SPS establish a corresponding risk management process in conjunction with the new security policy leveraging accepted corporate or government risk management risk tracking and back-up standards.

7J.2 Background

In practice, agencies' security policies are often coupled with or integrated with risk management programs. Security policies and standards implicitly address risks, although not all risks (for example, financial liabilities) are security-related.

As noted above, SPS is generally security-aware but lacks formal structure in its security posture. Similarly, no risk management program exists. Collectively, these factors represent liability to the organization.

7J.3 Findings

Best practices in security and risk management recommend creation of a corporate risk register which documents all corporate risks. A risk is defined as a circumstance or event which could negatively impact service delivery, create liability, or affect an organization‟s reputation. The risk register tracks risks in terms of two factors: impact of the event, should it occur; and the likelihood of the event. Each corporate risk is thus assigned a risk score that may be used to prioritize mitigation strategies for that risk. Higher priority risks (those with high impact and moderate to high likelihood of occurrence) are typically addressed by organizations first.

Typically, IT and cyber security risks form a significant part of any corporate risk register due to the high impact of cyber security events and the relatively high likelihood of their occurrence. However, a risk register will also incorporate many other non-cyber risks, such as those related to facilities and equipment, financial liabilities, staffing, and other corporate factors.

The risk register serves typically as a road map for continuous improvement of an organization‟s risk posture. A risk management program will include annual or semi-annual risk reviews with all

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59 Operational Review of Saskatoon Police Service sections and managers to manage and mitigate all identified risks. SPS does not have a risk register or track corporate, operational, or cyber related risks.

7K.1 Recommendation

The Review recommends the SPS introduce policies and technology to efficiently manage email messaging.

7K.2 Background

A common issue identified during the Review was that of the volume of email received by staff. Staff indicated that many emails within the organization are sent to a far wider audience than necessary. They reported that separation of the important and relevant emails from either 'nice to know' or 'not relevant' at all emails could consume a significant percentage of their work day.

Staff reported that they sometimes arrive at start of shift to a large number of emails requiring their attention. Some staff admitted during the Review that their response to this inordinate volume of email is simple: mass deletion of all email. While this approach can immediately reduce the inbox pressure, it is a poor business practice, generates potential organizational liability, and leads to important messages being missed.

7K.3 Findings

SPS employs Microsoft Outlook as its organizational electronic mail platform. Outlook is an effective platform that meets most business and government needs, and is used by all SPS staff. In the operational context, however, SPS staff must also use a messaging system that exists within SIMS, Vmail. Vmail is proprietary to Versadex and sends case and status messages between users, and between the system itself and users. Vmail is also necessary due to the reliance of Versadex on internal handles for management of investigative workflow.

Vmail is distinct from each SPS members' Outlook account and is a feature of SIMS. Email was uncommon in police agencies when SIMS was designed, so a messaging facility was built into the new system that allowed users to communicate and exchange case information. Vmail does not communicate with external email systems and exists in parallel with these systems today. Currently, sworn staff at SPS must therefore check SIMS internal email in addition to their regular SPS Outlook email accounts on a regular basis.

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Consideration should be given to the introduction of newer, non-email technologies for information that must be available to all staff. This process should include a review of current email standards, any distribution guidelines that may exist, and completion of a review of existing policies to ensure that email and all other corporate communication is limited to the smallest viable and required audience.

The membership of organizational email distribution lists should be reviewed at least annually, and membership limited to only relevant parties. Use of reply all or copying email to distribution lists should be discouraged. High priority emails should be limited to true emergencies and important corporate issues.

The Technology Services Division should investigate the feasibility of SIMS being reconfigured to route workflow and Versadex messages to members‟ regular Outlook email accounts, rather than requiring members to rely on legacy Vmail. Email settings should be customized to each individual‟s work unit, and Outlook rules implemented that will automatically manage regular messages and spam.

7.4 Priority and Timelines

The several recommendations should be prioritized as feasible and practical by the Technology Services Division.

The scope of the Review does not permit a full enumeration and prioritization of technology projects, but projects could be prioritized based on organizational risk and liability. Development of a corporate risk management process as described above would assist in quantifying risk, and help identify those projects which can address the most significant liabilities.

An example would be the lack of a standby computing infrastructure as described in section 7F above. Loss of the current data centre at SPS headquarters could impact police operations and public safety for several weeks as a new facility is found, servers acquired, networking equipment acquired and deployed, and SIMS placed back into operation. While the cost of establishing a standby data centre is significant, the risk management process may deem the project high priority.

There are likely several other technology projects which are achievable at lower cost, yet which would have significant positive impact upon SPS operational or administrative functions. The risk management process could identify those and provide a short-term path for technological

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61 Operational Review of Saskatoon Police Service development and service improvement while higher cost projects like the standby data centre are in the planning stages.

7.5 Costs/Savings

It is likely that significant costs may be involved, both in staff resources and hardware/software. The IT recommendations should be subject to a detailed business plan and subject to internal and external costing options. It is beyond the scope of the Review to identify a specific project management methodology or quantify project costs, but IT staff have significant experience in this area (and in development of project plans, technical specifications, and business cases), and would be able to develop accurate figures.

Many organizations, including police departments, utilize project management methodologies such as the Information Technology Infrastructure Library59, but other frameworks exist which provide similar project management support.

Despite the choice of project management methodology, successful technological projects must be user-focused and rely on a collaborative project team approach. Lead user representatives must be knowledgeable and input must be considered from a broad range of users to ensure that the proposed system will meet operational, administrative, and technical requirements.

Cost and cost effectiveness is always a significant factor in technological projects, and is typically captured in the business case development phase of any project proposal.

7.6 Implementation Plan

The SPS Technology Services Division should examine the recommendations and develop high level project plans for these recommendations, with full consideration of staffing, funding constraints, mitigation of risk and an assessment of skills, cost and IT priorities and the use of internal vs. external resources.

7.7 Issues and Challenges

Costs and resources challenges for the Technology Services Division vs. the need for administrative and operational enhancements.

59 See https://www.axelos.com/best-practice-solutions/itil. ITIL is the most widely accepted approach to IT service management in the world. ITIL is based on the international ISO 20000 standard.

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8 Training

8.1 Recommendation Summary

The Review recommends SPS should establish a training working group chaired by the Director of Human Resources, consisting of SPS trainers, managers, and the Director of the Technology Services Division.

8.2 Background

Overall, education and training of police officers in Saskatchewan is governed by The Municipal Police Training Regulations,1991.

SPS training can be characterized as three types. The annual mandatory training was viewed as successful by interviewees for quality and delivery. Secondly, during 2015, over 400 SPS candidates attended more generalized training on a wide range of topics including leadership, police information and statistics, telecommunications, workplace conflict, undercover operations, sexual crimes, major crime, human rights, wellness, and a wide variety of conferences and workshops.60

The third type of training, concerns the right-fit for staff moving to new positions. Promotional moves create a challenge. An employee may be assigned to a vacancy for which they have no background or training. The promotional aspects of this issue are addressed elsewhere in the report, together with suggestions for ways of minimizing the problem.

The SPS survey61 responses indicate that training needs particular attention from management since appropriate training is essential for the safety of the police staff, the reputation and liability of the Service, and morale.

The current training policy speaks mainly to operational training and, to a lesser extent, to management training and continuing education.62 Leadership training, as a standard for Sergeants and above, is not mentioned but necessary in a modern organization where the policy focus is more on coaching of subordinates and new recruits.

60 SPS 2015 Training document 61 SPS Moral Committee Surveys 62 Policies Part II Chapter B

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Annually, the Human Resources Division (HR) conducts a survey to determine if Sergeants are happy with their work placement, and if not, where they would like to work. The results of this survey are considered when making placement and transfer decisions. The survey also asks those on the promotion list the areas of the SPS in which they would prefer to work.

Six sworn staff are currently assigned to the Training Unit plus one accommodated member.63 Some interviewees suggested that this number of personnel is adequate for the task. Others observed that the Training Unit suffered from lack of resourcing and funding for trainers versus the support and administrative aspects of training. It was proposed, however, that this assertion is based upon a misunderstanding of the training budget.64 This is based on the observation that specialist trainers were used from field units to deliver some components of training. Although this has a detrimental effect on the field unit, it does use the trainer's skills efficiently and effectively .

New software, Humanity, has been purchased to assist the planning and scheduling of training.

In 2015, of the SPS operating budget of $80 million, $791,078 (actual) and $843,000 (budget) were allocated to training costs. This represents $1163 and $1240 per employee respectively.65 The 2013 Calgary Police Service training budget, for example, accounted for approximately 3.5% or $10 million of the overall operating budget, reflecting $3613 per employee.66 However, the comparison of training funding is problematic as police agencies fund training in different ways. A further element in any training budget for SPS should include cultural awareness training for police regarding Indigenous policing and issues as raised in the National Inquiry into Missing and Murdered Indigenous Women and Girls.

The matter of timely training, particularly for newly appointed Sergeants, was frequently mentioned by interviewees as a concern for both the new appointees and for other staff. It was reported that several newly-promoted Sergeants were transferred to positions with minimal notice or consultation. Some further mentioned that they were not trained appropriately, as a supervisor or as a specialist, in the mandate of the unit they were assigned to work. Their training became the responsibility of the staff of the unit in which they were now working. The formal training was often delayed for several months. The obvious shortcoming is that there is a period of less than effective and efficient work. In addition, the absence of timely training may present liability issues.

63 SPS Organization Chart May 2016 and Training document 2015 64 SPS feedback 65 Staff numbers SPS Information Book 2015 66 Based on the rounded $10m figure and the 2015 staffing level from the comparator response

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With respect to training before a transfer or promotion, SPS suggested that this is not always possible. There are finite dollars for training and time off associated with training. Given this, the Service strives to provide the needed training as soon as possible after someone goes into a specialized area.67

If timely training is not available, it makes it even more important that supervision is adequately assessed in the selection process. Relying on the current interview questions regarding supervisory experience is not an appropriate assessment of a candidate‟s supervisory skills.

Computer-Based Training

Training can be extremely expensive and disruptive to efficient service delivery. On-line and Computer-based Training (CBT) have undergone significant improvements. Both approaches have been successfully adopted for both primary and recurrent training in many professional sectors where traditional, one-on-one or classroom training was previously considered the only effective approach.

A front line supervisor training model of blended learning with a self-study component has been developed by the Ontario Police College and the Canadian Police Knowledge Network68 (CPKN). York Regional Police Service (YRPS) uses competency based management system for officer promotional processes.

It is noted that in 2015 an SPS Sergeant joined the Canadian Police Knowledge Network Inventory Review Committee to review online courses in the course inventory and is listed in the 2015 SPS Training Report. This concept could be evaluated as a component of supervisory training for prospective Sergeants in SPS.

SPS training currently emphasizes a traditional in-person approach. Evolution of this methodology could improve training and skills currency for SPS members and potentially reduce cost. It is recognized that mandatory training focuses mainly on force options requiring some in- person training time, but even these subjects could have some preparatory CBT application. CBT represents a departure from the norm for many police agencies. From the students' perspective, however (especially for younger police members), CBT is mainstream and is likely something with which they have had experience. Younger members (those most in need of a

67 SPS Feedback 68 See http://www.cpkn.ca/

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65 Operational Review of Saskatoon Police Service broad training syllabus) have fundamental computer and Internet skills and operate intuitively in an online, CBT-like environment.

Any CBT platforms or programs implemented or adopted for use by SPS should be first evaluated from a security/risk management perspective.

8.3 Findings

The mandatory training is considered to be well delivered and effective, and SPS members are annually exposed to a wide variety of external training. The lack of right fit training and preparation for promotion of specialized units is identified as an issue. The availability of specialized training at the appropriate time is sometimes a barrier, for example, courses at the Canadian Police College.

Training cost and availability of specialized personnel to conduct such training is a problem for all police agencies. Some training for select supervisory or management training can be conducted in conjunction with other City or Provincial entities. Given the highly-specialized content or skills required, some police training courses must be conducted in person by specialist personnel. Overtures can be made to other City functions or provincially or nationally to police organizations to explore the development of in person or computer based training opportunities. In exploring other cost effective training options, it may be necessary to accept that some elements of, for example, supervisory training may be common to multiple organizations.

Training is an important issue for the SPS and was mentioned in the Morale Survey. That the SPS is seen to be addressing the training issue, as it is, demonstrates support for staff.

8.4 Priority and Timelines

The Group should be established in 2017 and the training plan implemented in 2018.

8.5 Costs/Savings

A further issue impacting the gross, but perhaps under-reported, cost of police training is the temporary removal of staff from their normal duties. This may involve overtime or additional acting-rank pay.

The changes are philosophical, focused on scheduling and assessing training needs more precisely. The Humanity system is in place and costs are not anticipated.

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8.6 Implementation Plan

The Working Group should determine the types and range of training required, research alternative ways of delivering training, especially CBT. An integrated process should be developed or adopted to ensure integration with promotions, transfers, and training topics. SPS should explore options for effective yet cost-efficient training at select levels and/or subjects. Opportunities available within the City, the Province, local educational institutions or other police agencies should be considered for select, or portions of, general courses.

Marketing of the new approach would be critical to acceptance of the change of philosophy within SPS, especially with the older generation of police officers and unsworn staff who may be used to more traditional training approaches.

Training could be coupled with modernization of SPS HR management system so training schedules could be identified automatically, and potentially auto-scheduled, thus relieving training staff of significant work.

8.7 Issues and Challenges

The staff time required, and the Training Plan must complement and be consistent with the Promotion Plan. Training of newly-promoted staff must be orchestrated to ensure adequate lead time for appointments and associated staff moves.

The adequate lead time, above, is dependent upon a longer planning cycle for promotions and deployment as potential vacant positions must be identified earlier to permit planning of assignments. A reduction in the time required will be facilitated by the revised promotional process with fewer participants proposed elsewhere in this report.

The older generation of police officers and unsworn staff may be used to more traditional training approaches.

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9 Value of Staff

9.1 Recommendation Summary

The Review recommends the Board and SPS ensure all policies and management decisions and practices underscore the value of all staff, regardless of their status as sworn or non-sworn.

9.2 Background

Organizational Culture - employee engagement and change

A healthy, adaptive organizational culture increases productivity, growth, and efficiency and reduces counterproductive behaviour and turnover of employees. An adaptive culture translates into organizational success, characterized by managers paying close attention to all of their constituencies, especially customers, initiating change when needed, and taking risks. Organizations with adaptive cultures perform much better than organizations with non-adaptive cultures.69

Job satisfaction is positively associated with the degree to which employees fit into both the overall culture and subculture in which they work. A mismatch between the organization‟s culture and employee expectations is often related to a number of negative consequences including lower job satisfaction, higher job strain, general stress and turnover.70

Initiating Change

Many interviewees acknowledged that much is right within the SPS. However, they also proposed that certain elements such as appropriate decision-making, platoon and geographical deployment, the dominating Agreement, the sworn civilian divide, all require examination and revision.

Changing organizational cultures can be a daunting prospect, regardless of the degree of need for change. One reason for a strong resistance to change is that the culture bears the imprint of earlier periods. However, changing organizational culture may be necessary for any number of reasons, including: . influencing employee behaviour . making improvements to the organization

69 Kotter and Heskett (1992) Corporate Culture and Performance 70 Adkins and Caldwell 2004

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. refocusing the organization‟s objectives . rescaling the organization, changes in standards, technology changes, the size and nature of the workforce, and the organization‟s management

Instituting an organizational culture change, proposed within the Review, requires leadership and senior management ongoing commitment and role modeling. Typically, a change champion or manager is required who will manage the process over time and follow recognized change management approaches which can include committees, employee task forces, value champions, and change agents or catalysts.

The Morale Committee

A positive aspect of SPS culture is the active employee engagement the Morale Committee and its staff surveys. The Morale Committee comprising members of the SPS representing management, the Association, and civilian employees, was mandated to look into morale concerns that were voiced in two separate SPS surveys conducted in 2005.71 The survey differentiates between sworn members and civilian staff. The report demonstrates the improvement in morale over the lifespan of these surveys from 2006 to 2015.

Glass Ceiling Survey 2013

Results of the Survey were also considered in the assessment of organization culture by the Review.72 While the results impact representation of women in the SPS, they also are also reflective of the organization's culture. In summary, the conclusion of the Survey in 2013 was: Leadership training, flexible work schedules and developmental opportunities should be explored. In order to gain a better understanding, Human Resources will establish a focus group to learn what is important to our female members and what specific developmental opportunities they would like to see.

The Review understands that there has been no follow up on the suggestion of a focus group to further explore these issues.

Embedding coaching skills in the workplace

Many organizations are looking to increase the coaching skills of their senior leaders. Such an approach makes development an organizational issue, rather than the sole purview of the HR

71 Morale Committee Update Report, 2009. The 2005 Human Resources survey and the 2005 Saskatoon Police Association (SPA) survey 72 Glass Ceiling for Women in Policing Survey Results – report from HR Consultant to Director HR, July 26, 2013

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Division. Research shows that coaching can increase work-related goal attainment, enhance solution-focused thinking, and develop greater change readiness and leadership resilience.73 Interviewees expressed the need for Sergeants and Staff Sergeants to provide mentoring and coaching to their subordinate staff.

9.3 Findings

A general sentiment frequently made to the Review was that the SPS had, over a decade ago, experienced a very difficult period. Many interviewees commented that SPS is now like a family, and morale is high. They cite the positive relationship between management and the Saskatoon Police Association as an indicator of high morale and a positive culture. Others had a different, less positive view, suggesting that the good relationship had a high cost to management in the Agreement.

An important aspect of culture at SPS is that there are two clearly defined subcultures within the organization. Interviewees commented on this division between sworn officers and civilian staff. The sworn officers form one subculture that characterizes a work environment of stress coming from high risk and potential loss/gain or reward situations, typical of police and hospital surgical units.74 The other subculture is that of the civilian staff which is viewed as more of an administrative culture and of less importance and impact upon SPS. Special Constables are a hybrid, possessing some of the benefits of the sworn personnel, yet have not fully experienced the rites of passage of a sworn member. These perceptions require readjustment.

9.4 Priority and Timelines

The process should commence in 2017 and be ongoing. Some aspects such as the Committees and surveys have begun, one element of which - the focus group stemming from the Glass Ceiling Survey - has been held in abeyance.

9.5 Costs/Savings

The changes are philosophical and process and no incremental costs are anticipated apart from staff time to attend group meetings.

73 Anthony Grant 2009 and Anthony Grant and Margie Hartley, 2013 Developing the leader as coach: insights, strategies and tips for embedding coaching skills in the workplace. Research Briefing from the BC Human Resource Management Association 74 Deal and Kennedy, (1982) ChangingMinds.org

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9.6 Implementation Plan

The SPS leadership at all levels must provide role models, both in conduct and written policy, of the desired performance. The possession of such a core competency should be considered in new appointees to supervisory and management positions.

All aspects of the Change Plan should be communicated to all personnel. The communication is particularly important for those changes which require a philosophical or cultural change.

9.7 Issues and Challenges

It will be necessary to avoid narrow, traditional police-focused views applied to a modern diverse organization.

Both management and employee representatives will be required to demonstrate some latitude in negotiations regarding several aspects of the changes to contractual arrangements.

9.8 Detailed Recommendations

This Review recommends the Board and SPS ensure all policies and management decisions and behaviours reflect the value of all staff, regardless of their status as sworn or non-sworn employees, to include: . continuing the Morale Committee and its survey, and ensure the next survey includes questions relating to: o diversity representation in the workforce o the working relationship between sworn officers and civilian staff o Indigenous employees, by asking whether and how elements of their culture are present or can be brought into the workplace . conducting the survey annually, and continue listening to employees and taking action on employee input . following up on glass-ceiling issues with a focus group to explore women‟s views on promotional opportunities at SPS . ensuring employees receive training they require in a timely manner, and that supervisors receive supervisory training prior to being placed in a supervisory role . implementing a coaching approach throughout the organization for the development of employees

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10 Promotion

10.1 Recommendation Summary

The Review recommends the Board, SPS, and the Association establish a promotion working group, chaired by the Director of Human Resources, comprising managers and Sergeants, Constables, the Association, and an independent HR Consultant.

10.2 Background

The SPS promotion process involves a suitability for promotion assessment on the applicant's performance appraisal, a written examination, a mandatory level of years of service in the SPS, and an interview. The first three criteria will be in place, and, following this, the annual process will involve only the interview.

SPS uses a priority list, whereby maximum percentage scores in each stage of the promotion process are defined and candidates' marks determine their position on the promotion list. Although not explicit in the Agreement, candidates are promoted in order of seniority. The new position may be a team leader/supervisory role, or a non-supervisory investigative role.

10.3 Findings

Interviewees felt some pressure to seek promotion to provide increased pay and prestige. However, the positions available were not necessarily the right fit for the candidate and the organization, and it was suggested that new promotees were transferred with little regard for suitability. Interviewees described feeling ill-suited and untrained for the supervisory position to which they were deployed. Interestingly, other staff also commented that some supervisors were ill-prepared and staff were often responsible for training an inexperienced supervisor.

The promotional process was described as „laborious‟. Each year, those Constables who apply for promotion are subject to the interview process. Consequently, frequently up to 70 Constables are interviewed while the number of vacant Sergeant positions is often fewer than ten. For the evaluators, the interview process is time consuming. For the applicants, it is often a fruitless process given the large number of applicants and the small number of prospective vacancies. A complicating factor is that Constables are promoted to Sergeant positions, to be appointed to either supervisory or non-supervisory positions. No distinction is made in the selection process for two very different skills sets. This impacts employee satisfaction and operational

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72 Operational Review of Saskatoon Police Service effectiveness. The Review noted that there are no clearly articulated qualifications/assessment criteria for appointment to the Sergeant level, other than the generic job descriptions in the Agreement.

It is assumed a pass mark of 65% on the written exam, combined with allowing candidates to annually re-sit the exam, will result in a clustering of similar scores.

The combination of annual performance appraisals and the promotion process mixes two discrete functions. According to interviewees, it is thought that no one fails the Performance Appraisal aspect of the promotional process. As noted above, this represents ten marks in the total score. The seniority scores are also likely to have a limited range.

The three steps above can be assumed to have closely-grouped marks; consequently, the remaining interview marks will assume a disproportionate measurement.

An interview process weakness is, given the small size of the SPS, that candidates are probably known to the Promotion Commission, thus making objective assessment more difficult.

To achieve efficient and effective appointment practices, many organizations now use a variety of selection methods and tools. For example, a supply of prequalified candidates for staffing purposes to federal organizations on demand through candidate pools.75 Depending upon an organization‟s needs, qualified candidates can be drawn from the candidate pools.

An assessment centre method provides objective, standardized information to organizations about candidates‟ work related competencies in order to make better, informed staffing decisions. Teams of trained assessors observe candidates in multiple work-related simulations. Behavioural observations are then systematically integrated to arrive at ratings for relevant competencies. The assessment centre method has been reported by empirical research and users to be fair as well as perceived to be fair and contributes to employee morale. It is important to emphasize that the assessment centre concept is a process, and not a place, but the term Centre is generally used. . The Justice Institute of British Columbia Police Academy Assessment Centre has been an integral part of the BC policing community for the past 40 years, developing and delivering

75 Public Service Commission of Canada, Staffing and Assessment Services

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73 Operational Review of Saskatoon Police Service assessment centres for recruit applicants and for all ranks of police officers.76 As it is labour intensive, the assessment centre is usually the last step in the process.

10.4 Priority and Timelines

The planning is now In progress, to be completed in 2017 and implemented in 2018.

10.5 Costs/Savings

Incremental costs are unknown. Should professional external resources be used, for initial design and participation in the promotional process, fees of approximately $20,000 and $15,000 may be anticipated.

If an Assessment Centre concept were to be pursued, development costs of approximately $25,000 may be anticipated and the ongoing training and assessor costs would be dependent upon the form and staffing arrangements. Ideally, these costs would be shared by the participating agencies and the Province.

Cost savings for management and Association interviewers would ensue when 70 candidates are not removed from their workplace or to be interviewed each year.

10.6 Implementation Plan

The Review has been advised that the SPS has created a Promotion Policy Review Committee comprising management and SPA representatives. This would be an ideal vehicle to explore these options.

10.7 Issues and Challenges

The current process is prescribed under the Agreement, but assuming the Committee is unanimous in the recommendations, negotiation should be successful.

76 Found at http://www.jibc.ca/programs-courses/schools-departments/school-criminal-justice- security/police-academy/assessment-centre

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10.8 Detailed Recommendation

The Review recommends the Board, SPS, and the Association establish a promotion working group, chaired by the Director of Human Resources, comprising managers and Sergeants, Constables, the Association, and an independent HR Consultant.

The Working Group will be tasked with: . identifying the skills, knowledge, and abilities (SKA) required for the position of Sergeant, both supervisory and investigative . determining appropriate, discrete steps to introduce the process . exploring opportunities to use an assessment centre process through collaboration with other agencies: the Police College, other police agencies, the City, local educational staff . considering use of a filtering process to avoid 100% of candidates having to complete all steps . establishing an interview processes that is objective and relevant, including composition of the interview panels, especially considering including an external, independent consultant . adapting the nature of the questions designed to bring out examples of behaviour reflecting the required SKA . developing criteria for a schedule reflective of the anticipated promotional needs . designing a promotional 'pool' process whereby successful candidates can be promoted into appropriate vacancies to ensure a 'right fit' rather than a 'next in line' . consulting with the Training Unit to develop a process to ensure that candidates receive the required training in a timely manner

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11 Duty to Accommodate (DTA)

11.1 Recommendation Summary

The Review recommends the SPS adopt a holistic approach to issues relating to Duty to Accommodate.

11.2 Background

On May 15th 2016, a total of 64 personnel were absent or assigned modified duties for a number of health-related issues. The 25 police (5.42%)77 on DTA modified duties represent a significant challenge. The feedback from the staff interviews identified persons working limited hours and/or on tasks where they are not considered efficacious. The 6 (2.82%) civilian staff on modified duties appeared to be a lesser concern as the accommodations were mostly hours, and not significantly different work.

Of the police DTA cases, as of May 2016, there were 19 non-maternity temporary DTA cases and approximately 50% of the DTA were for reasons cited as medically exempt from Defensive Tactics and firearms qualifications. The Review does not know whether these cases relate to physical incapacity or other issues.

The second largest group identified as absent for health-related reasons would be the 19 employees on parental leave (15 police, 3.25%; 7 civilian, 1.88%). Allowing absence from work for parental leave is not really a health issue, and recording it in the category of health-related absence may be seen as demeaning to employees. In reality, parental leave represents a change in society's and organizational attitude and an increasingly diversified staff. It may be appropriate to consider creating a category of absence for non-health related reasons.

The management of DTA cases crosses many administrative and jurisdictional boundaries; for example, the Canadian Human Rights Act, Agreements, privacy legislation, and workers' compensation rules. The law is in a state of constant flux due to court decisions. For these reasons, employers must pay particular care and attention to DTA administration. Employers are advised to seek legal advice when addressing complex DTA cases.

77 The percentages used are based on the actual staffing numbers in the SPS organizational chart, May 2016

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DTA is a multi-party obligation. In seeking the accommodation, the employer, the union, and the employee all have roles and responsibilities.78 The onus is clearly on the employer to take all requests for accommodation seriously and to accommodate employee disabilities up to the point of undue hardship.79 Efforts to accommodate employee disabilities must go beyond organizational inconvenience. There is also a body of law that supports the Duty to Enquire about changes in employee behaviour and to act upon employee disabilities. Even though the DTA is not unlimited, the bar of appropriate accommodations is set high.

It is the DTA cases that relate to physical or mental disabilities which are the challenge from two particular perspectives. An appropriate assignment of job responsibilities is required when the person is redeployed when on temporary or long term DTA, and appropriate reintegration when/if the person is capable of returning to their original job.

Situations that trigger the DTA vary from specific incidents or accidents to increasing absenteeism. Since non-culpable absence80 from work is fundamental to triggering the DTA, accurate records of employee absenteeism are essential in an organization.

11.3 Findings

Interviewees frequently referred to the DTA issue and related DTA cases which they considered of questionable authenticity. Examples were cited of employees on DTA who were observed engaging in activities outside of work, such as physical labour or sitting for protracted periods or going on vacations requiring long flights. Whereas the employees DTA designation at work often prevented in their full employment duties activities such as lifting heavy items, sitting for long periods or physical activity. On other occasions, those who were on DTA expressed apprehension in attending the office or returning to work as they experienced ostracism from their fellow employees. Also, supervisors spoke of DTA staff who were placed in positions for which they had no skills or no inclination to work.

The perceived impact of the issue is out of proportion to the number of cases of DTA in the SPS. This underscores the need for the SPS to manage the DTA issue and process to ensure that employees who are legitimately DTA are supported, monitored, and encouraged to return to work.

78 See Treasury Board of Canada www.tbs-sct.g.ca Handling Disability Management Cases 79 Undue Hardship: An employer is not required to make an accommodation if it would impose an undue hardship on the operation of the employer‟s business. Undue Hardship is defined as an 'action requiring significant difficulty or expense when considered in light of a number of factors' 80 By definition, innocent or non-culpable absenteeism is not the employee‟s fault. Innocent absences usually relate to illness or injury – legitimate concerns that the employee cannot control

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A comparative analysis undertaken for the Review demonstrated that of the other four police agencies contacted, SPS had a significantly higher number of personnel working as duty to accommodate. However, SPS had slightly fewer long-term sick leaves and other long term absences.

To address the issue of those personnel medically exempt from Defensive Tactics and firearms qualifications, management could consider identifying prescribed positions for persons on DTA. For example, elsewhere in this report, consideration is given to the establishment of a Telephone Response Unit.81 Positions in such a unit might be suitable for individuals unable to be on patrol duty for DTA reasons.

If the temporary DTA cases are related to PTSD or mental health issues, then an expansion of the Wellness Program would be a good long-term investment for the well-being of employees and the possible avoidance of future DTA.

The SPS has the Workplace Accommodation & Disability Assistance Program which is specific to DTA. However, at a broader organizational level where absenteeism becomes an issue, absences need to be managed through an Attendance Management Program. Such a program needs to be part of an overall and consistently applied total workforce monitoring initiative, as mentioned above, in order to have accurate absenteeism records and to be able to establish standards for comparison.

Interviewees confirmed that SPS DTA cases are case-managed by HR consultants who periodically call DTA employees to enquire about their progress. The Review was also informed that if a DTA case is not considered legitimate, the employee may be requested to obtain an independent assessment. The independent process is administered by SPS. The City also has an HR function with responsibility for DTA staff. The opportunity can be explored for SPS and City resources to coordinate and share the skills and systems necessary for providing an all- encompassing and suitably skilled HR support. This type of coordination could provide a consistently applied total workforce monitoring initiative, as well as yield increased efficiencies for both organizations.

The Review was advised that the SPS has recently developed Road to Mental Readiness (R2MR). Civilian and sworn trainers are rolling out R2MR training to the entire organization.

81 See section 12

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11.4 Implementation Plan

The R2MR training is underway.

Continued due diligence of DTA cases is required in support of subject employees and also to address the concerns of other staff, whether real or perceived. Information regarding the concept of DTA and its administration could be part of a periodic information flow to all employees via SPS internal media.

The issue of PTSD in the SPS should be considered by the joint committee. Research of PTSD in policing and emergency services is well established. No PTSD data is currently available within the SPS. If required, a process of defining, administering and addressing cases of PTSD should be introduced to the SPS.

It was understood that the SPS Wellness staff are conversant with, and qualified to address, PTSD issues. Consequently, no additional staffing is required.

11.5 Priority and Timelines

In progress, the R2MR training of trainers has been completed and all SPS staff will have been trained by May 2017.

Monitoring of DTA cases is already in place. It requires increased diligence and management support along with liaison with the City.

PTSD is a complex issue. Its impact upon individual employees and the organization is unknown. A preliminary review of the data and the action options should begin as soon as possible.

11.6 Costs/Savings

R2MR costs were covered by a grant.

If there is an opportunity for amalgamation of DTA or, generally, HR tasks with the City HR department, then cost savings may accrue. Any early return of employees from DTA to active duty will reduce the need for overtime to be served by their colleagues.

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11.7 Issues and Challenges

The staff time and resources required.

Changing attitudes towards DTA staff returning to the workplace and reassuring other personnel that the DTA process is managed well with appropriate balance of diligence and support.

11.8 Detailed Recommendations

The Review recommends the SPS adopt a holistic approach to issues relating to Duty to Accommodate including: . DTA should continue to be an employee-supportive program, monitoring those on DTA, identifying as soon as possible employees who are to return to work and facilitating the return . identifying prescribed job positions to be used for appropriate and value-added redeployment o discussing improvements with the Association representatives, including the identification of prescribed positions . establishing an enveloping approach to DTA such that members are supported, and the process facilitates a return to work . examining each of the DTA cases identified as off work indefinitely to determine if termination of employment for non-culpable causes is appropriate o expert professional advice will be required to make these determinations o consideration should be given to outsourcing these cases . collaborating with the City HR to ensure management of DTA cases are consistent and ongoing case file research is undertaken to establish root causes of non-maternity cases to ensure policies and practices are introduced to protect employees and to prevent or deter such cases . monitoring the absentee data o the DTA and R2MR are separate yet connected programs; as R2MR may impact absentee rates, identification of, and support for, PTSD cases should be considered.

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12 Telephone Response Unit

12.1 Recommendation

The Review recommends the SPS establish a pilot Telephone Response Unit as an alternative response measure, to reduce patrol-based officer workload balanced with a more customized service for the public.

12.2 Background

In the early 2000s, a Canadian municipal police department, in search of valuable work for accommodated officers, established a telephone response unit (TRU). The function of the TRU was to triage and conduct a primary investigation of low-priority calls.

The process was for the officer to review calls in the dispatch queue and select calls deemed appropriate. The TRU, for CAD purposes, was another police unit and the call would be assigned to TRU. The officer would contact the complainant by telephone and conduct an initial investigation. Further details of potential suspects and other information would be obtained and the CAD/RMS file updated. The officer may conduct further primary investigation through police data systems and other phone calls. In some instances, the file could be completed by TRU or forwarded to a specialized unit for follow-up investigation. Usually, the updated file would be replaced in the dispatch queue with the majority of the initial investigation and report completed and the field patrol unit would need to complete only the remaining on-scene activities.

The results were: . increased complainant satisfaction due to the timely police follow-up and contact . reduced travel and on-scene time required . reduced report writing for the field patrol unit . valuable work completed by accommodated officers . easy implementation - no IT changes were required . a fail-safe system - when TRU was not available the system continued as normal

Often, only one or two accommodated officers were assigned to the function, and the shifts corresponded to the higher calls-for-service periods, usually dayshift and evenings. Initially the TRU operated from the regional communications centre, but was later moved to the police building. With current IT system capabilities, the function can operate from most police locations, as desired.

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12.3 Findings

The TRU initiative was considered successful and was established as a permanent component of the police service, which continues to this time. Although accommodated officers are the preferred staffing, regular officers are assigned when accommodated officers are not available.

One of the policing reviews examined by the Review included the recommendation to establish such a function.82 The SPS has a relatively high rate of DTA personnel and it is a challenge to utilize their skills effectively.

12.4 Priority and Timelines

The Review was advised that SPS is now examining this concept.

12.5 Costs/Savings

The changes are philosophical and process, and no significant additional costs are anticipated, although there may be minor costs in preparing workstations.

The function can be performed with current technology. There are anticipated efficiencies if the work is performed by accommodated staff, and also an anticipated positive effect on the PAF with a reduction in the cost of the provision of patrol services.

12.6 Implementation Plan

The Review was advised that the SPS is already examining this opportunity.

This is likely to be a suitable work environment for accommodated sworn staff.

12.7 Issues and Challenges

The selection and motivation of staff to ensure this is not seen as a lesser function - if successful, it is a valuable service for the SPS and the public

82 Section 23.1

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13 Hours of Work

13.1 Recommendation

The Review recommends the Board and SPS consult with the Associations to seek a solution that creates more effective deployment while maintaining employee wellness.

13.2 Background

Under the Agreement, the Patrol, Traffic, and Identification Sections,83 Weekend Support Unit,84 are assigned to twelve-hour shifts. The Air Support Unit operates on a two-days, two-nights schedule.

The deployment of the Criminal Investigation Division is prescribed by the Agreement as 10 hour shifts, normally Saturday and Sunday off with other days off appended to the Saturday and Sunday.85 In addition, Criminal Investigation Division personnel work dayshift only, 0700-1700 or 0800-1800 hours.86 However, many serious crimes occur outside business hours. Five of the eight homicides in 2015 occurred outside business hours and seven of the eight 2014 cases.

13.3 Findings

The twelve-hour shift model deploys resources ineffectively and also creates EDO which removes staff from entire shifts.

The Patrol Sections cover a 24-hour function. However, the shifts cover approximately eleven hours each after allowing for pre- and post-shift administrative activities. This issue is addressed through the staggering of the shifts. A more effective model would reduce the shifts to 11 hours 27 minutes and increase the overlap period.

There is no reason for a function that is not providing a 24-hour schedule to work twelve-hour shifts, thereby creating EDOs. The Traffic and Identification Sections, and the Weekend Support Unit could remain on the current schedule but change to a 11 hours 27 minutes shift creating a forty-hour week.

83 Article 4 d) 1. 84 Article 55. b 85 Article 4. 2. b) i) 86 Article 4. 2. b) iii)

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The Patrol and Air Support shifts do not match the service requirements, illustrated in section 3.3 where the busiest times for urgent calls for service are approximately 1500 to 0300,

It is ineffective not to have investigative personnel working on the weekend, which are no longer quiet policing days but the busiest, and often an ideal time to contact witnesses.

13.4 Priority and Timelines

Negotiations should commence in 2017 with results anticipated over a number of years.

13.5 Costs/Savings

The changes are philosophical. Future savings can be anticipated through a more efficient and effective deployment of staff.

13.6 Implementation Plan

The negotiations with the bargaining units, recalibration of shift scheduling, and ongoing measurement of PAF.

13.7 Issues and Challenges

The Agreements87 are currently heavily weighted towards employee convenience at the expense of effective deployment.

87 Both the SPA and the SPEOA Agreements

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14 Release of Information and Disclosure

14.1 Recommendation

The Review recommends the Board and SPS establish and staff a release of information and disclosure function within, or reporting to, the Legal Services Unit. . Staffing should be two civilian positions 88 . The SPS should seek an opinion from Legal Services whether the release of SPS radio traffic to the media will be contrary to the Act

14.2 Background

The Review was advised that the Freedom of Information and Protection of Privacy Act will be extended to include municipal police agencies by 2017.89 Currently, requests for information are received from multiple external agencies and various SPS sections may respond directly. Senior officers, without specialized knowledge or training, spend considerable time on release decisions. Current policy requires that requests are forwarded to the NCO i/c of the Forensic Identification Section. There is no overall policy or tracking process.90

The current SPS practice provides media access to operational police radio talk groups.

14.3 Findings

There is no evidence supporting the policy of release of information function being assigned to the Staff Sergeant, Forensic Identification.

Anticipated changes to the Act will address personal information. The new Regulations may prohibit the release of private information through the police radio system.

It is anticipated that there will be an increase in request for information and additional staff will be required for the new release of information regime. As the staff possess relevant training and education, the Legal Services Division is the logical section to assume responsibility for this function.

88 Note: the Review understands this has been addressed by the Board and SPS 89 The Freedom of Information and Protection of Privacy Regulations. Section 3, Government institutions prescribed 90 SPS Release of Information Audit 2011, SPS Release of Information reports 2009, SPS State of Criminal Investigations Address 2015, and Review interviews 2016

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14.4 Priority and Timelines

The Review was advised that staffing has been approved by the Board.

14.5 Costs/Savings

The costs include two staff positions and office equipment, and there will be some orientation required for all staff, along with policy changes.

13.6 Implementation Plan

The Review was advised that the plan is in progress.

14.7 Issues and Challenges

The expansion of FOI to the SPS may result in a greater number of applications and the consequent administrative workload.

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15 Support of Community Policing Philosophy

15.1 Recommendation

The Review recommends the Board and SPS ensure that all language and images used in SPS policies and procedures, practices, literature, or communications are accurate and convey the intended message of employee support and community policing.

15.2 Background

The Medium is the Message.91 There are often subtle messages, unnoticed by organizations, which have the potential to enhance or undermine the intended messages to both the community and staff. The Review was advised that the SPS undertook a branding exercise Honour, Spirit, Vision. References to the para-military nature of the SPS were common during the interviews.

15.3 Findings

The following terms are deemed to be inconsistent with the support of community-based policing and the office of Constable.

Platoon: The Canadian Oxford Dictionary and other dictionaries define platoon as a military company of soldiers.

Parade: The pre-patrol briefing is referred to as a parade, further emphasizing the military and authoritarian and passive nature of the process. The reality is that highly-trained, motivated practitioners lose the opportunity for a meaningful briefing with their Sergeants and team members in support of community-based policing. In addition, this formal start to the work day is in contrast to every other component of the SPS, sending a less-than desirable message to the patrol staff.

The need for city-wide information should be managed by the Analyst Unit. The Review attended parade briefings and carefully observed the content: usually five overhead-projections of minor matters not relevant to most of the audience - evidently there was no filter for relevancy or importance. The issue of information sharing, from the parade to other processes - too much and too many irrelevancies - was one of the most frequent comments from interviewees.

91 The medium is the message is a phrase coined by Marshall McLuhan meaning that the form of a medium embeds itself in the message, creating a symbiotic relationship by which the medium influences how the message is perceived

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To be effective, briefings and email must be timely (applicable immediately), targeted (delivered to the people who will act on the information), and tactical (there must be clearly identifiable actions the audience can take).

Motto: The motto of the SPS is neque timore neque favor - Neither by fear nor by favour. Few observers will understand Latin, and so the message is lost. Further, the City's Coat of Arms is used as the officer badge and also as the insignia on police vehicles, which includes the motto commerce industry education. It would be preferable to ensure the SPS motto is used rather than the City motto. The Board and SPS can consider whether English or Latin is more efficacious.

Prisoner Transport: The duty sheets include the term 'paddy wagon'. The origin of the term is unclear, but the various dictionary references all share a pejorative source.

Police Vehicle Image: The image of the police car is the most frequent message from the organization - each marked police vehicle will be observed by hundreds of citizens daily, and can be considered as a travelling billboard. The image will evoke various emotions from the viewer: community-orientated or not, approachable or aggressive. Consequently, the livery of vehicles should be carefully and thoughtfully examined.

The issue was recently described in a Globe and Mail newspaper editorial.92 Toronto's bad taste in car colours Public officials who make policy decisions are expected to act thoughtfully, to seek consultation and then deliberate on the known facts... First and foremost is the fact that the new, dark grey Ford Interceptors have a look that is somewhere between stealth and menace. It's not what a Canadian police department should be going for. Police officers embody the law, and, as much as possible, their appearance must suggest that our law is fair, friendly, and on the side of citizens. Be visible and approachable. That's good for both citizens and police... The new cars don't fit with Toronto's desire for a publicly engaged, community-focused police service.

The issue is the process and what is the intended message to the public. . does the current livery reflect the intended message . new design concepts provide the opportunity to engage the community, especially through the schools and through the web and media o what values do the communities wish to see identified o encourage competitions and submission of design ideas . draft designs, reflecting the desired values, should be subject to community initial feedback, and finally

92 The Globe and Mail, page A12, November 14th 2016

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. a public consultation through the agency's website can ensure the desired message is reflected in the final design.

15.4 Priority and Timelines

Commencing in 2017 and ongoing.

15.5 Costs/Savings

The changes are mostly philosophical. Decals on police vehicles can be updated through the replacement process at no incremental cost. Should the SPS wish to change the wording on the officers' badges, all badges will need to be replaced.

15.6 Implementation Plan

The SPS leadership at all levels must provide role models for the recommendation.

When considering changes in livery, the SPS should consult the public to solicit input concerning appropriate messaging and livery design. This consultation would engage the public and reflect positively on the SPS.

15.7 Issues and Challenges

The traditional police-focused views if applied to a modern diverse organization and community.

.

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16 Telecommunications Response Times

16.1 Recommendation

The Review recommends the SPS Communications Centre develop an improved dispatch process for P1 and P2 calls to meet the best practice of two minutes. . this process should form a KPI

16.2 Background

In the course of the literature review and agency contacts, the Review was unable to identify any standards for response times (either call-answer-dispatch or call-police arrival). Instead, organizations identify goals, such as a two-minute call to dispatch and a total seven-minute call to arrival for urgent calls. Such goals obviously vary by the geography of the jurisdiction.

Legal advice secured by the Review suggest that organizations should not establish standards which they cannot guarantee. For example, during extremely busy periods the times mentioned above may not be possible, and the organization would then be in breach of its own standards. Typically, standards address training, certification, processes, policies, and all things that are under the control of the agency.

The literature on police response times suggests that urban police agencies should aspire to a best practice of seven-minute urgent average response time. Realistically, this usually implies a two-minute average dispatch time and a five-minute average travel time.93

One police operational review report recommended to Establish a call processing time goal of one minute or less for priority 0, Priority 1, and Priority 2 Calls (not including queue time).94 Inquiries with senior management at one of Canada‟s largest emergency services communications facilities revealed that while emergency response call answering and dispatch standards are well-documented for fire departments95, similar standards for police do not exist.96

93 Demers, S. Vancouver Police Department Patrol Deployment Study. 2007 94 Found at http://www.winnipeg.ca/cao/media/imageLinks/OperationalReview_WPSFinalReport.pdf 95 National Fire Prevention Association, Standard #1221, sub-sections 7.4.1 and 7.4.2 96 perivale + taylor correspondence, 2016.11.07

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16.3 Findings

SPS Call receipt to dispatch in minutes 2015

Average Time Average Time Held Average Total Time Priority Receipt: to Queue in Queue Receipt: to Dispatch 1 1.13 1.35 2.48

2 1.6 5.5 7.1

The SPS Priority 1 and 2 call receipt to dispatch times are longer than the proposed best practice of two minutes.

16.4 Priority and Timelines

The KPI should be established in 2017 and the measurements ongoing.

16.5 Costs/Savings

The changes are procedural. No costs are anticipated.

16.6 Implementation Plan

The involvement of Communications staff in developing a KPI and enhanced procedures.

16.7 Issues and Challenges

The SPS should ensure that staff see this as an example of owning their work with an ability to impact outcomes and service to field personnel and the public.

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17 Overtime

17.1 Recommendation Summary

The Review recommends the SPS develop a cohesive approach to the management of overtime.

17.2 Background

The nature of police work creates a greater need for overtime than most organizations. Unanticipated events and major crimes will require an immediate response of resources lasting for some time, beyond the capability of normal scheduling.

Overtime provides the flexibility to complete work without deploying additional resources. However, beyond a certain point, overtime becomes a financial challenge and also a wellness factor for staff when they are required to work for extended periods of time. Appropriate systems and policies can minimize the negative aspects: systems such as efficient and effective scheduling can better assign resources to need, and policies and procedures can manage the essential overtime.

17.3 Findings

The analysis shows overtime costs have increased from 2006 to 2015 by approximately 4% per year on average. Overtime in summer months are generally higher than other seasons. The number of SPS police personnel has increased by an annual average of 1.8% for the same period.

Major crime cases create disproportionate overtime costs. The Major Case Management Model requires a front-end loading of resources during the first seventy-two hours of an investigation to: secure the scene, isolate and interviews witnesses and suspects, seize and process perishable evidence, and conduct immediate follow-up investigations. Many serious crimes occur outside business hours. Five of eight 2015 homicides occurred outside business hours and seven of the eight 2014 cases. This is consistent with findings from studies of overtime conducted in the US which have found that major crime sections are most often the source of large overtime expenditures.97 The scheduling of SPS Investigative personnel is discussed elsewhere in this report.

97 Demers, S. Vancouver Police Department Overtime Study 2007

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The overtime reporting process and form are not effective. The decision making at senior levels removes it from the immediate supervisor, the position with the best knowledge to determine whether overtime is appropriate or whether the investigation can be passed to a following shift. Based on the content of the reports examined by the Review, it was not possible to determine whether other courses of action could have been taken.

The paper reporting does not provide an immediate monitoring of overtime - the delivery of the report to the Finance Division and collating of the statistics takes considerable time. An automated reporting system would provide real time monitoring by reason, unit, and individuals.

Four comparator agencies provided the percentage of overtime costs relative to salaries: 3.75%, 5.97%, 6.58%, and 7.43%. The SPS figure of $1,829,984 represents 4% of the total sworn salaries of $45,602,853 indicating - albeit a small sample - that the SPS OT rates are not unreasonable by comparison.

17.4 Priority and Timelines

The SPS should introduce a more effective supervisory reporting system in 2017 and at a later date consider an IT-based reporting system.

17.5 Costs/Savings

The changes are procedural. If successful, OT costs may be reduced. However, later costs could include expenditures on time tracking software and integration of software into the corporate infrastructure.

More effective and efficient shift scheduling and appropriate management of overtime may reduce costs.

17.6 Implementation Plan

The SPS should establish a short-term task force involving management, supervisors, practitioners, sworn and civilian, and the bargaining units to propose strategies and a strategic policy.

The initial process is to design a more effective paper-reporting system and approval process vested in the immediate supervisor, and a real-time IT system can be contemplated later.

Targets for effective overtime management can form KPIs in all units.

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17.7 Issues and Challenges

It is important for staff see this as an example of owning and having control of their work, and moving the decision making to the earliest (generally the Sergeant) opportunity and level.

Consideration of any new software in this area should be accompanied by a formal evaluation project and staff evaluation process to ensure that the proposed program can be integrated into existing systems and has the flexibility required to operate in a highly fluid 24/7 environment.

17.8 Detailed Recommendation

The Review recommends the SPS develop a cohesive approach to the management of overtime, including: . developing a new overtime report which includes a succinct explanation from the approving supervisor why the overtime is appropriate . developing an electronic overtime reporting process . assigning authority and responsibility to Immediate supervisors for overtime management. o this process should form a KPI . developing an overtime management policy, including guidelines such as o no task or function shall be performed on overtime by SPS personnel that could otherwise be performed during regular working hours o supervisors shall establish and hold personnel responsible for a level of performance during standard work hours that minimizes the need for overtime and/or the need for additional personnel o supervisors shall prepare operational plans to minimize overtime and staffing costs. o all tasks and functions that require the use of overtime shall be routinely evaluated in terms of their cost effectiveness. Alternatives to the use of premium pay to accomplish these tasks or program objectives shall be evaluated and implemented where appropriate o all overtime must receive advanced authorization by a supervisor unless unreasonable due to emergency circumstances o supervisors and command staff shall take measures and issue directives where reasonably possible to reduce or limit the demand for overtime

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18 Fleet

18.1 Recommendation Summary

The Review recommends the Board and SPS implement an integrated fleet management approach and have input to the current City fleet study.

18.2 Background

The SPS has a vehicle fleet totalling 164, comprising 146 owned and 18 leased vehicles. The majority are patrol vehicles with some unmarked leased vehicles. The City purchases and maintains the fleet on behalf of the SPS, and invoices costs from the SPS fleet budget. There is general satisfaction regarding the quality of work provided by the City and the SPS has a good working relationship with designated maintenance staff from City Operations. The maintenance costs are averaged rather than calculated by individual job order which would reflect actual time spent on each vehicle and assist SPS staff to managing the costs. Concern has been expressed by SPS staff that they have no way to determine whether the cost for fleet management is being charged appropriately under the current costing arrangement.

The Review was advised that the fleet management tool, the M5 Computer-based System, has recently been upgraded but at the time of this Report it is not clear whether this upgrade will provide further detailed information to SPS.

The SPS has a good relationship with the City's procurement department in development of specifications for tendering of vehicles.

18.3 Findings

The current vehicle fleet maintenance agreement with the City is outdated and needs updating to reflect current arrangements and clearly define costing of services (the Review was advised that a study of fleet maintenance is being conducted by the City and a new agreement is in process).

Work orders are used only for specialty work and outsourcing and not for general City maintenance work on vehicles and the monthly reports from the City lack details. There is a lack of annual maintenance process audits and no formal performance management processes are in place for maintenance staff.

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The current method of the City charging SPS a monthly fee for each fleet vehicle to include purchase costs, capital replacement reserve, specialized equipment installation, and maintenance of vehicles makes it difficult to make any kind of comparative analysis with other jurisdictions.

The SPS has a lower ratio of cars to officers than most of the comparators.

If vehicles are well maintained and in good running order, extending the use beyond the five-year capitalization would be cost effective as the vehicle is fully paid for and there is a high cost to equip the replacement vehicle with limited salvage of the used equipment being transferred.

18.4 Priority and Timelines

The plan should commence in 2017 and conclude by 2018.

18.5 Costs/Savings

The improved process may provide more accurate reporting on SPS vehicle repair and maintenance costs. However, the fleet budget, presumably, is based on the predicted costs, which are then invoiced back to the City, creating theoretically, a zero net cost for the SPS. A more accurate invoicing system would, presumably, result in an equally accurate fleet budget allocated to the SPS.

The new invoicing system would be a City cost.

A simplified costing process would reduce the administrative workload of SPS personnel.

Cost savings may be accrued by extending the working life of vehicles beyond the five-year capitalization.

18.6 Implementation Plan

The SPS should work with the City, to focus on the discrete responsibilities (ownership and service vs. operations and deployment) and the respective core business functions of the SPS and the City.

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18.7 Issues and Challenges

The lack of accurate and useable data, and the current arrangement where core businesses are blended reduces the opportunity for comparative analyses with comparator agencies or between current and new costing processes.

18.8 Detailed Recommendation

The Review recommends the Board and SPS implement an integrated fleet management approach and have input to the current City fleet study to: . clearly define and document the roles and responsibilities of the SPS and City related to the management of the SPS vehicle fleet. . request the City, as part of the current City Fleet Review, to conduct a comprehensive review of the SPS vehicle fleet management to ensure that best practices principles are being utilized and all associated costs are clearly recorded and charged to the SPS, including o updating the Vehicle Fleet Maintenance Agreement to reflect current practices and add clarity to cost allocations including separating operating from capital charges o implementing enhancements to the M5 computerized maintenance management system at the earliest opportunity (currently under discussion) o developing more comprehensive reporting information to more accurately reflect the work being performed on each vehicle by the City on behalf of SPS . consider extending the life cycle of more vehicles beyond the current practice of 150,000 kilometres by introducing a procedure to conduct an annual assessment of maintenance costs for all fleet vehicles (currently some vehicles are assessed at 170,000 – 200,000 km but there is no formal process or annual reporting) . seek opportunities with other police jurisdiction to annually undertake joint purchase of fleet vehicles and specialized equipment . consider expanding leased vehicles fleet and out sourcing the maintenance to allow for a comparative analysis of costing vs. City maintenance costs per non-patrol vehicle. This would be in the form of a pilot project and would have to be phased in along with developing a new costing formula with the City for maintenance costing of remaining vehicles

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19 Facilities

19.1 Recommendation

The Review recommends the Board and SPS develop a Facility Maintenance Agreement with the City: which is currently under discussion.

19.2 Background

The following buildings and facilities are utilized by the SPS for service delivery: . the new headquarter building - $2,295,600 per annum maintenance charge / $812,000 annual capital replacement charge . child centre facility - $97,956 per annum lease . firearms range – lease estimates $20,000 per annum . SaskTel Facility - $57,000 per annum lease . CFSEU98 Facility - $84,810 per annum lease (excludes cleaning and utilities) . secure bay I lot – no charge

The total 2015 annual maintenance/lease and capital replacement costs for SPS facilities was $3,367,366.

19.3 Findings

The SPS has four facilities that require regular maintenance with the main facility being the new HQ. The SPS managers are generally satisfied with the maintenance service being provided by the City staff and suggest that there are good working relationships with designated staff for service delivery. The principal issue mentioned in interviews and evident in documentation examined by the Review appears to be that the current method of charging out costs for services does not provide sufficient detailed costing information to assist the SPS with budget preparation and management of costs. This inhibits the management of these facilities to ensure efficiency and effectiveness.

Comparator police jurisdictions provided responses with limited value, considering the different facilities' arrangements and types. Most municipal jurisdictions own the police headquarters buildings and lease other facilities, as required. Comparative maintenance costs varied greatly from $8 to $35 per square foot compared to SPS rate of $4.65.

98 Combined Forces Special Enforcement Unit

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Consequently, the comparable data for building maintenance were unreliable to make an objective comparison to those costs for SPS buildings. The only clear method for ensuring the SPS is getting good value for its building maintenance costs would be to conduct a „call for proposals‟ for both janitorial and physical maintenance. Any outsourcing of these services may have union implications which will have to be clarified and resolved before the award of any contracts. In order to develop a Request for Proposals for outsourcing these services it will be necessary to develop new comprehensive specifications detailing services to be provided and any performance measurements to help guide management of any such outsources contracts.

The City is the owner of the building assets and the SPS the custodians. Consequently, there needs to be a clear understanding of who is responsible for what, by clearly worded service agreements to assist both SPS and City staff, to ensure there is no duplication and that corporate performance measurements are being met.

19.4 Priority and Timelines

The process is in progress.

19.5 Costs/Savings

The SPS has a new state-of-the-art HQ building that should reflect lower maintenance costs versus an older facility.

The improved process may provide more accurate reporting on SPS facilities maintenance costs. However, the maintenance budget is presumably based on the predicted costs, which are then invoiced back to the City, creating theoretically, a zero net cost for the SPS.

19.6 Implementation Plan

The SPS, in working with the City, can focus on the discrete responsibilities (ownership and service vs. operations) and the respective core business functions of the SPS and the City.

19.7 Issues and Challenges

There is a lack of accurate and useable data, and the current arrangement where core businesses are blended.

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Discussion with bargaining units if a change is contemplated in contractual arrangements.

19.8 Detailed Recommendations

The Review recommends the Board and SPS Develop a Facility Maintenance Agreement with City (currently under discussion) to: . clearly define and document the roles and responsibilities of the SPS and the City related to management of SPS facilities . work with the City to fully implement the new Computerized Maintenance Management System to ensure full costing of labour, supplies and overhead is recorded consistently . request that the City review all City facility maintenance management processes and policies to ensure that best practice principles and procedures are available to SPS . further evaluate the opportunity for the City to consider outsourcing building maintenance management separating janitorial from building maintenance . develop comprehensive specifications for building maintenance management using best practices to be incorporated into a new facility maintenance service agreement with City (new agreement under discussion) . encourage SPS staff to join facility management associations like the International Facility Manager Association to gain further knowledge and best practices of facility management

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20 Community Satisfaction and Policing Priority Survey

20.1 Recommendation

The Review recommends the Board forward to the City the observations and potential changes recommended for the Community Satisfaction and Policing Priority survey, and consider using a stand-alone SPS survey to assist in the public communication and input on policing services levels and sustainability.

20.2 Background

The survey, Community Satisfaction and Policing Priority, was conducted for the year 2014 by Insightrix. It is the fourth such survey aimed at measuring the perception of policing and safety in our community. The numbers have improved steadily since 2005 in relation to overall satisfaction in general and satisfaction from people who have had contact with police. The data also shows excellent progress being made involving the police relationship with the Aboriginal community.99

It is noted that the 2015 Civic Services Survey identified police services as an area of strength for the City.100

The 2011 and 2014 surveys were provided to the Population Research Laboratory, University of Alberta, with the principle goal of determining whether the results can be compared to the Statistics Canada General Social Survey dealing with policing issues. If the local surveys are or can be made comparable, there is the opportunity to compare Saskatoon's results nationally as well as over time locally. 101

20.3 Findings

The PRL compared selected questions of the General Social Survey (Cycle 28 Victimization), Statistics Canada to similar questions of the SPS Community Satisfaction Survey 2014. One of the problems associated with the General Social Survey cycle on victimization and other Statistics Canada initiatives is that if the incidence is low in a national survey and even lower in other geographies, it would require a large sample size in a city such as Saskatoon. The benefit

99 Found at http://police.saskatoon.sk.ca/news/2012280 100 Found at https://www.saskatoon.ca/sites/default/files/documents/asset-financial- management/administrative_report_-_2015_civic_services_survey.pdf 101 Examples: likelihood neighbours would call the police, satisfaction with personal safety from crime, protection from crime, safer from crime; Perceptions: local police, confidence In police, contact with police, criminal victimization

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One option for the City of Saskatoon to consider is that if it is desirable to have Statistics Canada comparability, it might be feasible to explore the cost associated with increasing the sample size for their municipality in a Statistics Canada survey.

The content of the Saskatoon survey can be improved to better reflect the Statistics Canada General Social Survey dealing with policing issues.

20.4 Priority and Timelines

The recommendations should be forwarded to the City in 2017 and ongoing surveys continued.

20.5 Costs/Savings

A stand-alone survey, independently facilitated through the SPS, will cost approximately $30,000.

Alternatively, it is envisioned that minimal costs would be required to amend the current City survey to incorporate the proposed amendments.

20.6 Implementation Plan

A revised survey will be methodically enhanced and more focused on SPS short and long-term needs and the Saskatoon demographic. In support of the proposed Strategic Plan, the Board and SPS may wish to conduct a stand-alone policing services survey.

20.7 Issues and Challenges

SPS should discuss with the City as to the benefits of amending the current Community Satisfaction and Policing Priority survey or whether to develop an independent SPS survey.

The content of the current survey should be enhanced as described to address SPS requirements.

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20.8 Detailed Recommendations

The Review recommends the Board forward to the City the potential changes recommended for the Community Satisfaction and Policing Priority survey, including: . expanding the number of age groups instead of three broad categories to assess perceptions . providing a clear definition of aboriginal ancestry including non-status and Métis to be read to the respondent . adding a standardized list of visible minority categories to be read to the respondent . adding Neither agree or disagree to scale questions about perceptions of SPS or consider asking the respondent to rate the performance of SPS (ie, good job, average job, poor job or don’t know/refuse) . adding Neither satisfied nor dissatisfied to the questions on satisfaction with the service provided by the SPS and satisfaction with the service provided by PACT . considering using the GSS question How safe do you feel from crime walking alone in your area after dark . considering using the GSS question During the last 5 years, do you think that crime in your neighbourhood has increased, decreased or remained about the same . adding a category A moderate problem to the questions about issues related to crime and to traffic violations . adding an interviewer instruction (Select all that apply) to the question on an interaction with PACT . considering asking a new question from GSS: How much confidence you feel in the police (A great deal of confidence, Some confidence, Not very much confidence and No confidence at all, Don’t know/refuse)

The Review recommends the Board and SPS consider using a stand-alone SPS survey to assist in the public communication and input on policing services levels and sustainability.

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Part Two

21 Introduction & Methodology

The Operational Review of the Saskatoon Police Service (SPS) was initiated by the Board of Police Commissioners (the Board) to evaluate the effectiveness, efficiency and sustainability of the current operational model, maximizing resources in the work of ensuring community safety.102

One of the most frequent topics raised by interviewees, both internal and external, was the role of the public police in the current Saskatoon context. Many wondered how policing came to be the way it is and what might be expected of police in the future, especially relating to chronic social issues such as mental health, addictions, and homelessness. Therefore, a historical overview of the office of Constable, and the common law and legislated responsibilities of police are explored to provide the evolutionary context, and projections for modern policing.

Comparisons with other agencies across Canada provide a framework within which to view the SPS. The Report also presents the analyses of SPS systems and components that were conducted and which led to the overall findings contained in the report. perivale + taylor met individually with key stakeholders, including senior provincial staff, the Board, police executives and staff, senior City staff, representatives of employee associations, and other key internal stakeholders identified through consultation with the Project Manager. perivale + taylor facilitated guided discussion focus-group meetings involving practitioner representatives of SPS functions and relevant social agencies and community organizations. A one-day workshop with invited organizational and human resources experts was conducted in reviewing the organization chart and functions. A total of over 150 such persons were consulted. perivale + taylor also conducted focus groups and interviews with over fifty representatives of Indigenous people, community agencies and associations, company service providers, and Business Improvement Districts (BID). These bodies are involved in public safety activities and the nature of their work brings them into contact with police policies on a regular basis.

The interview participants were well prepared and informed and enthusiastically joined the discussions. They understood the challenges facing Saskatoon and the SPS and were realistic in their expectations of policing services. They were extremely supportive of the SPS outreach to

102 RFP

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104 Operational Review of Saskatoon Police Service the various communities and the common view was to maintain and, when possible, enhance the relationships and partnerships.

The SIMS data103 were analyzed to determine the number and nature of incidents. Analyses of the workload were conducted and compared to staffing and deployment levels. The allocated and unallocated time of patrol units (Patrol Availability Factor (PAF)) for the year 2015 were determined by function, time, and area.

The process also evaluated SPS calls for service, incident response and times, and investigative follow-up from the organization‟s internal database and analytical systems. perivale + taylor conducted a literature review and examined issues of relevance which are included in the related sections of the Report, and relevant reviews of other police agencies were examined. Comparisons were made with twenty Canadian police agencies regarding staffing levels, costs, and crime and incident rates per officer.

In addition, a number of these agencies agreed to assist the Review by completing confidential matrixes providing comparative information in much greater detail than public sources.

A predictive crime severity analysis was conducted based on 23 comparator communities to determine a theoretical Saskatoon crime severity index which was compared to the actual index. This provides the opportunity to identify potential future police workload based on projected demographic changes and growth.

Performance measurement processes were researched and consultations conducted with experienced senior executives as well as SPS staff.

A model organizational structure was developed based on best practices and consultations with a SPS staff and number of experts in the field.

Initial findings and recommendations were presented to the SPS Executive and the Board and their feedback was included in the Report.

103 Saskatoon Information Management System. A Versaterm product providing a comprehensive system including computer aided dispatch (CAD) and records management systems (RMS)

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22 Policing in Saskatoon and Saskatchewan

22.1 Early Saskatoon Policing

In 1887, a North West Mounted Police detachment was established in what is now Saskatoon. In 1903, responsibility for policing in Saskatoon was assumed by what is now known as the Saskatoon Police Service - a shift from federal to municipal responsibility. Initially, the policing duties were the responsibility of the Mayor. However, in approximately 1906 the first chief of police was hired. By 1908, the Saskatoon Police Force (as it was then styled) had five police officers including the chief of police.

During its history, Saskatoon‟s police agency has been called force, department and in recent times service, as in Saskatoon Police Service. With the establishment of Boards of Police Commissioners, police agencies no longer were a department of the municipality but were accountable to the Boards. This evolution was common across most Canadian police agencies, whereby the name now suggests that the focus is on service in that it provides an essential service to the community.

22.2 Legislative Authority for Policing

Under the Constitution Act,104 the provinces are delegated the power to administer justice. Provinces have the authority and responsibility to establish provincial police agencies. Until the 1930s provinces maintained their own provincial police forces, but by 1950 the majority had been absorbed into the RCMP as the provinces contracted policing services to the federal government with cost sharing.105 Saskatchewan was one of the first, in 1928.

The exceptions to contracted provincial policing are Ontario and Quebec which retain their provincial police agencies, and the province of Newfoundland and Labrador which maintains a provincial police, the Royal Newfoundland Constabulary (RNC), and also has a contracted RCMP provincial police.106 With the exception of the Province of Newfoundland and Labrador, provincial governments have introduced police acts delegating the responsibility to provide police services

104 Section 92(14) 105 The majority occurred during The Great Depression and is it assumed that financial reasons drove the amalgamations: Alberta, Manitoba, New Brunswick, Nova Scotia, and PEI in 1932; and BC and Newfoundland much later in 1950, but it is believed that financial issues also drove these final absorptions 106 The RNC provides policing services to three non-contiguous urban areas, and the contracted RCMP Division provides services for the remainder of the province

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Currently, the Saskatoon Police Service is operated pursuant to the Police Act 1990: the municipality: (a) is responsible for the maintenance of law and order within its boundaries; (b) shall provide policing services to maintain a reasonable standard of law enforcement; and (c) shall provide adequate and reasonable facilities required for the policing services mentioned in clause (b).108

The municipality has the option of establishing its own police service or entering into an agreement to have police services provided by the RCMP.109

The essential governance and oversight of the SPS, under Section 27 of the Police Act, is the responsibility of the Saskatoon Board of Police Commissioners, to consist of at least three members, and if more than three members, two members of the council in addition to the mayor and two or more other persons, other than members of council, as members at large.

Under the Police Act, Section 31, the board is responsible: (1) (a) for the delivery of policing services within the municipality; and (b) for: (i) providing general direction, policy and priorities; and (ii) developing long-term plans; for the police service.

(2) For the purposes of this Act and Part VI of The Saskatchewan Employment Act: (a) a board is deemed to be the employer of the personnel of the police service; and (b) the chief and any person holding the position of deputy chief of police are deemed to be agents of the employer.

(3) Subject to subsection (4), a board may make directives that are not inconsistent with this Act or the regulations, setting general policy for the governing and administration of the police service.

(4) No directive made pursuant to subsection (3) is a directive of the board unless it is supported by a majority of the board members.

107 The term police department is used to differentiate from the term Municipal Police Service, used in the 2012 RCMP Municipal Police Service Agreements, defined in Article 1.1 w), referring to the jurisdictional RCMP detachment 108 Police Act Section 25 109 Police Act Section 26

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A City bylaw, the Saskatoon Board of Police Commissioners Bylaw110 established the Board. The composition of the Board is defined under section 6.111 The Board shall consist of five members as follows: (a) the Mayor (b) two members of Council (c) two other persons, other than members of Council, as members at large

Section 13 of the Bylaw defines the mandate of the Board: may make directives that are not inconsistent with the Act or the regulations made thereunder, setting general policy for the governing and administration of the Saskatoon Police Service.

A provincial oversight body, the Saskatchewan Police Commission, is established by means of Section 3 of the Police Act, 1990. It is important to note that the Saskatchewan Police Commission, which is funded by the provincial government, has essential roles in the delivery of policing in Saskatchewan. The Commission may audit police services other than the contracted RCMP, and authorizes equipment and uniforms, and in particular, use-of-force equipment.

A responsibility of the provincial Commission is maintaining the province-wide Policy Manual for Saskatchewan Municipal Police Services. The intention is that each police service will supplement this manual with a local administration manual to deal with what are essentially local matters.

The provincial Commission is responsible for the education and training provided by the Saskatchewan Police College at the basic as well as in-service levels. The College was established in 1973 on the University of Regina Campus.

22.3 Provincial Support

The Saskatchewan government has established a Policing and Community Safety Division within the Ministry of Justice. The Ministry‟s mandated role is: To help keep communities safe and to maintain public order by providing effective and efficient policing through programs that uphold the role of law, while also protecting the rights of the individuals.

In 2011, the Ministry released a cross-ministry document titled, ―Building Partnerships to Reduce Crime‖. The strategic proposals were intended to guide and influence police agencies in Saskatchewan. It includes A Comprehensive, Strategic, Province-wide Commitment to Crime

110 Bylaw No. 7531, codified to Bylaw No. 8261, December 1, 2003 111 Effective January 1, 2004 – Bylaw No. 8261

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Reduction. Starting in the 2000s, the Saskatchewan government has provided supplementary funding at an operational level to increase municipal police resources albeit for dedicated purposes, outside of the provincial policing contract with the RCMP.

Additional funding is also provided to Saskatchewan police agencies by Saskatchewan Government Insurance (SGI), a Crown Agency of the provincial government. Historically, this funding has been directed to road safety issues including prevention and enforcement related to impaired and distracted driving. Of note, is that in the recent past some of this funding has originated from photo radar fines.

22.4 The Role of the Public Police

During the Review, the question of the role of the police in Saskatoon was one of the most frequent and important questions raised by police staff and stakeholders. Social issues such as mental health, addictions, poverty, and homelessness frequently manifest as social disorder and criminality which by default involve the police.

In the 16th century, the duties of Constables were defined as maintaining the peace, preventing offences, and prosecuting offenders.112 A 19th century common law definition of the office of Constable includes: A Constable is a citizen, locally appointed but having authority under the Crown, for the preservation of life, the protection of property, the maintenance of order, the prevention and detection of crime, and the prosecution of offenders against the Peace. 113

In 1829, when Sir Robert Peel was Home Secretary, the first Metropolitan Police Act was passed and the Metropolitan Police Force, the 'New Police', was established in London, UK. 114

To guide the model of policing, a number of principles were developed, usually referred to as Peel's Principles. The first principle reads to prevent crime and disorder, as an alternative to their repression by military force and severity of legal punishment. Essentially, as explained by the police historian Charles Reith in his New Study of Police History in 1956, Peel's philosophy of policing is unique in history and throughout the world because it derived not from fear but almost exclusively from public co-operation with the police, induced by them designedly by behaviour which secures and maintains for them the approval, respect, and affection of the public.115

112 Lambarde, William. magistrate and legal scholar, The Duties of Constables, published in 1633 113 History of Policing. http://www.lancashirepolfed.org.uk/about/force.pdf 114 Metropolitan Police website. 115 See Appendix 22.4 for the complete principles. However, there is no evidence of any link to Robert Peel and they were likely devised by the first Commissioners of Police of the Metropolis (Charles Rowan and

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These principles are generally reflected in Canadian policing legislation: provincial police acts and RCMP agreements: The municipal police department, under the chief constable's direction, must perform the duties and functions respecting the preservation of peace, the prevention of crime and offences against the law and the administration of justice assigned to it or generally to peace officers by the chief constable, under the regulations or under any Act.116

... preserve the peace, protect life and property, prevent crime and offences against the laws of Canada and the laws in force in the Province, apprehend criminals, offenders and others who may be lawfully taken into custody.117

The Saskatchewan Police Act includes: 18 The minister shall promote: (a) adequate and effective policing throughout Saskatchewan; and (b) the preservation of peace, the prevention of crime, the efficiency of police services and the improvement of police relationships with communities within Saskatchewan.

The SPS Policy and Procedures Manual, Part 1, Chapter B is rooted in Peel's principles and reads: The primary objectives of the Saskatoon Police Service are: . the safety of lives and protection of property . the preservation of peace and order . the prevention of crime . the detection of offenders . the enforcement of the law

The philosophy of the office of Constable and the principles of Peel are reflected and reinforced today in the UK by the nomenclature of police force audits by Her Majesty's Inspector of Constabulary (HMIC): PEEL Inspections - police effectiveness, efficiency, and legitimacy, and the statement they [the police] are holders of the office of constable and therefore not employees of their police forces.118

Richard Mayne). The principles which were set out in the General Instructions that were issued to every new police officer from 1829. Found at the UK Home Office website, published December 2012 https://www.gov.uk/government/publications/policing-by-consent/definition-of-policing-by-consent 116 British Columbia Police Act section 34 (2) 117 RCMP Municipal Police Service Agreement Article 2.3, 2012, found at http://www2.gov.bc.ca/assets/gov/law-crime-and-justice/criminal- justice/police/publications/agreements/2012-municipal.pdf 118 HMIC. PEEL (police effectiveness, efficiency and legitimacy): Police Efficiency. An Inspection of the Greater Manchester Police. 2015

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22.4.1 The Protection of Life

The Saskatchewan Alcohol and Gaming Regulation Act includes 126 (1) No person shall be in an intoxicated condition in a public place or on any permitted premises 149 Any officer119 may arrest, without warrant, any person whom he or she finds committing an offence against this Act or the regulations

The Saskatchewan Mental Health Services Act provides a protective apprehension for at-risk persons. 20 (1) A peace officer may apprehend a person without a warrant and convey that person as soon as is reasonably practicable to a place where he or she may be examined by a physician if the peace officer has reasonable grounds to believe that the person is: (a) suffering from a mental disorder; and (b) likely to cause harm to himself or herself or to others or to suffer substantial mental or physical deterioration if he or she is not detained in a mental health centre

The provincial legislation anticipates the police playing a protective role for persons at risk through intoxication or mental health issues - consequently, part of the police mandate. Although other agencies also play roles in these issues, providing parallel and complementary intervention services.

In the nineteenth and early twentieth centuries there were few alternatives other than police intervention for at-risk persons. Today, there are specialized services and a key issue is ensuring the appropriate division of responsibilities, as currently the case in Saskatoon through the HUB/COR process.120 The challenge for the police is they are always available and will always provide service to ensure the safety of individuals.

The Lighthouse Mobile Outreach in Saskatoon will respond to persons who appear to be homeless or in distress.121

Likewise, the Saskatoon Business Improvement Districts (BIDs) support CSOs (Community Support Officers) 122 providing services dealing with addictions, minor disturbances, shelter and/or nutrition, and mental illness, for example. A somewhat similar approach, albeit police-based, is found in a recent study in the UK.

119 Officer: police officer, constable. Section 2 120 Saskatoon HUB: a system that focuses on public safety and brings agencies together in a collaborative process using the Building Partnerships to Reduce Crime model. Saskatoon COR: A system to evaluate and report on data from the HUB. Found at http://www.saskatoonric.ca/sric-operations/network-diagram 121 Found at http://www.lighthousesaskatoon.org/services/mobile-outreach/ 122 Found at http://csosaskatoon.ca/

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Working with Cambridgeshire Constabulary to conduct a year-long experiment in Peterborough, researchers from the Institute of Criminology at the University of Cambridge randomly allocated 34 crime-prone areas to get 21 minutes of extra Police Community Support Officers patrols a day. The researchers found that, on average per hot spot, 39% fewer crime incidents were reported by victims and 20% fewer 999 emergency calls to the police occurred in the 34 treated hot spots compared with the 38 control hot spots.123

The Saskatoon Crisis Intervention Service Inc. (SCIS), in partnership with the SPS, provides the Police and Crisis Team (PACT), a police unit comprising one police officer and a crisis worker available ten hours per day. In addition, the SCIS provides a mobile crisis service. Typically, the SCIS addresses mental health, child welfare, domestic violence, and suicide risks - all issues that would likely default to the police in the absence of SCIS. 124

The workload analyses indicated that in 2015 the SPS made 30,000 dispatches125 for incidents involving disturbances, drunkenness, domestic violence, suicide attempts, mental health, and panhandling. PACT investigated 991 incidents in 2015.126

The challenge for police is that although the causal factors of these issues are non-criminal, the behaviours of the individuals often create public-safety incidents requiring intervention through the lawful coercive force that is delegated to the constable and which the constable is expected to use in protection of the persons' safety.

22.4.2 The Militarization of the Police

Another factor influencing the perception of the role of police has been described as the militarization of policing. Most notably in the US, the term policing has largely been replaced by law enforcement and law enforcement officers, this, despite the fact that, rather than enforcement, most police time and resources are consumed by protecting life and property, keeping the peace, and preventing and resolving conflict through persuasion.

During the Review, various SPS interviewees described the SPS as a para-military organization, often as a justification for various policies and procedures. However, the Canadian common law public police, a constabulary, is the antithesis of the military. The office of constable is accountable to the civil law and courts - the military to military law and tribunals; constables are

123 Found at https://www.cam.ac.uk/research/news/policing-two-officers-on-the-beat-prevent-86-assaults- and-save-thousands-in-prison-costs 124 Report of the SCIS Annual General Meeting 2016 125 The number reflects the number of police units dispatched; often more than one unit would be dispatched to an incident 126 SPS CAD

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112 Operational Review of Saskatoon Police Service criminally and civilly accountable for their actions - military personnel are responsible for following orders; the civil police must use the minimum amount of force - the military use maximum force; and the maximum penalty under employment legislation for the constable is the loss of employment, the same as other civil employees - military personnel can be imprisoned for failure to follow orders.

The perception of the philosophy and nature of the organization influences the management and operational processes which it employs. This issue and the applicability to the SPS is described later in the Report.

An insight into the role of the police was described by former Toronto Deputy Police Chief Peter Sloly, We need officers who see themselves as servers who can become protectors when needed rather than law-enforcers. We need the institution of policing to evolve from a thin blue line that separates police from community to a thin blue thread that is interwoven within the fabric of society.127

22.5 Findings

Common law and legislation define the role of the public police. This can be summarized as the protection of life and property, the preservation of the peace, the prevention of crime - and as a last resort, the apprehension and prosecution of offenders, and, as required, the application of the minimum, lawful coercive force as is necessary.128 The powers of the office of constable must be exercised with prudence and with consideration for the public interest in order for the integrity of the office of constable to be maintained.

The civil status of the police must maintain the philosophy of policing unique in history and throughout the world because it derived not from fear but almost exclusively from public co- operation with the police, induced by them designedly by behaviour which secures and maintains for them the approval, respect, and affection of the public.

The protective apprehension of at-risk, vulnerable persons is an important part of the public police mandate. However, the integrated and cohesive approach with complementary health-related services can provide a more appropriate and sensitive response.

127 Globe and Mail newspaper, July 23, 2016 128 Criminal Code Section 25.1

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23 Review Analyses

23.1 Operational and Literature Reviews

23.1.1 Literature Review

The literature review examined academic material on operational effectiveness and efficiencies specific to COMPSTAT, patrol deployment, air support, and interagency hubs. The literature review's relevant observations are included in the related sections of the Report.

Resources used for the purposes of this review were located in various library catalogues,129 academic databases,130 and search engines.131 Search strategies were built in consideration of the social, situational, political, and economic conditions of the city of Saskatoon. Articles found through these searches were not always retrievable for review, but are still included in the Bibliography section in the Appendix for the purposes of reference and further examination.

23.1.2 Operational Reviews

The Review examined 13 police service reviews, eleven in Canada and two in the UK. It is noticeable that many of the issues captured in these reviews were raised by interviewees and are consistent with this report's findings, including issues related to: . business improvements . chain of command . civilianization . deployment of patrol is not related to workload . intelligence-led model . long-range strategic plan in partnership with the municipality . organizational structure . ownership of territory by patrol officers . Patrol Availability Factor is low . patrol field supervisors to actively manage all activities on their shift . performance measures . promotion process . report writing and administrative times are high . technologies to address management and business process . technology to design a realistic and efficient patrol deployment model . twelve-hour shift

129 WorldCat; Amicus; Saskatchewan Provincial Library 130 Criminal Justice Abstracts; NCJRS; Social Science Research Network; JSTOR; SpringerLink; HeinOnline; ProQuest; Sage Premier; and Wiley Online 131 Google Scholar, Bing, Internet Archive, and Google

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23.2 Saskatchewan in Context - Statistical

Table 23.2 Crime Severity and Crime Rates Provinces & Territories 2015 132

Crime Severity & Crime Rates 2014 – Crime 2014 – Crime

Severity Index Rate index rate Canada 69.7 5,198 Newfoundland and Labrador 65.6 5,793 Prince Edward Island 49.7 4,141 Nova Scotia 61.9 4,970 New Brunswick 63.0 4,933 Quebec 55.7 3,387 Ontario 50.6 3,547 Manitoba 104.3 8,161 Saskatchewan 135.8 11,178 Alberta 102.3 7,957 British Columbia 94.7 7,844 Yukon 183.6 23,605 Northwest Territories 319.0 44,316 Nunavut 270.2 32,495

In Canada, the crime rate and the Crime Severity Index (CSI) are complementary measures of police-reported crime. The crime rate measures the volume of crime reported to the police per 100,000 population, while the CSI measures both the volume and severity of crimes reported to the police. The CSI tracks changes in the severity of police-reported crime by accounting for both the amount of crime reported by police in a given jurisdiction and the relative seriousness of these crimes. It details not only how much crime is coming to the attention of police, but also the seriousness of that crime.

To do this, each type of offence is assigned a seriousness weight. The weights are derived from actual sentences handed down by courts in all provinces and territories. More serious crimes are assigned higher weights, less serious offences lower weights. Saskatchewan's rates are the highest of the ten provinces and lower than the territories.

132 Statistics Canada

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23.3 Saskatoon in Context - Comparator Agencies

23.3.1 National & Prairie Comparators

The Review compared the SPS with 20 Canadian municipal police agencies through public- sources: Statistics Canada and agencies' on-line annual reports. Included in the 20 agencies are seven prairie comparators, as indicated *, which likely have more weather, demographic, and geographic similarities to Saskatoon. The two groups of comparators provide a broad background against which to view the SPS. In addition, six of these agencies provided in confidence more detailed information: in these separate comparators, the measurements of various functions were converted to reflect the SPS sworn staffing level to provide direct comparisons.133 1. Abbotsford 2. Calgary * 3. Edmonton * 4. Gatineau 5. Halifax 6. Halton 7. Hamilton 8. Lethbridge * 9. London 10. Medicine Hat 11. Moose Jaw 12. Newfoundland 13. Niagara 14. Prince Albert * 15. Regina 16. Saskatoon 17. Thunder Bay * 18. Victoria 19. Waterloo 20. Windsor 21. Winnipeg *

23.3.2 Comparators - Staffing 134

Statistics Canada, Police Resources in Canada 2015 provides the following data in the table below. Population estimates are provided by Statistics Canada Demography Division and are adjusted to follow policing boundaries.

133 The Review provided questionnaire matrixes for information gathering 134 Statistics Canada

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The figures represent actual police officer, civilian, and other personnel strength as of May 15th 2015. The police per 100,000 population are based on the authorized staffing levels to the closest whole number. The percentages of male and female officers are based on the actual numbers. The ratio of one civilian position to police positions is based on the authorized police strength

Table 23.3.2-1 National Comparators

Agency Population Police Male & Police Civilian Authorized Authorized percent Female & staff & ratio police Police per percent of one 100K pop civilian to police * Saskatoon 254,569 339 (75.5%) 110 (24.5%) 211 ( 2.1) 449 176 RNC 135 204,427 240 (73.6%) 86 (26.4%) 119 (2.9) 344 168 Halifax 231,915 407 (80.6%) 98 (19.4%) 324 (1.6) 513 221 Gatineau 276,338 306 (77.3%) 90 (22.7%) 179 (2.2) 391 142 Halton 551,027 534 (79.5%) 138 (20.5%) 289 (2.3) 677 123 Hamilton 551,751 654 (78.4%) 180 (21.6%) 314 (2.6) 805 146 London 388,615 475 (80.2%) 117 (19.8%) 211 (3.5) 594 153 Niagara 446,192 593 (83.6%) 116 (16.4%) 293 (2.4) 709 160 Waterloo 538,302 604 (78.7%) 163 (21.3%) 344 (2.2) 762 142 Thunder Bay 116,785 187 (83.9%) 36 (16.1%) 94 (2.4) 223 190 Windsor 218,270 371 (85.1%) 65 (14.9%) 153 (3.4) 448 205 Winnipeg 709,253 1207 (84.9) 215 (15.1%) 478 (3.0 1426 201 Moose Jaw 34,627 50 (9.3%) 4 (0.7%) 21 (2.6) 54 156 Prince Albert 36,824 81 (88.0%) 11 12.0%) 42 (2.2) 92 250 Regina 216,555 289 (74.7%) 98 (25.3%) 161 (2.4) 388 179 Calgary 1,265,531 1795 (83.6) 352 (16.4%) 681 (3.0) 2053 162 Medicine Hat 64,240 102 (92.7%) 8 (7.3%) 35 (3.6) 114 178 Edmonton 928,182 1361 (81.7) 304 (18.3%) 699 (2.4) 1692 182 Lethbridge 99,402 149 (88.2%) 20 (11.8%) 50 (3.5) 174 175 Abbotsford 140,645 178 (84%) 34 (16%) 86 (2.5) 212 151** Victoria 101,190 190 (78.2%) 53 (21.8%) 100 (2.4) 243 240

* The civilian category includes all civilian personnel, Special Constables, cadets and trainees. ** Abbotsford Police Department has an arrangement whereby RCMP Integrated Teams provide regional police services: Integrated Homicide Investigation Team; Emergency Response Team; Police Dog Service; Forensic Identification Services; and Integrated Collision Analyst Reconstruction Section.

There were 68,777 police officers in Canada, representing a rate of national police strength of 192 officers per 100,000 population. The SPS police population ratio is lower than the national average; however the national figure includes all types of policing, including federal and provincial

135 Royal Newfoundland Constabulary

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There were 28,368 civilians employed by police services representing a national ratio of one civilian member per 2.4 police.

Table 23.3.2-2 Prairie Comparators

Agency Population Police Male & Police Civilian Authorized Authorized percent Female & staff & ratio police Police per percent of one 100K pop civilian to police * Saskatoon 254,569 339 (75.5%) 110 (24.5%) 211 ( 2.1) 449 176 Thunder Bay 116,785 187 (83.9%) 36 (16.1%) 94 (2.4) 223 190 Winnipeg 709,253 1207 (84.9) 215 (15.1%) 478 (3.0 1426 201 Prince Albert 36,824 81 (88.0%) 11 12.0%) 42 (2.2) 92 250 Regina 216,555 289 (74.7%) 98 (25.3%) 161 (2.4) 388 179 Calgary 1,265,531 1795 (83.6) 352 (16.4%) 681 (3.0) 2053 162 Edmonton 928,182 1361 (81.7) 304 (18.3%) 699 (2.4) 1692 182 Lethbridge 99,402 149 (88.2%) 20 (11.8%) 50 (3.5) 174 175 Average 191

SPS has the second highest ratio of female officers and the highest ration of civilian staff (civilian staff includes Special Constables). The average number of police per 100,000 population is 191; SPS has 176, the third lowest of the prairie group.

23.3.3 National Comparisons - Rank

It is difficult to make an accurate comparator of rank due to the SPS using the Sergeant rank as both a supervisor and practitioner. In most police agencies, the practitioner/investigator level is the Constable in almost all areas and Sergeants are supervisors and team leaders. The SPS model creates a two-tiered practitioner level which makes comparisons inconsistent. In the national comparators in the table, Saskatchewan has the lowest percentage of Constables, perhaps due to the Sergeant Investigator numbers. The SPS Constable ratio is slightly higher than Saskatchewan average, but the third lowest of the provincial averages after New Brunswick and Quebec. The SPS ratio of senior officers increased from 2015 to 2016 with the changes in the organizational structure effective May 2016.

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Table 23.3.3 Staffing Levels by Rank 136

Senior Officers Supervisors Constables Total Number Percent Number Percent Number Percent Number British Columbia 254 2.9 2376 27.4 6048 69.7 8678 Alberta 168 2.3 1938 27.1 5049 70.6 7155 Saskatchewan 67 2.9 701 30.6 1518 66.4 2286 SPS 137 2016 15 3.3 128 28.4 308 68.3 451 SPS 138 2015 13 2.8 128 27.9 318 69.3 459 Manitoba 66 2.5 654 25.1 1882 72.3 2602 Ontario 759 2.9 5608 21.4 19,838 75.7 26,205 Quebec 1024 6.4 4315 26.9 10,673 66.7 16,011 New Brunswick 47 3.7 365 28.6 866 67.8 1278 Nova Scotia 51 2.7 442 23.8 1362 73.4 1855 PEI 7 3.1 62 27.4 157 69.5 226 Newfoundland 29 3.3 233 26.2 627 70.5 889

Senior officer: Chief, Deputy Chief, Superintendent, Inspector Supervisor: Staff Sergeant, Sergeant, Corporal

The Patrol Divisions staffing ratio of Constables to 139 . all supervisors and managers - 6.7 . Watch Commanders and Sergeants - 7.8 . Sergeants - 12.25

The 2015 SPS personnel figures are used for consistency with the Statistics Canada figures.

23.3.4 Crimes & Incidents per Officer, Crime Rates, CSI, Clearance Rates, 2015

The figures in the table below illustrate that Saskatoon has: the third-highest crimes-per-officer rate at 56, after Prince Albert (92), and Lethbridge (60), with the group average at 42.9; the third highest Crime Severity Index (121), after Prince Albert (235) and Victoria (139); and a Weighted Clearance Rate of 37.25, slightly under the average of 39.54.

136 Statistics Canada Police Resources in Canada 2015 137 SPS Organizational Chart May 2016 138 SPS Information Book 2015 Actual Personnel 139 SPS Organizational Chart May 2016

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Table 23.3.4-1 National Comparators 140

Agency Police Actual Crimes Crime Weighted # Crime per Severity Clearance Incidents Officer Index Rate Saskatoon 449 25,293 56 121.19 37.25 RNC * 344 13,438 39 74.09 29.40 Halifax 513 NR** NR NR NR Gatineau 391 15,042 38 NR NR Halton 677 11,677 17 22.94 47.04 Hamilton 805 25,475 31 59.78 34.65 London 594 26,384 44 74.83 41.23 Niagara 709 17,629 24 51.97 36.83 Waterloo 762 27,051 35.5 59.51 39.32 Thunder Bay 223 7,633 34 82.58 43.77 Windsor 448 13,630 30 82.44 43.67 Winnipeg 1426 45,617 31 92.76 39.24 Moose Jaw 54 3,780 70 99.18 37.03 Prince Albert 92 7,828 85 235.32 48.50 Regina 388 20,579 53 113.33 41.31 Calgary 2053 68,255 33 77.32 26.82 Medicine Hat 114 5,017 44 77.38 56.14 Edmonton 1692 83,254 49 111.73 41.78 Lethbridge 174 10,514 60 109.49 53.42 Abbotsford 212 9,797 46 87.27 24.38 Victoria 243 12,737 52 139.87 27.23 Average *** 42.9 93.31 39.54

* St. John's, Royal Newfoundland Constabulary ** NR Not Reported *** Average does not include Saskatoon Police # - Number of police officers on May 15th 2015

The figures in the prairie table below illustrate that Saskatoon has: . the third-highest crimes-per-officer rate at 56, after Prince Albert (85), and Lethbridge (60), with the group average at 49.3 . the second highest Crime Severity Index (121), after Prince Albert (235) . a Weighted Clearance Rate of 37.25, slightly under the average of 42.12

140 Statistics Canada Police Resources in Canada 2015

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Table 23.3.4-2 141 Prairie Comparators

Agency Police Actual Crimes Crime Weighted # Crime per Severity Clearance Incidents Officer Index Rate Saskatoon 449 25,293 56 121.19 37.25 Thunder Bay 223 7,633 34 82.58 43.77 Winnipeg 1426 45,617 31 92.76 39.24 Prince Albert 92 7,828 85 235.32 48.50 Regina 388 20,579 53 113.33 41.31 Calgary 2053 68,255 33 77.32 26.82 Edmonton 1692 83,254 49 111.73 41.78 Lethbridge 174 10,514 60 109.49 53.42 Average 49.3 117.50 42.12

23.3.5 Comparators - Financial

The gross budgets below are used to illustrate the cost of providing all policing services and provide a broad background for the SPS. These figures do not include revenues or other cost- sharing arrangements which may reduce the costs for the municipalities. Also, some agencies may provide services which in other jurisdictions may be provided by other agencies with separate budgets. In addition, the figures are from separate sources; hence, some caution should be exercised when interpreting the figures.142 The Saskatoon per-capita cost of $352 is lower than the prairie comparator average of $377.

Table 23.3.5-1 Prairie Comparators - Gross Policing Costs per-Capita

Agency Population Gross Budget $ Cost per Sources 146 143 millions 144 capita 145 Saskatoon 254,569 $89.6 352 IB 2015 Thunder Bay 116,785 $38.5 330 AR 2015 Winnipeg 709,253 $261.1 363 ASR 2015 Prince Albert 36,824 $18.5 503 City 2015 Regina 216,555 $76.9 355 AR 2015 Calgary 1,265,531 $451.0 356 AR 2015 Edmonton 928,182 $366.8 395 AR 2015 Lethbridge 99,402 $33.5 337 City 2015 Average 377

141 Statistics Canada Police Resources in Canada 2015 142 Prior to 2010 Statistics Canada published annual costs for Canadian police agencies 143 Statistics Canada 144 The gross budget figures are to the closet decimal point 145 The cost-per-capita figures are calculated by dividing the exact budget by the population 146 IB Information Book, AR Annual Report, BP Business Plan, ASR Annual Statistical Report, City Budget

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Table 23.3.5-2 National Comparators - Gross Policing Costs per-Capita

150 Agency Population Gross Budget $ Cost per Sources 147 148 149 millions capita Saskatoon 254,569 $89.6 352 IR 2015 Newfoundland 204,427 $59.1 289 AR 2014/15 Halifax 231,915 $84.4 361 BP 2015/16 Halton 551,027 $134.8 245 HRPS 2015 Hamilton 551,751 $157.4 285 HPS 2015

London 388,615 $103.4 266 LPS 2015

Niagara 446,192 $150.8 338 NR Budget 2015

Waterloo 538,302 $158.2 294 AR 2015

Thunder Bay 116,785 $38.5 330 AR 2015

Windsor 218,270 $77.5 355 City 2015

Winnipeg 709,253 $261.1 363 ASR 2015

Moose Jaw 34,627 $9.6 278 City 2015

Prince Albert 36,824 $18.5 503 City 2015

Regina 216,555 $76.9 355 AR 2015

Calgary 1,265,531 $451.0 356 AR 2015

Medicine Hat 64,240 $25.0 390 AR 2015

Edmonton 928,182 $366.8 395 AR 2015

Lethbridge 99,402 $33.5 337 City 2015

Abbotsford 140,645 $42.7 308 PRBC 2015 151

Victoria 101,190 $45.9 483 PRBC 2015

Average 344

The Saskatoon per-capita cost of $352 is higher than the national comparator average of $344.

23.3.6 Incidents per Officer 2015

The prairie figures in the table below are taken from sources in the public domain and from the confidential comparators as indicated. It should be noted that the calculation and publication of the number of incidents or calls-for-service may vary from agency to agency. The more detailed confidential responses include incidents per patrol officer in addition to the incidents per agency officer.

147 Statistics Canada 148 The gross budget figures are to the closet decimal point 149 The cost-per-capita figures are calculated by dividing the exact budget by the population 150 IB Information Book, AR Annual Report, BP Business Plan, ASR Annual Statistical Report, City Budget 151 PRBC Police Services Division, Ministry of Public Safety and Solicitor General, Police Resources in BC

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Table 23.3.6-1 Incidents per Officer - Prairie Comparators

Figures were gathered from the annual reports of the agencies, but not all reports included this detail - hence the limited number of identified prairie comparators which have been combined with the five confidential responses.

Agency Police # Incidents / Incidents / CFS Incidents / CFS Source calls for per agency per patrol service Officer Officer Saskatoon 449 76,745 170 408 SPS report Thunder Bay 223 37,054 166 AR 2015 Winnipeg 1426 200,499 141 AR 2015 100 Confidential 135 Confidential 156 Confidential 167 Confidential 326 Confidential 288 Confidential 260 Confidential 360 Confidential 423 Confidential 699 Confidential Average 170 406

The figures indicate a significantly wide range of incidents per officer and per patrol officer. SPS is close to the average.

In order to examine allocation of resources, the confidential comparator agencies were asked to provide the percentage of sworn staff assigned to the patrol function. Police agencies' annual reports and websites often include total staffing numbers and organization charts - however, they normally do not include the detailed breakdown of staffing per component. The SPS figures are from the comparator response and show that SPS is within the comparator range in the staffing of patrol. The five comparators' patrol staffing range from 34.9% to 51.7% with the average of 43.2%. The SPS figure of 41.7% is close to the average and mid range.

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23.3.7 Findings

The comparisons illustrate SPS has the second highest national ratio of civilian staff to sworn, and is the highest of the prairie comparators. In the national comparators, SPS has the third- highest ratio of female officers and the second highest in the prairie group. The SPS Constable ratio is slightly higher than Saskatchewan average, but the third lowest of the provincial averages after New Brunswick and Quebec. The ratio of senior officers (2016 organizational chart) is the third highest.

The SPS police per 100,000 population is 176, the prairie average is 191, and the overall comparator average is 178. SPS crimes per officer ratio is 56 and the prairie average is 49.3.

The Saskatoon Crime Severity index is the third highest, after Prince Albert and Victoria BC. The SPS clearance rate is mid range.

The SPS number of incidents/calls for service per officer is the comparators' average, and the proportion of sworn staff assigned to the patrol function is within the comparator range.

23.4 SPS Workload

23.4.1 Primary Response

The SPS dispatched a total of 76,745152 occurrences in 2015. The numbers, totaling 126,626,153 represent the number of dispatches (including multiple police units responding to one incident) and also when an occurrence type is changed from the 'initial' to 'final', both types are recorded. The total number of 'social issues related' calls total 32,681, or 26% of the call load.

23.4.2 Work Flow

The chart below illustrates the work-flow from initial complaint to conclusion.

152 SPS Information Book 2015 153 SPS CAD data

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23.4.2.1 Calls for Service

Calls for service are received from the public through multiple channels, referred to as call source, and this information forms the basis of SPS incident creation and response.

These sources include 9-1-1 for emergencies and incidents in progress, and SPS‟ non- emergency telephone report line. SPS computer-assisted dispatch (CAD) system records the call source for each incident.

23.4.2.2 Triage

103,493 incidents were created in 2015. A significant percentage (11.3 percent) of these calls was referred to the other emergency services, and 0.7 percent were referred to private alarm companies. 14,339 incidents were created but not dispatched. The Review did not examine these incidents in detail, but a review of their occurrence types indicated that they are (generally) reports of erratic driving, disturbances, impaired driving, and vehicle accidents.

Many of these incidents were likely duplicate calls from multiple witnesses (regarding, for example, a vehicle driving erratically) and this is likely the reason that the incident was not

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Other incidents reported by the public via the non-emergency telephone line were similarly triaged; a percentage of those incidents were either transferred to other emergency services, some were dispatched, and others were not dispatched. The characteristics of the non- emergency, un-dispatched calls were similar to those received (and not dispatched) via 9-1-1.

A small number of calls for service (1,109) were deemed to be bona fide police incidents, but were not judged to be of critical urgency. These incidents were queued directly for follow-up by investigators without the need for attendance by SPS patrol units.

The remaining 76,759 incidents were assigned to SPS Patrol, Traffic, and other operational units. 88% of these incidents were investigated and concluded in the first instance by patrol/operational members. The other 12% of incidents (9,219) required more detailed follow-up and were queued subsequent to the initial investigation to SPS investigative support sections, or the Criminal Investigation units.

23.4.2.3 Follow-up Investigations

Follow-ups are managed within SIMS. Incidents which are dispatched and then closed by patrol members with need for follow-up investigation traverse an electronic bridge into the RMS portion of SIMS. In the RMS, incidents are tracked by their occurrence number, which is inherited from CAD if the incident is subject to an initial patrol-based response, or through a newly-created occurrence number if the incident represents a standalone RMS incident with no associated records in CAD.154

In 2015, the Criminal Investigations Division and its sections/units received a total of 15,954 new incidents. Of these, 9,219 incidents (57.8%) were referred from patrol/operational members as a result of dispatched calls for service, 1,109 incidents, or 7%, were referred directly from the Communications Centre.

154 This is not uncommon. Incidents may be referred directly to follow-up units by the Communications Centre (as described under Triage), or investigators within the Division may uncover information that requires a new investigation to be initiated. In the Review they are referred to as self-generated investigative incidents

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23.4.2.4 Case Conclusion

The Review examined case conclusion statistics for SPS for 2015. Case conclusion was determined from the CAD and RMS systems through analysis of a concluded flag and a database field founded that enumerates the status of each incident.

The Operations Division was responsible for the large majority of case conclusions, with 67,540 incidents being cleared through the CAD system, representing 88%. The totality of SPS investigative units were responsible for another 15,921 case conclusions in 2015.

23.4.3 Findings

During the interviews, the complexity of the system, the follow-up requests for additional information, and the multiple points of contact for files including the Sergeant, Reader, and Staff Sergeant, were identified as frustrations. Staff described the considerable time required to successfully navigate the system. However, it was noted that there is also a generational divide in the approach to the technology with many younger officers being comfortable in its use, but some more experienced officers experiencing more of a challenge.

Research shows the challenges of police electronic report writing. 155 General duty members spend more time on paperwork tasks than they spend on responding to calls for service and conducting investigations combined. They also told us that the introduction of mobile data terminals has made it possible to do paperwork in their police vehicles and estimated that some 80% of their time on patrol when not actively responding to calls is spent doing paperwork over the mobile data terminals.

155 Plecas, Darryl. Brantingham, Paul. Brantingham, Patricia. Tinsley, Paul, et al. School of Criminology and Criminal Justice, University College of the Fraser Valley. Found at https://www.ufv.ca/media/assets/ccjr/ccjr-resources/ccjr-publications/30_Year_Analysis_(English).pdf

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24 Investigation Bureau

24.1 Efficiency and Case Management

The General Investigations, Domestic Violence, Break and Enter and Sex Crime/Child Abuse units represent the units within SPS with the largest average monthly case intake. Other units such as Fraud, Major Crime, and Missing Persons deal with complex cases: despite lower intake numbers, the cases require the investment of significant time and staffing resources.

Forensic Identification also possesses a significant average monthly intake, and this reflects the reliance of modern investigations on science.

The Review analyzed SIMS data to determine the investigative delays for the case intake process which were computed in units of days. This analysis was performed for each investigative section. In this analysis, the delay was represented by the difference between the first investigative assignment of the case and the reported date.

SIMS data sets contain outlier values. Outliers may be defined as data values which are inordinately different from the majority of others. In the policing context, these values may be caused by any number of factors: cases which are delayed due to waiting for witnesses, complainants, or Crown Counsel; delays in obtaining laboratory services for forensic analysis; complex cases which require research, and other events which cause unusual delays.

Statistically, the existence of outliers can affect the accuracy of an average figure. The alternative is to use the complementary statistic, the median. The median represents the mid- range value when the values (in this case, investigative delays per case) are arranged in ascending order.

The table below illustrates delays per section. Of note is that between 2014 and 2015: . 13 of the 25 investigative sections showed a reduction in case intake delays . 5 sections maintained their 2014 intake times . 7 sections incurred an increase in case intake delay

Of those sections which experienced a delay in intake time, the average delay reduction was 1.7 days. For those sections that experienced an increase in intake delay, the average increase was 4.3 days.

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Table 24.1-1 Investigative Assignment Delays by Section, 2014 and 2015

Investigative Assignment Delays by Section 2014 & 2105 2014 2015 Section Average Median Average Median Break and Enter 10.5 4.0 11.4 3 Combined Forces SpEnf Unit 19.0 4.0 22.7 1 Domestic Violence/Assault 4.5 2.0 3.0 1 Forensic Identification 21.5 4.0 14.2 3 Fraud 5.5 3.0 6.2 1 General Investigation Section 3.8 2.0 4.6 1 Guns and Gangs Unit Team 1 15.8 2.0 4.6 1 Guns and Gangs Unit Team 2 26.6 2.5 15.1 1 Integrated Drug Unit 21.1 3.0 14.9 2.5 Integrated Intelligence Unit 26.7 8.0 19.9 16.5 Internet Child Exploitation 52.0 5.5 21.9 9 Major Crime Section 4.3 2.0 7.9 3 Missing Persons Detail 0.6 1.0 2.1 1 NWEST 47.2 12.0 52.8 24 Pawn 7.6 4.0 11.5 4 Polygraph 2.7 2.0 6.8 1 Proceeds of Crime 15.3 2.0 24.1 1 Sex Crime and Child Abuse Unit 5.7 2.0 5.3 2 Special Investigation Unit 49.7 1.0 20.6 4 Stolen Auto 17.4 3.0 13.3 4.5 Targeted Enforcement Unit - S/Sgt 4.5 3.0 2.1 1 Technical Crimes 8.0 8.0 9.6 1.5 Vice 26.0 3.5 17.6 4 VICLAS 7.6 2.0 2.7 2 Victim Service/ARO 9.2 6.0 8.5 6

Figure 24.1-1 below illustrates these figures in a graphical format. The median investigative assignment delay for most units is under 5 days, which in the Review‟s view is reasonable for a busy police department.

NWEST, Integrated Intelligence, and Internet Child Exploitation are experiencing delays beyond those of other units. Victim Services/ARO is slightly high but given the high volume of work in this unit (over 2,500 incidents annually) a median figure of 6 days is likely to be acceptable.

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Figure 24.1-1 Median Case Assignment Delay for Investigative Sections

The Review noted that 18 of SPS investigative sections either improved (reduced) their assignment time delays or maintained them between 2014 and 2015.

Investigative units156 concluded 4,824 cases in 2015, up slightly (3.6 percent) from 4,655 cases in 2014. Cases marked as unconcluded numbered 147 in 2015 and 66 in 2014.

Victim Service/ARO concluded significantly more cases than other investigative units in both 2014 and 2015.157 Amongst the other more traditional criminal investigative units, the Break and Enter Unit concluded 432 and 438 cases in 2014 and 2015 respectively.

The Review noted that the percentage of unconcluded cases for investigative units was highly variable. For 2015, General Investigations and Major Crime had the highest number of unconcluded cases, at 36 each, while the Sex Crime and Child Abuse Unit had 21. Figures for 2014 are similar.

156 For the Review, investigative units were defined as (SIMS terminology) 'B&E', 'CFSEU', 'CRINTL', 'DOMVIO', 'IDENT', 'FRAUD', 'GIS', 'STCRM1', 'STCRM2','SIDU', 'SIIU', 'ICE', 'MJCRIM', 'MPD', 'NWEST', 'PAWN', 'POLYGR', 'IPOC', 'SXCHAB','SIU', 'STAUTO', 'TARGEN', 'TECHCR', 'VICE', 'VICLAS', and'VICSER' 157 2827 cases concluded in 2015 and 2,521 concluded in 2014

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Figure 24.1-2 Unconcluded Cases 2015 by Investigative Unit

Figure 24.1-2 depicts percentages of unconcluded cases by investigative unit for 2015. Note the significant skew in the graph caused by the higher unconcluded case percentages in Major Crime, VICLAS, Polygraph, and Special Investigations. This is explained by the relatively more complex nature of investigations in these areas, combined with files being active over long periods. In modalities such as the one shown on this histogram, median provides a more accurate estimate than average in regard to unit performance. The median of unconcluded investigative cases for SPS is 5.6 percent.

Cases concluded by charge varied significantly between investigative units and also exhibited some temporal variation throughout the year. The variation between units is related to the complexity of different types of investigation and cannot be accurately normalized.

For example, Figure 24.1-3 illustrates the case conclusion by month for the Break and Enter unit in 2014 and 2015. Note the average values for each year of about 6 through 15 cases.

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Figure 24.1-3 Break and Enter Unit – Cases Concluded by Month, 2014 and 2015

Comparing this to Major Crime illustrates the differences in case conclusion numbers.

Figure 24.1-4 Major Crime Section – Cases Concluded by Month, 2014 and 2015

The figures illustrate that case intakes for all units between 2014 and 2015 are similar. While some units such as Targeted Enforcement and the Major Crime Section exhibited a significant variation in cases between 2014 and 2015, this is typical for policing and could not be attributed to either administrative or operational factors within SPS. The Review additionally could not identify any meaningful trends that need to be addressed.

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24.2 Caseload

During interviews, investigative division staff did not identify excessive caseload as an urgent concern. Interviewees in some sections did report that lack of staff (either due to vacancies or an insufficient number of positions due to creation of new units) increases workload, and that some investigations must be deferred for a longer period than preferred, but the issue did not appear to be critical. Other major police agencies experience similar caseloads and investigative constraints.

24.3 Investigative Competence

Preferred Constables assigned to investigative roles in some cases expressed the opinion that they are assigned the same types of files and held to the same expectations as Sergeants in their units. This is perceived as inequity, as Preferred Constables generally have a shorter tenure in their positions and are paid at a lower rate than Sergeants in their units.

24.4 Supervision

Supervision was not identified as an issue by any of the investigators interviewed during the course of the Review.

24.5 Staffing

Interviewees identified the creation of new units or task forces, to address emerging crime trends, without adequate planning, consultation, or consideration of the impact that staffing these new units would have on current projects and investigative activities.

Interviewees certainly agreed with the seriousness of some of these emerging crime trends and social issues, and the need for SPS to help address them, but felt that often the units were created seemingly overnight and staffed by investigators transferred from other units on an uncoordinated basis.

24.6 Findings

The investigative shifts and pre-assignment training are addressed in Part 1.

Changes to the investigative units disrupt file management.

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Case management activities and clearance times appear to be realistic based on the nature of the offences being investigated.

Supervision was not identified as an issue by interviewees.

Interviewees expressed the view that when new units or task forces are established, suitable planning, consultation, and consideration of the impact on current projects and investigative activities must be considered.

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25 Administrative Support

The Review examined the components and functions providing administrative support for the organization.

25.1 Human Resources

The prevailing corporate wisdom for HR is that 150 employees is the point at which an organization needs a dedicated HR function. On that basis, theoretically SPS would require four to five professional staff plus clerical support - which is the current SPS staffing level.

The recruiting function of a police organization is more complex than most organizations and SPS dedicates two FTEs plus one accommodated position. The training function is staffed by six FTEs. The staffing levels were found to be appropriate.

SPS Job Descriptions were found to be out of date, and the file date on the document may represent the automatic document-saved date, rather than the date when the job description was approved. Job descriptions provided to the Review were not signed or otherwise authorized by the executive. When changes have been made to the overall organization, or to a division or work unit, it appears the required collaboration with HR to update job descriptions has not occurred. Various HR functions are described in other areas of the Report.

25.2 Finance

SPS receives 90% if its funding from the taxpayers of Saskatoon, 8% from the province, and 2% from internal programs and sources. Expense and transfer adjustments are consistent with ten- year trends. If annual cost drivers stay as the average of the past ten years, costs will increase by 8% per year. This includes vehicles and debt servicing for the new Police Headquarters, and an annual offset of 7% for revenue. An 8% increase in the police budget year over year will increase the City‟s annual tax by 3.5%. Some of this increase has been funded from annexation in the past and may continue in the future.

The cost drivers that lead to an 8% increase year over year are: . Staffing costs are 81% of the operating expenditure budget. Staffing costs have increased by an average of 8.7% from 2006 to 2015. This increase includes approximately 3.0% for staff additions. An average of 9.7 police officers and 8 civilian staff were added annually in the past ten years.

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. Non-compensation costs are 19% of the expenditures budget. 10% of non-compensation costs are transfers to reserves. The remaining 90% are operating costs. . Operating costs include repairs and maintenance; utility costs; lease and rentals; technology; contracted services; travel and training; and materials and supplies. These costs increased in 2015 from the prior year by 1.1% ($169,000). This is consistent with inflation. The average annual increase over the past ten years is 8.7%. This increase is due to staff level increases and inflation. . The transfer to reserves is savings for the future, including asset management. The ten- year increase from 2006 to 2015 averaged 3.4% per year. This increase has not kept up with growth, inflation, and infrastructure gap requirements. Growth of the city and, consequently, SPS is also a consideration. For financial sustainability, reserve levels should be sufficient for replacement of assets and growth needs.

To achieve the City‟s strategic, vision the SPS will need to balance affordability with service delivery and sustainability. The priorities from the Plan that guide the police service are: quality of life, asset and financial sustainability, economic diversity and prosperity, and sustainable growth.

A long-term strategy and policy that provides a growth-based formula may address year over year fluctuations and will assist with principle-based decisions. The SPS approach should be coordinated with that of the City. It is noted that Recommendation number 1, The Review recommends the Board and SPS adopt a strategic approach coordinated with the City‟s planning and financial cycle, and this addresses financial issues.

Budget comparators are included in Section 23.3.5.

25.3 Legal Services

It was not possible to gain a reliable representative comparison of other agencies due to the different environments and whether legal services were shared with city services. Although the SPS has close relationships with the Board of Police Commissioners and the City of Saskatoon, the interests of the three may not always coincide and it is valuable for each organization to have independent legal advice. Consultations with experienced CAOs confirmed that the current staffing level and types of functions are appropriate. The FOI and Release of Information functions are addressed in Section 14.

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25.4 Professional Standards

In the proposed organizational chart, the Professional Standards Division would change its focus to include: . the current internal professional standards for individual members (internal investigations) . the proposed professional standards of performance analytics 158 and the other current functions would move to the Support Bureau.

It is proposed to rename the Division to Professional Standards and Performance Division.

25.5 Central Records

The Central Records operates effectively with its own trainers and pool of part-time employees.

Previously, police agencies placed the CPIC radio close to the paper files - in records areas, but with electronic filing this is no longer essential. The advantage of having the function and the staff in Communications is the economies of scale should Communications experience high volumes during a major event or incident. However, staff felt the current system works well and were not in favour of such a change. Although the differences are acknowledged, this is an option to consider long term in the event of a realignment of Records orCcommunications.

25,6 Exhibit Control

The Review compared the exhibit function with the confidential comparators. The SPS staff process 9,732 exhibits per year per staff member, more than the comparators' average of 8,627. The comparators' range varies from 3995 to 12,865, with a medium of 8430.

The exhibit submission process is integrated with SIMS. The computer system that manages exhibits appeared to be efficient and well-understood by property management staff. The Review did not observe any criticalities in staffing in this section.

The submission process for patrol and investigative members is efficient and effectively isolates the exhibit storage area from submitting members, thus reducing the possibility of lost or misplaced exhibits, and reducing organizational liability.

158 The performance analytics model is described under Section 4

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The Review found that the physical space in which exhibits are stored is well-organized, but the facility is close to maximum capacity. Areas intended for one type of property storage have had to be repurposed for other exhibit types. With the predicted significant increases in population in Saskatoon over the coming decade, exhibit (and property) storage and management will likely become problematic due to lack of exhibit storage space. The management of storage should become a KPI.

The exhibit submission process for items requiring forensic examination similarly represents the state of the art in policing. There is excellent isolation of exhibits, and exhibit control and tracking within the Forensic Identification Unit is good. Scientific instruments and testing capabilities are sufficient to support the complex types of forensic tests which must be performed in many investigations.

25.7 Property - Lost and Found

Much of the property seized by police is not evidentiary in nature. The property is held essentially for safekeeping until its owner can be determined (at which time it is returned), or after a period of time (based on policy and legal standards) the property will be auctioned or destroyed.

SPS lost-and-found function is well-organized and physically separated from the exhibit control facilities of the department.

With the predicted significant increases in population in Saskatoon and environs over the coming decade, found property storage and management will likely challenge exhibit storage space. The management of storage should become a KPI.

25.8 Court Preparation

The document requirements for court have grown exponentially over the past twenty years. There are clear legal rulings and legislative changes that are forcing much of this increase (without providing for increased resources), but there appear to be other increases in administrative work as well. Of particular interest is the major increase in the time to prepare a case for Crown and to work with Crown towards actually laying charges. This time has increased substantially and is worth additional research to separate the legal, from the administrative and communication issues involved.159

159 A Thirty Year Analysis of Police Service Delivery and Costing

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With the adoption of SIMS, SPS works in a fully electronic service and reporting environment. Unlike other jurisdictions, however, SPS must generate paper Reports to Crown Counsel and staff must then deliver these reports to Crown manually. While SIMS has the capability of generating an electronic Report to Crown, Crown in Saskatchewan lacks the ability to receive these electronic reports.

The Review met with representatives of both provincial and federal Crown, and both sectors immediately identified the lack of an electronic process as the most serious shortcoming that Crown faces. There is a provincial project underway to address this issue, but a definitive timeline does not exist.

25.9 Public Affairs

SPS employs qualified staff with experience in modern media technologies. Staff members are familiar with social media culture and the use of current social media applications such as Twitter, Instagram, and Snapchat, and act as an advocate for social media. These technologies are used creatively to, for example, leverage the popularity of the apps with young people who may be acquainted with missing youth, in order to more quickly locate the missing young person and ensure their safety.

The Review understands that a SPS-specific social media apps is under development to improve information dissemination to the public and makes it easier for the public to report crime. It is planned to include a crime mapping feature that would be fed by SIMS data. SPS IT Division provides technical support for social media usage within the Department.

During the Review, interviews revealed that not all investigators understand the dominance of social media amongst (especially) youth and young adults, and that there is still some resistance by some investigators to the use of social media in criminal investigations, and the support which Public Affairs can provide.

In addition, the Review observed that SPS does not make the most of available statistical data to inform the public through social media. Interviewees suggested that more impact could be made with an increased use of advanced graphics or video on social media, as well as text-based press releases.

The continuing reliance of Public Affairs on SIMS data supports the Review's recommendation to include this component in the Analysis grouping.

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APPENDICES

Appendices are numbered consistent with the relevant sections 2 Job Description SPS Executive Director 22.4 The Role of the Public Police - Peel's Principles 23.1 Literature Review Bibliography

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Appendix 2 Job Description SPS Executive Director

Review Example Draft for discussion purposes

Job Summary Plans, directs, manages and oversees the activities and operation of the Corporate Services Bureau including: HR, Finance, Finance, and Facilities, and other corporate services or functions as directed by the Chief.

Essential Job Functions The fundamental duties and tasks that define the job are: . Performs high level administrative, technical and professional work in directing and supervising the administration of the day-to-day management of the Corporate Services Bureau in accordance with policy established by the Board, the Chief and Executive, City Council, provincial and federal legislation and regulations and guidelines. . Monitors and evaluates the efficiency and effectiveness of service delivery methods and procedures; assesses and monitors workload, administrative and support systems, and internal reporting relationships; identifies opportunities for improvement and directs the implementation of changes. . Represents the SPS as approved by the Chief and meets and confers with elected officials and outside agencies to discuss Corporate Services policies, procedures and remedy problems and resolve inquires and complaints from both internal and external sources; and negotiates and resolves sensitive, significant and controversial issues. . Manages the Corporate Services Bureau in development and implementation of SPS goals, objectives, policies and priorities within SPS policy, appropriate service and staffing levels, and allocates resources accordingly. . Manages the development and administration of the SPS budget, revenue and expenditure forecasts of funds needed for staffing, equipment, materials and supplies; directs and approves expenditures in accordance with Board, City, and SPS policy; and directs the preparation and implementation of budgetary adjustments as necessary. . Stays abreast of new trends and innovation in the field of public management and administration. . Advises the Chief and Executive on matters of policy. . Reviews and analyzes reports, legislation, court cases and related matters and directs or personally conducts studies, research and investigation on a wide variety of administrative and technical areas. . Prepares and recommends long-range plans for SPS corporate service programs and develops specific proposals for action on current and future City needs.

Education and Experience . Bachelor‟s degree in public administration, business management or a closely related field from an accredited college or university . Five years of related experience as; or an equivalent combination of education and experience.

Skills, knowledge, and abilities . Knowledge of operational characteristics, services and activities of municipal administration and organization

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. Knowledge of modern policies and practices of public administration; working knowledge of municipal finance, public safety, facilities, and human resources . Knowledge of and skill in advanced principles and practices used municipal budget preparation and administration . Skill in preparing and administering budgets and programs . Knowledge of pertinent federal and provincial regulations, and city bylaws . Ability to develop, implement and administer goals, objectives and procedures for providing effective and efficient services . Ability to analyze problems, identify alternative solutions, project consequences of proposed actions and implement recommendation in support of established goals . Ability to identify and respond to community and City Council issues, concerns and needs . Ability to communicate effectively with diverse groups of individuals using tack and diplomacy

Preferred Qualifications . Master‟s Degree in Public Administration . Senior level experience as an Administrator, Department Head, or similar position

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Appendix 22.4 Robert Peel’s Nine Principles of Policing 160

There is no evidence of any link to Robert Peel and it was likely devised by the first Commissioners of Police of the Metropolis (Charles Rowan and Richard Mayne). The principles which were set out in the „General Instructions‟ issued to every new police officer from 1829 were: 1. To prevent crime and disorder, as an alternative to their repression by military force and severity of legal punishment. 2. To recognise always that the power of the police to fulfil their functions and duties is dependent on public approval of their existence, actions and behaviour and on their ability to secure and maintain public respect. 3. To recognise always that to secure and maintain the respect and approval of the public means also the securing of the willing co-operation of the public in the task of securing observance of laws. 4. To recognise always that the extent to which the co-operation of the public can be secured diminishes proportionately the necessity of the use of physical force and compulsion for achieving police objectives. 5. To seek and preserve public favour, not by pandering to public opinion; but by constantly demonstrating absolutely impartial service to law, in complete independence of policy, and without regard to the justice or injustice of the substance of individual laws, by ready offering of individual service and friendship to all members of the public without regard to their wealth or social standing, by ready exercise of courtesy and friendly good humour; and by ready offering of individual sacrifice in protecting and preserving life. 6. To use physical force only when the exercise of persuasion, advice, and warning is found to be insufficient to obtain public co-operation to an extent necessary to secure observance of law or to restore order, and to use only the minimum degree of physical force which is necessary on any particular occasion for achieving a police objective. 7. To maintain at all times a relationship with the public that gives reality to the historic tradition that the police are the public and that the public are the police, the police being only members of the public who are paid to give full time attention to duties which are incumbent on every citizen in the interests of community welfare and existence. 8. To recognise always the need for strict adherence to police-executive functions, and to refrain from even seeming to usurp the powers of the judiciary of avenging individuals or the State, and of authoritatively judging guilt and punishing the guilty. 9. To recognise always that the test of police efficiency is the absence of crime and disorder, and not the visible evidence of police action in dealing with them.

160 Found at https://www.gov.uk/government/publications/policing-by-consent/definition-of-policing-by- consent

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Appendix 23.1 Literature Review Bibliography

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Alpert, G. P., MacDonald, J., & Gover, A. (1998). The use of helicopters in policing: Necessity or waste? In Police Forum (Vol. 8, pp. 9-14).

Banks, D., Dutch, N., & Wang, K. (2008). Collaborative efforts to improve system response to families who are experiencing child maltreatment and domestic violence. Journal of Interpersonal Violence.

Bolduc, N. S. (2016). Global Insecurity: How Risk Theory Gave Rise to Global Police Militarization. Indiana Journal of Global Legal Studies, 23(1), 267-292.

Bracken, C., Lyon, R. D., Mansour, M. J., Molnar, A., Saulnier, A., Thompson, S., & Sharpe, J. (2014). Surveillance Drones: Privacy Implications of the Spread of Unmanned Aerial Vehicles (UAVs) in Canada.

Braga, A. A. (2001). The effects of hot spots policing on crime. The ANNALS of the American Academy of Political and Social Science, 578(1), 104-125.

Braga, A. A., & Weisburd, D. (2010). Policing problem places: Crime hot spots and effective prevention. Oxford University Press on Demand.

Bratton, W. J. (1999, July). Great expectations: how higher expectations for police departments can lead to a decrease in crime. In Measuring What Matters: Proceedings from the Policing Research Institute Meetings, Washington, DC: National Institute of Justice (pp. 11-26). Available for download at http://citeseerx.ist.psu.edu/viewdoc/download?doi=10.1.1.218.4536&rep=rep1&type=pdf#page=1 5.

Bratton, W. J., & Malinowski, S. W. (2008). Police performance management in practice: taking COMPSTAT to the next level. Policing, 2(3), 259-265. Available for download at http://assets.lapdonline.org/assets/pdf/WJB%20SWM%20Article%20Oxford%20Journal.pdf.

Cartier, B. (2012). Certainty through Flexibility: Intelligence and Paramilitarization in Canadian Public Order Policing (Doctoral dissertation, Université d'Ottawa/University of Ottawa).

Coliandris, M., and Coliandris, G. (2015). Is Anyone Remotely Interested? The Rise of the Police Drone. Australasian Policing, 15.

Dabney, D. (2010). Observations regarding key operational realities in a Compstat model of policing. Justice Quarterly, 27(1), 28-51.

Dahman, J. (1975). Examination of police patrol effectiveness: High-impact anti-crime program. Available for download at https://www.ncjrs.gov/pdffiles1/Digitization/36129NCJRS.pdf.

Dalziel, R., & Willis, M. (2015). Capacity building with older people through local authority and third-sector partnerships. Ageing and Society, 35(02), 428-449.

Demers, S., Palmer, A., & Griffiths, C. T. (2007). Vancouver Police Department patrol deployment study. Vancouver: City of Vancouver. Available for download at

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144 Operational Review of Saskatoon Police Service http://www.curtgriffiths.com/pdfs/VPD%20Patrol%20Deployment%20Study%20Final%20Fiinal.do c.pdf .

Disley, E., Pardal, M., Weed, K., & Reding, A. (2016). Using Multi Agency Public Protection Arrangements to manage and supervise terrorist offenders.

Durham. (circa. 2000). Durham Regional Police Service Air Support Unit: Final Evaluation. No place indicated.

Dyer, W., & Biddle, P. (2016). „Enhanced Support for High Intensity Users of the Criminal Justice System‟: An Evaluation of Mental Health Nurse Input into Integrated Offender Management Services in the North East of England.Social Policy and Society, 15(01), 43-55.

EMT Associates. 2013. Final Evaluation Results: Phase II California Family Justice Initiative Statewide Evaluation. Burbank, CA. Available for download at https://issuu.com/familyjusticecenteralliance/docs/evaluation___outcomes_-_executive_s.

Eterno, J. A., & Silverman, E. B. (2010). The NYPD's Compstat: compare statistics or compose statistics? International Journal of Police Science & Management, 12(3), 426-449.

Eterno, J. A., & Silverman, E. B. (2006). The New York City police department's Compstat: dream or nightmare? International Journal of Police Science & Management, 8(3), 218-231.

Farrah, B. (2010). The Vanishing Police Station Virtual Policing in the Future.California Commission on Peace Officer Standards and Training, (2010)

Fleming, J., & Scott, A. (2008). Performance measurement in Australian police organizations. Policing, 2(3), 322-330.Golden, S., Aston, H., & Durbin, B. (2011). Devon multi-agency safeguarding hub: Case-study report. NFER. Available for download at: https://www.nfer.ac.uk/publications/LGMX01/LGMX01.pdf.

Graham, K., Norrie, C., Stevens, M., Moriarty, J., Manthorpe, J., & Hussein, S. (2016). Models of adult safeguarding in England: A review of the literature. Journal of Social Work, 16(1), 22-46.

Graham, K., Stevens, M., Norrie, C., Manthorpe, J., Moriarty, J., & Hussein, S. (2016). Models of safeguarding in England: Identifying important models and variables influencing the operation of adult safeguarding. Journal of Social Work, 1468017316640071.

Griffiths, C., Pollard, N., & Stamatakis, T. (2015). Assessing the effectiveness and efficiency of a police service: The analytics of operational reviews. Police Practice and Research, 16(2), 175- 187.

Guthrie, C. R. (1968). Project Sky Knight: a demonstration in aerial surveillance and crime control: Final report to Office of Law Enforcement Assistance, US Dept. of Justice, by Los Angeles County Sheriff's Dept. and C. Robert Guthrie. Office of Law Enforcement Assistance, US Dept. of Justice.

Hatry, H. P., & Davies, E. (2011). A guide to data-driven performance reviews. IBM Center for the Business of Government. Available for download at http://observgo.uquebec.ca/observgo/fichiers/60612_performancereview.pdf.

Hoffman, C. (1996). The Helicops. Air and Space, 11: 24-33

Joseph, S. C., Diack, L., Heyman, I., Klein, S., McCluskey, S., Woolnough, P., ... & MacLean, E. (2015). Interagency adult support and protection practice of police and health and social care

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145 Operational Review of Saskatoon Police Service professionals: a realistic evaluation approach. Available for download at https://openair.rgu.ac.uk/bitstream/handle/10059/1467/JOSEPH%20SIPR%20Interagency%20ad ult%20support.pdf?sequence=1.

Katina Michael. "Forum Proceedings from “UAVs: Pros vs Cons Symposium” in Toronto, Canada, June 2013" Unmanned Aerial Systems and Public Safety: Capabilities, Uses and Regulation (2014) Available at: http://works.bepress.com/kmichael/394/

Kelling, George, Tony Pate, Duane Dieckman, and Charles Brown. 1974. The Kansas City preventive patrol experiment: Technical report. Washington, DC: Police Foundation.

Kelling, G. and W. Sousa. 2001. Do Police Matter? An Analysis of the Impact of New York City‟s Police Reforms. Civic Report No. 22. New York: Manhattan Institute.

Kirchner, R. E., Schnelle, J. F., Domash, M., Larson, L., Carr, A., & McNees, M. P. (1980). The Applicability of a Helicopter Patrol Procedure to Diverse Areas: A Cost-Benefit Evaluation. Journal of applied behavior analysis, 13(1), 143-148.

Kocieniewski, D. (1996, April 21). 2 polls give Bratton major credit for drop in crime. The New York Times. p. 41.

Langan, P. A., & Durose, M. R. (2004). 1 The Remarkable Drop in Crime in New York City.

Langton, L. (2014). Engaging in a more complete assessment of the operations of airborne police units: a research note. Police Practice and Research, 15(1), 17-34.

Lateef, A. B. (1974). Helicopter patrol in law enforcement: An evaluation. Journal of Police Science and Administration, 2(1), 62-65.

Law Enforcement News. 1997. NYC‟s Compstat Continues to Win Admirers. October 13.

Madembo, C. (2015). Unconscious Processes in Multi-Agency Partnership Working For Protecting and Safeguarding Children: A Psychoanalytic Examination of the Conception and Development of A Multi-Agency Safeguarding Hub (Mash) Project in an Inner London Local Authority(Doctoral dissertation, University of East London).

Maple, Jack. 1999. The Crime Fighter: Putting the Bad Guys Out of Business. New York: Doubleday. McDonald, Phyllis Parshall, Sheldon Greenberg, and William J. Bratton. 2001. Managing Police Operations: Implementing the NYPD Crime Control Model Using COMPSTAT. Belmont, CA: Wadsworth Publishing Co.

Matrix Consulting Group (2006, December). Joint Helicopter Feasibility Study Cities of Burbank and Glendale California. Palo Alto, CA: Matrix Consulting Group.

McDonald, Phyllis Parshall. 1998. The New York City crime control model: A guide to implementation. Unpublished manuscript. Washington, DC.

McDonald, Phyllis Parshall, Sheldon Greenberg, and William J. Bratton. 2001. Managing Police Operations: Implementing the NYPD Crime Control Model Using COMPSTAT. Belmont, CA: Wadsworth Publishing Co.

Medak, G.M. (1970). Effectiveness of Police Helicopter Patrol: A Field Study. Los Angeles: University of Southern California.

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Molnar, A. (2015), The geo-historical legacies of urban security governance and the Vancouver 2010 Olympics. The Geographical Journal, 181: 235–241. doi:10.1111/geoj.12070

Moore, M. H. (2013). Recognizing public value. Harvard University Press.

Moore, M. H. (2003). Sizing up Compstat: An important administrative innovation in policing. Criminology & Public Policy, 2(3), 469-494.

Moore, M. H., & Braga, A. A. (2003). Measuring and improving police performance: The lessons of Compstat and its progeny. Policing: An International Journal of Police Strategies & Management, 26(3), 439-453.

Neocleous, M. (2013). Air power as police power. Environment and Planning D: Society and Space, 31(4), 578-593.

Neyroud, P. (2008). Past, present and future performance: lessons and prospects for the measurement of police performance. Policing, 2(3), 340-348.

Norrie, C., Stevens, M., Graham, K., Moriarty, J., Hussein, S., & Manthorpe, J. (2016). The Advantages and Disadvantages of Different Models of Organising Adult Safeguarding. British Journal of Social Work, bcw032.

Ozdemir, H. (2011, March). Compstat: Strategic police management for effective crime deterrence in New York City. In International Police Executive Symposium, Geneva Centre for the Democratic Control of Armed Forces, Working Paper (No. 30, pp. 1-31).

Perritt Jr, H. H., Sprague, E. O., & Cue, C. L. (2014). Sharing Public Safety Helicopters. J. Air L. & Com., 79, 501.

Povilaitis, C. (2010). Air Support: Providing Service through Technology and Regionalization. Journal of California Law Enforcement, 44(1), 14-18.

Press, S. J. (1971). Some effects of an increase in police manpower in the 20th precinct of New York City.Research Management Consultants Inc. 2000. Evaluation: The Joint Helicopter Patrol Program. No place indicated.

Safir, H. (1997). Goal-oriented community policing: The NYPD approach. Police Chief, 64, 31-39.

Sakiyama, M., Miethe, T. D., Lieberman, J. D., Heen, M. S., & Tuttle, O. (2016). Big hover or big brother? Public attitudes about drone usage in domestic policing activities. Security Journal.

Salm, T., Caswell, E., Storey, S. G., & Nunn, A. (2016). Enhancing and Extending Full Service Community Schools in Saskatchewan, Canada: Educators Becoming Part of the Hub. In Developing Community Schools, Community Learning Centers, Extended-service Schools and Multi-service Schools (pp. 149-171). Springer International Publishing.

Sandvik, K. B. (2016). The Political and Moral Economies of Dual Technology Transfers: Arming Police Drones. In Drones and Unmanned Aerial Systems (pp. 45-66). Springer International Publishing.

Salter, M. Toys for the Boys? Drones, Pleasure and Popular Culture in the Militarisation of Policing. Crit Crim (2014) 22: 163. doi:10.1007/s10612-013-9213-4.

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Schnelle, J.F., R.J. Kirchner, J.W. Macrae, M.P. McNees, R.H. Eck, S. Snodgreas, J.D. Casey and P.H. Uselton, Jr. 1980. Police evaluation research: An experimental and cost-benefit analysis of helicopter patrol in a high crime area. Journal of Applied Behavior Analysis 11: 11-21.

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Sherman, L. W., & Weisburd, D. (1995). General deterrent effects of police patrol in crime “hot spots”: A randomized, controlled trial. Justice quarterly,12(4), 625-648.

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Stanley, N., & Humphreys, C. (2014). Multi-agency risk assessment and management for children and families experiencing domestic violence. Children and youth services review, 47, 78-85.

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148 149 Nancy Kulbida 2316 St. Patrick Avenue Saskatoon, SK S7M 0L5

April 27, 2018

Joanne Sproule, City Clerk City of Saskatoon 222 – 3rd Avenue North Saskatoon, SK S7K 0J5

RE: Noise complaint Prairieland Park

Dear Ms Sproule;

I am writing to seek assistance in having Noise Bylaw 8244 enforced for events held at Prairieland Exhibition. On Friday April 20th and Saturday April 21st Prairieland Park held events which resulted in a cacophony of noise comprised of music with pounding bass, car alarms and yelling patrons that persisted until 1 a.m. on both nights. The events at Prairieland caused myself and family stress, agitation and a lack of sleep. In speaking with a person who lives 4 blocks away from me they experienced the same noise and interruption to their life as I did; which shows how intrusive and pervasive the noise is to the community.

I have lived in this neighbourhood going on 12 years and upon moving in I knew that there would be a week of festivities and increased noise at the time of the Exhibition. I have no problem with the noise associated with the Exhibition as it is expected and generally becomes quite quiet after the fireworks at 11 p.m. It is within the last few years Prairieland Park has increasingly been holding more events where loud music goes on well past the 11 p.m. noise bylaw established by the City of Saskatoon.

Prairieland Park has the right to hold events that meet their strategic direction and business model. What I have an issue with is Prairieland Park profiting off of the diminished quality of life for the residents of the Exhibition neighbourhood. It is the responsibility of Prairieland Park to comply with the laws of the City and if necessary, invest in their facilities to sound proof and ensure that they comply with the noise bylaw.

150 Joanne Sproule, City Clerk City of Saskatoon

April 27, 2018 Page 2

The City of Saskatoon website states that to make a noise bylaw complaint that the Saskatoon Police Service is to be contacted. This is not a resolution to the repeated violations made by Prairieland Park. There is a rather low likelihood that the Police Service would send officers out to close down an event to ensure compliance with bylaw.

I am asking that the City of Saskatoon intervene to ensure that Prairieland Park no longer violates the noise bylaw disrupting the residents of the neighbourhood. I may be contacted at (306)227- 0645 or [email protected]

Sincerely,

Nancy Kulbida

c.c. Mairin Loewen, Councillor Ward &

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