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TORONTO POLICE SERVICE

The Way Forward: Modernizing Community Safety in Toronto

INTERIM REPORT

JUNE 2016 Photo Credit: Toronto Police Service Photo Credit: Toronto Police Service. TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT RONRTONTO

TO TO

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O O D D L L R R IC IC A A E E O O S S B B ERVEIRCVESICES

TORONTO POLICE SERVICE

The Way Forward: Modernizing Community Safety in Toronto

INTERIM REPORT

JUNE 2016

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT TORONTO POLICE SERVICE

Photo Credit: Toronto Police Service i TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT MESSAGE FROM THE CO-CHAIRS

The Transformational Task Force was created because we all recognize that the Toronto Police Service must keep pace with the TORONTO changing needs and expectations of our city. Building on our strengths and Divisions across the city and a dealing directly with our challeng- stronger approach to the man- es, this interim report describes agement of public funds, with a a new vision of a modern Toronto net budget reduction and savings Police Service. We envision that over the three next years. Service members will be where POLICE the public needs them the most, Our final report will delve into working in partnership with all these areas further and we will communities, and that the Ser- make final recommendations vice will continue to evolve in the where appropriate. We will also future to meet the complex needs be recommending an account- of a large city. able, transparent and very con- ANDY PRINGLE crete path forward – one that will The work of the Task Force is Chair, Toronto Police Service provide the people of Toronto with Board (Task Force Co-Chair) SERVICE forward-looking. While we are confidence that implementation is acknowledging, building on, and happening. incorporating the learnings from previous reviews, the scope of our Finally, although change on this work is very different. Our interim report proposes far-reaching scale will not be easy, it is also PHOTO changes to how policing services not something the Service can do are organized and delivered. The without a greater public align- recommendations touch on every ment. The process of getting aspect of the Service including feedback from the public and Ser- vice members, over the next sev- culture change, a new communi- MARK SAUNDERS ty-centred service delivery model, eral months, will be an important Chief, Toronto Police Service new investments in people and part of our alignment process. We (Task Force Co-Chair) technology, the reconfiguration of look forward to that dialogue.

Photo Credit: Toronto Police Service TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT i EXECUTIVE SUMMARY

Toronto is a large and complex city. It is vibrant and dynamic, with diverse multicultural and multiracial communities. As Toronto has grown and changed, the Toronto Police Service (“the Service”) has responded effectively in many areas and can be proud of its accomplishments.

There have also been challenges In February 2016, the Task Force Goal 1 and mistakes, including programs began work on a plan to modern- such as the Toronto Anti-Violence ize the Service to ensure it can Be where the Intervention Strategy (TAVIS) keep pace with changing public ex- public needs the which, when implemented im- pectations. In this interim report, Service the most properly, impacted relationships we describe a community-centred and trust with a number of com- vision of excellence and leadership munities, as well as the Service’s that will provide the Service with Goal 2 reputation on a larger scale. a strong foundation, as well as 24 interim recommendations where Embrace The Transformational Task Force work can begin now. We will be partnerships to was created because the expecta- expanding on that foundation and create safe tions that our city has of its police making more recommendations communities service are continuing to change – in our final report, which will be fundamental expectations related completed at the end of December to accountability, collaboration and 2016, for presentation to the To- Goal 3 inclusiveness, greater openness ronto Police Services Board (“the and transparency of information Board”) in January. Focus on the and decision-making, as well as complex needs sustainability and affordability. Our vision is reflected in a new of a large city But also expectations that our community-centred service deliv- police service will be an effec- ery model with three goals: tive partner with all communi- We have an opportunity to rede- ties, including and especially with fine, revitalize, and modernize the marginalized communities, where Service to achieve a new level of Service members can have a posi- excellence and leadership. The tive impact on deeper challenges implementation of our interim rec- related to social inequality, poverty, ommendations, as well as those inequality of opportunity, discrimi- in our final report, will result in a nation, and systemic racism. strengthened and trusted police

ii TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT presence in our communities and and facilitate local strategies to keep neighbourhoods. The implementa- HOW WE RELATE individuals and communities safe. tion of our interim recommenda- 1 TO THE PUBLIC: tions will recognize the need for FOCUSING ON SAFE Through an investment in mobile multi-faceted local strategies and COMMUNITIES + smart technology, officers will solutions. NEIGHBOURHOODS work in their assigned neighbourhoods every day, sometimes in The proposed service delivery cars, but also on foot and bikes. model represents unprecedented The centrepiece of the new service They will deliver services more change for the Service and our delivery model is a renewed, more flexibly from appropriate locations city. But successful implementa- integrated and intensified invest- – a school, a community centre, tion will require an equally unprec- ment in building safe communities or even on a park bench with a edented alignment of the public, and neighbourhoods, with officers person in need – and will be elected officials, members of the focused on local problem solving. accessible by phone, email, text Board, senior leadership of the messages, social media, and an Service, members of the Service, In this model, all officers will not enhanced Toronto Police Service and the collective bargaining only be protectors and guardians mobile application (app). agents – the Toronto Police As- of public safety, but also facilita- sociation, and the Senior Officers’ tors, problem solvers, and col- Consistent with the emphasis on Organization. All of us together laborative partners. They will be communities, we have heard the must choose to empower the Ser- known, valued, and trusted as concerns with TAVIS and are rec- vice to seize this opportunity. members of the community. They ommending it be disbanded and will have the skills, knowledge, its resources deployed to other Our roadmap for a modern experience, and emotional intelli- priorities. Toronto Police Service includes gence to build strong relationships major changes in five areas:

Photo Credit: Toronto Police Service TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT iii We are also recommending an HOW WE DELIVER overhaul of the Paid Duty system, SUSTAINABILITY + OUR SERVICES: with a risk-based model to en- AFFORDABILITY 2 sure that off-duty police officers 4 FROM PRIMARY TO are only utilized in a paid duty PRIORITY RESPONSE capacity where the skills, authorities and training of a police officer The modernized Service will demonstrate value and make the most To enable the Service to imple- are necessary. Related to this of every dollar. To date, the Task ment the new model and enhance recommendation, the Task Force Force has identified $100 million its presence in communities also strongly supports the City of in reductions and savings to the through neighbourhood officers, Toronto’s request to the Govern- Service’s operating budget over we are recommending a shift from ment of Ontario to allow it to cre- the next three years. This figure primary to priority response. This ate municipal traffic wardens. includes $60 million over the next shift will reduce the amount of three years, beginning in 2017, as time police officers spend re- a result of a carefully managed sponding to non-emergency calls ACCESS TO SERVICES moratorium on hiring, and promo- for service and situations that fall 3 tion between ranks for officers and within the mandates of other or- civilians. During this period, there ganizations. Based on an assess- will be some critical situations ment of risk, the Service will: The new service model includes a where the hiring or filling of vacant redesign of the current map of 17 positions may be necessary. This • Focus on dispatching officers where Divisions to better meet the needs moratorium will allow the Service an immediate response is necessary of our large complex city. This to ensure that it has the right type for personal safety, or where there is will include fewer Divisions, with and number of members for the an immediate investigative need. boundaries that better align with new service delivery model and Toronto’s 140 neighbourhoods and the leanest possible management • Provide enhanced options for the also with the planning and service structure. public to report non-emergency boundaries of city departments, situations, including on-line, through community-based organizations, The proposed reduction also smart devices, over-the-phone, by and agencies. Some staff will be includes $30 million in identified appointment at a police station, and redeployed to other priorities and savings through alternative service by employing civilian members to some management and supervi- delivery or shared services over follow up on certain non-emergency sory positions will be eliminated. the next three years that we must reports. There will be capital cost savings, confirm, plus a commitment to a as well as the re-purposing of further $10 million at a minimum • Refer appropriately designated funds. Buildings and land cur- over the same period. Addition- non-policing situations to other city rently used by the Service will be ally, the buildings and land to be departments or organizations that, returned to the City of Toronto. returned to the City of Toronto through their own mandates, are The enhanced use of modern tech- have a potential value of up to better suited to respond. nology will give residents better $72 million. access to police information and As part of this shift, some exist- services. In the months leading up to our fi- ing services, including the School nal report, we will continue to look Crossing Guard Program and the for responsible measures that can Lifeguard Program at Toronto yield additional reductions, sav- beaches, will be transferred to ings, and real estate returns. other entities.

iv TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT Photo Credit: Toronto Star

Towards a Final Report Consultation CULTURE CHANGE 5 As emphasized throughout, this Input from the public and Service is an interim report. Its pri- members is a critical part of the mary purpose is to describe our next phase of our work. The Task community-centred vision of a Force will hold public consultation Culture change is the essential modern Toronto Police Service meetings across the city over the underpinning of our vision and the and, through our interim recom- summer months and into Septem- enabler of all our recommenda- mendations, to begin to define the ber. The schedule for these meet- tions. Success will only be pos- path forward. In our final report, ings will be announced shortly sible by creating a culture that we will expand on our interim after the release of the interim reflects and embraces the vision recommendations and also pres- report and will be posted on http:// and embeds the principles of trust, ent many other recommendations www.tps.on.ca/TheWayForward. active accountability, partnerships, that we are still actively study- There will also be a mechanism transparency, inclusiveness and ing. Additionally, we will provide for online feedback which will be collaboration, as well as sustain- more information about proposed posted on http://www.tps.on.ca/ ability and affordability. Success savings and budget reductions, as TheWayForward beginning later will also require training that well as details about the smart inin the summer. The consultation equips Service members to be ef- vestments in people, training, and process with Service members fective partners with all communi- technology that will be required to will begin with a series of infor- ties and to have a positive impact support the community-centred mation sessions in September on deeper challenges, such as service delivery model. and early fall. These sessions will social inequality, poverty, inequal- be organized by rank and civilian ity of opportunity, discrimination, classification in order to allow for and systemic racism. discussion among peers. They will not only provide members In our final report, we will provide with the opportunity to comment more details on a comprehensive on our recommendations, but also culture change and human re- encourage them to share their sources strategy that includes a insights into how these recom- framework for innovation, a robust mendations can be expanded, talent management strategy, and implemented or improved upon for immediate changes to training. It our final report. will also include benchmarks and metrics that enable culture change to be measured and reported on, incorporating the insights and perceptions of the public.

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT v KEEP PACE

WITH THE CHANGING NEEDS + EXPECTATIONS

OF OUR CITY.

Photo Credit: TorontoTORONTO Police POLICE Service SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT TABLE OF CONTENTS

1 Our Call to Action 1

2 About the Transformational Task Force 3

3 The Need for Change 5

4 Our Vision of a Modern 8 Toronto Police Service

5 How We Relate to the Public: 13 Focusing on Safe Communities + Neighbourhoods

6 How We Deliver Services: 15 From Primary to Priority Response

7 Access to Services 19

8 Sustainability + Affordability 21

9 Culture Change 23

10 Next Steps + Consultation 25

Summary of Interim Recommendations 26

Appendix A 31 Task Force Members + Supporting Staff

Appendix B 32 Previous Reviews + Reports

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 1 OUR CALL TO ACTION

shares those with the public when- Toronto is a large and complex city. ever possible. A Service that is a valuable contributor to broader It is vibrant and dynamic with diverse planning in our city for all types of multicultural and multiracial services. We envision a Toronto Police Service communities and neighbourhoods. that embraces continuous improvement. It relentlessly, transpar- All of us are committed to making We have an opportunity to rede- ently, and continuously evaluates Toronto the best and safest place to fine, revitalize and modernize the its services, its processes, and its live and work. Toronto Police Service to achieve a organization to find efficiencies, new level of excellence and leader- and ensure future sustainability and As Toronto has grown and changed, ship. To strengthen a trusted police affordability. It takes tremendous the Toronto Police Service (“the presence in our communities and pride in its management of public Service”) has responded effectively neighbourhoods that recognizes the funds and being able to identify in many areas and can be proud of need for multi-faceted local strate- resources that can be invested in its accomplishments. There have gies and solutions. other important civic priorities – by also been challenges and mistakes making smart investments, control- including programs such as TAVIS, We envision a Toronto Police Service ling costs, finding effective alterna- which when implemented improp- that works in collaborative partner- tives and leveraging the mandates erly, impacted relationships and ships. Its members engage proac- and capacities of service delivery trust with a number of communities, tively with communities to address partners. as well as the Service’s reputation the root causes of crime and social on a larger scale. disorder, and to prevent victimiza- We envision a Toronto Police Ser- tion. They are not only recognized vice where the civilians and of- The expectations that our city has as protectors and guardians, but ficers – front-line, administrative, of its police service are continuing also as facilitators, problem solv- investigative, operational supports, to change – fundamental expec- ers, and collaborative team mem- and senior management – are tations related to accountability, bers who can connect people to the passionate about the future. Its collaboration and inclusiveness, services they need. They are trusted members enthusiastically and greater openness and transpar- members of the community who are uncompromisingly re-tool skills and ency of information and decision- known and valued. are challenged every day to excel making, as well as sustainability in demanding new roles. It has and affordability. But there are also We envision a Toronto Police Ser- effective human resource manage- expectations that our police service vice that is open and transparent ment systems and talent develop- will be an effective partner with all while respecting and maintaining ment strategies to support the right communities including, and perhaps a balance among privacy, public people in the right places doing the especially, with marginalized com- safety, the integrity of the investiga- right things to achieve and sustain munities where Service members tive process, and all other legislated community safety. Its members can have a positive impact on deeper requirements. A Service that is take intense pride not only in their challenges related to social inequal- actively accountable, and reports ability to keep the city safe, but also ity, poverty, inequality of opportunity, on progress. It bases its strategies, in building and maintaining deep discrimination, and systemic racism. plans and decisions on high quality relationships with communities and information and analytics, and neighbourhoods, based on mutual respect, confidence, and trust.

1 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT WE ENVISION A TORONTO POLICE SERVICE

WHERE CIVILIANS AND OFFICERS ARE PASSIONATE ABOUT THE FUTURE.

Photo Credit: Toronto Police Service TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 2 2 ABOUT THE TRANSFORMATIONAL TASK FORCE

institutions that are the foun- The Transformational Task Force was dations of our society, such as formed in February 2016 at the direction healthcare, education, and policing are not easy to change. This of the Toronto Police Services Board, is not because the people in these institutions do not want to, or are with a mandate to: incapable of change, although that is sometimes the case. But because for decades what society expected from these institutions Develop and recommend, to the Toronto Police was stability, reliability and conti- nuity, based on a broad consensus Services Board, a modernized policing model for – which typically followed a path of the City of Toronto that is innovative, sustainable incremental rather than transformational change. This was rein- and affordable. The model will place communi- forced by structures, processes, ties at its core, will be intelligence-led and opti- cultures and governance frame- works so that society, and not the mize the use of resources and technology while institutions themselves, controlled embracing partnerships as a means of enhanc- the pace of change. ing capability and capacity. The histories of these institutions, including police services, contain many examples of progressive, innovative public servants who In this interim report, we lay out UNPRECEDENTED made significant changes in their a modern vision and initial steps CHANGE day. There are also many ex- in a balanced plan that aligns amples of changes that did not strategy, actions, and financial take place because the necessary alignment of the public, gover- imperatives. The recommenda- This will be unprecedented nance bodies, governments, inter- tions build on the strengths and change for the Service and a fun- est groups, bargaining agents and successes of the past and ad- damental departure from a ser- others was absent. dress, directly, the things the Ser- vice delivery model that has been vice can and must do differently. in place since the 1957 creation of All that has changed in a very They will deepen and strengthen the Metropolitan Toronto Police, short time span. We now expect trust with all communities. They which became the Toronto Police all public institutions to be able also reflect the voices, values and Service in 1997. to deconstruct and reconstruct themselves quickly, to change cul- aspirations of Service members. The changes go well beyond the ture when needed, to be innovative A list of Task Force members, as on transformational, rather well as the members of the Ser- scope of previous reviews. The Task Force discussed why change than incremental scales, and to vice who are supporting the Task did not happen sooner. We ac- nimbly respond to changing needs. Force is provided in Appendix A. knowledged that large public Our Task Force is very much in support of this expectation.

3 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT UNPRECEDENTED 1 A renewed, more integrated, Our Final Report and intensified focus on ALIGNMENT building safe communities and Our final report will be completed neighbourhoods. in December 2016, for presentation to the Board in January 2017. Unprecedented change means 2 Redefining how we deliver Over the next several months, we that the Service cannot move services, including a shift from primary to priority response to will continue to identify, explore, forward without the support of the allow for resources to be realigned and study other measures needed city it serves. This will require an through police officers spending to achieve our vision in a fiscally equally unprecedented alignment less time responding to non- responsible manner. In our final of the public, elected officials, the emergency calls for service and report, we will describe those ad- members of the Board, the senior situations that fall within the ditional recommendations, along leadership of the Service, mem- mandates of other organizations. with human resources and collec- bers of the Service, the Toronto 3 Providing better access to services tive agreement impacts. Police Association, and the Senior by realigning boundaries and Officers’ Organization. All of us facilities to reflect our changing In our final report, we will also re- together must choose to em- city, and enhanced public access port on the strategic investments power the Service to seize this to services and information through that will be required in people, opportunity. technology. training, capital, and technology 4 A commitment to sustainability, to support our recommendations. SUSTAINABILITY + affordability, and the responsible AFFORDABILITY management of public funds. A critical part of our final report 5 Culture change to enable will focus on ensuring that our modernization, and embed the proposed changes are imple- In support of our vision of the vision in the values, beliefs, mented. We will propose rec- Service as a responsible man- and behaviours of the Service. ommendations to strengthen ager of public funds that makes the Service’s capacity to imple- Across these five areas, we are ment change, including project the most of every dollar, the Task proposing 24 interim recommenda- management, change manage- Force to date has identified $100 tions where work can begin now million in savings and efficiencies (see summary of recommendations ment, and a very visible quar- over the next three years. The in section 11). A few of our recom- terly reporting to the Board and savings will begin in 2017, and mendations directly impact collec- the public that will demonstrate tive agreements and the Board will include a carefully managed meaningful progress in real time. need to work in partnership with three-year moratorium on hiring the Toronto Police Association and and promotions between ranks Senior Officers’ Organization to while the service delivery model move forward. A number of actions is being redesigned. We have will require discussions with the also identified up to $72 million in City of Toronto, as well as changes to provincial legislation. We will land and buildings to be returned also be providing our insights to to the City of Toronto. As we Government of Ontario officials who work towards our final report we are studying province-wide policing will be continuing to explore other policy changes. opportunities.

In this Interim Report

In this interim report, we describe guiding principles and goals, as well as five major changes that are critical to the success of our vision:

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 4 3 The Need for CHANGE

Our city is changing demands on policing are changing

• With 2.8 million people, Toronto is already the fourth largest city in Considerable amounts of data have been used to prepare the North America, after Mexico City, charts on rates of crime and the costs of policing. Readers New York and Los Angeles and by 2031, we will reach 3 million. People interested in exploring this data are welcome to go to http:// are returning to the downtown core, www.tps.on.ca/TheWayForward. Here readers will find data creating denser neighbourhoods with about the Toronto Police Service and City of Toronto, as well more people living in closer contact. as links to other services, organizations and research. • As we grow, we will continue to face challenges related not only to crime and social disorder, but also • While overall crime rates have decreased over the past 20 years, reported violent to poverty, inequality of opportunity, crimes such as gang related crimes, shootings, and homicides have increased. discrimination, systemic racism and other more fundamental challenges.

expectations of public service organizations are changing

• Public service organizations are expected to make decisions that are visible, predictable and understand- able, with supporting information and analysis accessible to the public. They are expected to manage in a sustainable and affordable manner and to measure and report on performance.

*Chicago’s 2012 and 2013 data are underrepresented in this figure due to data incompletion issues reported to the Federal Bureau of Investigation. The values presented in this figure are the sum of all violent crime data available. **Metropolitan Police (UK) does not include sexual violations in the total number of violent crime reported, as they are counted separately. The values presented k is the sum of all other violent violations. 20 • The time spent by officers on domestic assaults and incidents has increased Number of Domestic over the past 10 years by approximately 22 percent. Calls for Service Per Year.

5 TORONTO POLICE SERVICE | The Way Forward: Modernizing Community Safety in Toronto | interim report • Borderless criminal activity, such as online fraud, terrorist threats, cyber-identity thefts and international hacking are creating new demands HOURS on policing and partner agencies. 114,490 • Our city is home to marginalized and vulnerable individuals who are in need of broad-based Time spent at domestic calls has increased by 22%. assistance. Sometimes that assistance falls outside of the purview of the Service, but its members become involved because they are 24/7 first responders.

• Investigations are more time and resource intensive because of legislated requirements, as well as evidentiary standards and processes which require additional skills, practices, and training.

• Smart phones and social media have enhanced public expectations for police service transparency and accountability. They are also a means for the Service to engage with communities, to share information, prevent crime, plus find wanted and missing persons.

THE CURRENT SERVICE DELIVERY MODEL IS OUTDATED

• The current service delivery model does not place communities at the centre of service delivery or sufficiently elevate and value this kind of police work. Some individuals and communities, and particularly young people, would not always turn to Service members when they need their help. Much of the service delivery model is also reactive, and does not sufficiently distinguish situations that require an immediate response to ensure personal safety from non-emergencies such as noise and animal control.

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 6 Operating costs need to be as sustainable and affordable as possible 5,235 • In per capita terms, the cost of policing in Toronto is not high compared to some other major urban police services. But the cost is growing: Number of Toronto Police officers today. In 1980, there were 5,412. • The current net budget of $1.005 bil- • Policing as a percentage of overall mu- lion has grown by 65 percent since nicipal expenditures has increased from 2002, while the City of Toronto’s overall 10 percent in 2002 to 11 percent today. budget has grown by about 60 percent. 2,230 Number of Civilian Members today. In 1980, there were 1,037.

• Our knowledge of how to keep communities safe has changed. Programs like TAVIS were effective at reducing violent crime in the short term, but weren’t sustainable investments in community safety. We are more aware of the impact that law enforcement measures like street checks and TAVIS, when done improperly, have on community trust and confidence, especially among racialized youth.

• Eighty-nine percent of the budget • We are too bureaucratic. With too is made up of salaries and benefits. The perspective of many time consuming processes and In 1980 there were 5,412 officers and Service members existing technology, we can’t respond 1,037 civilian members. Today with to changing service needs. Our a larger, more complex city, there supporting the Divisions are too “cookie cutter” and are slightly fewer officers (5,235), Task Force could be better aligned to community but twice as many civilian positions needs and today’s neighbourhood (2,230). The increase in in the num- During the course of our discussions, boundaries. ber of civilian positions is the result the Service members who are sup- of converting from uniform positions porting the Task Force and who have • We don’t sufficiently empower our over time. a wide of range of backgrounds and members to be effective. Our proce- experiences also articulated the need dures and training reflect a different for change from their own perspec- time and more limited expectations tives. Their words provide unique of our members. We want to make and valuable insights: better use of our training, skills, and knowledge to identify and partner • Our culture has been slow to with others on solutions. change, and we want to quicken the 65% pace. Although we now define our- • We need better information and selves in more complex multi-faceted analysis to plan and make decisions. Percentage increase of terms, the legacy of previous service We are strong in operational knowl- the Toronto Police Service models and training is a culture of edge, but we need more strategic, budget since 2002. “reactive responders” – responding data-driven analytical insights to to calls, regardless of the level of risk support decision making and realign or if we’re the appropriate response. our focus and resources.

7 TORONTO POLICE SERVICE | The Way Forward: Modernizing Community Safety in Toronto | interim report VISION OF A MODERN TORONTO POLICE SERVICE 4

This report is a living roadmap for the transformation and modernization of the Service.

It is grounded in an examination of past accomplishments, successes and mistakes, as well as the practices and developments of other policing organizations. It considers previous reviews, such as the 2015 KPMG review, and the 2013 Chief’s Internal Organization Review, among others (see Appendix B for the full list).

MISSION + PRINCIPLES

The roadmap starts with the current community safety Mission of the Toronto Police Service: We are dedicated to delivering police services, in partnership with our communities, to keep Toronto the best and safest place to be.

This Mission will continue to be the essence of the Service’s commitment to the people of Toronto. But how it delivers on that Mission will change, focusing on four guiding principles:

We will be Actively Accountable and Trusted by:

• Providing services that are centred on communities and neighbourhoods.

• Focusing every day on building trust and addressing community concerns.

We will be Transparent and Engaged by:

• Making decisions based on strategic information analysis and forecasting as well as leading practices.

• Engaging individuals and communities, and being as open as possible about decision-making.

• Managing change thoughtfully and assessing, mitigating, and monitoring risks.

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 8 OUROUR MISSIONMISSION ISIS COMMUNITYCOMMUNITY SAFETYSAFETY

WeWe are are dedicated dedicated to to delivering delivering police police services, services, inin partnershippartnership withwith ourour communities,communities, toto keepkeep TorontoToronto the the best best andand safestsafest placeplace toto bebe

OUROUR PRINCIPLESPRINCIPLES ActivelyActively Accountable Accountable and and Trusted Trusted  TransparentTransparent and and Engaged Engaged  InclusiveInclusive andand CollaborativeCollaborative AffordableAffordable andand SustainableSustainable

OUROUR GOALSGOALS

BeBe where where the the public public EmbraceEmbrace partnerships partnerships to to FocusFocus onon thethe complexcomplex needsneeds the the Service Service the the most most createcreate safe safe communities communities needsneeds ofof aa largelarge citycity HOWHOW WEWE WILLWILL GETGET THERETHERE BYBY TRANSFORMINGTRANSFORMING

HowHow we we relate relate to to the the HowHow we we deliver deliver our our public: focusing on services: from Affordability and public: focusing on services: from AccessAccess toto Services Services Affordability and CultureCulture changechange safesafe communities communities PrimaryPrimary to to Priority Priority sustainabilitysustainability andand neighbourhoods neighbourhoods responseresponse

OurOur peoplepeople areare ourour greatestgreatest assetasset

9 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 10 We will be Inclusive and Collaborative by:

• Consistently listening to, and considering, the best interests of our communities and neighbourhoods and demonstrating this to the public.

• Supporting our members to be our best partners, advi- sors, and champions in working with communities and neighbourhoods.

• Working collaboratively in partnership with others to develop sustainable solutions and apply the most ap- In 1829, Sir Robert Peel laid propriate resources to needs. out the foundations of modern policing by consent, including We will be Sustainable and Affordable by: three principles that are reflect- • Providing value, always seeking to control our costs, ed in the Task Force’s vision and and making the most of every dollar as facilitators of paraphrased as follows: community safety.

• Working continuously to improve public access to ser- • Policing depends on public approval vices while achieving sustainability and affordability. of police actions and behaviour as well as securing and maintaining the public’s • Aligning our budgets to our strategy and focusing on the trust and respect. right priorities. • The test of policing effectiveness is preventing crime rather than dealing with crime after it happens through law Photo Credit: Toronto Police Service enforcement.

• Public support results from constantly demonstrating absolutely impartial service to the law and embracing and serving all our citizens.

11 Photo Credit: Toronto Police Service

GOALS Be where the public needs the Service the most.

We have set out three goals for a modern Toronto •A service delivery model that prioritizes need, and Police Service that will guide the change process the flexible, resilient deployment of resources. and service delivery in the months and years ahead. • A rapid, highly-effective priority response that is Embrace partnerships focused where an immediate response is neces- to create safe communities. sary for personal safety, wherever and whenever needed. • A service delivery model that is community-centric with an intensified, sustainable, longer term commit- • Using modern technology to ensure officers are ment of resources and capabilities. fully connected to the community from any location, and to improve public access and customer • Recognizing that there are many different communi- service. ties in Toronto and that the only effective approach is an all-inclusive one. Focus on the complex needs of a large city.

• Working in collaboration and partnership with • A sustainable and affordable service delivery communities and other services to understand and model based on understanding the needs of our address the root causes of crime, share information, city and continuously adapting services to re- intervene early to reduce victimization, and build spond. community capacity. • Drawing on the diverse and rich perspectives of residents, communities, and Service members as invaluable sources of knowledge, experience and insight.

• Using strategic information and analytics (e.g. demand and workload modeling, locational as- sessments and socio-economic and demographic data from internal and external sources) to inform resourcing and deployment decisions.

• Reflecting the diversity of Toronto’s population through the members of the Service and supporting them to deliver change, continuously improve, and take their pride of place as outstanding and innovative public servants.

Photo Credit: Toronto Police Service TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 12 HOW WE RELATE TO THE PUBLIC: 5 FOCUSING ON SAFE COMMUNITIES + NEIGHBOURHOODS

The centrepiece of the new service deliv- Improved capabilities related to data, information, and ery model is a renewed, more integrated analysis, including big data

and intensified investment in building safe • We are recommending that the Ser- vice support the new service delivery communities and neighbourhoods, and model with a strengthened capacity to collect, measure and evaluate focusing officers on local problem solving. data from a wide range of internal and external sources. The result While the details of the new model messages and social media. Resi- will include an improved capacity to will take time to establish and will dents will be able to see their faces model demand and workload as well require intensive discussion and en- and learn their names online, and on as analytics of large complex data gagement with the public and Service the street. They will be able to reach sets (“big data”). This capability will members, the model represents out to Service members: not only in allow the Service to better deliver a significant enhancement of how person or by phone, but also through evidence-based policing services members work with communities to video calling, social media, and the where they are most needed in a way build safe neighbourhoods. Toronto Police Service’s app. that is proportional, appropriate, and more sustainable. In the new service delivery model, all INTERIM officers, including a new community specialist designation, will not only RECOMMENDATIONS Disbanding TAVIS be protectors and guardians of public safety, but will also be recognized as • We are recommending that TAVIS facilitators, problem solvers, collab- Connected officers be disbanded and existing members orative partners, and team members. be redeployed to other Service priori- Officers will have the skills, knowl- • We are recommending an invest- ties. Although the 2012 redesign of edge, experience and emotional intel- ment to move from Mobile Worksta- the program addressed many com- ligence to build strong relationships munity concerns, the program as and facilitate local strategies to keep tions in vehicles to smart devices originally implemented focused on individuals and communities safe. carried by all officers. This will law enforcement to curb incidents of They will be community members include a full application suite and who are known, valued, and trusted. e-notebook, as well as updating violent crimes but did not sufficiently existing applications to a mobile envi- emphasize sustainable community- Through an investment in mobile ronment and allowing officers to be based strategies to build safe neigh- smart technology, officers will work connected, at all times, to the most bourhoods. There were unintended in their assigned neighbourhoods ev- current operational information. The impacts on communities, especially ery day, sometimes in cars, but also next steps will include research, an among racialized youth, who felt on foot and bikes. They will be able analysis of best practices, assessing unfairly targeted, which in turn im- to deliver services more flexibly from network opportunities, and develop- pacted trust and confidence appropriate locations – a school, a ing and costing different options, all in the Service. community centre, or even on a park bench with a person in need – and leading to purchase decisions and will be accessible through email, text implementation in 2019.

13 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT EMOTIONAL INTELLIGENCE

TO BUILD STRONG RELATIONSHIPS

TO KEEP INDIVIDUALS + COMMUNITIES SAFE.

Photo Credit: Globe and Mail 14 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 10 HOW WE DELIVER OUR SERVICES: 6 FROM PRIMARY TO PRIORITY RESPONSE

The Service’s existing service delivery model The Task Force also strongly supports the City of Toronto’s request is built around primary response – meaning to the Government of Ontario for changes to the Highway Traffic Act the first response to a call for service. to allow for the creation of municipal traffic wardens. In the future, there will continue to be situations where, This means the Service responds to • Focusing on dispatching officers for public safety reasons, traffic most calls by dispatching officers to where an immediate response is nec- direction will need to be provided by the scene, and often for non-emer- essary for personal safety or where a police officer. However, that will not gency situations. there is an immediate investigative be the case in most situations. Other need. large cities, such as Vancouver, rely In 2015, police were dispatched to on civilian traffic wardens as a more 147,000 non-emergency events rep- • Providing enhanced options for effective and cost-efficient municipal resenting 317,000 hours of Primary the public to report non-emergency service. Response officer time. Many of these policing matters including online, were not situations where an imme- through smart devices, over-the- INTERIM diate officer response was necessary. phone, by appointment at a police Also, many situations are within the station, and by employing civilian RECOMMENDATIONS mandates of other municipal depart- members to follow up on certain ments or service delivery agencies, non-emergency reports. such as low-risk noise and animal- Risk assessment for related complaints. • Working with City of Toronto de- priority response partments and other service deliv- In order for the Service to implement ery partners to refer appropriately • We are recommending that the the new service delivery model and designated non-policing situations Service develop a risk assessment enhance its presence with communi- to other organizations that, through tool to identify non-emergencies that ties and in neighbourhoods, we are their respective mandates, are better can be addressed through alterna- recommending a shift from primary suited to respond. tive approaches, including redirection to priority response. The purpose of to the mandated city department or this shift is to increase police officer • Developing civilian positions more other agency. availability for emergency calls, while effectively. This may include crime reducing the amount of time spent scene containment once threats and responding to non-emergency calls risks have been minimized or elimi- for service, including situations that nated, as well as civilians designated fall within the mandates of other or- as Special Constables to assist with ganizations. This shift will be accom- the transfer of care at hospitals un- plished through more sustainable der the Mental Health Act. approaches including:

Non-emergency calls attended in 147,000 2015, representing 317k hours.

15 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT HOW WE DELIVER OUR SERVICES: FROM PRIMARY TO PRIORITY IDENTIFY NON-EMERGENCIES THAT CAN BE ADDRESSED THROUGH ALTERNATIVE APPROACHES.

Alternative reporting and More effective follow-up for non-emergencies deployment in vehicles

• We are recommending the use of • We are recommending that the alternative methods for people to requirement in the collective agree- report non-emergency situations, i.e. ment for two-officer cars be re- where an immediate officer response viewed. Using risk and demand anal- is not necessary for personal safety ysis currently underway, we believe or to meet an immediate investigative there may be an opportunity to iden- need, including: tify situations where unaccompanied officers or response alternatives are • Enhanced, easy to use and conve- more appropriate. This recommen- nient on-line, digital and by-phone dation mirrors the approach taken reporting tools for low-risk inci- by other leading police services and dents with civilian reporting, and will allow for more effective person- intake personnel available by nel deployment, while continuing to appointment at police stations. ensure officer safety. It will require a negotiated change to the collective • The use of civilian members to agreement with the Toronto Police more efficiently follow up on less Association. serious/non-emergency neighbourhood safety incidents. A risk-based response to special events Improved public safety response • We are recommending that the • We are recommending that a spe- Service support special events cialized Public Safety Response Team through a fair and equitable threat be formed with a comprehensive and risk-based assessment. This mandate that includes extreme event will focus police resources on events response, public order, search man- where their presence is necessary agement, and critical infrastructure for public safety. For designated protection. situations, event organizers will be responsible for their own security More efficient scheduling measures.

• We are recommending that the shift • We are recommending a more in- schedule known as the Compressed tegrated structure for special events. Work Week be reviewed. The current Divisions currently support local approach requires a consistent events within their boundaries while deployment, regardless of the time the Public Safety - Special Events of day or demand patterns, which we Unit handles large scale major believe may limit the Service’s ability events. This leads to challenges in to deploy resources more flexibly. consistency of approach, risk as- Changes in this area will require a sessment and staffing which will be negotiated change to the collective addressed in the new design. agreement with the Toronto Police Association.

Photo Credit: Toronto Police Service TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 16 THE PURPOSE OF THIS SHIFT

A more efficient retail response Alternative Delivery of Using traffic enforcement the Lifeguard Program technology to improve • We are recommending that the community safety Toronto Police Services Board seek • We are recommending that the the Government of Ontario’s approval Lifeguard Program, and its $1.1 mil- • We are recommending that the City to appoint and train selected security lion budget become the responsibil- of Toronto implement traffic enforce- guards at major shopping malls as ity of the appropriate department of ment cameras that are owned and Special Constables. In designated the City of Toronto. This program operated by the City of Toronto in non-emergency situations, these provides lifeguarding services on school zones and areas identified as individuals will be authorized to Toronto beaches while the City of having higher collision rates as a way process and release arrested indi- Toronto provides lifeguard services of modifying driver behaviour and re- viduals. We estimate that through for the rest of the city. For example, ducing risks. The Service will provide this change it will be possible to save City of Toronto personnel provide life- collision and enforcement-related approximately 5,500 hours of polic- guard services at the Sunnyside Gus data to inform where these cameras ing services per year, while reducing Ryder Outdoor Pool. A few metres should be located. This recommen- costs for the private sector. away, on Sunnyside Beach, lifeguard dation means our city is using all of services are provided by the Toronto the tools it can to provide the right Disband the Transit Patrol Unit Police Service. Civilian staff currently mix of prevention, enforcement, and supporting this program will be rede- response. It is also an area of grow- • We are recommending that the ployed to other priorities. ing need because of the densification Transit Patrol Unit be disbanded. of people and vehicles. The Unit was originally established Alternative delivery of the to supplement the day-to-day role Overhauling Paid Duty of Divisions to respond to calls for School Crossing Guard Program service related to Toronto Transit • We are recommending that the • We are recommending an overhaul Commission vehicles, subways and School Crossing Guard Program, with of the Paid Duty process. The cur- properties. However, this role is no its $6.8 million budget, become the rent process is not well understood longer required since the Toronto responsibility of the City of Toronto, or and often puts the reputation of the Transit Commission now has a highly an alternative. Currently, the Toronto Service at risk. In our final report we capable Special Constable Program Police Service administers the pro- will include recommendations for in place, and local Divisions will con- gram and dispatches officers to fill in a risk assessment model to ensure when crossing guards are unexpect- tinue to respond to calls as required. that off-duty police officers are only edly absent. In 2015 this resulted in Transit Patrol Unit members will be utilized in a paid duty capacity where redeployed to other priorities. 3,138 hours of officer time away from other needs to which only a police of- the skills, authorities, and training ficer can respond. This recommenda- of a police officer are necessary. We tion will allow members who support will also be clear about those situ- the program to be redeployed to other ations where private security is the priorities. This change was also rec- appropriate alternative. ommended as part of the 2011 KPMG City of Toronto Core Services Review. In 2013 the City of London, Ontario implemented a similar approach.

17 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT THE PURPOSE OF THIS SHIFT TO INCREASEINCREASE OFFICEROFFICER AVAILABILITY FORAVAILABILITY EMERGENCY FOR CALLS. EMERGENCY CALLS.

Photo Credit: CBC

ENHANCED ANALYTICS: A KEY ENABLER OF TRANSFORMATION

An enhanced analytics capacity is a key enabler of the three transformation goals:

• Be where the public needs the Service the most. • Embrace partnerships to create safe communities. • Focus on the complex needs of a large city.

The Service has engaged an independent consulting firm to assist it in planning for the future of policing in Toronto and the implementation of the new service delivery model. The goal of this work is to ensure that the Service is able to make effective use of its existing resources. The work includes predictive forecasting in 5, 10, 15, and 20 year timespans using existing and future new business processes and drawing on all of the Service’s internal data as well as extensive external data sources. The two key areas of focus are:

• Demand modelling to provide the Service with a comprehensive picture of future needs for the city as a whole, across neighbourhoods, and at a micro-level within neighbourhoods. This will allow the Ser- vice to make decisions on many fronts including deploying resources, realigning boundaries, assessing the safety needs of individual communities and identifying other service providers that can be connected to individuals in need.

• Workload modelling to provide a detailed understanding of the required effort and number of staff needed in different parts of the new service delivery model, including their locations. This will inform decisions about the number, size and location of facilities as well as the optimal deployment of more centralized resources such as central booking and investigative services. Examples of workload data include calls for service, arrests and booking, transportation to and from court, mental health apprehensions, parking enforcement and traffic enforcement and accidents.

Photo Credit: Toronto Police Service TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 18 7 ACCESS TO SERVICES

locations that take into account the For some people, police stations are important boundaries of Toronto’s 140 neighbourhoods and coordinate better with elements of the local landscape and a way for the planning of other city and provincial services. The redesign will draw communities to access police services. on the enhanced analytics capacity described earlier related to demand For others, they present a barrier or costs, avoid costly redevelopment of and workload modelling. The Service obstacle that separates police from aging facilities, and allow the Service will also engage and obtain input and advice from the City Planning depart- communities. More recently we have to return real estate assets to the City ment. The details of a new configu- of Toronto. experienced a technological revolu- ration will take time to establish and tion in how the public is able, and will require intensive discussion and often prefers, to access and engage The redesign will also allow officers engagement with the public and To- with all types of services. to be redeployed into new neighbour- ronto Police Service members. hood roles. For example, there may The current Divisional concept dates be a greater focus on bike and foot • As a first step in the phased re- back to the creation of the former patrols. Civilian members may be realignment, we are recommending the Metropolitan Toronto Police in 1957 deployed into new roles. The redesign amalgamation of 54 and 55 Divisions. with some necessary modifications will include the reduction of some This will involve working with an over time. Since then the city has management and supervisory posi- independent consulting firm to determine the right location for a new changed dramatically. With the new tions to align with the new service station, and to determine the appro- delivery model, and a reassessment service delivery model, the Service priate workload balance and report- will require fewer Divisions. It will of spans of control. Reductions in ing structures. This amalgamation need new Divisional boundaries that these ranks will allow the Service to will also include the first phase of a take into account the boundaries of offset the natural attrition that will longer term consolidation of criminal Toronto’s 140 neighbourhoods and occur through the moratorium on investigators into a more flexible and coordinate better with the planning hiring and promotion. streamlined group. Between now of other city and provincial services. and our final report, we will explore The Service will also need to provide INTERIM similar options for Divisions 12, 13, more modern and effective options 33, 41, 52 and 53. for the public to connect with and ac- RECOMMENDATIONS • We are also recommending that the cess police services and information Service test the dispatching of prior- on a timely basis that do not involve ity response through the use of Au- visiting a police station. City-wide Divisional boundary tomated Vehicle Locating which will and facilities realignment allow it to send the closest resource A new Divisional map will enable the to a call for service. Service to be where the public needs • We are recommending that the it the most, and support the Service’s Service begin a phased redesign of city-wide priority response capacity. its Divisional structure and alignment It will permit officers in vehicles to of facilities. The redesign will follow respond quickly to situations where an the principle of lifting all boundaries immediate response is necessary for from the city map, and then using personal safety or where there is an demand and workload modelling to immediate investigative need. It will draw new boundaries and facility also result in lower facility operating

Photo Credit: Toronto Police Service 19 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT More accessible and transparent • Offering technology that brings information and services communities together to crowdsource and solve safety problems • As the Divisional map is rede- using their phones, which will signed, we are recommending an allow for improved community in- investment be made in modern tech- telligence related to incidents like nology to offer the public open access break and enters. to information and tools that communities can use to improve neighbour- • Offering technology for communi- hood safety including: ties to anonymously crowdsource and report concerns about officers. • A public safety data portal to This will allow the Service to respond encourage the creation and use more quickly and transparently. of open data for public safety in Toronto. The portal is intended • Enhancing the Toronto Police Ser- to improve the understanding of vice app so that when a neighbour- transparency, and enhance under- hood crime is reported, a mobile standing and confidence. connected officer in the area, and in any setting, can view the infor- • A wider, up-to-date range of means mation in real time. to speak with neighbourhood officers – in person and by phone, but • Enhancing real-time data and in- also through video calling, social formation about what’s happening media, and an enhanced Toronto in their neighbourhood, including Police Service’s app. Through their crime trends and more general mobile devices, officers will also policing metrics, while respecting have access to preliminary transla- privacy requirements. tion, in hundreds of languages.

A NEW DIVISIONAL MAP WILL ENABLE THE SERVICE TO BE WHERE PUBLIC NEEDS IT THE MOST. Photo Credit: Toronto Police Service

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 20 8 SUSTAINABILITY + AFFORDABILITY

Having the most efficient and effective The reduction includes other measures such as the previously men- management of policing services means tioned amalgamation of Divisions and alternative service delivery opportu- freeing up funds that can be deployed nities that have the potential to save up to an additional $30 million. For to other city priorities, especially social our final report we are committed to identifying a further minimum of needs that have a direct impact on the $10 million in potential savings that might be possible over the next three demand for policing services. years. Through the redesign of boundaries A modern Toronto Police Service To date, we have identified $100 mil- and facilities, we have identified up to will embody management excel- lion in reductions and savings to the $72 million in real estate that could lence through relentlessly, transpar- Service’s operating budget over the be returned to the City of Toronto. ently, and continuously evaluating next three years – through strategies As we conduct the next phase of our its services, business processes that will not impact priority response work we will look for other similar and organization to better serve the or community safety. This reduction opportunities. public. It will take pride in making includes the previously mentioned smart investments, controlling costs, $60 million in salaries and benefits Where members are affected by finding cost effective alternatives, savings over the next three years alternative or shared service delivery and leveraging the mandates of other through the carefully managed mora- actions (see the Interim Recommen- service delivery partners wherever torium on most hiring and promo- dations below) the Board will work possible. It will be able to trans- tions between ranks. This is money within the collective agreements parently document, demonstrate, that will not need to be included in to redeploy members to vacancies measure, communicate, and be held future budget requests and that the caused by attrition and into new accountable for its ongoing efforts. City of Toronto will have available for roles, including investing in their other priorities. training and development, where it is A fiscal commitment as appropriate and necessary. responsible managers of public funds

Our interim recommendations are an initial demonstration of the impact of the Task Force’s vision. As we work towards our final report, we will identify other fiscally responsible measures and also where smart investments are required.

Photo Credit: Toronto Police Service

21 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT + AFFORDABILITY INTERIM RECOMMENDATIONS

Moratorium on hiring and promotions

• We are recommending a carefully managed moratorium on hiring and promotions between ranks for officers and civilians over the next three years while the Service designs and deploys the new service delivery model. This moratorium will allow Photo Credit: CBC the Service to ensure that it has the right type and number of members for the new service delivery model, and the leanest possible manage- Alternative or shared service Investment in 9-1-1 ment structure. delivery of Court Services • We are recommending consul- • There will be some circumstances • We are recommending that the tation with the City of Toronto on where hiring or filling vacant po- Service fully assess whether alterna- implementing a 9-1-1 cost recovery sitions may be necessary – for tives exist that can reduce costs while fee that would recoup the cost of example, to make investments in ensuring that the Toronto Police Ser- providing these services to all land modernization, achieve other strate- vice fulfills its court security obliga- and wireless telephone users. The gic priorities, comply with legislative tions under the Police Services Act. recovery fee would also provide the requirements, or provide adequate foundation for future investments supervision. In these situations, the Alternative or shared service in new 9-1-1 technology including Service will implement a rigorous delivery of Parking Enforcement allowing the Service to receive text and transparent assessment process messages, photos, videos and better before approval is given, and will location information. Currently, the • We are recommending that the continue to report on the number and Service’s Communications Centre is Service fully assess whether there types of situations where it has been the answering point for police, fire, are better alternatives to the cur- necessary to do so. and paramedic services. The costs rent Parking Enforcement Unit that to staff, operate and maintain these will lower operating costs – as has Assessing Information operations are covered through the also been recommended by previous Service’s budget. At present 9-1-1 Technology requirements reviews. The Parking Enforcement cost recovery fees are in place in Unit budget is wholly separate from eight other provinces. • We are recommending that the To- the Toronto Police Service’s annual ronto Police Service retain an exter- operating budget. nal expert advisor to review potential efficiencies, alternative service Alternative or shared service delivery models, and future trends for information technology in polic- delivery of background screening ing. The advice will include immediate efficiencies that may be possible • We are recommending the expand- through benchmarking, as well as an ed use of contract agents to conduct Information Technology Unit organi- background screening as part of the zational assessment and identifica- Service’s hiring process. The cur- tion of opportunities for alternative rent approach involves a combina- service delivery mechanisms. tion of officers and contract agents. Officers who are currently part of Photo Credit: CBC this function would be redeployed to other priorities.

Photo Credit: Toronto Police Service

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 22 9 CULTURE CHANGE

Excellent organizations are defined by INTERIM their culture, but they are also open to RECOMMENDATIONS

continuous self-assessment. In our final report, we will describe the nature of this culture They consistently demonstrate the We are recommending a change in more detail, with a constructive and innovative energies culture for the modern Service: that help them align and perform comprehensive culture change and human resources strategy through the right processes and • That is collaborative and energiz- behaviours. They build or acquire the ing, embracing opportunities to that will include the following: tools necessary for successful cul- dialogue, partner, and connect both ture building and the embedding of inside and outside the Service. • A means to measure and report values, including leadership develop- publicly on culture change, including ment, performance management, ac- • That is performance based, con- benchmarks and metrics that incor- countability structures, recognition, tinuously empowering members porate the insights and perceptions and training. These organizations to achieve the vision through self- of the public. find the right balance between pride assessment, and seeking regular in their history and forward-looking feedback from those they serve. • A robust talent management strat- missions and visions. They continu- egy that ensures the Service’s great- ously assess people, processes, and • In which members take immense est asset – its people – are engaged, practices to connect culture with pride in their work and are recognized effective, and performance driven. strategy. for being leaders: aligning recognition The strategy will include an invest- and advancement to the vision in a ment in leadership that engages, Culture change is the essential un- transparent and fair manner. inspires, and fosters a performance derpinning of our vision of a modern culture. It will also include perfor- Toronto Police Service and is key to • That empowers members to use mance management processes that the success of our recommendations. judgement to create solutions in focus on the accountability of mem- Success will require a culture that partnership with communities and bers and their leaders, in support of reflects and embraces the vision and other agencies. the new service delivery model. that embeds the principles of trust, active accountability, partnerships, • That drives excellence through • Professionalization of policing transparency, inclusiveness, collabo- leading practices, evidence-based through partnership with an academ- ration, sustainability, and affordabil- decisions, evaluation, and results. ic institution. We are recommend- ity. Success will also require a cul- ing a comprehensive partnership ture that is supported by training and between the Service and an aca- education, and where the operational demic institution to improve training, value and impact of that training is increase accountability, and further measured. That training will also the professionalization of policing. need to equip Service members to be effective partners with all communi- • A model for innovation that is ties including, as we noted at the out- embedded in the Service’s business set of this report, communities where practices and allows for ongoing pro- there are deeper challenges related fessional improvement recommen- to social inequality, poverty, inequal- dations from the public and Service ity of opportunity, discrimination, and members. Approaches from other Photo Credit: Toronto Police Service systemic racism. organizations will be reviewed

23 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT PRIDE IN HISTORY

AND ALIGNMENT TO FORWARD- LOOKING MISSIONS + VISIONS.

and a more detailed strategy will be outlined in the final report. We Photo Credit: Toronto Police Service are also recommending that a small group be formed to build and foster innovation capacity with a mandate to spark and nurture change within the organization.

• Redesigned training for existing Constables as they move from probationary status through the three progressive Constable classifications. All existing members will also be required to take this redesigned training. This training will expand on expectations for the new service delivery model’s community and neighbourhood focus.

• A strengthened evaluation framework for the reclassification of future new Constables that includes a more rigorous performance management and evaluation process to ensure that Constables will not advance unless, and until, they demonstrate their knowledge, commitment, and ability to be effective in community-centred policing.

• An ongoing program to recognize, reward, and celebrate excellence in support of the new service delivery model, and our vision of community- centred policing services.

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 24 10 NEXT STEPS + CONSULTATION

meetings across the city over the In this interim report, we have laid out a summer months and into September. The schedule for these meetings modern, community-centred vision, and will be announced shortly after the release of the interim report and will initial steps in a balanced plan that aligns be posted on http://www.tps.on.ca/ strategy, actions, and financial imperatives. TheWayForward. There will also be a mechanism for people and organizations to provide Our interim recommendations repre- Service, and through our interim rec- their feedback online through the sent the beginnings of unprecedent- ommendations to begin to define the Board’s website. Consistent with the ed change that will take the Service path forward. principles of active accountability and to a new level of excellence. transparency, the feedback will be In our final report, to be completed summarized and posted on http:// But as we stated earlier, the Service by the end of December 2016, for www.tps.on.ca/TheWayForward be- cannot act without the support of the presentation to the Board in January ginning later in the summer. city it serves. Moving forward will 2017, we will expand on our interim require an equally unprecedented recommendations, and present many The consultation process with Ser- alignment of the public, elected of- others that we are still studying. We vice members will begin with a series ficials, the members of the Board, will also provide more information of information sessions in Septem- the senior leadership of the Service, about proposed savings and budget ber and early fall. These sessions Service members, the Toronto Police reductions, as well as details about will be organized by rank and civil- Association, and the Senior Officers’ the investments in people, training, ian classification, in order to allow Organization. All of us together must and technology that will be required for discussion among peers. They choose to empower the Service to to support the community-centred will not only provide members with seize this opportunity. service delivery model. the opportunity to comment on our recommendations, but also encour- As emphasized throughout, this is an Input from the public and Service age them to share their insights into interim report. Its primary purpose members is a critical part of the next how these recommendations can be is to describe our community-centred phase of our work. The Task Force expanded, implemented, or improved vision of a modern Toronto Police will hold public consultation upon for our final report.

Photo Credit: Toronto Police Service

25 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 23 Photo Credit: Toronto Police Service SUMMARY OF INTERIM RECOMMENDATIONS

HOW WE RELATE TO THE PUBLIC: 1 FOCUSING ON SAFE COMMUNITIES + NEIGHBOURHOODS

Connected officers 1 We are recommending an investment in transitioning from Mobile Workstations in vehicles to smart devices carried by all officers. This will include a full application suite and e-notebook, as well as updating existing applications to a mobile environment and allowing officers to be connected at all times to the most current operational information. The next steps will include research, analysis of best practices, assessing network opportunities, and developing and costing different options, leading to purchase decisions and implementation in 2019. Improved capabilities related to data, 2 information, and analysis, including big data We are recommending that the Toronto Police Service support the new service delivery model with a strengthened capacity to collect, measure, and evaluate data from a wide range of internal and external sources, including an improved capacity to model demand and workload as well as analytics of large complex data sets (“big data”). With this ability, the Service will be better able to deliver evidence-based policing services where they are most needed, in a way that is proportional, appropriate, and more sustainable. Disbanding TAVIS 3 We are recommending that TAVIS be disbanded and existing members be redeployed to other Service priorities. Although the 2012 redesign of the program addressed many community concerns, the program, as originally implemented, focused on law enforcement to curb incidents of violent crimes. It did not sufficiently emphasize sustainable community-based strategies to build safe neighbourhoods. There were unintended impacts on communities, especially among racialized youth who felt unfairly targeted, which in turn impacted trust and confidence in the Service.

HOW WE DELIVER OUR SERVICES: 2 FROM PRIMARY TO PRIORITY RESPONSE

Risk assessment for priority response 4 We are recommending that the Toronto Police Service develop a risk assessment tool to identify non-emergencies that can be addressed through alternative approaches, including redirection to the mandated city department or other agency.

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT Photo Credit: Toronto Police Service 26 Alternative reporting and follow-up for non-emergencies 5 We are recommending the use of alternative ways for people to report non-emergency situations, i.e. where an immediate officer response is not necessary for personal safety, or to meet an immediate investigative need, including: • Enhanced, easy to use, and convenient on-line, digital, and by-phone reporting tools for low-risk incidents with civilian reporting and intake personnel available by appointment at police stations. • The use of civilian members to more efficiently follow up on less serious/non-emergency neighbourhood safety incidents. Improved public safety response 6 We are recommending that a specialized Public Safety Response Team be formed with a comprehensive mandate that includes extreme event response, public order, search management, and critical infrastructure protection. More efficient scheduling 7 We are recommending that the shift schedule known, as the Compressed Work Week, be reviewed. The current approach requires a consistent deployment, regardless of the time of day or demand patterns, which we believe may limit the Service’s ability to deploy resources more flexibly. Changes in this area will require a negotiated change to the collective agreement with the Toronto Police Association. More effective deployment in vehicles 8 We are recommending that the requirement in the collective agreement for two-officer cars be reviewed. Using risk and demand analysis, we believe there may be an opportunity to identify situations where unaccompanied officers or response alternatives are more appropriate. This recommendation mirrors the approach taken by other leading police services, and will allow for more effective deployment while continuing to ensure officer safety. It will require a negotiated change to the collective agreement with the Toronto Police Association. A risk-based response to special events 9 We are recommending that the Service support special events through a fair and equitable threat - and risk - assessment. This will focus police resources on events where their presence is necessary for public safety. For designated situations, event organizers will be responsible for their own security measures.

We are recommending a more integrated structure for special events. Divisions currently support local events within their boundaries, while the Public Safety-Special Events Unit handles large scale major events. This leads to challenges in consistency of approach, risk assessment, and staffing, which will be addressed in the new design. A more efficient retail response 10 We are recommending that the Toronto Police Services Board seek the Government of Ontario’s approval to appoint and train selected security guards at major shopping malls as Special Constables. These individuals will be authorized to process and release arrested individuals in designated non-emergency situations. We estimate that through this change, it will be possible to save approximately 5,500 hours of policing services per year, while reducing costs for the private sector. Disband the Transit Patrol Unit 11 We are recommending that the Transit Patrol Unit be disbanded. The Unit was originally established to supplement the day-to-day role of Divisions to respond to calls for service related to Toronto Transit Com- mission vehicles, subways and properties. However, this role is no longer required since the Toronto Transit Commission now has a highly capable Special Constable Program in place, and local Divisions will continue to respond to calls as required. Transit Patrol Unit members will be redeployed to other priorities.

27 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT Alternative delivery of the Lifeguard Program 12 We are recommending that the Toronto Police Service Lifeguard Program and its $1.1 million budget become the responsibility of the appropriate department of the City of Toronto. This program provides lifeguard services on Toronto beaches while the City of Toronto provides lifeguard services for the rest of the city. For example, City of Toronto personnel provide lifeguard services at the Sunnyside Gus Ryder Outdoor Pool. A few metres away, on Sunnyside Beach, lifeguard services are provided by the Toronto Police Service. Civilian staff currently supporting this program will be redeployed to other priorities. Alternative delivery the School Crossing Guard Program 13 We are recommending that the School Crossing Guard Program, with its $6.8 million budget, become the responsibility of the City of Toronto, or an alternative. Currently, the Toronto Police Service administers the program and sends officers to fill in when crossing guards are unexpectedly absent. In 2015, this resulted in 3,138 hours of officer time away from other needs to which only a police officer can respond. This recommendation will allow members that support the program to be redeployed to other priorities. This change was also recommended as part of the 2011 KPMG City of Toronto Core Services Review. In 2013, the City of London, Ontario implemented a similar approach. Using traffic enforcement technology to improve community safety 14 We are recommending that the City of Toronto implement traffic enforcement cameras that are owned and operated by the City of Toronto, in school zones and areas identified as having higher collision rates, as a way of modifying driver behaviour and reducing risks. The Service will provide collision and enforcement- related data to inform where the cameras should be located. This recommendation means that our city will use all of the tools it can to provide the right mix of prevention, enforcement, and response. It is also an area of growing need because of the densification of people and vehicles. Overhauling Paid Duty 15 We are recommending an overhaul of the Paid Duty process. The current process is not well understood and often puts the reputation of the Toronto Police Service at risk. In our final report we will include recommendations for a risk assessment model to ensure that off-duty police officers are only utilized in a paid duty capacity where the skills, authorities, and training of a police officer are necessary. We will also be clear about those situations where private security is the appropriate alternative.

3 ACCESS TO SERVICES

City-wide Divisional boundary and facilities realignment 16 We are recommending that the Toronto Police Service begin a phased redesign of its Divisional structure and alignment of facilities. The redesign will follow the principle of lifting all boundaries from the city map, and then using demand and workload modelling to draw new boundaries and facility locations that take into account boundaries of Toronto’s 140 neighbourhoods, and coordinate better with the planning of other city and provincial services. The redesign will draw on the enhanced analytics capacity described earlier, related to demand and workload modelling. The Service will also engage and obtain input and advice from the City Planning department. The details of a new configuration will take time to establish and will require intensive discussion and engagement with the public and Toronto Police Service members.

As a first step in the phased realignment, we are recommending the amalgamation of 54 and 55 Divisions. This will involve working with an independent consulting firm to determine the right location for a new station, and to determine the appropriate workload balance and reporting structures. This amalgamation will also include the first phase of a longer term consolidation of criminal investigators into a more flexible and streamlined group. Between now and our final report, we will be exploring similar options for Divisions 12, 13, 33, 41, 52, and 53.

We are also recommending that the Service test the dispatching of priority response through the use of Automat- ed Vehicle Locating, which will allow it to send the closest resource to a call for service.

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 28 More accessible and transparent information and services 17 As the Divisional map is redesigned, we are recommending an investment in modern technology to offer the public open access to information and tools that communities can use to improve neighbourhood safety, including: • A public safety data portal to encourage the creation and use of open data for public safety in Toronto. The portal is intended to improve the understanding of policing, improve transparency, and enhance confidence. • A wider, up-to-date range of means to speak with neighbourhood officers – in person and by phone, but also through video calling, social media, and the Toronto Police Services app. Through their mobile devices, officers will also have access to preliminary translation, in hundreds of languages. • Enhancing the Toronto Police Service app so, that when a neighbourhood crime is reported, a mobile connected officer in the area, or in any setting can view the information in real time. • Enhancing real-time data and information about what’s happening in their neighbourhood, including crime trends and more general policing metrics, while respecting privacy requirements. • Offering technology that brings communities together to crowdsource and solve safety problems, using their phones, which will allow for improved community intelligence related to incidents like break and enters. • Offering technology for communities to anonymously crowdsource and report concerns about officers, which will allow the Service to respond more quickly and transparently.

4 SUSTAINABILITY + AFFORDABILITY

Moratorium on hiring and promotions 18 We are recommending a carefully managed moratorium on hiring and promotions between ranks for officers and civilians over the next three years while the Service designs and deploys the new service delivery model. This moratorium will allow the Service to ensure that it has the right type and number of members for the new service delivery model, and the leanest possible management structure. There will be some circumstances where hiring or filling vacant positions may be necessary – for example, to make investments in modernization, achieve other strategic priorities, comply with legislative requirements, or provide adequate supervision. In these situations, the Service will implement a rigorous and transparent assessment process before approval is given, and will continue to report on the number and types of situations where it has been necessary to do so. Assessing Information Technology requirements 19 We are recommending that the Toronto Police Service retain an external expert advisor to review potential efficiencies, alternative service delivery models, and future trends for information technology in policing. The advice will include immediate efficiencies that may be possible through benchmarking, as well as an Information Technology Unit organizational assessment and identification of opportunities for alternative service delivery mechanisms. Alternative or shared service delivery of Court Services 20 We are recommending that the Toronto Police Service fully assess whether alternatives exist that can reduce costs while ensuring that the Toronto Police Service fulfills its court security obligations under the Police Services Act. Alternative or shared service delivery of Parking Enforcement 21 We are recommending that the Service fully assess whether there are better alternatives to the current Park- ing Enforcement Unit that will lower operating costs – as has also been recommended by previous reviews. The Parking Enforcement Unit budget is wholly separate from the Toronto Police Service’s annual operating budget.

29 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT Alternative or shared service delivery of background screenings 22 We are recommending the expanded use of contract agents to conduct background screening as part of the Toronto Police Service’s hiring process. The current approach involves a combination of officers and contract agents. Officers who are currently part of this function would be redeployed to other priorities. Investment in 9-1-1 23 We are recommending consultation with the City of Toronto on implementing a 9-1-1 cost recovery fee that would recoup the cost of providing these services to all land and wireless telephone users. The recovery fee would also provide the foundation for future investments in new 9-1-1 technology including allowing the Service to receive text messages, photos, videos, and better location information. Currently, the Toronto Police Service’s Commu- nications Centre is the answering point for police, fire, and paramedic services. The costs to staff, operate and maintain these operations are covered though the Service’s budget. At present 9-1-1 cost recovery fees are in place in eight other provinces.

5 CULTURE CHANGE

Comprehensive culture change and human resources strategy 24 In its final report, the Task Force will describe the nature of this culture change, in more detail, with a comprehensive culture change and human resources strategy that will include the following: • A means to measure and report publicly on culture change including benchmarks and metrics that incorporate the insights and perceptions of the public. • A robust talent management strategy that ensures the Service’s greatest asset – its people – are engaged, effective, and performance driven. The strategy will include an investment in leadership that engages, inspires, and fosters a performance culture. It will also include performance management processes that focus on the accountability of members and their leaders, in support of the new service delivery model. • Professionalization of policing through partnership with an academic institution. We are recommending a comprehensive partnership between the Service and an academic institution to improve training, increase accountability, and further the professionalization of policing. • A model for innovation that is embedded in the Service’s business practices and allows for ongoing professional improvement recommendations from the public and Service members. Best practices from other organizations will be reviewed, and a more detailed strategy will be outlined in the final report. We are also recommending that a small group be formed to build and foster innovation capacity with a mandate to spark and nurture change within the organization. • Redesigned training for existing Constables as they move from probationary status through the three progressive Constable classifications. All existing members will also be required to take this redesigned training. This training will expand on expectations for the new service delivery model’s community and neighbourhood focus. • A strengthened evaluation framework for the reclassification of future new Constables that includes a more rigorous performance management and evaluation process, to ensure that Constables will not advance, unless and until they demonstrate their knowledge, commitment, and ability to be effective in community centred policing. • An ongoing program to recognize, reward, and celebrate excellence in support of the new service delivery model and our vision of community-centred policing services.

TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT 30 TASK FORCE MEMBERS

APPENDIX A

The members of the Task Force are a mix of citizens and Service members.

ANDY PRINGLE • Chair, Toronto Police Services Board (Task Force co-chair) MARK SAUNDERS • Chief, Toronto Police Service (Task Force co-chair) MARK BARKLEY • Superintendent, Toronto Police Service IDIL BURALE • Associate at MaRS Solutions Lab and community advocate SHAWNA COXON • Inspector, Toronto Police Service MICHELLE DIEMANUELE • President and CEO of Trillium Health Partners JEFF GRIFFITHS • Former City of Toronto auditor general KEN JEFFERS • Member, Toronto Police Services Board, and former manager of Access and Diversity at the City of Toronto BARBARA MCLEAN • Superintendent, Toronto Police Service CHERYL MCNEIL • Public Safety Operations Planner, Toronto Police Service MICHAEL PERREAULT • Staff Sergeant, Toronto Police Service SEVAUN PALVETZIAN • CEO of CivicAction DAVID SOKNACKI • Former Councillor, City of Toronto JUSTIN VANDER HEYDEN • Staff Sergeant, Toronto Police Service GREG WATTS • Staff Sergeant, Toronto Police Service

The Task Force is being supported by the following members of the Toronto Police Service.

FRANCISCO BARREDO • Inspector, Toronto Police Service DONALD BELANGER • Detective Sergeant, Toronto Police Service SANDRA CALIFARETTI • Director, Toronto Police Service PETER CODE • Inspector, Toronto Police Service MEAGHAN GRAY • Corporate Communications, Toronto Police Service JAMES HOGAN • Staff Sergeant, Toronto Police Service LAURA MCGUIRE • Clerk, Toronto Police Service DOUGLAS MOORE • Parking Enforcement Officer, Toronto Police Service PETER MOREIRA • Inspector, Toronto Police Service TONY VENEZIANO • CAO, Toronto Police Service SUZANNE WALSH • Inspector, Toronto Police Service IAN WILLIAMS • Manager, Toronto Police Service

31 TORONTO POLICE SERVICE | THE WAY FORWARD: MODERNIZING COMMUNITY SAFETY IN TORONTO | INTERIM REPORT PREVIOUS REVIEWS + REPORTS

APPENDIX B

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Internal correspondence: 9-1-1 call CHERYL MCNEIL • Public Safety Operations Planner, Toronto Police Service answer fee (cost recovery initiative). Toronto Police Service. Association of Municipalities of Ontario. (2015, April 27). Building a new MICHAEL PERREAULT • Staff Sergeant, Toronto Police Service public safety model in Ontario: AMO’s Policing Modernization Report. Glamorgan County Council v Glasbrook Bros Ltd [1924] UKHL 3 (19 Retrieved March 31, 2016, from https://www.amo.on.ca/AMO-PDFs/Re- December 1924). SEVAUN PALVETZIAN • CEO of CivicAction ports/2015/AMO-Policing-Modernization-Report-Final-2015-04-27.aspx. DAVID SOKNACKI • Former Councillor, City of Toronto Griffiths, J. (2008, September 26). Fleet Review – Toronto Police Service. Bain, R. (2015, July 14). Letter to Minister Naqvi regarding the need for Auditor General for the City of Toronto. 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