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JI POLICING IN ONTARIO FOR THE EIGHTIES: '-'/ t t PERCEPTIONS AND REFLECTIONS J i lJ
J ! U U 11 REPORT OF THE TASK FORCE ON THE RACIAL U AND ETHNIC IMPLICATIONS OF POLICE HIRING, U TRAINING, PROMOTION AND CAREER DEVELOPMENT.
1 \1 U.S. Department of Justice ~ . National Institute of Justicll , , This document has been reproduced exactly as received from the rPl person or organization originating it. Poinls of view or opinions stated in this document are those of the authors and do not necessarily [1l represent the official position or policies of the National Institute of Justice.
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U Submitted to the , , .... Honourable R. Roy McMurtry, a.c., '; M Solicitor General of Ontario ~ , r"\I ~ THE HONOURABLE R. ROY MCMURTRY, Q.C. SOLICITOR GENERAL ; f THE PROVINCE OF ONTARIO []
U U MEMBERS OF THE TASK FORCE SIR: We, the members of the Task Force on the Racial and If !I Ethnic Implications of Police Hiring, Training, DR. REVA GERSTEIN, O.C., Ph.D., CHAIRMAN Promotion and Career Development take great pleasure U !I in submitting our Report. A psychologist, ?ducator and policy adviser, U " l1 Dr. Gerstein has served as Chairman of the Throughout this study, we have had cooperation from Committee of University Affairs, was a member of the public and from all sectors of policing in the I j the Ontario Commission on Post-Secondary Education Province. An open-door policy by the Task Force U L and on numerous task forces for the Ontario Council 'permeated throughout the study. The members of the on Health and the Federal Government. She is a Task Force at all times felt a keen sense of commitment II U trustee of the Hospital for Sick Children and to the issues they were addressing, recognized the policy adviser to industry and all levels of complexity of the problem, and made every attempt to U U government with particular emphasis on police come to grips with these problems in a realistic and practices in Metropolitan Toronto. sensitive manner. n u 0 The Task Force worked as a closely integrated team, PROFESSOR NORMA BOWEN, Ph.D., MEMBER each bringing to the study and the Report his or her n M special areas of expertise and genuine concern fdr Dr. Bowen is an Associate Professo~ of Psychology d at the University of Guelph. A Canadian citizen, Tl humanity. !J 0 she was born in Trinidad and received all her .1I ',1 post-secondary education in Canada. Respectfully submitted, qL She was 'I nIWl ", President of the Ontario Confederation of Faculty 1 1 ~~~~ U 0 Association, has served as an Arbitration Board Reva Gerstein, O.C. Ph.D. member, and is regarded as a foremost spokesperson and advocate for equal opportunity for women within U ill the university community. She is a member of the Ontario Council for University Affairs and of the Professor Norma Bowen, Ph.D. U sub-committee on the Status of Women for the Member ill Canadian Commission for UNESCO. H m1'1 Member U ~ f .. ~ m ':j in -$ ~. ~ --~~------.------~------.------.~
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{J, ~~ U n HAMILTON-WENTWORTH POLICE CHIEF GORDON TORRANCE, n n MEMBER ." PROLOGUE· U iI Chief Torrance has been a police officer for 30 years, having served in both operative and administrative U II duty throughout his career. He started his career with the Hamilton Police Force and was appointed II The enti~e ~y~tem on ju~tiQe begin~ with the first Chief of Police of the Region of U the publiQ who eleQt the legi~lato~~. The Hamilton-Wentworth in 1973. Ch~ef Torrance is an publiQ, the~e60~e? a~ well a~ the poliQe, the active member of the International Association of U Qou~t~, Qo~~eQtion agenQie~, Q~own atto~ney~, " \ Chiefs of Police, second Vice-President of the ~ehabilita~on agenQie~ and othe~~ in the Canadian Association of Chiefs of police, and is I U Q~iminal ju~tiQe ~y~tem, have 'Le~pon~ibilit!f Chairman of the Crime Prevention Committee of the ~n the admini~t~ation and ennO~Qement 06 the Ontario Association of Chiefs of Police. Chief U U law and 06 ma~ntaining peaQe and o~de~. What Torrance is also a graduate of Senior Police i~ di~tinQtive about the ~e~pon~ibility 06 the Administration, Ontario Police College, the Canadian lJ U poliQe i~ that they a~e Qha~ged with pe~60~ming Police College, and the Federal Bureau of Investiga the~e 6unQtion~ whe~e all eye~ a~e upon them tion National Academy, U U and whe~e the going i~ ~oughe~t, on the ~t~eet. In othe~ wo~d~, they a~e alway~ ui~ible. U SHEILA DUNLOP, SECRETARY TO THE TASK FORCE 11 U Ms. Dunlop is a Criminologist with the Ontario U Ministry of the Solicitor General. U U 0 u ru Ll
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TABLE OF CONTENTS 11 U PAGES II /J I . 1. MA ND ATE ...... •...... • 1 2. ACKNOWLEDGEMENTS ...... •...... 2 3. PROCEDURE OF STUDy...... 4 U U 4. LIMITATIONS OF STUDY ...... •.• 7 I. 1. THE MANDATE OF THE TASK FORCE ON THE RACI,i.4L 11 U AND ETHNIC IMPLICATIONS OF POLICE HIFitING, II. SUMMARY ••...... , . . .. 10 TRAINING, PROMOTION AND CAREER DEVELOPMENT
.;f I III. RECOMMENDATIONS ...... •...... 25 U
IV. INTRODUCTION...... • ...... • . . . . 30 U Ll ,II' Solicitor General Roy McMurtry formed the V. THE POLICE IN ONTARIO ...... 37 II • ,J Task Force to conduct a wide-ranging study into the racial and ethnic implications of 1. PERCEPTIONS AND EXPECTATIONS IN THE 1980's .... 39 2. THE ONTARIO POLICE COMMISSION ...... 42 U U police hiring, training, promotion and 3. THE POLICE FORCES IN ONTARIO ...... 44 career development policies, procedures and 4. BOARDS. OF COMMISSIONERS OF POLICE AND MUNICIPAL COUNCILS .....•...... •...... 48 practices. The study is to assist police r.J 5. OTHER AGENCIES ...... 50 u as they face the challenges of an 6. RECRUITMENT PRACTICES ...... 53 ~ 7. SiL~CTION PROCEDURES .•...... 63 increasingly complex and pluralistic society. 8. TRAINING AND HIGHER EDUCATION ...... 76 II U The police community is sensitive to these 9. PROMOTION AND CAREER DEVELOPMENT ...... 101 10. ANCILLARY SERVICES ...... •...... 110 issues and has encouraged the initiative in : 1 I 0 this direction. The study is not restricted 11 ", VI. THE COMMUNITIES OF ONTARIO ...... 113 to any specific part of Ontario. Input from 'j all areas of the Province are encouraged. 1 1. PERC E P T ION S ...... •...... 11 3 !I U 2. THE PEOPLE ...... 115 The Task Force is responding to the needs of 3. ME D I A ••••••••••••••••••••••••••••••••••••••••• 11 7 U U a very pluralistic society and a changing society. VII. CONCLUSIONS ...... •...... 120 f J II lJ Ii
REFERENCE BIBLIOGRAPHy .....•...... 124 l] IJ APPENDICES 129 11 tl f ", U U / / ~t'i ------~-~-- - --
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2 cognizance of the responses of the media to the racial and minority tensions in Ontario and other I. 2 ACKNOWLEDGEMENTS u countries, particularly the united states and u Great Britain.
We acknowledge the report of the Ta~k Fo~ce on We acknowledge the spirit of cooperation from a 1 Policing in Onta~io, and the reports of Walter i cross section of the public. This is evidenced by Pitman and Cardinal Carter as important stepping u the number of submissions received and people stones. Each report, in turn, is another step in II interviewed. We also acknowledge the genuine raising the level of consciousness, awareness, u I I cooperation of agencies of the police in Ontario and sensitivity of the society as a whole. \ I such as, the Ontario police Commission, the Ontario u Provincial Police and a large percentage of Chiefs These reports should be seen not as substitutes for of police throughout the Province. In addition, we \ U \ action but as catalysts for change~ There is u are gr.ateful to the chairmen of Boards of evidence that changes do come about - slow as they U Commissioners of police and Municipal councils, are - in police forces, in educational institutions, o authors of pertinent reports, city officials, in community organizations, and in other social government agencies such as the Human Rights Reports help to conceptualize and U agenc:::ies. [] Commission: Ministry of culture and Recreation, crystalize the issues as they are perceived at any and the Ministry of the Solicitor General, and to one time. No single report can be final or U the broad range of people who have helped to definitive because society continues to change. [1 generate the ideas on which this Report is partially B~t we trust that with each report there will come 0 based. a renewed and strengthened desire to work towards a more just s~ciety. The common objective of these U reports is toward justice, equality and the freedom f j of choice of career, regardless of race, colour or U creed. If for the documentation which was made accessible to U us we are most grateful. For example, the Ontario 11 Police Commission made available to us numerous U studies which were pertinent to our task. The importance of work carried out in the United States U was also recognized by the Task Force. Thro1.~ ghou t [] the study, the Task Force monitored and took [] 0 " ,. 1~ n I U /5, II .B\1 4 5 [1
I. 3. PROCEDURE OF STUDY 11 3 • The Task Force also spent a day at the Ontario Police College where interviews were held with Since the focus of the study is on police-ethnic some instructors, and visits made to classes minority relationship, these two groups (the police II while they were in session. and minorities) had to be the major source of information on which our analysis is based. ! j To obtain information from ethnic minorities, the Task Force solicited submissions by sending an announcement to one hundred and twelve ethnic The information on police - policies, practices and II newspapers throughout the Province, to CFRB and CFTR procedures - was obtained in the following ways: f I. radio stations, to CBC radio and television, and to U I" 1. A questionnaire was sent to all (128) Ontario •• J CITY-TV. An advertisement was also placed in the police forces through the offices of the Tononto Stan and in the Glob~ and Mail. The Ontario Police Commission. The following U announcement/advertisement invited submissions from information was requested from each: interested groups and ~ndividuals. It was stated U that the Task Force was not an investigative or a policies related directly to ethnic/racial issues (written or informally communicated) complaint body, but that it was primarily interested U in receiving suggestions which would help the Task recruiting and hiring practices; u Force in its deliberations. It was further stated career development programs and practices, that the results of the study were intended to with pertinence to the work of the Task Force; U assist the police as they face the challenges of an . pr'omotional procedures, with pertinence to increasingly complex and pluralistic society in the work of the Task Force; U the Province of Ontario. (Appendix A) . training programs at all levels of the police force, with particular focus on ethnic/racial implications; U Members of the Task Force attended two conferences which had some relevance to the mandate. They were any other programs or future plans directly n related to raising the level of awareness U u an Urban Alliance and Race Relations Conference, and understanding of ethnic/racial issues. A6t~n Cant~n and Pitman - Wh~t Now ? and a conference Ll sponsored by the Liaison Group on Law Enforcement and Race Relations, Changing Attitud~~ in th~ 1980'~. 2 • In addition, The Task Force met with government officials and members of the policing profession U The Task Force also met with many other interested including the Ontario Provincial Police, the groups and individuals whose names are listed in ontario Police Commission, a cross section of U Appendix B police chiefs, some chairmen of Boards of Commissioners of Police and Municipal Councils, U u and some police officers (including some ethnic .~ minority officers). U -; u rn "~-"Ill-;;;--::.I=''''''''_'-'''''.' __
iF.... j III 6 U Ii 7 f] ~.~ L~~ Material from jurisdictions within and outside i. 4 LIMITATIONS OF STUDY Canada was studied by members of the Task Force. U n These included committee reports, research papers (I The mandate of this study is very broad. The and projects, policy papers, and visits by IIL•• u temptation to deal with all police practices and individual members with police personnel in Ontario, , ( I procedures, in depth, is ever present. Howe ver, California and Florida. I I L. I ' I such an encyclopaedic approach is neither indicated nor appropriate to our mandate. The Task Force visited the offices of the Ontario {f.J Provincial Police, the Ontario Police College, and In essence, we attempted to familiarize ourselves the offices of Cardinal Carter. All other interviews qL with the broad aspects of policing in Ontario, and were held in the offices of the Ministry of the to treat such information as background to our Solicitor General. L} particular emphasis on the racial, ethnic aspects t 1 of the bread spectrum of police procedures and practices. U 11 It is not our intention to expound at length about n~J U the roots of prejudice; neither is it our objective
0 to seek short-cut superficial solutions to human l 1 !"} U U problems of such enormous complexity and irrational 'I l heritage. We believe that the long-term and i (I desirable goals.of society should be the eradication U of prejudicial and stereotypic thinking, but in U U realistic terms, our aims are less hero;~ in grandeur. We hope to raise the level of understanding and U U social awareness of all members of society to the needs of a multicultural society. We add our efforts U f I to those of Walter Pitman, Cardinal Carter, and all those throughout the Province who have contributed fJ U to these obj ectives.. Our focus is upon those police practices, policies and procedures which will fJ contribute to a better understanding and policing of U Ontario's communities. U U ,f' ". U '"; U / I nn - - --- ~------j ~ ~ 8 11 9
L1 Although our mandate singles out the police, we recognize that their role and function change in Each one of us, as a human being, belongs to an U ethnic group. Those h . resonance with all other sectors of the society. w 0 are ~n a minority group The extent to which we succeed in our task will be are so because they may lack the numerical strength u to influence. demonstrated in the extent to which serious IJ In some situations they may have consideration is given to our Report, the various the numerical strength, but lack the power to bring n about changes that affect their lives. recommendations become accepted practice and the U To whatever police are further assisted to face "the challenges ethnic group we belong, we all must be visible in of an increasingly complex and pluralistic society". U our concern for man's inhuman;ty... to man, and we all must be visible in our attempts to uphold the Throughout this Report, the Task Force avoids the U freedom and dignity of all people. use of the term 'visible minorities' in reference to ethnic minority groups. We recognize that it is U a term that has gained wide usage in recent years in Canada and is also used by some ethnic minority groups themselves. It is of interest to note that U the terminology is rarely used in other countries. U As a descriptive term, to identify individuals because of their racial baCKgroUfia afia pfiysieal nu appearance, the concept may have some utility in that it is a statement of fact. But as an explana- U tory concept, which is the way it is most often used in Canada, it tends to have negative and U disparaging connotations. Because of the group label and categorization 'visible minorities' are most likely to be tr0ated differently than others. U
Race involves differenees that are v~sible and are not easily assimilated and, thus, it is a more severe 0 basis for intergroup conflict than cultural difference. Labelling or classify~ng individuals as different U only serves to heighten those differences and results in discrimination. [J f] ,r ri ~. fl' ------~------.---- ~----
[1 11 10 Ii ~pformatJ0n o,n other aspects of policing was obtained II. SUMMARY fromin~etviews with government officials and members of the police profession~ inc~uding the Ontario The Task Force was established to study the racial l J Provincial Police, the Ontari6 Police Commission, a • . !~ and ethnic implications of police hiring, training, ,random selection of Polic~ Chiefs, some chairmen of promotion and career development policies, Boards and Councils, some police officers (including procedures and practices. The purpo~e of the study native Indian officers and ethnic minority officers) is to assist the police as they face the challenges u and Police Instructors at the Ontario Police CqLlege. of an increasingly complex and pluralistic society. 1'1 t I ti If we have accomplished our task it is, in large The ethnic-minority communities" were re.a;ched tllrough measure, due to the spirit of cooperation received \ i announcements, which were sent to one·~~ndred and \ ' from members of the police forces in Ontario and of LJ twelve ethnic newspapers throughout ttie Province, to individuals from a cross-section of the community. " CFRB .and C.FTR radio stations, to CBC radio and
television and to City-~V. Announcements were also The focus of the study is on police-ethnic minority pl.ac'ed in the TOILonto Stall and the- :Globe. and "Ma..i.l. relationship, and the responses from the police L\1 These announc~~ants invited interested groups and forces in Ontario to six areas of concern which individu~ls to make submissions to the Task Forde. provided, in part, the basis of our analysis. The u It was emphasized that the results of the study were police forces were asked to provide the Task Force intended to assist the police as they face the with the following fi ." cglH~~leJ!,g.e Qf...,qn _~n~~~a.,sinqLy.ccmpl€~and.pl uzali·s1::ie u··-- • \\ \i, • SQC1ety 1n the Pro~ince of Ontario. a) policies related directly to ethnic/racial \ 1 ':::.; 0
issues (written or informally communicated) j The ma~)date of the study is very broad. The Task b) recruiting and hiring practices; lJ Fo~ce, however, ~ade a conscio~s effort to limit c) career development programs and practices itself to those police practices, policIes. and with pertinence to the work of the Task Force; U procedure·s Which will .contc~ibute to a better under 1'1 standing and policing. of the community and, in d) promotional procedures, with pertinence to u particular, improveci relations with ethnic minorities. the work of the Task Force; lJ I' e) training programs at all levels of the police ,[1 Ie U Although the mandate focusesdonithe police, it ~;f force, with particular focus on ethnic/racial recogniz~d that thei~ role and£unction change in j"'1 implications; and 1 :- keeping wi thchanges in alIa other sectors of society. . . . . - l~ f) any other programs or future plans directly u CuI tUt'edetermines anc.-;,~ndividual' s perception ,beli~ fs, related to raising the level of awareness and U and, values. It follows, then, that the attitudes of understanding of ethnic/racial issues. u the 'P9Iicear~, toa large extent,: a reflectio.n. of th'eatti tucies of the Canadian society. Our main , U u '. II u (\ I I , I' .------.--~-.--
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objective, therefore, is to raise the level of We must recognize the broad range of expectations understanding and social awareness of all members ".\. Y of police and the impossibility of any profession i I: t j i of society, including the police, to the needs of carrying out all of these responsibilities to the a multicultural society. satisfaction of a demanding and critical society. u If the present number of police officers is expected The majority of people who migrate to Ontario are by the public to carry out all the tasks delineated law-abiding, and the few who do not respect the law in this Report, superficial solutions to many urgeht are, indeed, the exception. creative and innovative and serious problems are all that can be expected. ry.r l ways must be found to help all people understand the II The present economic reality may necessitate different ol.. !I law and the role of police in our society. Police, and innovative ~pproaches to pOlicing than heretofore. on the other hand, should recognize that most of Uf ;1' :.tL ; New approaches may involve the increasing use of their experience with minorities is crisis-oriented civilians with professional expertise. which, in turn, can distort their overall perception and reaction. There is always the tendency, on both The Task Force views the Ontario Police Commission as sides, to generalize from one to all. Because of rt.:jf being in a strategic position to affect the greatest the visibility of the police, the~e is a tendenctfor !.J. number of police officers in Ontario at all stages of people in the community to expeat the police to solve their development. We believe that the Commission can the ills of society. The police, however, are only assist in raising the level of professionalism of the one segment of the society they serve. In order for police throughout the Province, by keeping abreast of
us to have a more harmonious community all segments n~w developments in pOlicing in assi~ting communities . t~he part which they must of the public must recogn~ze to clarify priorities, and in making the police career play. Nevertheless, because the actions of police can more attractive to a broader spectrum of people in affect, at one time or another, every member of Ontario. society they can in many ways be a harbihger of change :; 'I: In f . even though they cannot change the total s}.Jciety. Many of the recommendations which we make o~ the sum, police attitudes and behaviours are '~erceived as Ontario Police Commission have to do with its role being crucial to better community relations. and function. In general,. we would like to see the Commission more clearly defined as a buffer body Within any community the police are expected to to advise the Solicitor General of the Province on perform a variety of tasks, and whenCthe needs are matters relating to the police. We also think that greatest the doors of most social agencies are closed. I its role should be strengthened so that it can play 11 Accordingly, the police are the only twenty-four hour III a strategic part in raising the level of professionalism a day, three hundred and sixty-five (or six) days of 11 at all levels of policing. the year agency spread over communities, large and small. f I The Task Force also regards as of equal importance the I I u role that members of the Boards of Commissioners of f I ~ l '. f,:, e ...... [ - .'
16 17 onerous task in their job of policing. There i.s a H particularly those from minority groups, who may have high degree of personal risk and stress involved. ~.~ excellent qualifications for policing. They are often called upon to use their individual !. . judgement and to exercise their individual powers ' f over others. Furthermore, the consequences of their ~L-~i 'I The Task Forc~ sugqests that Psychological tests do actions can be, ~t times costly to self, to other have a role in the selection and screening process 11, f for police personnel. people's lives an4/or their self respect, and to ....f'lr But they should ~ot be expected '1 to make personner decisions by themselves . society as a whole. Psycholo- d I gical assessments, in combination with sensitive I t : Itr I J . I It is, therefore, important that police personnel I IT; interview procedures by competent police officers, develop an d use a selectJ.·on process that would ! can decrease the number of errors that are possible Li~ facilitate the selection of individuals, regardless with less objective methods - for example, the ability "to smell a good cop". of their race, colour, ethnic background, religion v nr- I itl I or sex who can do the job of policing a multicultural u. J and pluralistic society with sensitivity, integrity tI We see the USe of a monitoring mechanism, which reviews 1 ! I'r 11 all instances in which there is a discrepancy in and fairness. U.L ,,. judgement between the police interview evaluation and i I the Psychological assessment, as a progressive step. The role and place of psychological assessments in the HJ 1.1 selection of police officers are discussed at great This procedure not only strengthens the police III length in this Report. The expectations and limita ~ r '. interview process, but also strengthens the relevance I r !I i 11 of the assessment by the psychologists. tions of psychological tests, particularly the I mad~ implications for minority groups are also addressed. We suggest that psychological assessment should npt (I In brief, the Task Force sees the face-to-face interview conducted by police 1 b' be viewed as the cure-all for the problems that per sonne as eJ.ng very critical, particularly for the selection of individuals are associated with sel€~ting the best suitable II persons for the job of policing. Rather, psychologi- from ethnic minorities. Individuals, in most situations, tend to select those persons who are like them in cal assessments should be seen as supplementary to 1j attitudes, beliefs l values and physical appearance. the information that personnel officers obtain on i , i Police personnel are no different in this respect. their applicants, including the intensive face-to , U I face interview all police forces conduct. ~ The assignment of qualified personnel to the selection U ! unit is the key to, and perhaps the corner stone of, We emphasize that psychological assessment, if done, I the selection process. Every effort must, therefbre, should not be used as a substitute for the other be made to upgrade the skills of those individuals who U are invOlved in the interview. selection tools. We also stress ~hat to use psycholo Since the final decision must rest gical tests as the only screening techniques may with the police officers themselves, rather than with f I the psychologist, efforts must be made to discriminate, unjustifiably, against many individuals, ·N~ I j
)'- UI ., , U . ; ) # II 1 0f I i .{ .1 r 18 Hi I: I 19 nL, j~I: increase the status and professionalism of the I' 1 \ members of the police force. Moreover, because personnel (particularlY their objectivity) and their ! I, multicultural program~ are viewed as 'special programs' 1 i I! i 1 . interview procedure and techniques. 1 f to be given at 'spe.pific times', there is the tendency for police officers to regard these programs In discussing the training and higher education for as unnecessary thus developing psychological barriers police officers, the Task Force focused on those to them. aspects which dealt with the human dimension in polici.ng. While we recognize th~ need for training Unless police officers, at all levels, recognize that in proced.ures and technical skills, we suggest that the knowledge and understanding which are derived from too much emphasis on these aspects is likely to these programs are as essential to policing a multi I , i obscure the fundamental concern for relating to I cultural society as knowing how to use a firearm, I.. t people. At the present time, the broader educational policing in Ontario is bound to be fraught with needs of police officers ~re disproportionately met, unresolved police-community conflicts and difficulties. compared to needs associated with the traditional One cannot stop a person from being prejudiced by role of the police officer. i 1 edict, nor can one legi.slate change in people's I! attitudes. However, through the educational process We emphasize, in this Report, the need to increase individuals can be made more aware of, and sensitized !• rI the professionalism of police officers, rather than ! : to the myths that are usually associated with stereo
the upgrading of their level of education pe~ ~e, types and attitudes towards people who are different although we do not wish to diminish the importance from the majority. of higher education for police officers. We regard i the professionalism of police personnel a~ vital to Canada is rapidly becoming a multicultural society II I and a thorough understanding of such a society must the policing of a modern and multi-cultural society I J] I since police professionalism could help close the gap become a major objective of ~he police services, and between the police and the community they serve. it also of all sectors of the community they serve. What the police expect from the community should not be .We regard the introduction of a multicultural program U Ii.. regarded as of lesser importance than what the commun- into the training of police officers as an important ity expects from the police. Without this crucial step -in the fostering of professionalism in policing. f I twinning of expectations the task of policing will be There is the danger, however, of seeing this develop made much more difficult and the possibility of any I ment as the solution to the conflicts between the Ii individual living in a safe society with freedom and police and the community. An added danger is that dignity would, indeed, be remote. community officers may be expected, by themselves, to U carry the full burden of beirig sensitive and responsive Among the several recommendations which w~ make, we
to the needs of the ethnic minority communities for all I recommend that police forces should continue to develop, I I i U I J ,-, ,~ u .' ------. __ ._.- - - ~---- I. t ...... , f . ~ , • i 21 .J..
20 , ! I ~'"' 1 : ); ." on the promotion and career development of minority
II t, officers pe~ ~e, since we feel that the employment at the local level, multicultural programs and I conditions which lead to a satisfying career for act~vities that are aimed at opening the lines of minority officers would also have significant communication between the police officers and their P1 implications for all police officers. community in order to bring about understanding and f f . harmony. We strongly urge that multiculturalism ~ In general, we were concerned with the emphasis should be the concern of all officers and not only 11 I which is placed on starting 'on the beat' and work that of community officers or those associated with Ii I ing one's way through, the ranks in a linear fashion. specific programs. We also stress that members of This hierarchical police management system, with the Boards and Councils should themselves know and Ll emphasis on rank, presents limitations for minor.ity understand their communities and be aware of the officers who would be, by and large, recent arrivals multicultural issues within their communities. U to many police forces. In like manner, the limita- !(! ! tions in promotion and carep.r development also exist The same level of professionalism which we expect , ~I [f [I for many outstanding officers. We would not like to from our police forces is also essential for those '-1. i! , I i1 , see police officers with ten or twelve years experience, who govern and set policies for police officers. , at a point in their career where promotion looms high For changes to be effective, all levels of the police [l on the horizon, think that they need not enforce the community must be involved, and positive attitudes law in order to 'avoid the hassle' which they believe towards the multicultural society should pervade [j would decrease their c~ances for promotion. throughout. Members of the governing bodies of police,£orces in Ontario must be exemplary role models !I The Task Force is of the opinion that these linear for their officers in their speebri, in their limitations to promotion and career development, in behaviours, and in their attitudes. They mus~,\be I! part, contribute to low job satisfaction, low morale, sens i ti ve to and understand the communi ties th'e..~,I \\ high levels of f~ustration and poorer service to the se.rve. They must be willing to accept, and eveh [1 public. We suggest that it would be both desirable initiate, changes that are necessary to bring about ,I and necessary for police forces, with the decreasing harmony between the police and the community. To do opportunities for promotion, to develop career models less would be an abrogation of their responsibility U -for their officers with the objective of identifying to their office. and recognizing the competencies and strengths of j P individual officers in order to make more effective use In discussing promotion and career development of of their talents and skills. police officers, the Task Force was primarily U concerned with their competencies, skills, and the Ontario is a pluralistic society which has been greatly opportunities that are available f~r them to put these I i enriched by its people from diverse cultural backgrounds. talents to effective, use" in their role and function u as police officers. W~ do not focus specifically U.. '" Ij " u ------~------,'
( , 11 I i i 22 Jd ' 23
\ j,I We applaud those communities that have tried to reach r all channels possible, in addition to the police, out and be helpful to newcomers. Our concern in the which make racism an undesirable way to express ~T~ ! Task Force lies in the relationships between the .. aggressive bias, contribute to a better society in multicultural communities and their perceptions of which we can all live in harmony. Scape-goating of ]f police or of the community does little to raise the I the police., Many of them, without any personal ~l.. experience with the police, have developed a sense level of unde~standing. rr of anxiety and fear which have been generated 1.L . 1 sometimes by a lack of,information, sometimes by a The Task Force has the impression that, in their carry-over of experiences with police in other J[ zealous search for news, the media have, in some instances, tended to heighten the racial problems countries c and sometimes by the negitive effect that the media have had on them. and tensions which have occurred. What citizens hear, ~f.. read and see about police in the news media is as Police cannot operate effectively by themselves. It important as the perceptions they form from direct it ",,&.0. contact. This is particularly true if we consider is an understanding community, appreciating the needs HI I of each other, which makes it possible for police to I that a majority of citizens in a given community react positively in new directions. People's nL seldom have direct contact with a police officer, but almost daily are exposed to news accounts and perceptLon and expectations of the police vary. n Those in the middle and upper socio-economic strata interpretations of police activities. HI",. .. ! tend to look favourably on the police as the protectors of their rights and property, while those in lower Ii As self-appointed arbiters of the conscience of the I- }~ socio-economic groups are more likely to fear the public, the media have an important role to play in fostering and promoting better police-community police. lP J relations as an on-going service to the public.
Minority groups do not necessarily fall into one 1 To examine the role and functions of the police only socio-economic group or the other. Their fears and U when conflicts with the community arise tends to be anxieties can be, a~d have been, in some instances more harmful than beneficial, since the emphasis ! seems to be on conflict and disorder to the neglect generated by hostile verbal and physical abuses. Fear n ! I for their own safety, and their children's, can of positive 'news. This approach gives the impression, /I escalate far beyond social and economic class/~ttitudes. howeve~ misleading, that the media are interested [J II' I Negative stereotypes expressed in the printed word, in , .. in problems rather than solutions, in negative . . photographs, or in television images can be sources of rather than in positive images of the police. fear, pain and discomfort. u In summary, the Report focuses on the police in Ontario. The attitudinal changes in the community through the u Section V which is the core of the Report, deals with people themselves, through the school system, through n the perceptions and expectations of the police in the
;< iT I ~ j ~ ------.r
iJ \ . ! .:)"1.· ....1'.' 25 1 24 !1 I
• I r Eighties; the Ontario Police Commission; the r III. RECOM~ENDATIONS police forces in Ontario; Boards of Commissioners of Police and Municipal Councils; other agencies; iT THE ONTARIO POLICE COMMISSION (pages 42 - 43) recruitment practices, selection procedures; training and higher education; promotion and pu 1. The ~ole 06 the Onta~o Pol~~e Comm~~~~on be career development and ancillary services. In ~e~ogn~zed and ~t~engthened ~o that ~t ~an Section VI, the Task Force addresses very briefly play a ~t~ateg~~ pa~til1, ~a~~~ng the le.vel 1 issues which relate to the communities of Ontario, P 06 p~06e~~~onal~~m a~.: all leveL6 06 pol~~~ng., including the media. The twenty-six recommendati6ns I11 ' are intended, if implemented, to improve the , I 2. lt~ p~e~ent name be ev~Luated ~n te~m~ 06 the relationship between the police and the community ~on6u~~on ~n people~' m~n.d~ w~th othe~ lo~al ~omm~~~~o n~ . they serve, and will have significant implications I!.. ",",* for the ethnic minorities in Ontario. , I II I 3. The 6un~t~on~ 06 the Comm~~~~on ~hould be ~lea~ly de6~ned a~ a bu66e~ body U to adv~~e the Sol~~~to~ Gene~al e6 the P~ov~n~e on matte~~ ~elat~ng to the pol~~e.
'i < J lj 4. The Onta~~o Pol~~e Comm~~~~on be g~anted III 6und~ng to enable ~t to ~n~t~ate and ~ondu~t 11 ~e~ea~~h ~nto pol~~e ~y~tem~, mak~ng u~e 06 n II U expe~t~~e ~n a~e~ ~u~h a~ mult~~ultu~al~~m. j I f t RECRUITMENT PRACTICES (pages 53 - 62) U , \ : i 5. Pol~~e 60~ce~ (~hould) develop po~~t~ve ~e~~u~tme,nt p~og~am~ wh~~h a~e a~med at I. ~» _Ji ~ea~h~ng qual~6ied ~nd~v~dual~ 6~om m~no~~ty
g~oup~ . 1f , .~ , ~ 6. Pol~~e 60~ce~ be encou~aged to u~ e ~ec~u~tment fJ b~o~hu~e~ wh~ch po~~~ay po~~t~ve ~mage~ 06 a 6 6~~e~~ 6~om mino~ty g~oup~ who ~an .6 e~ve U a~ ~ole model4. U ~ U . u ~n t t ------~- --~------.r
. i i I' 1~I· 26 .~,.J I ~ 27 , , j I ( f [ j J;i 7. Police 60~ee~ ~hould unde~take, ~n eoope~at~on TRAINING AND HIGHER EDUCATION (pages 76 - 100) . { w'{,th media, a publ~e~ty p~og~am wh~eh ~~ a~med i 12. The 6undamental t~a~n~nB, 06 pol~ee 066~ee~~ II t at h,[ghligh,t~ng human inte~e~t ~to~~e~, ~n r" be eont~nued to be 066e~ed in a eent~al~zed pa~tieula~, ~ueee~~ ~to~e~ 06 mino~ty ,; ,i t~a~n~ng ~n~titut~on, ~ueh a~ the Onta~o T 066iee~~ who a~e now ~n the pol~ee 60~ee~. IJ Pol~ee College.
" ,I I I ! 8. The Onta~~o Police Comm~~~~on ~hould ~t~mulate I t ; 1 i .\ 13. The Onta~o Pol~ee Commi~~ion eont~nue to and 6ae~litate the ~ee~uitment p~og~am~ 06 , ~upe~vi~e, and be ~e~pon~~ble 60~, all t~alvning pol~ee 60~ee~ ae~o~~ the P~ov~nee. Speei6~ i I I p~og~am~ 066e~ed at the Onta~io Police College. I1 cally, ~t ~hould monito~ the e66eet~ 06 the p~og~am~ 06 ind~v~dual pol~ee 60~ee~ in U 14. The Onta~~o Pol~ee Comm~~~ion, th~ough ~t~ att~aet~ng quali6~ed ~nd~v~dual~ 6~om m~no~ity i Advi~o~y Comm~ttee 06 the College, en~u~e that I g~oup~ . [I i the t~aining that pol~ee 06niee~~ ~eee~ve at the Pol~ee College continue to be ~e~pon~~ve III SELECTION PROCEDURES (pages 63 - 75) ,\ to, and eon~i~tentwith, the ehang~ng need~ 06 IIIF 1 ~oeiety. 9. Police 60~ee~, whe~e po~~~ble, ~hould ~nelude . i I ~ ome 60~m a 6 p~ yeholog~eal a~~ e~~ment~ ~n the~~ iji I' n 15. The multieultu~al eou~~e~ being 066e~ed at the Ll. I "'" ~eleet~on p~oeedu~e~. The~e a~~e~~ment~, when I Ij Pol~ce College be ~nteg~ated mo~e nully in the done , mu~t be~ e.d ~n eomb~nat~on w~th all the' 11 ~ f " en.t~~e tJta~n-<,ng pJto gJtam 06 police a 6 6iee~ . 1 I' IJ othe~ ~n60~mat~on obta~ned by pol~ee 60~ee~, I P FuJtthe~, that the~e mult~eultu~al eouJt~e~ oe and not a~ the only ~e~eening dev~ee. made Jteleuant to the OntaJt~o mult~eultu~al 1*;l~ U ~oe~ety with paJtt~eulaJt empha~~~ on need~ 06 10. Pol~ee 60Jtee~ a.Jte eneou~aged to appo~nt competent local po~ee 6oJtee~. and ~en~~t~ve pe~onnel to the ~eleetion un~t. U .n... In add~t~on, eveJty e660Jtt ~hould be made to 1 ! 16. All ~n~t~uetoJt~, paJttieula~ly tho~e involved upgJtade thei~ ~nte~v~ew ~k~ll~ and teehn~que~. U i ~n mult~eultuJtal~~m eou~~e~, ~hould be eaJte6ully , , ~eleeted on the ba~~~ 06 theiJt ~en~it~v~ty and 11. The Onta.Jt~o Pol~ee Comm~~~~on ~hould~tudy what fI \ J ! awaJtene~~ 06 ~~~ue~ Jtelated to mult~eultuJtal~~m. the 6unetion~ 06 police 066leeJt~ 60Jt the IJ , E.i;ghtie~ a~e, ~n o~deJt to p~o v~de guidel~ne~ \ J { 17. Pol~ee 60~ee~ ~hould eont~nue to develop, at 60Jt app~op~~ate 4eleet~on teehn~que~ 60Jt pol~ee' 1 I the local level, mult~eultu~al p~og~am~ and
6oJtee.~ . f I l I aet~v~tie~ that a~e,a~med at opening the l~ne~ Ii, 06 eommunieat~on between the police 066iee~ i and th~~~ eornmun~ty in o,~de~ to b~ing about PJi u unde~tanding and ha.~mony. Mult~eultu~ali~m ?' U " !i~
I"~ i ; .\ j , i· ------~ ------;..,,-, ----
28 If. l. 29
~houtd be the conce~n on att onn~ce~~ and not H ':>'~' 24. Pol~ce 60~ce~ ~houtd ~eek ~nnova.t~ve way~ to onty that on commun~ty Onn~ceM o~ tho~e ,II }, ~nc~ea~e the job ~at~~nact~on 06 pot~ce a~~oc~ated w~th the p~og~am. nI on6~ce~~ othe~ than th~ough the t~ad~t~ona.l ve~t~cal ~oute~. 18. Pot~ce no~ce~ ~houtd cont~nue to encou~age U the~~ onn~ce~~ to upg~ad~ the~~ educat~onat \ I 25. Whe~e po~~~ble, pot~ce no~ce~ ~houtd appo~nt po~t-~econda~y ~n~t~tut~on. i ! tevet at any : t H a ca~ee~ dev~topment onn~ce~ (O~ comm~ttee) who
, j r can coun~et ~nd~v~dual on6lce~~ and nac~t~tate 19. The Onta~~o Pot~ce Comm~~~~on ~houtd conduct " I 1 \ 1 them ~n the ptann~ng on the~~ ca~ee~ devetopment. a ~em~na~ once each yea~ nO~ Boa~d~ and Counc~t~ if , , to d~~cu~~ mutt~cuttu~at ~~~ue~. It ~hou~d at~o ,! ( J : : ; 26. The Onta~~o Pot~c.e Comm~~~~on be p~ov~ded w~th encou~age the nlow 0 n commun~cat~on betwee.n ~t li 6und~ng to a~~~~t ~n the pta.nn~ng and develop and the Boa~d~ .. , ',Iii, ment on ca~ee~ mode~. n ,j .~ 20. Pot~ce no~ce~ ~houtd ~t~~ve nO~ a max~mum on !t· '.1\, ! nOu~ yea~~, and encou~age a tu~n-ove~ On te~~ U f '. > than nou~ yea.~~ whe~e n ea~~bte. ~n the~~ ~en~e~ he~ I (I , I t~a~n~ng p~og~am~. T~a~n~ng oppo~tun~t~e~ f !~ \ ~ . .1 .:.....1.< ~hould be t~nked w~th the ca~ee~ development , 1 on Onn~ceM. !J
PROMOTION AND CARE~R DEVELOPMENT (pages 101 - 109) J f 21. Pol~ce no~ce~be encou~aged to develop ca~ee~ development model~ w~th the a~~~~tance on the U Onta~~o Pol~ce Comm~~~ion. r j 22. Pol~ce nO~c.e~ ~hould take ~nto con~~de.~a.t~on nO~ p~omot~on andca~ee~ development, ~n~t~at~ve~ taken by ind~v~dual onn~ce~~ to 1'1 upg~ade the~~ educat~on and the~~ ~nvotvement r; ~n community act~v~t~e~. i
23. V~~c~~m~nato~y and un6~you~able behaviou~ by II a.n 0 66~ce~ towa~d.ind~;;'iduat~ ~n the community » . ~hould be a d~~1fncentive nO~ p~omot~on. . 1Ju
,~ U .
1f, '1. '7"1': 30 J11
IV. INTRODUCTION
'--'
In our Canadian democracy, the state is considered as the servant of the people. We recognize that a very clearly defined difference exists between a 'police state' and a 'policed state'. A 'police state' is the situation which pervades when the state is the servant af a few. In contrast, our acceptance in Canada of a 'policed state' implies that the state is the servant of the majority of people whose wishes it carried out. This is a very subtle and far-reaching distinction which has broad implications. It implies that the citizen is more important than the state, and provides that a majority of discontented citizens can, by peaceful and legal means, bring about change in government that is not adequately striving for the things that " concern them.
Laws in their embryonic stages in a democracy such as ours are spontaneous and undergo changes as
, . society evolves, independent of any dominant will. !I Our perception of law and order is clear. We accept the assumption that laws should be administered as they stand. Revisons, if they are to be made,
~ f should be done by proper means, that is by appropriate " ..... \ legislative bodies, and not by personal whim or I individual interpretation by anyone. Law, in a sense, , : ! establishes and upholds democracy, and order guarantees I and makes certain that the law is respected, and that all segments of society live peacefully within the , . IJ constituted framework . :, " ,l~"..... U
f'l ------~~-
31 u 32 u n Our personal freedom is very dearly cherished, and ~elevision, satellites and air transportation have it is only by respecting and upholding the law that u II broken the barriers of isolation and the remotest personal freedom is possible. It is important to villages can be in touch with current thoughts, realize that when any person reaches Canadian soil, crises, technological developments and world events J and becomes a citizen like all those natively born, I almost instantly. or who precede~ him or her in immigration, that he or she inherits all the rights and privileges of !1 Table 1 indicates the racial/ethnic origin of people freedom, including the responsibility to respect j in Ontario. * Table 2 shows the pattern of immigration and uphold the law. ! I to Ontario. A combination of Tables 1 and 2 provides us with evidence which demonstrates dramatically the
The police are charged with performing the functions multicultural heritage of Ont~rio, the rapid rate of of enforcing the law and maintaining order on the change in the racial/ethnic mix, and the shifts in street. All eyes are upon them, including the population in large cities, and to a lesser extent sometimes exaggerated and selectively discriminating in smaller communities. eyes of the media in search of news. In a sens~, police function at the cutting edge of where The great majority of people, who come to live in Ontario, democracy touches the rapidly changing pluralistic are law-abiding and respectors of law and order. It is society it serves. The police are an integral part u erroneous to think that every ripple of immigration must of that society and not a separate entity. They of necessity create crises. Most minority groups, are not immune to the changes of society and are u u whether they w.ere religious, racial or ethnic, through susceptible to the same stresses and strains of a Canada's long history of immigration, have become an continually changing world as all other persons in u u integral part of our society over a period of time. it. The rapid growth of technology has shif~ed It is only the exceptions who do not understand or police from the familiar constable on the corner in u respect the law. Innovative means must be found to a neighbourhood setting, to an officer in a highly communicate and help all people to understand the law sophisticated motile steel vehi.cle which, on the one u and the role of police in our society. Police, on the hand, is a computer terminal which links him instantly 11 other hand, should recognize that most of their experience to his headquarters and, on the other hand, has a with minorities is crisis-oriented, which can distort tendency to separate him physically and psychologic o r 1 their overall impression. ally from the people on the street. u 11 Because of the visibility of police, too often there Ontario is shifting from a collection of predominantly is a tendency for people in the community to expect homogeneous rural isolated villages and towns to a Ll II the police to be in the vanguard of social change. highly industrialized, urban, sophisticated society. What seems to be overlooked is that police are only II U , * Based on 1971, 1976, 1978 and 1979 census. 11l'J o
; ! n, U U;, ;J ------~~------
33 , TABLE 1
1 ) RACIAL/ETHNIC ORIGINS OF THE PEOPLE OF ONTARIO ,
CURRENT GROWTH RATE: 10% per decade 11 Population, June 1, 1979 .•...••...... 8,506,000 % Canadian total ...... •...... •...••...... 35.92 % Change, 1976-1979 .••.....•.•••..•...... +2.92 Il POPULATION u 1978 Estimates % 1976 Census % OOO's Total OOO's Total Total 8,444.9 100.0 8,264.4 100.0 u Urban n. a. n.a. 6,708.5 81.2 Ru:::;al n.a. n.a. 1,555.9 18.8 Male 4,177.1 49.5 4,096.8 49.6 Female 4,267.9 50.5 4,167.6 50.4
MOTHER TONGUE
1976 % Census Total English 6,457,645 78.1 French 462,070 .5.6 Chinese & Japanese 57,440 0.7 11. Croatian & Serbian 57,490 0.7 German 154,625 .1.9 Greek 48,205 0.6 II Italian 309,810 3.7 Native Indian 21,215 0.3 Netherlandic & French 66,330 0.8 ! I j i Polish 57,050 0.7 Portugese 88,495 1.1 Ukranian 76,035 0.9 II \ RACIAL ORIGIN
(major ethnic groups-OOO's) 1971 % f I Census !S?.!:,~ 4,576 59.4 1 British t French 737 9.6 I German 475 6.2 Greek 67 0.9 Hungarian 66 0.9 [I Italian 463 6.0 . \ Jewish 135 1.8 [-'I Native Indian 63 0.8 .. .1 I Netherlands 207 2.7 Polish 144 1.9 Scandinavian 60 0.8 fJ Ukranian 160 2.1 ,. Other 550 7.1 !! - ----;0-
,
I L_.J
Im,!,i~!ants by Country of Last Permanent Residence and By Area of Destination, Ontario, 1977 Germany Fed. IIollg I'akis- Philip- Portu- Tan- Trin. United United Yugos- Area of Destination Rep. of Greece Guyana Kong India Italy Jamaica tan pines gal zania & Tob. Kingdom States lavia ---- OntarJo 955 1,016 2,059 2,881 2,406 1,947 5,257 1,010 2,957 2,344 322 1,100 9,901 5,063 1,030
Ilrantford 3 1 1 4 35 8 3 1 7 10 69 23 1 Cambri.rlge 6 7 28 3 6 17 1 92 1 143 27 7 Guelph ]0 3 22 24 20 17 16 5 15 4 115 41 16 lIamilton 55 24 43 61 105 113 82 23 66 109 1 24 408 120 141 Kingston 0 11 13 13 8 9 8 2 22 34 2, 53 34 1 Kitchener 73 12 46 8 24 4 43 5 2 50 1 10 144 64 52 London 20 39 32 84 24 20 40 4 29 OJ 4 12 300 149 39 Niagara Falls ,3 0 11 1 25 2 19 1 1 3 55 64 19 w Oshawa 10 6 16 25 18 11 OJ 1 11 0 2 11 95 01 13 Ottawa 51 31 03 156 113 70 179 44 65 59 12 37 566 101 11 "'" Peterborough 2 3 1 0 1 1 2 35 14 st. Cat:harines 14 12 1 10 5 10 7 1 10 24 19 526 90 0 Sarnia 4 5 1 16 9 13 6 6 0 20 1 4 150 91 12 Sault Ste. Harie 5 2 17 0 1 1 15 .:. 16 52 2 Sudbury 11 2 7 13 17 0 6 5 6 22 40 6 Thunder Bay 12 5 3 19 10 31 4 1 13 7 ;! 37 62 13 Toronto 419 739 1,661 2,165 1,611 1,202 4,071 808 2,266 1,456 285 074 4,700 2,007 520 Windsor 24 36 15 48 40 97 20 16 97 5 3 6 237 247 07 .. , Other 228 70 112 222 340 104 656 01 310 350 12 91 2,334 1,596 90
Source: Employment and Immlgration Canada, Immigratlon Statistics. , Ii ~ tl:l t-l tIj
N
\ \ _1r I i. '.,...... ,.'., .. ~~;~~::,::;:=-_.. ~=.;::::c:.:=~~P."::r'O.7'~;;:;t-:::7·.··\~·: ~"'":'.'!"' .•
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35 I I l J 00 36 I ! i 00 every sector of society. one segment of the society they serve. In order for Indeed, one is not possible us to have a more harmonious society, all segments of II ~ without the other. Strong community ties and the public must recognize the part which they must understanding provide the base for all positive police play. Police officers cannot change the total society. II 0 practices and procedures. The reduction of racial/ethnic tensions will require the assistance and support of the total community. U U A study such as this must be perceived and understood Too often, police officers suffer the same pains and within the context of the times in which it is written. anguish of minority groups, are sterotyped, are u Recently, racial tensions have erupted in Toronto and pre-judged and are deprecated and harassed. Police 0 more dramatically in places abroad. The repercussions are human beings, as are all members of society. from other parts of the world are felt in Ontario (J , , Inside out, all feel pain, react to verbal and n particularly in the larger cities. Despite histories physical abuse, dislike indignities, and all want " of entirely different causal sequences, minorities in to be treated fairly and justly. All of us will Ii Ontario feel the impact of race . u r~ots wherever they have to learn more about each other despite our occur. We cannot underestimate the importance of personal biases. A mature, civilized and democratic [] 11 such events, and must treat racial/ethnic tensions which society must strive daily to learn how to treat all arise in our OWn society w~th- . a sense of urgency. its members respectfully and work towards reducing Hostile attitudes, fears and anx;et;es _ [] L1 - -'- racist and man's inhumanity to his fellow man. otherwise - can be triggered an d escalated by unstable II U economic conditions, unemployment, particularly for Police can play an important part in raising the level young people, and 'hyperactive' media. As we enter the of consciousness and awareness of justice for all Eighties, all these problems are already upon us. pe~ple, regardless of social strata, religious belief, II U Ontario is not immune - we have our own fragilities skin colour, sexual identification, or historical and vulnerabilities. suffering or displacement. The visibility of police U [J makes them models of behaviour, good and bad, for all others to emulate. This is a unique responsibility for [] I) police which they cannot ignore. (] I' j Morality and prejudicial attitudes cannot be legislated. r I Any move towards stricter legislation runs the risk I J of merely placing on the books a set of tougher laws, [I impossible to implement, witn an enormous potential for individual interpretation and further abuse. Effective [1 U law enforcement ahd peace-keeping depend not only on the respect and confidence of the public, but on a close, [I -" 0 . , direct and continuous communication between the police and .. ,J" ~- ['1 ~. - D ", ~n 1"1 . ,j ,1'1 I i '1J : ' ,/--
37 11
38
v. THE POLICE IN ONTARIO U U 6. The police should use physical force to the extent The principles enunciated in 1829, by Sir Robert Peel, necessary to secure observance of the law or to are as relevant today as they were over a century ago: lJ restore order only when the exercise of persuasion, advice and warning is found to be insufficient 1. The basic mission for which the police exist is U to achieve police objectives; and police should J to prevent crime and disorder as an alternative to t\ J use only the minimum deg~ee of physical force the repression of crime and disorder by military U which is necessary on any particular occasion for force and severity of legal punishment. d. I achieving a police objective. U i 1 2. The ability of the police to perform their duties . 7. The police at all times should maintain a is dependent upon public approval of police n relationship with the public that gives reality existence, actions, behaviour, and the ability of I I to the historic tradition that the police are I the police to secure and maintain public respect. I.J the public and that the public are the police; 0 the police are the only members of the public who 3. The police must secure the willing cooperation of n are paid to give full-time attention to duties the public in voluntary observance of the law to 0 which are incumbent on every citizen in the interest be able to secure and maintain public respect. U of the community welfare. fl 4. The degree of cooperation of the public that can t~] 8. The police should always direct their actions be secured diminishes, proportionately, the necessity U toward their functions and never appear to uSurp for the use of physical force and compulsion in the powers of the judiciary by avenging individuals achieving police objectives. U or the state, or authoritatively judging guilt U or punishing the guilty. 5. The police seek and preserve public favour, not by U [] catering to public opini6n, but by constantly 9. The test of police efficiency is the ab~ence demonstrating absolutely impartial service to the B of crime and disorder, not the visible evidence law, in complete independence of policy, and without [J of police action in dealing with them. rega~~ to the justice or injustice of the substance I",,:) [J of individual laws;., by ready offering of individual rl service ~nd friendsh~p to all members of the society nu without regard to their race or social standing by I"~I ready exercise of courtesy and friendly good humour; [] and by ready offering of individual sacrifice in [.1 ~'l protecting and preserving life. t'l I ,,t'i j ).~ fJ
1·1 I' .... , , I ! n I . II I- I .. rt't;, t1j 40 39 I! U' U n V. 1. PERCEPTIONS AND EXPECTATIONS IN THE 1980's failed to take into consideration the relationship of {] ~J such services to more serious crime. Domestic distur- Each person has a different impression of the nature bances can culminate in a serious assault or homicide, of the police function, based upon his or her personal U U so that viewing police responsibilities as 80% or 90%, experiences and contacts with police officers. or any other percentage for that matter, as social Perceptions of the police range all the way from a \ 'I service in character can distort the unique role which group that is highly admired and respected, to a group U police perform. Precipitously, the social work aspects that is subjected to brutal criticism and scapegoating. of policing can switch to responsibilities for which Our mandate is concerned with those areas where minority U I! only the police have the legal right to perform. It
groups are particularly affected by all police functions. ) might be desirable for agencies, other than the police, > i U [ to develop services that, on the surface, seemi~gly Within a community the police are expected to perform bear no relationship to criminal or potentially criminal a variety of tasks, such as - 0 : I J situations. The fact that such agencies do not exist · dealing with human conflicts ranging from large at the present time suggests that the police are likely scale rioting to family disputes; 0 II J to remain for some time as the only twenty-four hour-a · responding to physical and verbal assaults; day, seven day-a-week agency spread over communities · enforcing regulations which range from traffic to large and small.
[1 U " municipal by-laws to tracing the most recent i complex frauds and thefts committed through, All of these comments about the fUnctions of the police computer intervention; U U pertain to serving police in every community, and since providing emergency services because of their some situations have arisen with racial and ethnic twenty-four hour availability; u n implications, the police are now expected to play an carrying our prevention programs which range from even more extensive role to defuse and eradicate such promoting safe driving and preventing accidents u n tensions. We must recognize the broad range of ex- to initiating prograrus to reduce racial tensions, pectations of pblice and the ~mpossibility of any particularly in larger cities; u n profession carrying out all of these responsibilities • preserving the r~ght of free speech, even when to the satisfaction of a demanding and increasingly the speech is intehsely antagonistic, and likely 0 n outspoken society. In his chapter on the role of police to incite con~lict; in today's society, Louis Radalet has clearly indicated . distinguishing between legal and illegal group the growing complexity of this subject and the broad behaviour and balancing the value of free expression [j n range of opinion about it (The Pol~ce and ~he Commun~~YI against the risk of public disorder. 1980). In 1974, The Ta~k Fo~ce on Pol~c~ng ~n On~a~~o 11 U recognized this problem and made the following It is of interest to note that police officers spend a recommendations: high percentage of their time dealing with domestic , , U U Objectives within each police force be defined disputes. Proposals to relieve the police of what are in terms of that community's requirements for .'r~:. essentially social services, or to view police as crime control i protection of life and property, IJ -, II 1- n and maintenance of peace and order. predominantly social workersj have too often I The reality of police judgement in the application ; \ ijn,1/ ------.
~"'. 42 41 IJ 4j ~ [1 V.2. THE ONTARIO POLICE COMMISSION
of law be squarely faced in each police force, and that deliberate and continuing n The Ontario Police Commission was established in 1962 steps be taken to ensure that each police U officer has the ability to exercise his by the Legislature, following recommendations contained judgement so as to support the objectives !j in the Repo~t. The Ontario Police Commission and priorities of the force. U Roach was meant to act as a buffer between the Minister and Ll all law enforcement agencies in the Province. Although this broad topic is beyond the mandate of U It I ' our Task Force, we clearly recognize that there is no does not have direct responsibility for direct H authority over municipal police forces, but maintains single formula that can apply everywhere. Communities, U an advisory function by which it attemps to lead even neighbourhoods within communities, diff~~ in their i ; police administration rather than direct it. The cultural, ethnic, racial, socio-economic, educational, U Commission works through seven advisors who are assigned occupational and demographic features. The rate of to districts throughout the Province. The Commission change within and among communities can vary. If the II is responsible for the administration and operation of police are to serve their communities well, they will U the Ontario Police College. The College provides have to develop services for their particular communit- U police training from the recruit stages upwards and, ies. In other words, the order of priorities, among U since its inception, has trained thousands of police the job to be performed by police, will have to be U officers. A recently revitalized advisory committee on developed with sensitivity, flexibility and relevance. U police training in Ontario is an important adjunct of The Ontario Poli~e Commission should be encouraged to U the Ontario Police Commission. study the problem, in its broad aspects, so that it !I' can assist municipal police forces in working out their The Ontario Police Commission, as an instrument to own priorities. n U reach all the police forces in Ontario, is not fully understood and appreciated by some sectors of the Even if we were able to train and educate a limitless n police system and the public at large. The Commission, number of police officers to carry out all these func fJ because of. its strategic position, has an opportun~ty tions, the economic restrictions introduce a serious (1 to affect the greatest number of ~olice officers in note of reality. If the present number of police D Ontario at all stages of their development, in addition officers is expected by the public to carry out all the n to what goes on at the local level. The Commission can perceptions we have delineated, superficial approaches 0 assist in raising the level.of police professionalism to many serious problems are all that we can expect. throughout the Province, whereby no matter how small a New approaches to these policing problems may involve U D community, they can be kept aware of recent developments the increasing use of civilians with professional in policing, in clarifying priorities, and in making the expertise. [] jU police career more attractive to a broader spectrum of n Ontario is served by a broad range of police agencies fij people in Ontario. This should not be interpreted as a interrelated, and each performi~g special functions. U desire to make the Ontario Police Commission a substitute In this Report, we will attempt to focus upon those /". ' , ' . U aspects of their function which bear a relationship to II .' ethnic/racial minorities. '- Il n~; ?> r , r~ U 44 43 1.1 U n for the many positive steps which have been taken V. 3. THE POLICE FORCES IN ONTARIO* already by individual police forces in many of these areas. U fJ Ontario is served by 128 police forces** whose membership ranges from one to over five thousand and whose juris The Ta~k Fo~ce ~ecommend~ that: { [] ~ diction ranges fro~ municipal, to regional, to provincial. · The ~ole 06 the Onta~~o Pol~ce Comm~4~~on \1 The Task Force was impressed with the growing professional be ~ecogn~zed and 4t~engthened ~o that ~t U \ I ism among all the police; forces throughout the Province. can play a ~t~ateg~c pa~t ~n ~a~~~ng the This includes not only police forces in the large urban level 06 p~06e~~~onal~~m at all level~ 06 U ) t centres but also in many of the smaller police forces. pol~c~ng. The communities served by Ontario police forces range U from small isolated communities such as Red Rock to It~ p~e4ent name be evaluated ~n te~m4 06 the U large urban centres such as Metropolitan Toronto. The mix con6u~~on ~n people'4 m~nd~ w~th othe~ local of populations served varies from community to community
comm~~~~on~ . U U· throughout the ~rovince. We are not implying that the influx of new Canadians automatically brings crises; in r .} · The 6unct~on~ 06 the Comm~44~on 4hould be n fact, in most cases the newcomers become an integral clea~ly de6~ned a4 a bu66e~ body to adv~4e part of their community. However, in those communities the Sol~c~to~ Gene~al 06 the P~ov~nce on u U where the population mix is changing very rapidly, part matte~ ~elat~ng to the pol~ce. icularly in the larger urban centres, the process of tl U integration, along ~ith jusiifiable pride of identity with · The Onta~~o Pol~ce Comm~~~~on be g~anted one's particular racial/ethnic background, has in some 6und~ng to enable ~t to ~n~t~ate and conduct IJ instances caused tensions. ~e4ea~ch ~nto pol~ee ~y~tem4, mak~ng u~e 06 U expe~t~~e ~n a~ea4 4uch a~ mult~cultu~al~~m. The police forces in most of the smaller communities 1 { U give evidence that racial/ethnic tensions are not a
}.l problem in their community and not a pro~lem for them n d selves. In the larger communities, the police have be come in many instances the targets for tensions. Most of [J )I the large centres are in the process of developing programs to prepare their officers to cope with these U !j situations in a more effective way. The expectation I that the police officer, as a human being, can and ! '( should be significantly differont from the rest of lJ II , ~he population and totally free from prejudice is an
.fJ !L1 l * The work df the Royal Canadian Mounted Police is not within the mandate of the Task Fo~ce. [_j r J .' ", I!"' ". U ** Appendix C. ':1 " . ,. {J I IT].t,,! ------;:r-
45 11 f ~ 46 f, 1J t. unrealistic objective. What one should work" toward only police force in Ontario which has on its staff is helping all peop I e in the Province ra~se , the~r, , U J P a full-time psychOlogist for counselling and promotional level of awareness, understandingt and sens~t~v~ty d olice officers,in particular, purposes. For the purposes of this Report, Our attention to other people. An P T d ' n U should learn how to dis~ipline themselves an , ~n was particularly focused on the Native Indian population and their place in relationship to the Ontario Provincial the performance of the~r, duty, be fair to people /01 of all backgrounds. U Police. The Task Force was impressed with the Indian Band !] Constable program which was developed in 1975. There is reason to believe t h a t there are officers, H Interviews were conducted with Indian Band Constables. on some police forces who are ~ncomfortable w~th }i One, who was a non-Indian nominated by a tribal chief and antagonistic toward people who are different U ! l from themselves. This statement can also be made of and accepted by the reserve, seemed completely comfortable eople in the t otal society. Every effort must " j J in his job. In our enquiries to determine whether Y P 11 I I ; man , t d and actions special constables were locked into their Positions, be made, through the policies enunc~a e , , I we were satisfied that it is Possible to, and a few taken by the S enior officers in charge to make ~t U have already done so, move from special constable clear tath t beha"iour towards any Person , including ju minority or racial groups, which is abusive is unaccep - status into the regular ranks of the Ontario Provincial U Police. It is important to recognize that the members of able behaviour for a police officer. Appropriate, mecha- III the Ontario Provincial Police are trained along with nisms should be devised to mon~'t or such behav~our the members of the muniCipal police forces at the so that it is clearly un d ers tood that it is unacceptable. U U Ontario Police College, and this makes it possible for Abusive behav~our, by any ~n, dividual police officer all to appreciate each other as people, the jobs they reflects on the reputation and image of a police force U 1 1 do, and the communities they serve. Ontario Provincial as a whole. Thus, po l'ce~ forces, provincially and Police officers are totally integrated in the classroom locally, should recogn~ze, that offensive behaviour //1 U I with other officers and, in many instances, they are by individual police Officers is injurious to all seconded as instructors. This means that the programs of them. D P in human relations, where the changing society and the racial/ethnic components are discussed, are avail The Ontario Provincial Police, W~'th ~'t s 4,052 members,, U n able to all officers policing in Ontario. It is important is respons~'ble for. policing those areas of OntariO Th to recognize that the jobs and responsibilities of the not covered by mun~c~pa' , 1 police forces. e , which are , 1" s to prov~de [J Ontario Provincial Police do not over~ap those of police obJ'ective of the Ontar~o' Provinc~al Po ~ce ~ II officers in large metropolitan centres, unless called uniform and ~mpar' t'~a 1 law enforcement ~n, a 11 areas of upon for special assistance. The extent to which they the Province and to render aid and services, upon re fJ fJ are brought into close contact with social problems quest, to other law enforcement agencies. It is the U U varies accordingly.
, 11 oJ' .. [l ";
" U l U ------~--- ,/
48 47 1 I U n U There are growing indicati'ons of professionalism U V.4. BOARDS OF COMMISSIONERS OF POLICE AND MUNICIPAL COUNCILS which are beginning to show in police forces of Ontario, whether they be small or large. The I"J U attitudes towards racial/ethnic tensions varied .. \ It is our understanding that the concept of the with the size of the community served. In most U U Board of Commissioners of Police and the Municipal instances, the response to our questionnaire gave Council (hereinafter referred to as Boards and the impression that in smaller communities, ! j ~Councils) was designed to ensure that the police racial/ethnic concerns were not seen as special U are independent of direct political control - problems. Frequently, existing police procedures U provincial or local - and are free to carry out their were felt to be appropriate to handle the total U du-o.y without the possibility of improper interference. community. Police forces in large communities The rationale behind the structure and the selection have developed special services and, in some instances, U H of personnel for Boards and Councils, which keeps them squads and personnel to deal specifically with as non-political as possible, is highly desirable. ethnic/racial incidents. More specialized services [J U The unique relationship which exists between a Chief developed by police forces in the last year will be of Police and his governing authority is subtle and dealt with in other sections of the Report. U U may vary in different municipalities. The governing I authority should be sensitive to community problems lu and have a responsibility to dialogue at regular U intervals with the Chief of Police on those matters ["J u which would encourage the police forces to develop more positive programs to better cope with the communities they serve. It is also important to u n recognize that the same quality of professionalism that is expected from police officers should be u IJ expected from members of Boards and Councils. U U We cannot emphasize too strongly the responsibility carried by political leaders such as mayors, reeves H and all elected officials in every community. The U manner in which they respond to their electorate }J when problems arise in a,community has an important lJ impact on multicultural relations. The positive )j statements and actions of politicians can have a flJ salutary effect in reducing racial conflicts, and in U ,0 ." U f U ., U " I ftn n !<'tl ----~------~--
50 u ~ 49 U tJ V. 5. OTHER AGENCIES facilitating a better understanding among individuals 1.1 The Ontario Human Rights Commission administers and On the other hand, it is also {] in the community. enforces the Ontario Human Rights Code which prohibits possible for politicians, coupled with the media, to U discrimination in employment, housing and public exacerbate and escalate, unwittingly, racial tensions. U services and facilities because of race, creed, colour, U nationality, ancestry, place of origin, age, sex or lJ marital status. The Commission implements a program ) i which includes investigation and conciliation of , .. ~ 1] complaints and enforcement; mediation of social and i, ";I ~ \ ethnic frictions and consultations ~ith employers, U U unions, et cetera, with a view to reducing community " tensions arising from racial and ethnic adjustments; U public education in the provisions and principles of U the Code; and research in patterns of discrimination. U 1] Most recently, a Race Relations Commissioner has been n added to strengthen the function of the Commission in [J the area of race relations. Thus, at several strategic \] points, the Ontario Human Rights Commission has a u special responsibility to the public as it relates to police matters and the process of justice. In the 'j n I u opinion of the T~sk Force, the Ontario Human Rights Commission is an important commission and has a ·1 u significant monitoring, protective and public educa- u tional role to perform in Ont~r~Q. Its work has \ 1 particular importance in its relat,ionship to minority • I u \ bav~ i U groups. The role that they played in the fJ education of some of the police forces is referred to tJ in another section of the Report. () U U The Ministry of Culture and Recr~ation, through its U programs, is also making an important contri~~tion. U The Task Force noted that its booklet, Out~each 6o~ Unde~~tand~ng, is used at the Ontario Police College. n " U ,~" -. (] 0 [l "
"- "'1 / ~ r~",_,._._ _ ,~,,-«-";;;L
S2 51 II @
r~~- system is an important adjunct to all those positive 11 ~ The introduction, in some communities, of police attitudes which communities believe police can bring about. Teachers can have a stro~g effect upon officers into the classrooms where new Canadians fJt are learning to speak English, seems to present a U children, and it is the children in their early very natural situation for newcomers to Ontario to U years who are most vulnerable and susceptible to the meet and develop a positive' attitude about the police f1 imprint of negative stereotyping. on neutral territory rather than in a time of crisis. fl' U It is important that schools continue to work along Multicultural centres and committees are developing these lines. Important strides are being made in the throughout the Province. Their focus is to prepare B tJ school system to eradicate negative stereotyping in the te~ts used in the classrooms, and efforts are newcomers to ontario in the understanding of their • 1 ) I being made to develop mechanisms to bring to the communities and in helping to reduce misunderstand- l.; U attention of the principal and other appropriate bodies ings and tension because of lack of information. A . variety of agencies and committees have developed, u situations in which children are subjected to verbal which act as a liaison between specific or several n abuse with racial/ethnic implications. Several churches, groups and the police in their local community. religious institutions and voluntary organizations are n u also making efforts in this direction~ they should be The question of who represents whom is not of our encouraged to play their part in contributing to a better understanding of the .many dultures of which " particular concern. What is importa~t is whether u u such groups are able to build genuine bridges of their communities consist. understanding between themselves ,~nd the local police. n u And whether it is possible for the police to learn how to make the best use of those liaison arrangements n so that they too can gain a better understanding of n the minority groups in their communities. Such u relationships are important and every effort must be n made to assist the flow of dialogue in both directions so that polarization of problems can be avoided, and 0 lJ genuine cooperative efforts for the benefit of the communities can be made by all concerned. B fJ The schools, through their Boards of Education, carry U U on multicultural programs in many communities. T~e i seeds of prejudice are planted early in the lives of U ! children, as noted by Cardinal Carter. The school Ll I U U I- "l"- If;
~, , n 1 u 1 !n / Mil fl - i :[1 ------' ------/'
53 LI Li1~ 54
v. 6. RECRUIl'MENT PRACTICES U n The low participation of individuals from ethnic minority groups in many, if not all, police forces One of the major concerns that was expressed by U in Ontario has led many concerned individuals to several people to the Task Force was the paucity, u conclude that the police recruitment and hiring and in most cases the absence, of ethnic minorities i ,', U~ practices are discriminatory. There is the general in many of the police forces across the Provinc~. L\ feeling that existing policies and practices, in The common theme heard, time and time again, was that I ( particular, the height and weight criteria, discri "the composition of the police forces does not B ! '. fuinate against some miriority group applicants. reflect the diverse community which they serve". The J' I police themselves are perceived as a 'visible minority' U U For their part, most police administrators suggest and it is felt that they could remain so if they ' , that they would like to have more minority officers continue to exclude themselves from the public they U } 1 • ,> on their police forces, but, as one Police Chief from serve. a medium size force puts it, "very few, if any, U rJ minority groups seem to be interested in a police The Ontario Premier's 'multicultural policy' statement caree.r" . Another Police Chief, from a large regional (1977) and his government's commitment to the concep~s U police force said that "we do not have the height of equal~ty, acce~~, and pa~~c~pat~on have signifi U minimum and are actively encouraging members of cant implications for the recruitment of individuals minority groups to apply". The success hare has from minority groups into the police forces. Part of B [J also been negligible. the text of that statement, which has relevance to the mandate of the Task Force, is as follows: L1 U The report of the Ta~k Fonce on Pol~c~ng ~n Onta~~o The government of this Province has (1974) also alluded to the difficulties associated officially adopted a 'multicultural policy'. U There is nothing complicated about it. U with the recruitment of individuals from minority There are three elements. 1] groups when it said that: The first is equality. We are committed to U safeguarding the quality and dignity of the candidates did not represent a cross section individual members of our society. This is of the communities served by the forces. It a reaffirmation of our commitment to work U has been said on other occasions that a for equal treatment of all residents of this U police force, to adequately cope with the Province, and against discrimination. conditions which exist in its area of juris u diction must approximately reflect the The second element is access and partLcipation. n community in. terms of the social, ethnic, In a sense, these are logical extensions to economic and educational make-up of the equality, because they imply that government lJ community at large. Some forces have made must take all necessary steps to ensure that 0 an attempt to apply this philosophy, but no one is denied its services or is unable many problems have been encountered in to secure access to them. In a multicultural reaching and attracting candidates from U specific sectors of the community. The society, we believe it is essential that 0 cultural differences do not impede access to majority bowever, have made little or no government services .. : •..•..... effort to apply this basic principle. f1 0 , ,F U .. U '" I ' n / ffB ~ 56 55 rJ
", If the Province of Ontario is to achieve its stated II n any circumstances". goals and objectives of multiculturalism, particularly Many minority groups do not see themselves in the area of increasing the participation of U U accepted as law enforcement officers by a minorities in the police forces, we need to determine predominantly white public. why so few apply. How can police forces in Ontario U attract an increasing number of minority applicants? U Many of the reasons given for the lack of response In order to determine the appropriate solution we must U from minority groups to the traditional recruitment first identify the sources or causes of the problem. U campaigns that are conducted by many police forces are U based on people's perceptions, expectations, attitudes, The following have been suggested as some of the reasons 11 stereotypes, historical inequality and the like. for the lack of response from minority groups: U Although these factors are difficult to concretize, They do not view police work as an attrac U in reality they, nonetheless, underlie many of the tive career because they tend to perceive problems with which a multicultural society like Ontario PJ has to confront and deal. organizations as predominantly white. U But deal with them we must, openly, honestly., and squarely. There are few role models for them in the [J police force, particularly at the senior n The Solicitor General of Ontario recognizes this levels. Therefore, they tend to see law U challenge in an ~ddress to the Liaison Group on Law enforcement as another dead-end job rather u Enforcement and Race Relations Conference: Chang~ng than as a viable career-development choice. i, U A~~~~ude~ 6o~ ~he E~gh~~e~ (1980). In reference to \' Because of their negative p~rception of the 11 "the process of involving visible minorities in a police, strengthened by the continual meani.ngful way in the policing of their communities", highlighting by the media of confrontations U U the Minister said: between police and minority groups, to aspire to be a police officer, regardless of how 111 We must recognize that members of the visible U i minority communities often face additional qualified that individual may be, is to be hurdles to involvement ip projects such as this regarded by one's peers as "having sold out" one. Unfamiliarity and, to some extent, fear f n 111 can ~l~y a,part in inhibiting visible minority because one is perceived as "joining the enemy". part1c1pat10n, as can a desire to avoid irritating other members of the community. Many educationally better qualified minority [] U Frequently, members of the visible minority group individuals do not aspire to become communitias consider that the only safe profile l is a low p~ofile. I" police officers, but tend to choose careers [J I they perceive as more socially and financially U Together, we must bring about a change in all those attitudes. Where we find non-visible rewarding. 0 minority persons irritated by increased fJ activity in this area, we must confront their Many minority group individuals seriously attitude directly, and seek to educate them doubt that they are really wanted in the police n u concerning the importance of our work. Where forces. In their opinion, "police departments , , are not interested in hiring our members under .,j, II "; fl f1 U ",-
58 57
We would recommend that all police forces institute we encounter passive support, we must convert it to active support. And, where we find positive recruitment programs aimed at reaching visible minority community members r~ticent to qualified individuals from the minority groups in order join with us, we must take special steps to reassure and encourage them. For if our cause to increase the number of applicants. The main is to succeed we will need the active support objective here is to seek ways to reach those target of everyone; in the war against racism, neutrality is just not good enough. groups. We are not advocating the use of 'quotas' but rather an increase in the pool of available qualified From our observations, and indeed on the basis of the minority individuals by reaching out to them in unique Onta~io Poiiee Commi~~ion Ree~uitment Standa~d~ P~ojeet and creative ways. It is interesting to note that none (1975), the traditional techniques that have been used of the groups or individuals we saw, including the to recruit police officers - the daily newspapers, Human Rights Commission, supported the use of quotas radio and television announcements et cetera - have as a vjable solution to the problem for Ontario. been a failure as far as minority individuals are concerned. Even the more recent attempts by some police We recognize that even the suggestion to reach out to forces to advertise in ethnic minority papers have failed certain groups would bring about some resistance and to reach the target groups for whom they were intended. lead to the conclusion that we are recommending a form of reverse discrimination. There is also the myth that One important recruiting technique that is very vital police forces would have to lower their standards in in getting the message across, and one that is almost orde= to accept the stream of individuals who are now not available to minority groups, is 'by example' or going to apply .. Or, there is the other myth "that 'by word of mouth'. Many individuals choose 'policing' there will be a morale and discipline problem once the as a career because their father, uncle, brother, sister police force admits minority individuals". We see none or some 'significant other' has been a police officer. of these myths becoming realities simply by developing As long as minority groups (and women) remain outside recrui tment strate gie s that would reach larger nv:mher' s the police forces in significant numbers this vital of qualified individuals from minority groups and role modelling technique, as a positive recruitment making it possible for them to apply. It is going to device, would be unavailable to them. be difficult, and individuals at all levels ma.y be resistant to the development of these recruitment The challenge is obvious, but is the solution just as strategies and initiatives. But if the statements by obvious? We, the members of the Task Force, think it the leaders of the Province are to be regarded as more is. We also. recognize, however, that the task is not than "good intentions by well-meaning individuals tl , we an easy one and would require a determined commitment must translate them into meaningful action. by everyone in the community, not only the police, to , .. want change, to work to bring about change, to under-~ We are all committed to the recruitment of high quality stand and accept change, and above all to ensure ~hat individuals into the police forces of Ontario. We those changes work toward~ ~he betterment of the multi- should also be equally committed to ensuring the parti- cultural society that Ontario has become. -----;;
[j 59 II 60
cipation of various racial and ethnic minority groups Il U During the course of study the Task Force met indivi who, because of history and tradition, have not dual officers, from various minority groups, with whom participated meaningfully in police work in the 11 II we were impressed, and who we believe would bring Province. We do not see these two objectives as credit to their departments. We are sure that there being at all incompatible and it is towards these Il I} are many others of the same calibre whom we did not objectives we must direct our concerted efforts. meet. Using these officers to help in promoting the positive images of minority officers would be very I. ,_i ! Change is never easy for any of us. As a rule, we I f constructive indeed. tend to fear and to find unacceptable things we do not II d understand. Therefore, the goals and objectives of f 1 Moreover, positive programs aimed at selling an cpen any positive recruitment program would have to be door policy of the police forces should be developed. cearly spelled out. It will take effort and it will n U The response of the different police forces to this take imagination. The most important ingredient, program would depend to a large extent on what they however, is the sense of trust which we all must U U perceive to be the needs of their communities. Never develop since objective is to make society a better theless, there must be a concerted overall provincial place in which to live. We have faith in the ability U . u program which is aimed at developing recruitment of many individuals in the police forces to achieve strategies and guidelines, specifically for minority these goals. lu groups. The Ontario Police Commission has an important u and strategic role to play here in stimulating and hor a short time, it may be necessary to take aggres facilitating all these changes and, especially, in ~ sive steps to correct the negative perception that 1] U monitoring the effects of the programs of individual minority groups have of the police forces with regards police forces across the Province. to their recruitment procedures. These could involve u n use of brochures which portray positive images of It must be recognized, however, tilat recruitment of officers from minority groups with whom these individuals u n minority officers is only one small step in the giant can identify as role models. A recruitment poster or leap for change,. Unless other changes permeate all brochure showing uniformed white officers only w.ith the u aspects of policing itself, .unless the communities caption "we need you" reinforces the notion that u themselves accept and facilitate these changes,and members of the minority groups are not needed. U unless the minority groups cooperate work for and work I IJ i; toward these changes for the good of all members of l' ~ In addition, a publicity program aimed at highlighting }' society, all efforts to reach those individuals who I, human interest stories, in particular the success rI U now feel excluded from a vital aspect of the society i~ stories of m~nority individuals who are now in the police in which ~hey live would be doomed to fail.
forces, should be undertaken in coope~ation with the II " ) U media. Such programs have worked in other jurisdictions The success of the program depends not only on the . , and could work well here if done with wisdom and insight . n n commitment by the Chiefs of the various police forces, ,,. 11 II
/ / I J ~~ ------;:r
,·-~;L_:"'~·eA~" U 61 I j 62 n but also on the commitment of all those involved in 11 The Ta.6 k Fo~c.e ~ec.ommend~ that the personnel and recruitment divisions. There has 1J Pol~c.e 60~c.e~ develop po~~t-Lve ~ec.~u~tment to be a total commitment by the administrative and !J p~og~am~ wh~c.h a~e a~med at ~eac.h~ng hierarchical structure of the law enforcement system qual~6~ed ~nd~v~dual~ 6~om m-Lno~-Lty g~oup~. in the Province. Thus, political leaders, through the U 11 ontario Police Commission, Boards and Councils, should Pol-Lc.e 60~c.e~ be enc.ou~aged to u~e ~ec.~u-Lt ment b~oc.hu~e~ wh-Lc.h po~t~ay po~-Lt-Lve -Lmage~ enable the development of long range plans wh~ch are U I! .1 aimed at en.~ouraging fuller participation of minority 06 066~c.e~~ 6~om m-Lno~-Lty g~oup~ who c.an ~e~ve a~ ~ole model~. groups in the 'policing' of thei~ communities. II j J {I Pol-Lc.e 60~c.e~ ~hould unde~take, ~n c.oope~a , I The suggestion th~t police forces should develop posi L\ j t-Lon w-Lth the med-La, a publ~c.-Lty p~og~am tive recruitment to attract qualified individuals from II wh-Lc.h i~ a-Lmed at h-Lghl-Lgh~ng human inte~e~t minority groups is not entirely new. A conference held U ~ to~-Le~, '~n pa~t~c.ula~ ~ uc.c.e~~ ~ to~-Le~, 06 by the Commi~~ian on Peace 066ice~ Standa~d~ and II m-Lno~-Lty 066-Lc.e~~ who a~e now -Ln the poi-Lc.e T~aining for the State of California in December 1972 60~c.e~ . reported on Mino~it~ Police Rec~uitment and Selection LJ The Onta~-Lo Pol-Lc.e Comm-L~~-i..on ~hould ~t-Lmulate a Total Commun~ty Re~pon~~b~lity. U and 6ac.-i..l-i..tate the ~ec.~u-i..tment p~og~am~ 06 U pol-Lc.e 6o~c.e~ ac.~o~~ the P~ov~nc.e. Spec.-L6-i.. The comments made by John Fabbri, Chief of Police, 11 c.ally, -Lt ~hould mon-Lto~ the e66ec.t~ 06 the Freemont, California, are of relevance here; we would U p~og~am~ 06 -Lnd-i..v-i..dual 60~c.e~ -Ln att~ac.t-Lng like to quote them as we leave this Section. He told 1I qual-L6~ed -Lnd-Lv-Ldual~ 6~om mino~-Lty g~oup~. his audience, which included police chiefs and other U police personnel, city and government officials, that f J , '} effective law enforcement requires the L recruitment and utilization of minorities. ~ II 1 As every police officer knows, we're never t going to have safe cities until citizens 'U begin to take upon themselves the responsi bilities of more meaningful cooperation II with the professional police. You could I double your manpower and purchase every ! ] U i piece of sophisticated weaponry and detection r,,] device. ever invented r and the police job would remain. an impossible one without L I civilian support. And until minority !I communities can look at the police department and fQel it is 'their' department, too, because their brothers and sisters are U involved in its policy making and implementa lJ tion, we cannot hope for that kind of cooperation. U . , nl:J
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" 63 11 ! , , ,1 ~ 64
r I fi V. 7. SELECTION PROCEDURES have not been found to correlate highly with the Il U tasks which the police have to perform today.
!1 [J In one large regional police force in Ontario, a. l~~e all othe~ men, numerical values or points are assigned to a range 11 f] of desirable heights, but these points contribute b. l~~e ~ome othe~ men, less than one-tenth to the total possible points Q. l~~e no othe~ man. obtainable or to th€ minimum points required to !J IJ qualify for selection purposes. Other police forces KluQ~holn, Mu~~ay & SQhne~de~, 1953, p. 53 are beginning to explore the possibility of adopting ' I ! 1 f1 a weighted point system. A word of caution is necessary ~{ ), here. A weighted point system, which takes into I j The days when an applicant for the police force would U l t account several disparate factors, such as height, walk into a police station and be 'measured' as he or weight, physical fitness, educational level, moral she came through the door are gone. The Task Force hopes character, et cetera, to which arbitrary numerical that this outmoded method is banished forever as an lJ U values are assigned, would be simplistic and in appropriate selection technique for police officers. [ J appropriate, unless there is prior empirical evidence Police forces in Ontario, like many police forces in U of the significant and relevant contribution that Canada and in other countries as well, have been seek- " each of the factors brings to the functions of ~he ing ways to increase the professionalism of policing. Better f'l 0 job for which the point system is being designed. It is, selection procedures are constantly being explored and therefore, essential that there be careful study and developed, particularly ones that are deemed to be !'1 0 review which attempts to ~elate the priority weighting more appropriate for police officers and the multi- of factors that are included in any point system plicity of roles and functions they are required to U U adopted for the selection of police officers. J , ! perform in today's society, and will be in the future.
11 Police officers fa~e an onerous task in their job Although many police forces in ontario require some U of policing. There is a high degree of personal minimum height and weight in their selection criteria, '1 } risk and stress involved. They are often called the trend during the past two years, for some police U upon to use their individual judgement and to exercise forces, has been to relax the height and weight require their individual powers over others. Moreover, the ments, and the Task Force sees this move as being positive. 0 n con~equences of their action can be at times costly to Some police forces in the United States have eliminated self, to other people's lives and/or their self-respect, the height and weight requirements entirely since they [J lJ and to society as a whole. It is, therefore,incumbent on police personnel to develop and to use a . , U U selection process that would facilitate the selection /' I ~ U '" D i1l '" mol ------:;-----' - ~- ---~---~--
65 U 66 t1 of those individuals, regardless of race, colour, behaviours - such as bizarre behaviours, abnormal f II and negative tendencies, are also assessed. ethnic background, creed, or sex, whose intellectual LJI abilities, behavioural tendencies, motivational skills, and personality characteristics would enable II It must be pointed out that the use of psychological them to do the job of policing a multicultural and tests cannot adequately solve all personnel problems pluralistic society with sensitivity, integrity and that are related to policing a pluralistic society. fairness. 11 It can and does, however, decrease the number of officers who may bring discredit to the police Il. j Psychological assessment of applicants is gaining U force because of their inappropriate behaviours to importance in police forces in Ontario, although fewer U ethnic minorities. Moreover, such a selection process than 40% of the police forces use any kind of psychological U may be regarded as being equitable in so far as it is '~ i assessment of their applicants. It has generally been seen to be more objective, and can be more readily U subjected to public scrutiny and review than other accepted by individuals in the psychological testing 0 world that no single psychological test can adequately selection techniques. No matter how sensitiv~ or screen out those individuals who may be incompetent [J U finely boned one's olfactory sense may be the ability as police officers, and also those who are likely to to "smell a good cop" is subjective and based largely be a discredit to the police force in the future. U on stereotypic perceptions. As one Staff Sergeant Consequently, most police forces tend to use a battery [1 of a large police force said, "if you select a cop of se'\teral tests, consisting of three or more, in order U because you smell a cop, you are looking for the wrong to assess different aspects or qualities of an individual. IJ things. You are living in a fantasy world". Although more than one selection tool provides us with U Psychological assessment should not be viewed as the more information about an individual l it is important U to recognize that, by themselves, large batteries of cure-all for the problems that are associated tests do not necessarily improve the quality of the [1 II with selecting the best suitable persons for the job assessment. In the final analysis it is the professional of policing. Some individuals seem to have the I II expectation that psychological tests should predict, competence of the individual(s) who interpre~s the [] findings 'of the tests, as they relate to police functions with one hundred percent accuracy, those officers and performance, which is most critical. I ! who are likely to display inappropriate behaviours [] throughout their police career. No psychological tests can guarantee a perfect fit. In fact, no technique Usually assessment is made of an individual's general [ 1 intellectual or mental ability in order to assess his U does. Even in medicine, the most advanced cardiology or he~ competence - a measurement of ability to learn technique cannot always predict the occurrence of a II] I] heart attack by a person who had recently been examined. and understand police procedures. In addition, personality I characteristics in terms of habits and temperament, motivational skills and interests, psychopathological [J 0 ,;I"
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68 67 ~
l1 physical fitness, medical examination, moral character, One report, submitted to the Attorney General of previous work experience and history, driver's record, Ontario in October 1977, suggested that "the police 11 J l' references, et cetera; and all conduct a personal should introduce a mechanism to screen out individuals 1( interview. who are racially prejudiced by some able psychological II J tests at the time of recruitment". The Task Force Police forces should be encouraged to continue to use would like to emphasize that no valid psycho~ogical ( j U a variety of information on the applicant, especially tests can identify individuals who have specific the face-to-face interview which we believe to be of racial or ethnic biases. All that the assessment [I ~ critical importance. However, the order in which these really does is to act as a negative screening device I events occur in the selection process should not be to weed out those individuals who are obviously not I) overlooked. We would like to stress that psychological suitable, because of their pathological behaviours, II assessment, if done, should not be used as a substitute for proceeding to the next step in the selection process. ~ / t for the other selection tools. Therefore, to use psych Psychological tests, when used appropriately, can [1 r ' ological assessments as the only screening device, minimize the possibility of error and can improve f( separate from the police uelection procedures themselves, the decision-making process. , I f J ~ I which some Ontario police forces practice, is indefensible.
It is equally important to recognize that the predictive [I U Moreover, the use of psychological tests as the only value of these psychological assessments in selecting screening technique may discriminate, unjustifiably, those individuals who would make competent police t 1 against many individuals, particularly those from officers, in terms of their performance, is limited. U minority groups, who may have excellent qualifications There is no single test now available that would for policing. enable us to select individuals for the complex and 11 U m~ltiplicity of roles that police officers have to "What ~ind 06 bi~d a~e you i6 perform. The psychological assessments are, therefore, U U you can 't 6ly?" chi~ped the bi~d. supplementary to the additional information that "What ~ind 06 bi~d a~e you i6 you personnel officers obtain on their applicants, including f!l r1 1 can't .6wim?" ~ep.e.ied the duc~. the intensive face-to-face interview all police forces l 'J conduct. The psychological assessments provide some Il H s. P~0~a6iev useful data for the informed decisions that recruiting Pete~ and the Wol6 officers 'have to make about the selection of individuals Ij I~" for the police force. Not all police forces in Ontario Psychological tests, and in particular intelligence tests, use psychological tests in their assessment of applicants. are not entirely free from cultural bias. The psychological All, however, obtain a variety of background infor- l·j U -t literature is replete with evidence which suggests that mation on their applicants, such as height and weight, II [J , -,f- < [1 "; U
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1
70 69 II L1 the selection process. Many individuals who may have individuals from ethnic, cultural and language back a pathological problem may look good and sound good. grounds that are different from individuals from the U The face-to-face interview may not have tapped into dominant culture on whom the psychological tests were !1 their pathological problems as the psychological standardized and validated tend to do poorly on some U assessment would have done. The reverse is equally of these tests. This does not necessarily mean that possible. The psychological assessment might in they are inferior to the other groups who do better 1'1 dicate something negative about the individual while on these same tests. There is always a readiness for all other information, and particularly the face 11 many people, often the uninformed, to believe that [J to-face interview, may show him or her as being highly poor performance on a particular test is a reflection suitable. In such instances, some monitoring and of a deficiency or inferiority in what is being measured. L1 review mechanism is essential.
The performance of individuals who are culturally An additional monitoring device which has been develop different may simply be a reflection of the differing U ed in one metropolitan centre is worthy of note. In experiences and reactions they have had. Thus, cul U all instances, whenever a discrepancy in judgement tural differences do affect the way individuals respond fJ between the police interview evaluation and the P~ych to items on a test or relate to people and situations. Ij ological assessment arises, the applicant is inter Reliance on test scores alone would not only be mis U viewed by one member of the psychological team who leading but discrimina~ory. Furthermore, positive U does a second evaluation. This mechanism not only recruitment programs designed to attract qualified U strengthens the police interview process, but also minordty applicants would be of no avail if at the strengthens the relevance of the assessment made by same time we do not scrutinize our selection procedures. [] U the psychologists. Cordingley (1979), who has recently studied the use of psychological tests in the selection To be sure, some may suggest that since psychological u process in some police foroes in Canada, has suggested assessments are not per£ect, and individuals who are U that one of the reasons for the increasing use of not suitable might be allowed to enter the police force, n psychological tests among police forces is that many why should they be used when they are more costly to U of them may face 'overwhelming costs' which officers implement than the other options now available to police i 1 with inappropriate personality characteristics could forces. We do not see the problem to be ei~he~ psych U create for them. To many police forces, this factor is ological assessment O~ the use of the background infor [j critical. As one officer said to the Task Force, mation check anc the face-to-face interview, but rather U "dismissals are becoming so increasingly difficult, a recognition of the contribution that each can make to the emphasis has to be placed on the selection process". ~ t 1 Police organizations, however, are not the only ones U that are concerned with this vexing problem. But police ,. [l U . ,
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71 [1 [] 72
1'1 ~ work done by members of the profession forces are in a better position than most to alleviate different from those one would expect the problem,because of their comprehensive selection II from other practitioners whose view of procedures. n the occupation is that it is simply a job - something one does because he can't find anything else, or because it is the U most secure position available, or From his observation of police officers in four mid- II something that anyone could handle with western police forces in the United States, Walsh U little or no training. (1969) concluded that police officers who see policing as a profession (the "professionals") tended to have The interviews can be biased and subjective and depend attitudes to their work that were very different from IJ to a large extent on the police personnel who are those officers who see their work as just a job (the involved in the interview procedure. Individuals in i I "jobbers"). The former were much more concerned with U I I most situations tend to select those individuals who public approbation, respect, and support, while the are like them in attitudes, beliefs, values and latter tended to see the ills of society as contributing U 11 physical characteristics. Police personnel are no to their problems. In like manner, those who viewed their different in this regard. work as a job tended to see the use of force as contributing U to their standing in the community, while those who saw U Walsh's hypothesis has some significance for the policing as professional work, felt that the use of force, U selection of police officers. If the selection although sometimes necessary, was likely to hinder their U personnel are mainly "jobbers", the~ they are more efforts to achieve professionalism. In addition, the ~ likely to select individuals who have similar "professionals" were more likely to attach importance lJ U personality traits. to that aspect of police work which is related to social service than the "jobbers", who tended to stress physical U U The assignment of qualified personnel to the selection size and strength as desirable qualifications for police unit is the key to, and perhaps the cornerstone of, officers. 0 ,I the selection process. Every effort must, therefore, be made to upgrade the skills of those individuals An interesting observation that has relevance to the 0 involved in the interview. Further, the interview mandate of the Task Force, was that Walsh found that I! should not be regarded as an interrogation where the 1\ "jobbers" were more likely than "professionals" to claim fJ I ~' individual "is required to appear before the board" that unfair treatment of the minorities was their own fault. II as t~ough he or she were being investigated. His fundamental thesis is that: U II Since the final decision must rest with the police officers themselves, rather than with the psychologist, To be proud of one's occupation and Q efforts must be made to increase the status and to view it as a profession enjoying 0 positive standing in the community professionalism of the personnel and their interview should lead to attitudes toward the 0 procedure and techniques. f ' " n [l , m / 1 (1 ! ------,------
74 73
managerial skills, who can combine their expertise J n There are two important questions that have not been I with those officers in the police community who have answered. The first is, what is it that differentiates developed, through the many years of experience, the
WL10' l1 a successful police officer from one 1 ~~ no t , or is conventional wisdom and understanding of the functions never likely tD be? And the second question is, is of police officers. there a test which would identify these individuals? II If we had ready-made answers to these critical Throughout this section our focus has been on those questions, the tasks of the police forces would be 11 policies, practices and procedures of the police made relatively easy. Unfortunately, neither we, nor selection process that are more likely to result in anyone else, has an easy answer. u bias against ethnic minority groups. We think that the changes that have taken place so far, in particular the
No test can tell us that a particular offider on a relaxat~oh of the height and weight criteria in most given day, in a particular situation, will dishonour u police forces, would have saluta:.r.y.·effecbs. :iri. '.p:r;'omo'-' his oa.th of office.. What is needed is the development IJ ting equality of opportunity and fairness for all of tests which either relate directly to the duties u citizens of Ontario. We would, however, caution of the job or have proven to be valid predictors of against adopting too raadily a weighted point system successful job performance. However, we must recognize where the height and weight are only two of the many that no successful police profile has been discovered u contributing factors without first establishing the by any research team, and that the functions of the u relevance and importance .of all of the factors that police, like other institubions in society, are are assumed to be related to police functions. rapidly changing. U There must be 90gnizance of this u fact in any job analysis study that is undertaken. Recent years have seen the increasing use of psycholo- f.l gical tests in police forces in Ontario. We cannot The Ontario Police Commission should undertake a study u emphasize too strongly the danger in perceiving these to determine what the functions of police officers in 11 psychological assessments as the cure-all for all our Ontario for the Eighties are, in order to provide [J selection problems, particula~ly in their ability to guidelines for appropriate selection techniques for I identify individuals who are biased or racist. police forces. We should, b~ no means, underestimate J Fsy=hological assessments, in combination with 1 I 1 the complexity of this task. Fortunately, police forces sensitive interview procedures by competent police 1 '" ; ! ! in other provinces, as well as in other countries, have II .. officers, can .decrease the number of errors that are begun the exercise and we can benefit from their possible with less. objective methods. Psychological findings. I II tests do have a role in the selection and screening :: We must, however, decide what police functions 1.1 are specific to the communities in Ontario in any process for police personnel. However, they should undertaking. The Task Force encourages the Ontario fj !1 not be expected to make personnel decisions b~ Police Commission to use those professionals, includ themselves. As Cordingley (1979) suggests, "a total ing psychologists and individuals with business and I') [J
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---~ U 76 U 75 n v. 8. TRAINING AND HIGHER EDUCATION u FOR POLICE OFFICERS testing program for a department can pay for itself II by eliminating the wasteful allocation of scarce and [] It is not the mandate of the Task Force to study expensive resources upon even a few candidates who the whole range of police training or to determine would not become competent officers". !I 0 the appropriate educational curriculum that is best suited for police officers in ontario. Similarly, 11 The Ta~k Fo~ee ~eeommend~ ~hat: 0 our concern is not with the kind of training which focuses on the knowledge and specific skills that Pollee no~ee~, whe~e po~~lble, ~hould are obviously necessary i" police work. The police lnelude ~ome no~m on p~yehologleal a~~e~~ U have a special task to perform and, consequently, men~~ In ~hel~ ~elee~ion p~oeedu~e~. The~e a clearly defined body of knowledge relating to a~~e~~men~~, when done, mu~t be u~ed In U law enforcement and special skills have to be eomblnatlon wlth all the o~he~ ln6o~matlon [ j acquired; to a large extent much of it is acquired obtalned by pollee 60~ee~, and no~ a~ ~he 0 on the job. only ~e~ee~lng devlee. U Pollee 6o~ce~ a~e eneou~aged ~o appolnt 0 Instead, we wish to comment on those aspects of c~mpe~en~ and ~Ln~ltlve pe~~onnel to ~he U training which focus on the human dimension in ~elee~lon unlt. In addl~lon, eve~y en6D~t [} policing. Por as Radelet (1980) has suggested j ~hould be made ~D upg~ade ~hel~ ln~e~vlew police work in a democratic society (and we would {\ 0 like to a.dd in a mul ticul tural society), cannot ~ klll~ aVl.d~eehnlque~. U fl escape from its human dimension. While we recognize ! The On,ta~,(,o Pollee Comml~~lon ~hould ~;tu"dy i 0 the need for training in procedures and technical I what ~he 6unetloVl.~ 06 pollee o661ee~~ fio~ U skills, too much emphasis on these aspects is likely ~ the El9htle~ a~e, In o~de~ to p~ovlde fJ to obscure the fundamental concern for relating to f guldellne~ 6o~ app~op~late ~eleetlon 0 people. At th~ present time, the broader educational l teehnlque~ 6o~ pollee 6o~ee~. 11 needs of police officers are disproportionately met 0 compared to needs associated with the traditional I] role of the police officer. [} 11 No where is it put more bluntly than in the recommenda f] } L1 tion by the Michigan State study for the P~e~ldent'~ [1 Comm.i.~~lon on Law En6o~c.emen:t and :the Admlnl~:t~a:t-i.on J 06 Ju~:tlee (l967) U III ' that the police place greater emphasis upon d the concept of public service as a legitimate Ii .' D goal of their organizations. For the police, H i"r" ""., \ ..'"", U professionalism has been viewed in too narrow ~ f r . M '": 0 Ii l' t .\ lei f.Ii 1\ I ~ -- .,.-----
[ 1 78 77 U their attitudes, their behaviours and their respon a focus. True professionalism is rooted in siveness to the people in the community they serve. broad-based public service which commands A comment from a Police Chief of a medium size police popular respect for the police officer and [J the system of government by law which he, I force in Ontario sums it up well. He said "if you represents. Increased efficiency in po11ce lfj are going to prevent crime you have to find ways to work is laudable, but as a means t~ ~n end~ U not as an end in itself. When eff1c1ency 1S deal with human behaviour. After all, police deal coupled with a goal of crime suppression,at ; 1 with people". any cost, the community is often fac~d w1th , .1 a police agency which is not respons1ve to U community needs. Police officers are primarily citizens in uniform U providing a service to the community, and it is not The concern for police professionalism is not a new only what kind of service is provided, but how that But the professionalism of the police phenomenon. service is provided that influences, to a large as it relates to human relations and multiculturalism U extent, the kind of environment that would bridge has taken on new importance in Ontario and elsewhere. J~ ) 1J the gap to better pOlice-community relations. In defining the role of law enforcement officers, lJ Shellow and Bard (1976) state that : U It is not the intention of the Task Force to expound police professionalism could help,c:ose the gap tl at length on the roots of prejudice and racial between the police and the commun1t1es they conflicts. Nor is it the intention of the Task Force serve. Backed by better education, be~ter in-service training, and by research a1med at 11 U to recount instances of its manifestations between discovering and answering community needs, members of the community, especially the police. police professionals could, perhaps once again, humanly respond to people. t1 U After all, the reports by Walter Pitman, Cardinal fj Carter, and others before them, have already served What these authors mean by professionalism is made U this purpose. Moreover, any reader of the leading quite clear by Skolnick (1968) in the following daily newspapers in Toronto can attest to these statement : rJ conflicts in certain segments of Ontario by referring 0 to items in the news. The problem of police in a dem~c:ati~ socie~~ is not merely a matter of obta1n1ng ~ew pol1ce cars or more sophisticated equipment, or U !J There is no denying the fact that the racial conflict communication systems, or of recruiting men , who have to their credit mo~e years of edu~at10n. and tension that exist in some sectors of Ontario are What is necessary is a significant alter~t10n [J U a reflection, to a degree, of the attitudes of some in the philosophy of police, so that pol1ce 'professionalization' rests upon the values of members of the larger society. If. the kind of train a democratic legal policy, rather than merely U on the notion of technical proficiency to serve IJ ing that police officers get is to be more responsive the public order of the state. to the needs of the community, especially those of \.j 0 the ethnic community, then it is important to under '~ , It must be obvious from what we have said so far, stand the impact that stereotypes have on self-image that the professionalism of the police has to do with rj U and value of those individ~als at whom these stereo- . , f types are directed. It is within this larger societal
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u ~ 80 79 u n context that pOlice-community relations and the Hobbs' (1975) analysis of problems related to the present conflicts must be understood. It is also U classifying and labelling of children who are within this larger context that training and higher D retarded, emotionally disturbed, or hyperactive education programs for police officers should be U can also be ap~lied to the categorization and conceptualized and developed. U labelling of minority groups. He suggests that:
categories and labels are powerful instruments Many stereotypes are used primarily to belittle and U rJ for social regulation and control, and they are often employed for obscure, covert or discredit an individual, groups of individuals and (' hurtful purposes. To. degrade people, to deny communities of individuals. Very often the stereo- U d them access to opportunity, to exclude typical statements are value judgements and contain 'undesirables' whose presence in some way offends, disturbs familiar custom or demands hidden messages. For example, to ask a person from 0 ; j extraordinary effort. an ethnic minority group, "Where is your home?" or I ; "Where do you come from?" is to imply that the r' ) In the next section, we shall attempt to address the individual does not belong here, or that he or she U problems associated with the training and higher is non-Canadian. It is all the more demeaning when t··J education of police officers. For our purposes, we the individual is Canadian by birth. These are 0 shall deal with each aspect separately. We view commonplace occurrences that minority individuals, [J training as focussing on the acquisition of specific regardless of their station in life, have faced at 0 skills, knowledge and procedures that have to do with one time or another. law enforcement. Higher education, on the other [J U hand, deals with the complex process of learnin~ at The situation is not that dissimilar for minority the conceptual level. Whether the police officer is police offic,ers. For a white person to say to a Ll [J acquiring specific skills or learning how to solve minority officer who has just stopped him, or given problems at a conceptual level, the emphasis must be him a ticket for a traffic offence, "Where do you come U placed on his professionalism. It is the profession from?" or "Who are you to come to my country and charge U alism of the police officer that we seek to emphasize • J me?" (as one ,officer reported) is a !?lap in the face in the sections which deal with training and higher of an individual who is made to feel that his presence U fJ education. is objectionable, and that he is inferior. [J U TRAINING For the polipe instructor, or the first line supervisor, Police operations are influenced by economic cycles, to make disparaging comments about a minority officer ['j n population movements, changes in ethnic compositions, to the effect that the officer would not make the grade public attitudes toward law and morality, and the or be promoted (as another officer reported), or that t i specific responses to these attitudes made by he or she is incapable of learning the rules or being u political leadership. disciplined, is no different from the teacher who U 11 implies that the ethnic minority child in his or her . ' class is incapable of learning and ought not to be .~ '\ there. t1 ~. U 0:::::
r1 n.!J: 81 11 ~ 82
Since the Second World War, and throughout the lJ B have not been adequate. As we emerge into the 1980's Fifties and Sixties, the police service has under even further changes are forecast for Canadian Society: gone a rapid growth in personnel and technological u11 U and in spite of the financial restraints that are evolution in its approach to law enforcement problems. imposed upon the police service by both governments' The Sixties and Seventies brought visible and f U ~ fiscal policies and economic changes in the world, sometimes violent expressions of social change, there is an ever-increasing public expectation, though labour disputes, alienated youths, drug abuse, social iP ! at times inconsistent, for an expanded role from the unrest, civil disobedience, hijacking, hostage taking, U police, particularly in the area of social services. terrorism, the growth of crime, changing attitudes i J H This will require from the police, increaSing under towards authority and many other manifestations of U standing, patience and ~kill. We concur with the the inability of the institutions of society to } 1 I I comments of the Ta~k Fo~ce on PoliCing in Onta~io respond adequately to its social ills. U (1974) when it said that: ' , ( i In general, the police are themselves not respon~i U "Large cities, with their dense populations ble for the conditions which have brought about the and ~prawling suburbs create new and different i i requ~rements for the police role. The conflicts and crises in society. And yet, many of ! ! changes in mores, the sharpening of social U '. } them feel that society expects them to find the conflict, the insulation and alienation which are very much a part of the growing and \ J solutions to the problems. Because respond they must, ) 1 changing urban society, place new pressures [J I I,) whether they have the skills or not, and whether they o~ the police function. These pressures bear 0 d~rectly on the individual constable as he are capable of reSponding or not, they themselves are I J seeks to enforce the law, to maintain order sometimes seen as the cause of most of societal U /1. , and to protect citizens and their property." problems and they become convenient scapegoats and targets of abuse. Consequently, the technological 0 .tt Many individuals, incl~ding some police officers and social changes have had their impact upon the kind th~mselves, see these new role expectations as of training police officers in Ontario receive. j J conflicting with what the 'real job' of a police force 0 ough t. to be. In other words, what the community The police service in Canada, especially in the (j expects from the police appears to be incongruent Province of Ontario, has attempted to adapt to the fJ with what police'officers have been t~~ined I I changing scene. traditionally to do, and what some officers believe As rece~tly as 1974 a task forcs in ) f Ontario stated that: [] ought to be their primary, if not their sole, function.
"Ontario'has been well served by its police U' The changing ~nd conflicting role expectations are not forces and its police officers.~ D , , unique to law-enforcement officers. There is no /1 , ) institution ~n today's society - for example, the It is true that many changes have corne about in response U family, the school, the university, the church, social I \ to the increasing and sometimes conflicting needs of and welfare agencies, the government, et cetera society. It is obvious, however, that these changes [1 U . , ;<: I ! ... " U H ," ! n II ITa Pl~ 84 83 1]
H different. It is with this philosophy in mind that which does not face these conflicting roles. There U the Task Force examines the kind of training and is also dissonance between them and the expectations U education that police officers receive in order to of the 'community' they serve. In a dynamic society 1] determine whether there is a ne~d for change in such conflicts about institutional roles and U these areas. Our focus here~ as always, is on the functions are inevitable, and some peopl~ may even fJ relationship between police officers and ethnic regard them as necessary for growth and development. minorities. Before looking at the kind of training A society that is without conflict is a stagnant U that police officers receive it might be useful to society. However, a society that sees conflict as review very briefly the kind of organizational the catalyst for constructive change, for working n structure and philosophy which govern the training together to bring about harmony, is a society that they receive. sees freedom and justice as its vital signs for survival. If we can have the will to bring about U POLICE TRAINING IN ONTARIO understanding and harmonious relations among all u sectors of society, con£licts can be seen as the [J It is the legislated duty of the Ontario Police barometer for changes in our basic institutional Commission to operate the Ontario Police College. arrangements. u u To assist it in. this regard, an Advi~o~y Committee on Poti~e T~aining was created shortly after the Canada is rapidly becoming a multicultural society f] u College w~s established in 1962. It is composed of and a thorough understanding of such a society must representatives from the police, the police governing become a major objective of the police services, ~nd U u authorities and the Government of Ontario. This \ I also of all sectors of the community they serve. committee monitors existing programs at the College What the police expect from the community should not u and makes recommendations for deletions and improve be regarded as of lesser importance than what the U ments to the courses. It also provides assistance community expects from the police. Without this in setting admission qualifications and standards for crucial twinning of expectations the job of policing o u the instructional staff. will be made much more difficult and .the possibility of any individual living in a safe society with D In 1974 the Adui~OAy Commi~tee initiated a study of freedom and dignity would be very remote. police training in the Province of Ontario, and in [J May 1975 published its report. This report was One cannot stop a person from being prejudice by adopted by the Ontario Pelice Corn~ission, endorsed edict, no~ can one lagislate change in people's u unanimously by the Ontario Association of Chiefs of attitudes. One can, however, through the educa fJ Police and approved in principle by the Solicitor tional process make people more aware of, and u General for the. Province of Ontario. An outline of sensitized to, the myths.that are usually associated U this Ontario police training system is set out in with stereotypes and attitudes towards those who are u Appendix D. Since 1975, the Ontario Police Commission o " , f] u
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85 , i I 86 has been engaged in implementing the training system 1J persons brought in from universities, private business as contained in the recommendations in the 1975 and others having special expertise. The ratio of report wf the Adv~~o~y Comm~ttee. fJ full-time instructors to seconded and others is on a 50/50 basis. Police officers are seconded gener The Task Force believes that the technical training U ally on a year-to-year basis with the average tenure of police officers can best be accomplished in a of two years, and are selected with great care from centralized training institution such as the Ontario 0, police applicants in the Province applying for the Police College, with strong supervision and total instructional positions. responsibility from the Ontario Police Commission. [~ I. This approach ensures that high standards can be set ilJI From our observations of some of the classes in and maintained. It also enables the Ontario Police l ) ! progress, we noted a great deal of interest and Commission to monitor the extent to which profession l. . participation by class members and a high degree of alism, as a major goal, becomes the cornerstone for competence in the instructors. It was particularly the training curriculum. The Task Force believes ~l noteworthy to witness the instruction of a group of that the growing level of professionalism and social predominantly white officers by a black officer who awareness now permeating our police forces ~hro"ghout o u obviously had the respect of the student officers Ontario, to a great extent, can be credited to the in the class. ~nowledge of his subject in criminal centralized training system in addition to the training u law and his manner of delivery clearly indicated a that is being done by many police forces themselves. u positive direction towards racial understanding and We had an opportunity to visit the Ontario Police U acceptance. College and were impressed with the facilities and u with the awareness and dedication of the instructors HUMAN RELATIONS AND MULTICULTURAL PROGRAMS who were interviewed. 11 u A program entitled Pol~e~ng a Mult~eultu~al Soe~ety The benefits of a central training facility alluded U nLJ was introduced at the Ontario Police College into to earlier, were clearly expressed by one police officer the training courses in 1979. The objective of the from a large police force in Southern Ontario, who said [) U course is to assist the police officers in Ontario that until his first attendance at the College, in understanding and being sensitive to the cultural "I thought the Province started and ended at the border f1 differences in Canada. Another course, the Mult~ of our City". This opportunity to "rub shoulders" with U eultu~al In~t~ueto~~ Cou~~e, was introduced to the peers from all sizes of police forces across the Canadian Police College in Ottawa in the same year, L1 Province and exchange viewpoints and experiences is B utilizing resource personnel from minority and ethnic exceedingly valuable. 1] organizations. Selected officers from Ontario police n forces regularly attend the Canadian Police College The instructors include permanent staff, sec0nded for the Executive Development Courses, Senior Police officers from various sized police forces, and resource U H . , n -. o 87 ~I IJ u 88
Administration Course, as well as a number of ! j n One cannot legislate ' , '. specialized courses. ~ndividuals to like each other, or even to Ii t ve ogetherin harmony. One can, u u however, make i~ possible for them to Advanced training programs are conducted by many co-exist harmoniously by reducing police forces throughout the Province in various p the opportunities for L1 ~~j conflict through mutual ways. One large police force makes use of the understanding, respect 'and w~rking" tow ar d s sha~ed goals. 'Ethnic Squad officers' for presentations to police recruits and serving police officers. Other police U U The Task-ForQe strongly d forces bring representatives of ethnic minority en orses these types of IJ training with particular emphasis b ' groups and members of the Ontario Human Rights U e~ng placed upo dialogue in dd' , n a ~t~on to the 'instruction' Commission into their training programs to discuss i j being , that is g~ven. Such programs must ~he backgrounds, goals and expectations of the U t I occur at all levels of rank, with the development multicultural communities and to attempt to resolve of awareness by the Chief and Senior off' , " mutual problems. In cooperation with ethnic minority ~cers, tra.·~n~ng officers and U U supervisory personnel flowing groups in the community, one regional police force is through all ranks to the probationary constable. undertaking an innovative approach to this type of U U training. In this situation, individuals from a The T~sk Force regards the minority group and a group of individual officers introduction of a mUlt,icuftural program into the tra;n;ng will spend time in a setting away from the classroom U U ...... of police off~cers as an important step where each will have an opportunity to develop a in the fostering of professionalism in policing. better understanding of the other's culture and role. U U ,There is the danger,' howev-er, to see this development as the cure-all for dealing with conflicts between All of these attempts to increase understanding through U f1 the community and police. Similarly, community off' communication and contacts between police officers and ~cers may be expected to carry' th f members of minority groups are indeed laudable and all e ull burden of be;I1g... sensitive U U and responsive to the needs of the to the good. For all that, contact between differing ethnic minori'ty communities for all members of the groups does not necessarily produce a decrease in police force. ,0 n Further, there is the added conflict. This close proximity may further intensify danger that by introdu- cing these multicultural or institutionalize misunderstanding unless both groups f programs as 'special programs' I to be given on 'specific d ' have as a first priority a commitment and some u L ays , as it happens in some police forces, superordinate goals to attain. There must be a real that the tendency would be for police officers to regard these and compelling reasce for all those concerned to want [1 n as nuisances they have to endure and, as a result, and need change and to work together towards some r 1 develop Psychological ~arriers to them. common understanding. n [J "Why us?" "Wh' ' . , Y s~ngle us out?" are th e responses of 1.1 some U pol~ce officers to these multicultural programs. , , f' [-1 .. U .. U g~ ______------I------~----~-
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.1 90 i,:..;!'~~ 89 Il
Until police officers, at all levels, see the U U training sessions on legislation and procedural knowledge which is derived from these courses as matters on a more frequen~ basis, as well as the essential to policing a multicultural society as U U Sunday morning sessions, general advanced training knowing how to use a firearm, policing in ontario within the police forces that provide their own
o in-service training occurs from three years upwards. is bound to be fraught w~th unresolved police- nl<.....f ~i community conflicts and difficulties. It is Most are over five years. In a rapidly changing counterproductive. to expose police officers to U U society, rhetoric can be out of style in a year. multicultural courses in one designated time slot These long periods may contribute to dogma and to . I and then, in another course or situation dealing 1I ,. insensitivity to the issues of the day. All training '0- with other subject matter, to have these same police U should be based on need and be relevant to the officers witness or experience situations that are I I changes in society as they occur. It is incumbent U clearly discriminatory or disparaging to ethnic n upon the Ontario Police Commission, through its minority officers. 'd Advisory Committee, to be aware of these continuing U l j changes and reflect them in dynamic and updated Individuals who teach courses in human relations ~nd pro,grams. This should apply to social changes as multiculturalism where the objective is to understand well as to technological changes. U '>-J' 1 and accept differences, and who themselves, by their attitudes and behaviour toward minorities, are fJ 1J Human behaviour and multiculturalism are becoming increasingly more evident in the courses at the insensitive. only tend to reinforce and maintain these stereotypes. '" Ontario Police College, the Canadian Police College, U U and in the on-going training courses of a number of It is essential, therefore, that training in multi )') police forces across the Province. While training cultural and human behaviour be an integral part of U J in this areoa is at the pioneer level we. see that all courses, each instructor having an awareness of iteps are being taken at municipal, provincial and cultural differences, and a sensitivity to multi- a u federal levels in commitments to change. cultural perceptions and problems. Courses should be developed with the Ontario mosaic in mind, with u f! Change comes easier to the young officer than it does particular emphasis on local police forces so that to the seasoned officer. We see some evidence of () they can get an insight into and an understanding il u changing ideas in the senior group after exposure to of their own particular communities. this treiining. Given the opportunity to participate in discussion and to be exposed to instruction by n u police and other reaource people, in some measure, REFRESHER TRAINING COURSES opens the door to better understanding of multicult- The Task Force notes that the rotation through the 0 '/ U ural issues. We trust that police officers, at all Ontario Police College on Advanced Training Courses levels, can not only find the way but indeed the will by Ontario police officers averages twelve years. g to be responsive to this kind of training and to these U " , Although individual police forces conduct special .J' issues . n ... it " ;' /1?1 n } ~f ~----,/
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91 U fi 92 U BOARDS AND COUNCILS H communication between it and the Boards. In this context it should conduct a seminar once each year police forces,in the Province of Ontario are subject for Boards and Councils, where multicultural issues to the legislated authority of the Boards and Councils. u U can be discussed. Unless the key leaders in police In view of the rapidly changing society, it is operations recognize and understand the need for equally as important for the Boards and Councils to n Lf change and work together, nothing much will be know their communities and to have an awareness of accomplished. the multicultural community, as it is for the Chiefs n U of Police and other members of the police force. The IIr'l HIGHER EDUCATION AND THE POLICE same level of professionalism which we expect from U' c1 our police officers, is also essential for those who There is no consensus among police officers, educators : , govern and set policies for police officers. For l] ,\ { and the public in Ontario about the appropriate level changes to be effective, all levels of the police of education that is required to be a successful community must be involved and positive attitudes n '1 police officer. One thing, however, that most agree towards the multicultural society should pervade L upon is that the present legal minimum requirement of throughout. Members of the governing bodies of police Grade ten education is too low a requirement for forces in Ontario must be exemplary role models for u U someone who has to do such an important task as their officers in their speech, their behaviours and policing a complex, multicultural, modern society in their attitudes. They must be sensitive to and u U the Eighties. understand the communities they serve. They must be willing to accept, and even initiate, changes that are u U The Task Force recognizes that at present there are necessary to bring about harm00Y between the police many police officers, among them some Chiefs and and the community. They must know and be responsive other high ranking officers, who have had no more than ;1 u U .,i to their community . Grade ten education. We also recognize, however, that i many individuals who left school after completing their 1 In discussing a community-relations program, which was u U Grade ten education, two or three decades ago, left 1 obviously well thought out and appeared to have the not because of their inability to learn, or their lack support from the police force and individuals from all U rJ of intelligence or because they were poorly motivated. The circumstances in which they found themselves, some levels of the community, one police Chief said "if they 11 (the members of the Board and the police officers fJ L personal and some because of the demands of society themselves) are not solidly behind the program and service in the war - were factors in their decision to demonstrate leadership, the program is doomed to U U interrupt or terminate their formal education. That failure". We agree wholeheartedly with this sentiment. these are intelligent people is evidenced by the U competence and sensitivity they bring to their job The Task Force recommends that the Ontario Police U of policing. Neverth~less, the Task Force is less sanguine about those individuals who do not complete Commission seek ways to establish a better flow of U U
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[I n 94 93 their secondary school education because of either u u at York University were cited: lack of achievement or poor motivation. In making ill ;, ) We are all conscious of racial differences, this statement, the Task Force does not wish to negate U and we all have a tendency to be intolerant, or ignore the importance or value of work experience. to some degree, of someone different than p ourselves. Bigotry is another thing and d U bigotry is the problem. Bigotry is an Some may be inclined to join the police force because extreme, militant,irrationa~ variety of intolerance. theY perceive it as an easier career to get into U 101 because it does not requ~re as high an educational He also added that: level as other jobs with comparable financial rewards, U or because 'there is no 'ither alternative open to them. LI· A bigot can be anybody too. They are not necessarily ill-educated. Indeed an educated We are not suggesting that individuals with the higher bigot may know why he feels that way ... levels of education have the potential to be successful U U There may be something lacking in him so he needs a scapegoat. police officers. Highly educated individuals can also q b j be as biased and have as stereotypic views as U l. Higher education for police officers, in and of uneducated or poorly educated individuals. Just as a itself, is not enough since it does not automatically poorly educated individual can manifest abnormal and U U make for better, more humane, more sensitive or more pathological personality characteristics '~that ':are professional police service. Does this mean that we unsuitable for the job of policing, so too can a U U should conclude that individuals who are not highly highly educated indivLdual. educated are to be preferred, or that we should not U U encourage officers to become more highly educated In an article which appeared in the Globe and Ma~l, because of the likely costs involved? We would hope (May 31, 1980), a police sergeant in answer to the not. questions put to him by a reporter, "Who are the U U racists"? "What sort of person is the average bigot"? Several police administrators in the United States "What kind of mentality does it take to turn a u n were reported (L04 Angele4 T~me4, January 13, 1980) as person aga~ns. t someone of a d~fferent• color or culture"? feeling that "the new breed (often with a bachelor's was quoted as saying: u n or master's degree) is more apt to ask questions and Racists corne from all sorts of backgrounds. is less inclined to accept blindly departmental edicts They can earn $20,000.00 a year or they can be n u than did his predecessors of 15 or more years. This poor. Some are stupid or even mentally ill, some are intelligent. They corne in different attitude sometimes leads to unrest in departments". colors too - white and black and brown. There u This feeling that officers with higher levels of is no such thing as a typical racist. u education are mere likely to be problems for the police force than those without is shared also by some police In the same article, the comments made by Dr. Daniel u u officers in Ontario. As one Sergeant said to the Task Cappon,'psychiatrist and head of Environmental Studies u u Force "sometimes the job of policing requires an instant and precise response to an order from someone 1'-: n " D
I ~.~ n I -- ._------
95 [} n 96 in authority. You can't afford the time to ask or u n answer questions~. probably please everybody; certainly the police would be relieved to know what, u precisely, is expected of them. However, Not all police officers in Ontario would agree that !J such procedural -standards often cannot be made specific enough to apply to any given the more educated police officers present difficul- U situation. Ultimately, the individual ties for police forces. One Ontario Police Chief, III officer' must be sufficiently trained and educated to use his discretion when the whose police force has changed its Grade 12 education U standard procedure is inapplicable. requirem~nt to a requirement of Grade 13 or U equivalent, said "With the salaries the way they are Il There is still the unanswered question about the level now, we feel that we can recruit Grade 13 individuals. U of education that is deemed appropriate for police The more education an officer has, the easier it is officers to do a better job of policing for the to do the job". A minority police officer, who has n iU Eighties. The Na~~onal Adv~~o~y Comm~~~~on on H~ghe~ been taking university courses on a part-time basis . Eduea~~on ~n ~he Un~~ed S~a~e~, which was established and has almost completed the required number of U ""1t by the Police Foundation in 1976, has idehtified the credits to obtain his Bachelor of Arts (B.A.j degree following five problems that are associated with the would support the view expressed by this Chief. This n question. officer said that "it is a grave misconception to say U that if an officer is too educated he can't be disci 1. There is no consensus about the purpose of higher education for police officers. plined, or obey and carry out orders". n U 2 • There is no cons&nsus on the kind of IJ curriculum that students aiming at police There is no question that policing in the Eighties is U careers should be offered. much more than blind obedience to orders from someone 3 • There is considerable question about whether in authority. As policing becomes more professional, U the 'right' kind of peo~le are being much more is needed than the ability to obey orders, U educated for police work. For example, pre-service education is resisted by police since there would be many situations in which the U unions, and some police administrators are j U police officer may be called upon to use his discretion I not sold on it. The question is better -I ., phrased by asking whether a college degree and judgement. U is really necessary for entry-level police ILl jobs? Again, there is no consensus. In discussing what professionalism of police officers 4. The faculty teaching police-oriented college means, Harlow (1969) said: n U programs are too often underqualified, judged by prevailing standards.
Those who use the term p~ofessionalization to !.1 ,- 5. Police agency personnel policies, in too mean. the establishment of standards for police [1 many instances, fail to encourage college operation advocate the pro~ision to police of education. specific instructions for handling those situations not clearly defined by law. This n u is an admirable goal and one which would ~:: From our observations,the Task Force concluded that U U some of the problems that have been identified by the .1- n " n I 1"1 / iff ------~
98 97 u
u Although these efforts by police forces and indivi Nat~onal Adv~~o~y Comm~~~~on on H~9he~ Edueat~on ~n dual police officers have increased the educational the Un~ted State~ are similar to those that confront 0 IJ level, recent initiatives, we feel, will also prove us here in Ontario. We note that there have been rewarding. A new development is the certification on-going discussions among the staff at the Police [j u program which has been designed to give police College, the Adv~o~y Comm~ttee for the College, officers a co-ordinated combination of professional and some administrators in post-secondary institutions. police training and university education. The police We would hope that these groups, in their delibera U training components will be provided by the Ontario tions, would not lose sight of the ~a~~on d'et~e for Police College, while the university components of our concern about the level of education of police U the program may be completed at any Ontario or officers in Ontario, and.that is, to increase their other accredited university. level of professionalism. U ~ ,. if It is a three-tiered program with each component The efforts being made by many police forces in Ontario ! U combining police and university train!ng. An over the past several years to encourage their members U I officer who completes the three components will be to upgrade their educational qualifications at U awarded a certificate in General Poli~e Studies, a community colleges and universities are commendable. U certificate in Advanced Police Studies, and a diploma These include incentives such as full or partial pay in Police Management Studies. At the time he receives ment of tuition fees, arrangement of time off to II U his diploma, an officer should also be eligible to attend classes and, particularly, recognition of their graduate from his university with a B. A. degree. efforts by promotional selection committees to U U Similar programs have recently been implemented by motivate many officers to attend post-secondary the Canadian Police College in co-operation with some 'I courses. In spite of the dif£iculties posed by a U n universities across Canada. ~} variety of working hours, days off and requirement to attend court, a remarkable number of them persevere I U There is a growing recognition of the Police Service until graduation. U 1 by individuals at the post-secondary school level. 1 Universities are now responding to the educational In addition to the academic upgrading which is taking u U needs of police officers. For over ten years the place, higher academic achievement is also being Community Colleges have been developing courses in recognized at the recruiting stage, resulti~g in a U fJ cooperation with local police forces. higher educational level on entry. For example, one large police force now has 4 officers with M.A. [1 U While there is some 'over-lapping' of the Ontario degr~es, 90 officers with B.A. degrees and a further Police College programs of professional subjects at 180 have over one year at university where only a few 1 U ~ Community College~~ ~ost Colleges ~rovide only those years ago there was only one officer on that police social science and related courses which have been force with a university degree. . , u U developed in cooperation with local police forces. f n -; 0 ... I r~ fl II a tjfi~ 99 Ll 100
The Task Force feels the Community Colleges are U U eou~~e~ be made 4elevant to the Onta~io serving the community and the police with their multieultu~al ~oeiety with pa~tieula~ existing program and should continue to make such U il empha~i~ on need~ 06 loeal poliee 604ee~. courses available to supplement and reinforce the [ 1 Ontario Police College programs. 1.1 1.. All in~t~ueto~~, pa~tieula~ly tho~e involved in multieultu~ali~m eou~~e~, ~hould be The Task Force has recognized, elsewhere, the U ea~e6ully ~eleeted ~n the ba~i~ 06 thei4 importance of the selection process in the police U ~en~itivity and awa~ene~~ 06 i~~ue~ ~elated service. However, it is the training and education U to multieultu4al~im. of these police off~cers that is important in U Poliee eontinue to develop, developing the sensitivities, awareness and skills /1 60~ee~ ~hould so necessary in maintaining the officer's interest U J at the loeal level, multieultu~al p~ogham6 in his vocation and in dealing with the complex and aetivitie6 that a~e aimed at opening " , I J proglems facing him. U L the line6 06 eommunication be~ween the police 066iee~~ and thei4 community in 04de~ to b4ing about unde~~tanding and ha~mony. The Ta6k Fo~ee ~eeommend~ that: n- U Multieultu4ali~m ~hould be the eonce~n 06 The 6undamental t~aining 06 poliee 066iee~~ all 066iee~~ and not only that 06 community be eontinued to be 066e~ed in a eent~alized U U 066ice~~ o~ tho~e a~~oeiated with the p~og~am. t~aining in~titution, ~ueh a6 the Onta~io Poliee College. t1 11 Police 60~ee~ ~hould continue to eneou~age thei~ 066ice4~ to upg~ade thei~ edueational The Onta~o Poliee Commi~~ion eontinue to lJ level at any po~t-~eeonda~y in~titution. ~upe~vi~e, and be ~e~pon6ible 60~, all U t~aining p~og~am6 066e~ed at the Onta4io The Onta~io Poliee Commi~~ion ~hould eonduct Poliee College. 0 U a ~emina~ once eaeh yea~ 60~ Boa~d~ and Council~ to di~cu~~ multieultu~al i~~ue~. It The Onta~io Poliee Commi~~ion, th~ough it~ n u ~hould al~o eneou~age the 6low 06 eommuniea Advi~o~y Committee 06 the College, en6u~e tion between it and the Boa~d~. that the t~aining that poliee 066iee~~ [] !J ~eeeive at the Poliee College eontinue to Poliee 60~ce~ ~hould ~t~ive 60~ a maximum 06 be ~e~pon~ive to, and eon~i~tent with, the 60u~ yea~~, and encou~age a tu~n-ove~ 06 le~~ () than 6ou~ yea~~ whe~e 6ea~ible in thei~ ehanging need6 06 ~oeiety. 11.:1-' ~e6~e~he~ t~aining p~og~am~. T~aining The multieultu~al eou~~e6 being 066e~ed at U U oppo~tunitie~ ~hould be linked with ~he ca~ee~ Poliee College be integ~ated mo~e nully in development 06 o66lce~6. the enti~e t~aining p~og~am 06 poliee U 066iee4~. Fu~the~, that the6e multieultu~al U ·r , [l .. D
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101 !] ~ 102
11 n personnel management system must include a V. 9. PROMOTION AND CAREER DEVELOPMENT sUb-system which will utilize, develop, and promote members according to their {1 u individual ability and potential. Throughout the course of this study and during the deliberations the members of the Task Force had to IJ f1 The maintenance of a progressive police service today remind themselves constantly that their mandate demands that we recognize and develop the full was not to examine all aspects of the policies and U U potential of our h~man resources in the police forces practices of the police forces pe~ ~e, but only in the officers .. How~ver, to promote ou~ effectiveness so far as they had an impact on the access, in providing critical pu~lic service, we have to 11 { J participation, equal opportunity and fair treatment improve our selection techniques, training, education of ethnic minorities. In no other area was this and the sensitive employment of our officers. Career I 1 caveat more difficult to adhere to as the one that U L development in the police service has the potential relates to the promotion and career development of for making all of ~his possible, only if we can make r~ a police officer. The policies and practices that U J effective use of our human resources - the police have implications for ethnic minorities are of equal officer. significance and relevance to all police officers, U tJ irrespective of their ethnicity, or sex, or religion, Have the police forces been making effective use of et cetera. lJ the capabilities of the ethnic minority officers U within the police forces across Ontario? The Individuals, because of their cultural and ethnic n Ontario Human Rights Commission suggested that there l J [] backgrounds may differ in their values, in their is a lack of promotional opportunities for minority beliefs, in their language and in their customs. But officers within Ontario's police forces. They pointed they all manifes.t competencies and talents in differ- U U to the fact that the highest level attained by any
"ing degrees. In order to do a job well, they all have ("\ minority officer is that of Sergeant. Since their d to be efficient. Promotion and career development U t j submission, however, a minority officer has been have to do with competencies, with talents and with promoted to the rank of Staff Sergeant. The general I 1 being effective. ) I feeling among the ethnic minorities is that upward n " 1 mobility and opportunities for advancement for them The Ont~n~o Pot~ee Ev~lu~t~on Gu~de (1975) states that: is limited, and that they have somehow to prove them IJ [1 selves, even though the criteria on which this proof The most valuable asset of any orgariization is its people. If an organization is to function is based are not explicit. In response to this charge effectively it must get full return from its U U of discrimination one Police Chief said, "It is their personnel resources and ensure that positions of responsibility ~re filled by its most performance and merit evaluation that gives them competent staff. To this end, an effective n lJ opportunities. There are no restrictions placed on
.; anyone." However, in spite of these positive U ." 0 assurances, the Task Force recognizes a feeling of
.l' :-. ., [J -, n .. II I Lrr~ .,.-'-"'~"'"
U ~ 104 103 n u instead tends to favour the malingerer". This may cynicism among the ethnic minorities and also among [J present a special problem for small police forces. other police officers when it comes to promotional u and job opportunities in police forces. [J It has been suggested that one of the weaknesses of u the career path for a police officer is that from It is not good enough to adopt positive and aggres the first day of employment everyone seems to be sive recruitment programs for ethnic minorities, u U working his way up,and trying to get into manage and equal opportunity in the selection process is ment, which he perceive~ as the only promotion route. I' just empty rhetoric, if we create barriers at other There is "no encouragement for a constable to be a II\ j levels within the police force. As we pointed out 0 damn good policeman" we were told. earlier, changes must permeate every level of the "i 1I LJ operations of policing. U Given the fact that opportunities for promotion are decreasing because of the small number of vacancies The police force, more than any other organization, LJ that are likely to become available in some police n~ u has a closed system with limited lateral mobility. forces as a result of retirement and/or resignations, As someone said to us, ~once an individual joins the l] U it would not only be desirable, but also necessary police force he is locked ~n" into the hierarchical for the police forces to develop career models for police management system with the emphasis on rank. [J U their officers with the purpose of identifying and recognizing the competencies and strengths of the One common feature that all police forQe~ in QntariQ U individual police officers in order to make more share is that emphasis is on starting" on the beat' U effective use of them. and working one's way through the ranks. Since many 0 Chiefs of Police adopt the premise that "promotion is L1 Police officers, like many, if not all, human beings, dependent on merit with due regard for seniority" many U have personal goals and expectations. Police officers, ethnic minorities who are relatively newcomers to the [J like many individuals r need to have job satisfaction. police forces will 'not be eligible for promotion on For law en£orcement, job satisfaction would translate the basis of seniority, regardless of their merit. 1] f1 into better service. Better service would mean By the same token, there may be officers, regardless reduced crimes which, in turn, would mean a better of their ethnic backgrounds, who by their performance U community, a safer community, a satisfied public. Too and ability 'are outstanding officers but, on the basis 11 frequently, in the past, better service has been I of seniority, may also be slowed in their promotion n measured in terms of the most modern equipment and 1 and career development. As a result, this limitation 1.1 better facilities rather than in terms of better or contributes to low job satisfaction, low morale, high more professional officers. It [1 u !u levels of frustration and pobrer service to the public. t As one Chief puts it "any system that does not allow .. 0 ~J for full recognition of quality, but uses seniority {] i; , ' .?; II R
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105 11
106 -IJ The traditional method of promotion - progress through dead-end jobs. On the other hand, those officers who the ranks in a vertical direction only - has some U demonstrate the necessary skills and talents for major shortcomings. Such an approach in any organiza- u other positions should be encouraged to branch out in tion stifles rather than encourages job satisfaction. those areas wherever possible. In the police organization it is more problematic u Certainly, we are all [1 too familiar with the common experience of promoting because of the work police officers are required to the best 'street cops' only to find that they would perform. [J II] have been far more satisfied if they had not been promoted to a position to which they were neither In the career development model we have in mind, [J suited, prepared, nor actually wanted, but took just officers may follow a career path as an alternative iJ to 'get ahead' because of pressure from family, to the traditional route of promotion. Their on-going u f I colleagues and friends. We recognize that such process of personal growth and development should be LJ practices have become ingrained in the sub-cultural recognized. In this system no job is seen as a organization of the police. dead-end job, since every job within the model takes Nonetheless, there needs u to be a shift in focus from linear kinds of promotion on meaning. There are built-in incentives along the to a more satisfying hUman developmental focus. way. We would not like to see police officers with u u ten or twelve years experience, at a point in their Career development as an approach will not only provide care~r where promotion looms high on the horizon, 11 a much-needed response to the police officer 'burn-out thinking that they need not enforce the law in order 11 syndrome' but will also act as a means to avoid to "avoid the hassle" which they think would decrease 11 'Peter-Principle' promotions their chances for promotion. u two of the fundamen- tal ills that plague police personnel management and u most other organizations. In the system which we are proposing ethnic minorities 11 who are recent recruits, and highly qualified, would o Career development programs should be designed and not have to wait ten or twelve years before they could developed to be consistent with the needs of a achieve their goals and expectations. If promotion particular police force and should take into account alone continues to be viewed as the sole measure of o the educational levels, work and community involvement, career advancement, then most police officers, and in technical training, demonstrated skills, and satis particular ethnic minority officers, are left no choice [] factory performance evaluations of the officers. but to fail in such a system.
Many police forces in Ontario do not have a formal As a matter of policy, police officers who prove adept ,. written promotional process, nor a clearly defined , at the delivery of street-level police services should I career development program. In fact, many have not i be encouraged and rewarded where their talents are best j I ! recognized the need for formal career development manifeated rather than be perceived as trapped in u programs. Some have promotional 'guidelines' while ! LJ •f [1 o I·,
t o I i ------~~ ~~------~
107 o 108 others have developed intricate 'merit pUint systems' u allocating points for performance, appraisal, 2. Such plans would require that relatively early in an officer's career, an individual seniority, written examinations and face-to-face u would decide whether or not he or she wants examinations. Very often, however, the officers to continue as a highly skilled officer, or seek a supervisory position. themselves do not understand the precise criteria upon which promotion is based. II Crucial to the success of such programs would be the creation of effective counselling services for police Within the last year attempts have been made, by a 11 officers, including the appointment of career develop few police forces, to objectify the promotion process I j ment personnel, in order to facilitate them in making and to bring it more closely in line with managerial II the appropriate match of their talents, skills and style approach to evaluation. In particular, psycho- aspirations to police functions. logical tests to assess the individual's strengths II and weaknesses are used to supplement the in-depth The T~~~ Fo~ce ~ecommend~ th~t : interviews that are being done in some police forces by personnel, or in some cases by outside consultants. Police 60~ce~ be encou~~ged to develop Among competencies that are being assessed are the o c~~ee~ development model~ with the individual's problem solving abilities, face-to-face u ~~~i~t~nce 06 the Ont~~io Police Commi~~ion . and written communicative skills,, managerial style, u inter-personal skills, leadership qualities, persona u Poli~e 6o~~e~ ~hould take into can~idena lity characteristics and career aspirations. I"l U tion 60n p~omotion ~nd c~~ee~ development, A 'model career development program' developed in some initi~tive~ t~~en by individual 066ice~~ U to upg~~de thei~ educ~tion ~nd thei~ police forces in the united States (for example h C~~ee~ D Vevelopment 60~ L~w En60~cement, 1974; A C~~ee~ L~dde~ involvement in community ~ctivitie~. Study 60~ the Po~t~mouth Police Vep~~tment, 1976) involves U [] a five-element classification plan. Two of these may Vi~c~imin~to~y ~nd un6~vou~~ble beh~viou~ have some relevance to career development of police u by an 066iee~ tow~~d individu~l~ in the officers in Ontario. They are as follows community ~hould be ~ di~incentive 60~ [J p~omotion. 1. The plan would provide an adequate reward u system for field personnel who do not wish Police 60~ce~ ~hould ~ee~ innov~tive w~y~ to pursue supervisory or command positions, LI but whose performance is exceptional, and [] to inc~e~~e the job ~~ti~6~ction 06 police would establish new classifications for 06nice~~ othe~ th~n th~ough the t~adition~l personnel with investigatory, supervisory o ve~tical ~oute~. and command authority. lJ [J U o / ~I> ••
[J U 110 109 U Whe~e po~~ible, police 60~ce~ ~hould appoint U V. 10. ANCILLARY SERVICES a ca~ee~ development 066ice~ (o~ committee) who can coun~el individual 066ice~~ and U U At the present time, particularly in larger centres, 6acilitate them in the planning 06 thei~ the police forces are respond1ng to the ethnic and racial sensitivities in the communities they serve. ca~ee~ development. U U For over ten years, community officer units have The. Onta~io Police Commj,.6~ion be p~ovided u r ~ been developed with the main purpose of bringing with 6unding to a~~i~t in the planning and about a better understanding between police and the " ~ I I neighbourhood they serve. The youth service branches development 06 ca~ee~ model~. 1 \ u have had a long history of trying to bridge the gap
J : between youth of all backgrounds and the police. We I 1 0 are only making mention of those police services which have a direct relationship to racial/ethnic IJ lJ groups. For ~xa~plS, in Metropolitan Toronto, with its 5,414 officers, an 'ethnic squad' exists. It (l) [J ) includes a cross-section of police officers from different racial/ethnic groups who act not only as j' liaison persons in different regions, but also serve I [j II ! I] as instructors at Bick College for training of recruits and senior officers. Many of Ontario's police forces ifL l j have developed special services to deal with the rj cultural mosaic of their particular communities. LJ ~. Training of such officers at the Ontario Police College and the Canadian Police College is referred to in [J ~J greater detail in another section of the Report.
fl An example of a recent attempt to highlight the impor fJ tance of ancillary services to the police is seen in n the appointment of a senior officer in thE~ Metropolitan rl Toronto Police Force, whose responsibility it is to act as an extension of the Chief of Police, in all race [ J " n relations matters. Since this has been such a recent move, one can only comment that it does reflect the [ j n concern and positiv.e attitude of th~ police to develop, 'at a senior level, mechanisms whereby they can respond H L1 ,?' I
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III U 112 more quickly to problems in the community. n has been recently under discussion in the Ontario Legislature would suggest that present procedures The Task Force sees the complaint procedure, whatever n i1 are not believed to be totally adequate. its format, as an important instrument for all persons in Ontario, and particularly for those who feel that Under ideal conditions, complaints received by a they have a just complaint to make with regard to police force through its own channels and acted upon police practice. An exa~ple of a complaint procedure, I] as quickly as possible to satisfy complaints is n" I J which is presently being used by a police force in highly desirable. Complai~t procedures and organiza Ontario, contains the following points. [] j tional structure which arouse suspicion that they are ,. i operating to the detriment of the citizens they serve It recognizes, on the one hand, that a need to be scrutinized. police officer is a trained professional However, there are dangers in institutionalizing all complaints. and is expected to display tact and 0 Nonetheless, speed, accessibility and fairness have to be perceived to be discretion. \ u , j believed. In the long run, t.he credibility and trust relationship which exists between the public and the It recognizes that misunderstandings and police is based, not upon organizational structures, violations in police behaviour may occur. u j but upon the unbiased manner in which the people involved carry out the procedures which have been laid It invites citizens who feel they have !j u down. good reason to question the conduct of an l officer ~e do so with authorized personnel u tl Complaints, whether they be minor or major, should be at locations clearly listed. monitored, recorded and reviewed by police forces periodically. This has particular importance for It points out that each complaint will be u ethnic/racial incidents. Such information should investigated. u signal to particular police forces the need for special attention to be given to particular areas in their It states that the complainant is informed community or to individual or clusters of officers. of the results. fJ
Most Ontario police forces have their own complaint , U I I procedures. The extent to which these complaint I procedures have been successful, or have been perceived [J to be successful, varies in different communities. t ~ However, the fact that a pilot project to improve f Q I; processing complaints by the public against the police u f; \
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~~- 113 U U 114 IJ U sometimes by a carry-over of experiences with police VI THE CO~IIMUNITIES OF ONTARIO in other lands and sometimes negatively affected by U the media. VI. 1. PERCEPTIONS U t J There is a tendency in many communities to shift the U responsibility of the changing society and all its by-products to the shoulders of the police. From n 11 the community side, we have to recognize the dramatic changes that have taken place - for example, U th~ shift of women into the labour force and the r I accelerated rate of urbanization. In many communities, [] I ' people feel alienated, without a sense of identity i ( and without a feeling that anyone cares. The extent , I ! 1 to which the entire concept of the family has under U gone radical changes is seen in Ontario, as in the rest of Canada. Such changes are felt more or less U U in every community, but probably less dramatically in smaller communities. r1 U " We are a pluralistic society that has been greatly II tJ enriched by a diversity of cultural backgrounds, which we find in every nook and cranny of Ontario. Our Task U 11 Force has repeatedly indicated that we do not view the \ 1 ripples of immigration corning into Ontario as synonymous U' ,I with crises. However, we do recognize that some old problems are presenting themselves in new forms. The 1 J I I I extent to which communities have given indication of U their reaching out to be helpful to newcomers is highly lauda.ble. Our concern lies in the relationships [J t J between the multicultural communities and their perceptions of the police. Our attention was drawn to tl IJ those newcomers who, without any personal experience with the police, have developed a sense of anxiety and n U t fear generated sometimes by a lack of information, ( , I [1 U ~ . , f: F ~ " • [J .. U Ii \ 1, .') l~ " nt y 115 f] i] 116 u n ago, for religious reasons" it does not make it easier VI. 2. THE PEOPLE for the newcomers today. Attitudinal, changes in the u community - through the people themselves, through the In the pre-industrial age, village societies were u closely integrated and comparatively homogeneous. school system, through all the channels possible, in Everyone knew everyone else's affairs and character, U [1 addition to the police - which make racism an the rules of society were generally familiar and undesirable way to express aggressive bias, all were identical with the moral and ethical precepts 0 f .I contribute to a better society in which we can all live in harmony. taught by parents, teachers, and the church. The Police are as good as the communities ' ( they serve. greatly increased complexities of our society only i Police are an integral part of every U I, ) community. make more important the kind of unofficial peace The scapegoating of minorities or of the ) \ police does making that Jane Jacobs has called "the intricate, little to raise the level of understanding. U I ! almost unconscious network of voluntary controls and standards among the people themselves". \ U J Police cannot operate effectively by themselves. It is an understanding community, appreciating the needs U U of the people, which makes it possible for police to react in new directions. The perception that people U Ll have of the police varies. The perception of different groups in the community will vary. There are studies U t, iO which indicate that people in the middle and upper classes always tend to look more favqurably on the police , U L1 • I as the protector of their rights and property. In most ! communities, people in lower economic groups tend to fear the police. Minority groups do not necessarily 0 LI fall into one group or another. Their fears and ' I I I anxieties can be, and have been, in some instances, U ).1 generated by hostile verbal and physical abuses. Fear, for their children's safety and their own, can escalate 0 !j far beyond economic class attitudes. Negative stereo~ types expressed in the printed word, in photographs, or [] 1'1 in television images, can be sources of fear, pain and discomfort. Although many generations have lived U II through similar unpleasant experiences several decades n 0 .,.. [-'j ' ": 0 ~~ II l ~ ,j U~,: ;..------ 117 r1 118 VI. 3. MEDIA U No one, who has had anything to do with journalism, -1 will underestimate the difficulties an editor faces The Task Force has the impression that, in their U .- L when handling stories about race or ethnic minorities. zealous search for news, the media have, in some Equally, when mistakes are made, whether of instances, contributed to the problem and the tensions n commission or omission, anyone who knows about aroused in the racial/ethnic milieu. Some newspapers newspapers will beware of inputing malice or attribu have made' use of language which could be interpreted ting other motives when, so often, it is merely a as racial slurs on a particular minority group. In u question of the judgement of a sub-editor working under some instances, singular 'events h ave b een 'blown up' pressure. But if a newspaper systematically gives out of proportion, and out of context. For dramatic u prominence and sensational treatment to news stories effect, in some television presentations, editorial which may incite fear or prejudice against a minority tape splicing has been intentionally done, more with u group, then there could be good reason to suspect that the desire to be sensational than to communicate the this treatment is the deliberate policy of the paper. facts and to be informative. 0 !J The selection of news and the priority given to one What citizens hear, read and see about police in the fJ story as against another is a matter of personal taste news media is every bit as important as the perceptions u and judgement, as a comparison of newspapers will they form from direct cO,ntact. This is particularly generally show. The same story will be treated true if we consider the fact that a majority of the U u differently by different editors. Somewhat like light citizens in a given community seldom have direct ~ passing through a prism, the same story can take on contact with an officer, but daily are exposed to news f1 u different colours in different newspapers. accounts and interpretations of police activities. l J The Runnymede Trust publication, Publ~~h O~ Be Vamned ? The past few years ~n. 0 n~~~~o,-'- ' c;ted~ both in the Pitman by Peter Evans, was released in December 1976. The and Carter reports, have shown that some members of the [J :') u study carefully documents two examples, in Great Britain, ,1j media have not acted in a responsible manner when of press campaigns which triggered communal outbreaks, reporting 'social unrest' and 'racial incidents'. U leading to the disruption of several minority communi This has tended to impede the mutual respect between ties. In their words - "In most cases, the responsibi the police and the media and, in some instances, may lity began with the demagogic politicians, but it was have hampered the resolution of some of the conflicts. U shared by an irresponsible press". Some police officers perceive journalists as [1 sensationalists and not to be trusted. This erodes r1 Too often, media coverage tends to be sporadic, the philosophy of mutual respect and 'the right of the inconsistent, non-factual, and slanted. public to know'. More import- U u antly, the media all too often over-emphasize and ,'/' rJ ./( . , f_ n " u r j l ----~------ 119 1] 120 u u over-expose situations that are not always in the VII. CONCLUSIONS best interest of the public. Press coverage in Metropolitan Toronto of 'police brutality' and of 0 In our pluralistic society of Ontario, we have every 'racism' are good examples of the media inability, reason to believe that, basically, most sectors of for whatever reason, to give responsible, unbiased 0 the socie~y are law-abiding and respectful of the coverage of potentially explosive problems. The police. The police of Ontario are perceived, in most media becomes part of the problem. ~ instances, as being first-rate, to be compared positively with all other police forces in the world. i 1 However, we would be naive if we did not recognize We recognize that coverage of ethnic/race relations u ) J present newspapers with an enormous professional that many law-abiding, police-respecting minority challenge. We do not believe that the answer lies n groups affected by unfortunate events, are fearful in censorship of a negative or positive nature. A and uncomfortable, and in many instances are unsure healthy democracy depends upon the availability of "- of the extent to which they would be treated fairly facts and the clash of opinions about them. u U and sympathetically should a circumstance arise involving police in their own lives. Ways must be The pluralistic society of Ontario in the Eighties u U sought to restore faith and confidence in the police, will demand increasing sensitivity and professionalism through the schools and the citizenry at large, in (1 by the media. Use of more journalists from ethnic/ u U fact all components of this society. minority backgrounds would broaden their present aware- ness. It should also be recognized, from a business f] U In any discussion of discrimination or prejudice, the point of view, that the nature of our society from focus has usually been on why majority group members which journalists obtain their news, and about which become prejudiced toward minorities. Very little they write, and upon which they depend for advertising u U consideration is given to the effects of prejudice or and sales, is also changing. The media themselves have f 1 discrimination upon the victims in terms of their I I a great challenge to meet and understand the needs of u l responses to or defence against such attacks. the multicultural society of the Eighties. 0 I 1 Some Canadian social psychologists (for example, Dion,Earn and Yee, 1978), in looking at different [J Ll groups who have experienced different forms of prejudice, have suggested that victims of prejudice fJ [J are more sensitive to acts of discrimination, and they often perceive situations as discriminatory r which are different from the way others (those not [J 1J subjected to the same forms of prejudice) perceive U [] them. And very often their defensive reactions to .1:- [I .. n .":'l I / ~'~ n ~ ,I ------~-~------" 122 121 j 1 lJ recognize when the criticism is directed at parti forms of prejudice may provoke further acts of cular individuals or certain aspects of policing discrimination. This point is very important to rather than the entire system. keep in mind in any consideration of police lJ u minority relations. u For their part, the citizens of Ontario with their o concern for their civic rights, which they feel are As Walter Pitman said to the Task Force, when we being violated by unfair police practices, should create minority groups as victims, they become u n not at the same time lose sight of their civic victims, and they tend to behave as victims. The responsibility. psychology of victimology would suggest that in order u f] to reduce prejudice and bias in society, we need to In short, the police and the community need to come understand the consequences of such actions on o together in a common understanding with the goal minorities, particularly the effects on their self towards constructive dialogue rather than in a image and self-worth as individuals. confrontation role. They need to operate on a mutual degree of trust and respect for each other's needs if Police officers themselves have, at times, felt police-community relations are to be improved. victimized - although victims of a different sort. o Ll As the most visible representative of government, and No community or citizen is immune from the effects as agents of authority, they are easily distrusted u u of racial conflict. We must continually strive toward and feare~, ana become convenient objects of displaced the objective of making this a safe and just society hostility. In situations where there is conflict U for all people, irrespective of colour, or race, or between the police and the community, they are often u religion, or years of residence in Ontario. Such a under attack and they become defensive. [1 u vision and dream should be clearly understood and expressed as an objective to work toward. We all To provide the public with better and more effective must recognize, however, that no program in police policing, police officers need the support of the r1 ) ] community ~elation has a chance of success without community, and since morale in ~olice forces is positive commitment by public officials, police considered important to successful policing, the police 11 personnel and administrators, and the community. The need the public support of the community leaders and gap between public pronouncements and police practices government officials to achieve their goals of [1 I j must be closed if we are to achieve our objectives. fairness and justice in their law-enforcement and peace-keeping role. This is not to suggest that 11 11 public officials must not acknowledge when police officers err in the course of their duty. A wise l.1 leader recognizes when and how to balance encourage fJ ment and support with needed and deserved criticism. [I And police officers, like true profes~ionals, would ,';:..~. fJ I: ('I II If" i D h i j<' ul / n r ,-~~-~ •. - .<. 123 IJ ~ 124 U U REFERENCE BIBLIOGRAPHY [] U Address by the Honourable R. Roy McMurtry, Q.C., Solicitor General, to the Liaison Group on Law Enforcement and Race Relations Conference "Changing Attitudes for the IJ U Eighties", Toronto, March, 1980. Advanced Training Course - Notes on Policing a Multicultural U I.! Society. Ontario Police College. ~PILOGUE Career Development for Law Enforcement. United States 0 Department of Justice. Law Enforcement Assistance I : I Administration Technical Assistance Divi~ion, 1974. t ,;i Crisis and Conflict Interventions: A Human Relations 0 Program for Police Trainers, Course Training Standard, "Woui.d you teU me, plect6e, whlc.h way r ought :to go nlt?,m h0e?" Canadian Police Ccllege. "Thed depen.ci6 a good deal on. wheJte you wa.n.:t to ge.t to! .6tU..d:the Cat. " 1 do n. ' t muc.h c.Me wh eJte --- ," .6 aid AU..c.e. D U Crisis Intervention and Multiculturalism. Instructor's "Then. U doun.':t ma.tteJt whlc.h way you go," .6Cud :the Cat. . Guide, 1979. Ontario Police College. "---.60 lon.g ct6 1 get .6omewheJte," AUc.e added ct6 a~~ expla.n.a.-ti.on.. "Oh, you' Jte. .6u.Jte to do :that," .6aid the Cat, "in you only walk. lon.g en.ough." 0 U Commission on Peace Officer Standards and Training for the State of California, Minority Police Recruitment and Selection - A Total Community Responsibility, f] U December, 1972. Cordingley, Paul. "Psychological testing in Canadian Police ]~ouis Car,r.oll, 1865 Forces", Canadian Police College Journal, 1979, 3 (2), 0 0 126-161. Dion, K.L., Ea:&n, B.M. and Yee, P.H.N."The Experience of [J U being a victim of prejudice. An Experimental Approach~ IntermAtional Journal of Psychology, 1978, 1:..2.. (3),197-214. DuBois, Philip H. and Watson, Robert I."The Selection of 0 L1 Patrolmen." Journal of Applied Psychology, 1950, 34 (2), 90-94. 0 [1 Equal Opportunity and Public Policy. A Report on Concerns of the South Asian Canadian Community regarding their. place in the Canadian Mosaic. Submitted to the n fl Attorney General of Ontario by the South Asian Canadian Community, Prepared by Bhausaheb Ubale, Toronto, 1977. [I [] Ethno-Cultural Directory of Ontario, 1979. Ministry of Crilture and Recreation. Evans, Peter. Publish or Be Damned, Runnymede Trust IIL 0 Publication, December, 1976. q U 0 Family Crisis Intervention, 1978. ontario Police College. . , Field Training Manual, Ontario Police commission. ,T ('1 .. U i' " , / 1 \ " ff~111 11 r 1 125 I ; [~ 126 11 fJ Final Report of Sub-Committee on Race Relations. Toronto Lancashire, David. ''Racisn!' The Globe and Mail, Board of Education, May, 1979. U U May 31, 1980. '1 Final Report of the Work Group on Multicultural Programs. Los Angeles Times, January 13, 1980,"New Breed Asks T=ronto Board of Education. February I, 1976. U 11 Questions". Forward Together. A statement of the Position of the Lubans, Valdis and Dart, Richard F. A Career Ladder Government of Ont~rio on the Issues Raised in the Study for the Portsmount Police Department. Social Ubale Report on the concerns of the South Asian U II Development Corporation. Hartford, Connecticut, 1976. Community. Toronto, 1978. j Metropolitan Toronto Police Response to "Now is Not Too Future Roles of Criminal Justice Personnel, Position ~ I ~". Committee of the Board of Commissioners of Papers - Project Star (System and Training Analysis Police. Toronto, 1978. of Requirements for Criminal Justice Participants). The Commission on Peace Officer Standards and Training 0 II Minority Police Recruitment and Selection - A Total (California) . Community Responsibility. Report on the ~~nce, California, December 7-8, 1972. The Commission on Gandy, John and Cooke, Lena. Liaison Group on Law LJ Peace Officer Standards and Training Project (M.O.R.E.). Enforcement and Race Relations. Law Enforcement - Race 0 Relations Committees in Metropolitan Toronto. An Minority Recruitment Project (Project M.O.R.E.). Second Experiment in Police-Citizen Partnership. September, Progress Report to the Legislature. The Commission on 1979. IJ U Peace Officer Standards and Training {California}. Godfree, L. "The Utility of I.Q. Tests for Police Selection Multi-Cultural Education Instructors' Course. Course and Promotion Procedures", R.C.M.P. Gazette, 1980, !1 U Training Standards. Canadian Police College. 42 (2), 19-20. Multi-Cultural Education Instructors' Course. Course Goldstein, Leo S. Perspectives on Law Enforcement: 11 U Training Standards. Canadian Police College. Characteristics of Police Applicants: Final Report, Princeton, New Jersey. Educational Testing Service, National Advisory Commission on Higher Education in the February, 1971. U [J United States, Police Foundation, 1976. Harlow, Eleanor. "Problems in Police Community Relations: Newcomers Guide to Service in Ontario. Ministry of Culture A Review of the Literature", Information Review on and Recrea~ion. M Crime and Delinquency, 1969, ! (5). a II Notes for a Statement by the Premier of Ontario to a Hobbs, N. The Futures of Children. San Francisco. Multicultural Leadership Luncheon. Queen's Park, Jossey-Bass, 1974. 0 Il May 4, 1977. Intermediate Command Course, Ontario Police Commission. Ontario Police Evaluation Guide. Ontario Police Commission. 11 Interim Report on Post/State Personnel Board Selection U Study, 8/3/74. The Commission on Peace Officer Ontario Police Evaluating Training Package. Ontario Police Standards and Training (California). rJ U Commission. Junior Command Course. Ontario Police Commission. Ontario Police College, 1979 Calendar of Courses. Kent, D.H. artd Eisenberg, T. "The Selection and Promotion [ 1 U Ontario Police Recruiting Guide. Ontario Police Commission. of Police Officers: A Selected Review of Recent Literature". Police Chief, February, 1972, 20-29. Outreach for Understanding. A Report on Inter-cultural Seminars conducted in Toronto bet,ween 1973 and 1975. Kluckhohn, C. and Murray, H.A. and Schneider, D.M. (Eds.), U U Ministry of Culture and Recreation. Personality in Nature, Society and Culture, New York: .?- Knopf, 1953. '; r 1 -I '" U I I( )1,1 lJl lJ IT"d~1 127 ~ 128 ~lJ Pitman, Walter. Now is Not Too Late. Report. Submitted The Im2act on Multi-Ethnicity on Canadian Education to the Cour-cil of Metropolitan Toronto by the Task ~ The Urban Alliance on Race Relations, 1977. Force on Human Relations, 1977. The Ontario Human Rights Code ~ The Ontario Training Program for Police - Minority Relations Resource Book. Prepared by Ontario P l' Probationary Constables the Ontario Human Rights Commission and the Ottawa o ~ce Commission Police Department, 1979. The Police Act R S 0 0 ----~~~~~, "" 1970 Policing a Multi-cultural Society - Seneca/Jane Project. The Race Relations Report - Final Recommendations (23/11/78) and Interi~ • Radelet, Louis A. The Police and the Community, nL ~eport (20/9/79). Toronto Encino, California, Glencoe Publishing Co. Inc., 1980 Board of Education (Third Edition). nI. The Task F~rce on Policing in Ontario, The Public are Readings in Community Involvement. The Urban Alliance on the Pol~ce: The Police are the Public Report to Relations, 1977. the Solicitor General of Ontario, 197~ Recruitment Standards Project. Ontario Police Commission. U' United Sta~e~ Pres~dent's Commission on Law Enforcement ahnd Adm~n~strat~on of Justice, Task Force Report- T e Pol~ce. Washington D C U S G·' P ' , , .. , " overnment Refugees from Southeast Asia - Their Background. Ministry U r~nt~ng Office, 1967. of Culture and Recreation. United Within Diversity. Pro d' _ cee ~ngs of a multicultural conference on Canadian U 't h Report of ' the Steering Sub-Committee on Police t. 'j n;~~~~~~:::.!.:~:-=7=~.:!:..!:~~~n!..:~~x.y e 1 din To ro n to , Training in Ontario. n t April 21/22, 1978. Report on Police Training. Ontario Police Commission. Vanaguras, Stanley. "Police Entry Testing and Minority [] Employm:lnt: Iz:tplications of a Supreme Court Decision". Report to the Civic Authorities of Metropolitan Toronto The Pol~ce.ChLef, April 1972, 62-64. and Its Citizens. Submitted by Gerald Emmett Cardinal Carter, Archbishop of Toronto, October 29, 1979. Vincent, Claude L. Policeman, T u Ltd., 1979. oronto: Gage Publishing Review into the Standards and Recruitment Practices of the Metropolitan Toronto Police. Report submitted by Walsh, James L. "'Professional' Cop", in Bayley and John T. Clement to the Metropolitan Board of Commissioners u Mendelsohn (Eds.) Minorities and th Police: of Police, March, 1980. Confrontation in America. New Yor k : e Free Press, 1969. Shellow, Robert and Bard, Morton. Issues on Law Enforcement: u Essays and Case Studies, Reston, virgina, 1976. Skolnick, Jerome H. The Police and the Urban Ghetto. U Research Contribution of the American Bar Foundation, 1968, No.3. 11 Survey of Markets (1980). The Financial Post. u The Black Presence in the Canadian Mosaic~ A Study of Perception and the Practice of Discrimination Lli, n against Blacks in Metropolitan Toront£. Submitted to the Ontario Human Rights Commission by Wilson Head, Toronto, 1975. 11 u .;' . r I -. nl :,f ~ . -.,;-~- .. -.:~~:- ~..!,,;....:;"!;,;. APPENDIX B fJ~..d, 130 129 APPENDIX A U ~ peRSONS AND/OR ORGANIZATIONS WHO MET U WITH TASK FORCE MEMBERS PERSONS AND/OR ORGANIZATIONS WHO MADE WRITTEN SUBMISSIONS n n Mr. K. Abeyesekera Chief J. Ackrcyd, Metropolitan Toronto Police J I D.K. Abeyesekera u Former Chief H. Adamson, Metropolitan Toronto Police Canadian Arab Friendship society of Toronto - Mr. B. Armstrong. Ontario Human Rights Commission "I Ms. J. Bay, National Action Committee on the Status J. Peters, President II of Women U Mr. W. Belyea, Hickling-Johnston Limited R. Cooke I ) Mr. G. Brown, Ontario Human Rights Commission J.P. Liriano I • I Cardinal Carter, Archbishop of Toronto . comm~ttee on the Status of Women - National Act~on ..... n Mr. A. Chumak, Toronto Board of Education L. McDonald, Pr~sident Mr. J.T. Clement, Q.C. ontario Colleges of Applied Arts & Technology - Ms. R. Cooke .\' Dr. D. crittenden, Chairman, Ontario Human Rights Commission Executive Committee of Coordinators of Law n Special Constable J. Deltman, Indian Band Constable & Security Administration Programs ) 1 Deputy Commissioner J.L. Erskine, Ontario Provincial Police police Association of Ontario - 11 Mr. A. Flynn,' Seneca College E.R. Johnson, President. n Mrs. B. Fowke, Hickling-Johnston Limited Mrs. J. Gammage N. Ruiter 11 Special Constable R. George, Indian Band Constable L. Sedlatschek U Judge P. Giverts, Chairman, Metropolitan Toronto Board of Commissioners of Police H.W. somerville U Mr. L. Godfree, Ontario Police College P. subhash Mr. P. Godfrey, Chairman, Metro Council U Commissioner H.H. Graham, Ontario Provincial Police I. Thieurauf Judge T.J. Granam, Chairman, Ontario Police Commission u Mr. D. Green, Toronto Board of Education U Deputy Commissioner K.W. Grice, Ontario Provincial Police Mr. L. Hall, Hickling-Johnston Limited 1\J Ms. P. Harper, National Action Committee on the Status n of Women (1 Dr. W. Head Dr. H. Jain, Human Rights Committee, Hamilton L Chief W. Johnson, London Police U Mrs. P. Jones, Multicultural Centre, Hamilton q Mr. C. Kalevar L Mr. T. Keightley, Ontario Police College U Chief T. Keep, Thunder Bay Police Staff Sergeant R. Kelly, Ottawa Police U Staff Serqeant R. Kerr, Metropolitan To~onto Police n Dean B. Kimlicka, University of Western Ontario Mr. p. LeBlanc, Seneca College [J Mr. D. Leckie n Mr. J. Liriano Mr. S. MacGrath, Member, Ontario Police Commission Mrs, P. MacKenzie, Ministry of Culture & Recreation t1 B Staff Sergeant G. Malcolmson, Hamilton-Wentworth Regional /1 Police Dr. H. Massey . I0 Dr. L. McDonald, National Action Committee on the , , n -: ... Status of Women I" ~. ~ " n [1 "'; U C'~ ! IJw.i.; ------~--~- ---~- - ---~------ I! n 131 132 APPENDIX C superintendent C. Millar, Hamilton-Wentworth Regional Police Constable G. Morrison, Metropolitan Toronto Police Mr. A. Nagy, Hickling-Johnston Limited Assistant Commissioner C.A. Naismith, Ontario Provincial Police u MUNICIPAL POLICE FORCES· ONTARIO Mr. M. Nakamura, Ontario Human Rights Commission Deputy Chief J. Noble, Metropolitan Toronto Police JANUARY 1979 Inspector O'Toole, Peel Regional Police Constable V. Parvis, ontario Provincial Police MUNICIPALITY POPUL.\TION ~ MUNICIPAL!TY POPULATION ~ Staff Sergeant E. Pearson, Metropolitan Toronto Police STRENGTH STRENGTH Mr. W. Pitman Rabbi W. Plaut, Ontario Human Rights Commission Alexandria, Town 3,460 4 Essex, T(lNn 6,200 7 Chief N. Raven, Deep River Police Alliston, Town 4,725 7 EXeter, Town 3,600 5 t ' Amherstburg, Town 5,738 9 Fergus, Tot,fll '5,981 Mr. N. Ruiter \ 10 ( Mayor J. Sewell, Metropolitan Toronto Anderdon, Fort Frances, Ms. B. Shields, Ministry of Colleges & Universities Township 5,005 7 Town 9,088 20 Mr. W. Shimmin, ontario Police Commission Arnprior, Town 5,911 10 Gananoque, Town 5,054 9 Mr. P. Stenning, Centre of Criminology II u Athens, Village 1,026 1 Gloucester, Mr. P. Subhash Atikokan, Township 65,050 72 Inspector Summerville, Windsor Police Township 5,781 12 Goderich, Town 7,400 10 Mr. K. Travis u Aylmer, Town 5,500 8 Guelph, City 71,349 108 Mr. J.E. Trimble, Chairman, Hamilton-Wentworth Regional Barrie, City 35,546 48 Haldimand-Norfolk Board of Commissioners of Police Belleville, City 34,906 63 Regional 33,417 74 Hal ton Regional 230,375 Mr. B. Ubale, Ontario Human Rights Commission Bradford, Town 6,868 8 263 staff Sergeant Uri, Metropolitan Toronto Police fJ u Brantford, City 69,091 106 Hamilton Mr. R. Warman, Georgian College wentworth 411,358 676 Brockville, City 20,013 38 Regional Cardinal, Hanover, Town 5,786 10 \ u u Village 1,778 , 3 Harriston, Town 1,902 3 carleton Place, Hastings, Village 950 Town 5,574 8 1 Hawkesbury, Town 9,804 14 u H Chatham, City 39,960 64 Chesley, Town, 1,878 2 Ingersoll, Town 8,200 12 Clinton, Town 3,116 5 Innisfil, Twp. 16,822 20 o Cobourg, Town 11,216 19 Kapuskasing, Town 12,500 15 Colchester South, Kemptviile, Town 2,480 3 Township 7,327 9 Kenora, Town 9,992 24 Collingwood, Town 11,500 17 Kincardine, Town 4,652 9 Cornwall, City 46.,087 67 Kingston, City 61,088 101 Deep River, Town 5,441 7 Kingsville, Town 4,937 7 Deseronto, Town 1,830 4 Kirkland Lake, u Town 12,768 18 Dresden, Town 2,440 4 Dryden, Town 6,500 12 Lakefield, Village 2,266 4 Durham, Town 2,456 4 o o Leamington, Town 11,156 16 Durham Regional 256,357 350 Lindsay, Town 13,687 22 Elliot Lake, Township 12,893 22 Listowel, Town 4,972 7 Espanola, TOwn 5,888 8 London, City 253,726 313 -" [1 134 APPENDIX D u THE ONTARIO POLICE TRAINING SYSTEM 133 u n PROBATIONARY ORIENTATION Immediately after appointment CONSTABLE I n-SVtv..i.ee as Probationary Constable. MUNICIPALI1~ POP~TION MUNICIPALITY POPULATION POLICE PROBATION PART A ~ u TRAINING As soon as practical but no later STRENGTH STRENGTH u On.:taJUo PoLLc.e CoUege than six months after successful Marathon, Renfrew, Town 8,588 13 completion of the orientation Township 2, 365 5 course. St. Clair Beach, o n Meaford, Town 4,169 7 Village 2,359 3 LOCAL PROCEVURES Mersea, Township 4,400 5 St. Marys, Town 5,100 7 I n-SeJtv..i.ee Immediately prior to Field Training. Metropolitan St. Thomas, City 27,307 43 FIELV TRAINING Toronto 2,259,587 5,364 [1 Immediately following Local Sandwich West, In-SVtv..i.c.e Michipicoten Township 14,100 16 Procedures. Township 4,940 13 Sarnia, City 52,584 97 PROBATION PART B Successfully completed within Midland, Town 11,726 15 1f Sault Ste. Marie, On.:taJUo Pollee CoUege twelve months of first appointment Milverton, City 80,630 115 to Force. Village 1,469 2 Seaforth, Town 2,046 5 Mitchell, Town 2,750 4 Shelburne, Town 3,000 4 jJ CONSTABLES REFRESHER TRAINING Mount Forest, Co-ordinated with In-Service Train Smith Falls, Town 9,016 16 TOwn 3,402 4 REFRESHER On.:taJUo PoLLee CoUege ing Program within five years of Southampton, Town 2,748 5 oJt In-SVtv..i.ee Napanee, Town 4,846 8 f J TRAINING Constable'S confirmation of Nepean, City 82,000 101 Stirling, Village 1,571 1 L appointment to the Force and every Stratford, City 26,000 New Liskeard 5,505 7 40 five years thereafter. Strathroy, Town 8,500 Niagara Regional 366,054 556 10 [J JUNIOR North Say, City 51,000 89 Sturgeon Falls, u PRE-COURSE TRAINING Prior to or immediately upon appoint Town 6,270 9 PACKAGE Norwich, Village 1,980 4 COMMAND ment as a supervisor. Sudburj Regional 167,621 233 orangeville, TRAINING Tn-SVtv.iee Training Program provided 'through TOwn 13,000 17 Tavistock, Village 1,759 3 L1 [J the Ontario Police Commission. Orillia, City 24,000 38 Terrace Bay, Township 2,300 5 On.:taJUo PoLLee CoUege Prior to or within six months of ottawa, City 306,000 579 Thornbury, Town 1,450 2 U appointment as a supervisor. Owen Sound, City 20,500 33 Thunder Bay, City 111,435 180 n PWtp0.6e: To pJtepaJc.e a eOn.6ta.b.e.e 60Jt IU.J., 6fu:t .6UpeJtvMoJty Palmerston, Town 1,980 3 Tilbury, Town ",317 8 Jtank, ..i..e. Mun..i.c...i.pal PoLLee :to SVtgean.:t/O.P.P. paris, Town 7,200 10 Tillsonburg, Town 9,500 19 :to COJtpoJtai.. Parry Sound, Town 5,300 8 Timmins, Ci ty 44,261 71 n Peel Regional 425,293 589 Trenton, Town 14,784 27 INTERMEDIATE PRE-COURSE TRAINING Pembroke, City 14,444 21 Prior to or immediately upon Tweed, Village 1,631 3 COMMAND PACKAGE appointment as a senior officer. Penetanguishene, o Vanier, City 18,510 37 Town 5,388 9 TRAINING I n-SeJtv.iee Training Program provided through Walkerton, Town 4,667 7 per~~, Town 5,776 9 the Ontario Police Commission. Peterborough, Wa11aceburg, ~wn 11,100 20 [] city 59,181 99 Waterloo Regional 296,113 426 On:t.aJUo PoLLee CoUege Prior to or within six months of Petrolia, Town 4,312 6 Wiarton, Town 2,022 4 appointment as a senior officer. Picton, Town 4,324 9 Windsor, Ci ty196, 069 366 fl o PWtp0.6e: To pJtepaJc.e a .6UpeJtvMoJt 60Jt h-W next .e.evel 06 Point Edward, Wingham, Town 2,850 5 Jtef., po n.6..i.b.iU:t.y, ..i.. e. SeJtgean:t. oJt Sta.n 6 SeJtgean.:t Village 2,417 6 Woodstock, City 26,323 42 :to I n.6 pec.:t.oJt. Port Elgin, Town 5,840 a York Regional 213,657 308 [J . Port Hope, Town 9,992 14 SENIOR OFFICER u PRE-COURSE TRAINING Prior to or immediately upon Prescott, Town 4,862 10 J! PACKAGE fl COl>1MAND appointment to a Senior Command Red Rock, To~mship 1,566 3 []tI' Position. ,:;., TRAINING 1 n i Training Program provided through I (To be imple the Ontario Police Commission. mented in 1981) Usually Inspector Rank and above. Ll fr I Prior to or as soon as practical f Ul ~ II I after appointment. 135 SPECIALIST SPECIAL TRAINIMG SPECIALIST - Identification, TRAINING O~o Police CoLeege Traffic, etc. SPECIAL - Investigation, Juvenile and Youth, etc. As soon as possible after assign ment. ;.';:;:: [J U o o 'I '; u n [] [] I', ," Ir. '1· 1".·.·.. .'" r . ~ I,: