Establishment of the Winnipeg Police Foundation Will Undoubtedly Be a Worthwhile and Successful Endeavour

Establishment of the

Winnipeg Police Foundation

A framework for enhanced success

Athabasca University

Master of Business Administration

Applied Project

March 2006

Submitted by: Corrine Scott

Project Supervisor: Lee Ann Keple

Executive Summary

The Winnipeg Police Force was established on February 24, 1874 when its first three members were appointed. The Force’s first Chief of Police, John Ingram, was joined by two constables and together they formed the police force for the City of Winnipeg.1 At the time, Winnipeg was a small community however it was quickly becoming a growing city.

Many issues surrounding Canadian society, the City of Winnipeg and policing in general have taken place in the past 132 years.

Today, Winnipeg is a major urban center with a population of approximately 633,000, which represents roughly 66% of the population of the province of Manitoba. As the city has grown over the years, so too has the police service. Now, the organization consists of just over 1,500 employees; 1,200 sworn members and 300 civilian staff. This is a substantial change from its meagre beginnings with the three members that first started the ‘force’ in 1874.

Today, the Winnipeg Police Service is currently divided into two branches: Operations and Support. Uniform operations personnel respond to calls for service and deal with everyday emergencies. Plainclothes operations personnel (detectives) investigate the more serious crimes and complex long-term investigations. The support branch includes all areas that essentially support operations such as information systems, communications, police records, and training. Routinely, these two branches work together to effectively deliver quality police services to the citizens of Winnipeg.

In the current environment, the Winnipeg Police Service like many other organizations is faced with a limited amount of financial and resource funding. At the same time there is a continued pressure put on the organization to provide more in the way of services. The phrase ‘do more with less’ is becoming commonplace within the Service.

These constraints, coupled with the increasing complexity of police work, have made it difficult for police organizations to meet public expectations as well as achieve internal goals and objectives. Often, organizations are diverting funds into operational areas in order to meet short-term goals however it will adversely affect them in achieving long-term goals. As stated by Chief Edgar MacLeod, past president of the Canadian Association of Chiefs of Police;

1 Hutchison, R. (1974). A Century of Service, A History of the Winnipeg Police Force 1874-1974, City of Winnipeg Police Force, p. 8.

…the federal government needs to take the lead in redefining policing for the 21st century. He said local police budgets are being stretched to the limit dealing not only with community matters, but threats of increasingly global proportion, from terrorist networks to organized crime.2

Police leaders across Canada are currently faced with a challenging dilemma. Recently the Canadian Association of Chiefs of Police saw the issue important enough to create and fund the Institute for Strategic International Studies (ISIS).

This year, 2006, seventeen current and future police leaders from across the nation embark on an international research project that is intended to create dialogue amongst the policing community and justice system stakeholders.

One has only to look at the ISIS 2006 mandate to see that policing across Canada is at a crucial fork in the road;

The Canadian policing community, together with others in the criminal justice system and all levels of government are seeking a newly articulated model for policing that is affordable, sustainable, accountable and ethical…

It is our expectation that the final report and presentation from ISIS 2006 will directly address the central challenge articulated above. That is, what have we learned that will significantly advance our collective understanding of a policing model for Canada that is affordable, sustainable, accountable and ethical. We can further clarify the challenge by describing the expected outcome as “a turning point document” that advances thought on this broad but central theme. Our product might not represent the definitive answer, but it must stimulate the Canadian policing and criminal justice community to continue the discussion, and moreover, to move the discussion to new levels.3

Affordability and sustainability are two of four components that our current police leaders have identified as being fundamental to a survivability of public policing in Canada.

As is evidenced in the following pages, the profession itself has become more multifaceted and all-encompassing and as a result it is becoming increasingly more difficult to provide a quality service with the funds provided.

2 Canada’s Police Chiefs Seek National Strategy. (2004). Moose-Jaw Times-Herald, p. 8. 3 Institute for Strategic International Studies (ISIS) 2006. Student Courseware.

3 Essentially, it has become necessary for the Winnipeg Police Service to look for alternate sources of funding that will augment the current budget and assist them in achieving their goals and objectives. One practical option for the Service is the establishment of a police foundation. Though new to Winnipeg the idea of police foundations is well rooted across Canada and North America.

Research has also demonstrated that Canadians are more giving than ever before. As this trend is expected to continue in the future, the establishment of the Winnipeg Police Foundation will undoubtedly be a worthwhile and successful endeavour. Ultimately, it will enable the Winnipeg Police Service to maintain its reputation as a leader in the law enforcement community.

The purpose of this paper was to develop a framework for the creation of a police foundation for the Winnipeg Police Service. Through significant research of other police foundations across North America and in keeping with more of an evidence-based philosophy, an effective and relevant framework has been developed.

Once implemented, the Winnipeg Police Foundation will enable the Winnipeg Police Service to continue with its long history of being an innovative and progressive leader within the Canadian policing community.

4 Table of Contents

Executive Summary 2

Background 7

Intended Audience 12

Research Objectives 12

Research Questions 12

Literature Review 13

Research Methodology 20

The Police Industry and Foundations 20

Vision and Mission of the Winnipeg Police Foundation 21

Opportunities 23 Threats 27 Strengths 33 Weaknesses 36

Creating a Meaningful and Valued Foundation 43

Establishing Relevant and Timely Goals and Objectives 43 Establishing a Strong Governance Model for the Foundation 44 Establishing Relevant Foundation Bylaws 48 Developing Meaningful Partnerships with the Winnipeg Business Community 49 Developing Marketing Strategies to Assist in the Promotion of the Foundation 51 Establishing Criteria to Determine Who Receives Funding 54 Administration of Foundation Funds 56 Ethical Boundaries of the Foundation from a Donor and a Recipient Perspective 57 Fundraising 58

Potential Obstacles to the Establishment of a Foundation 60

Potential Risks to the Establishment of a Foundation 61

5 Action Plan 62

Conclusion 65

Bibliography 67

Appendix A 70

Appendix B 71

6 Background

Winnipeg 1800s4

The Winnipeg Police Force was established on February 24, 1874 when its first three members were appointed. The Force’s first Chief of Police, John Ingram, was joined by two constables and together they formed the police force for the City of Winnipeg.5 At the time, Winnipeg was a small community however it was quickly becoming a growing city.

Chief Constable John Ingram6

Over the years the ‘the force’ has undergone many changes. The name was first changed from the Winnipeg Police Force to the Winnipeg Police Department when the City of Winnipeg underwent an ‘amalgamation’ in 1974. This amalgamation saw a number of smaller communities join with the City of Winnipeg to form the metropolis it is today. Some twenty years later the name was changed to the Winnipeg Police Service in keeping with a nation wide trend and to signify a change in direction under the Service’s first ‘outside’ chief of police.

4 Photo of the City of Winnipeg, Circa 1800s. Retrieved December 2nd, 2005 from the World Wide Web: http://www.winnipeg.ca/police/. 5 Hutchison, R. (1974). A Century of Service, A History of the Winnipeg Police Force 1874-1974, City of Winnipeg Police Force, p. 8. 6 Photo of John Ingram. Retrieved December 2nd, 2005 from the World Wide Web: http://www.winnipeg.ca/police/.

7 Throughout the history of policing in Winnipeg the ‘force’, ‘department’ or ‘service’ has often been an example to other police agencies and has a history of leading the way in innovative practices.

The Winnipeg Police Force was one of the first North American police agencies to adopt ‘photographing’ and ‘fingerprinting’ as means of identification in regards to criminal investigations. The current Winnipeg Police database of photographs goes back to 1899. The fingerprinting process that was brought to North America and displayed by Scotland Yard experts at the 1904 St. Louis World’s Fair was of substantial interest to Winnipeg Police Force Chief McRae. As a result of this exposition a similar system was introduced to the Winnipeg Police Force in 1905. This was three years prior to the opening of the National Bureau of Identification that began operating in 1908.7

The Winnipeg Police Force saw the value of female members long before many of its counterparts. The first female Winnipeg Police member (Mary Dunn) was hired on December 22, 1916. It is of interest to note that the federal police force, the Royal Canadian Mounted Police, did not hire their first female members until 1974, some fifty-eight years after Winnipeg.8

Mary Dunn9

In 1930, the Winnipeg Police Force become the first Canadian police agency to install radios into patrol cars and in 1959 Winnipeg became the first Canadian city to employ a city wide ‘999’ emergency phone number which was monitored by Winnipeg Police members at headquarters. This system was the predecessor of the current day ‘911’ system.10

7 Hutchison, R. (1974). A Century of Service, A History of the Winnipeg Police Force 1874-1974, City of Winnipeg Police Force, p. 24. 8 Women in Policing. Retrieved February 11, 2006 from the World Wide Web: http://www.winnipeg.ca/police/WomenInPolicing/history.stm. 9 Photo of Mary Dunn. Retrieved December 2nd, 2005 from the World Wide Web: http://www.winnipeg.ca/police/. 10 Hutchison, R. (1974). A Century of Service, A History of the Winnipeg Police Force 1874-1974, City of Winnipeg Police Force, p. 102.

1925 REO Patrol Wagon11

Due to its size, the Winnipeg Police Service is currently divided into two branches: Operations and Support. Uniform operations personnel respond to calls for service and deal with everyday emergencies. Plainclothes operations personnel (detectives) investigate the more serious crimes and complex long- term investigations. The support branch includes all areas that essentially support operations such as information systems, communications, police records, and training. Routinely, these two branches work together to effectively deliver quality police services to the citizens of Winnipeg.

The profession of policing in general has evolved substantially over time. From the onset policing has always been a dynamic, innovative and multifaceted field of endeavour. In the 1700’s initiatives were undertaken to form patrols and citizens in England saw the correlation between the lack of street lighting and crime. As one can see from the following, even in 1763, funding was an issue in regards to public safety.

In 1763 John Fielding introduced the Bow Street horse patrol to make the highways around London safer. Funding lasted for only 18 months. He also became responsible for street lighting and lamp posts in an eighteenth century initiative similar to more modern moves to link street lighting with crime prevention.12

11 Photo of 1925 REO Patrol Wagon. Retrieved December 2nd, 2005 from the World Wide Web: http://www.winnipeg.ca/police/. 12 The History of the Metropolitan Police. Retrieved February 11, 2006 from the World Wide Web: http://www.met.police.uk/history/archives.htm.

9 From the beginning, public policing was driven by a desire to have ‘crime prevention’ and ‘public peace’ as the cornerstones of the philosophy.

The wisdom and leadership of the first Commissioners was reflected in the enduring Primary Objects of an Efficient Police emphasizing the importance of prevention of crime and preservation of public tranquility which became a cornerstone of the British policing style.

Letters in the newspaper after the first day's patrolling reflected concern that policemen were not seen in the places that the public would like them to be to prevent crime and disorder.13

The community policing philosophy of today closely resembles much of what Sir Robert Peel originally envisioned many years ago. There have however, been a number of societal changes that have and that will continue to pose challenges with most police agencies in the Western world.

A simple example is the fact that in the past, offences were committed in person and were specific to a geographical location. Nowadays, because of significant technological advances, offences are committed in a multitude of ways and they are not specific to a geographical location. They are borderless. Changing societal trends such as the emergence of world wide organized crime, the formation of more localized street gangs and the escalation of the illicit drug trade have placed a greater demand on police services in general.

A significant trend has emerged over the past decades relating to one of the most fundamental and influential factors affecting policing and society in general. The changing dynamic of the traditional family; that is, the increasing numbers of single-parent families has placed a greater demand on police services as well. Parents or Prisons, an article published by Policy Review best describes how and why the behaviour of children changes when parenting becomes the responsibility of one individual;

There are several plausible links between single parenthood and criminal behaviour. The internal dynamic of a one-parent household is likely to be rather different from that of a two-parent household. Two parents can supervise the child’s behaviour more readily than one. Misbehaviour can continue undetected and uncorrected for longer periods of time until it becomes more severe and more difficult to manage.

13 The History of the Metropolitan Police. Retrieved February 11, 2006 from the World Wide Web: http://www.met.police.uk/history/archives.htm.

10 Likewise, the lowered level of adult input partially accounts for the lowered educational attainments of children of single parents. Such families report parents spending less time supervising homework and children spending less time doing homework. Not surprisingly, kids in these families have inferior grades and drop out of school more frequently. Leaving school increases the likelihood of a young person becoming involved in criminal behaviour. It is similarly no surprise that adolescents who are left home alone to supervise themselves after school find more opportunities to get into trouble. Finally, the percentage of single-parent families in a neighbourhood is one of the strongest predictors of the neighbourhood’s crime rate. In fact, Wayne Osgood and Jeff Chambers, in their 2000 article in the journal Criminology find that father absence is more significant than poverty in predicting crime rate.14

Police work today has become two pronged in attempting to deal with these issues; not only is it reactive, it is proactive as well. Consequently, police officers respond to calls for service on a regular basis and as well, they are involved in a variety of crime prevention programs. Consider the city of Winnipeg and its core area. A number of WPS officers solely respond to incoming emergency calls while other officers may be assigned to the ‘Cop on the Block Program.’ This initiative was designed to increase police visibility in the busy downtown area.

“The goal of the program is to ensure that citizens going to and coming from work are free from harassment by panhandlers, street people and potential drug dealers.”15

It is important to note that laws and legislation have become more complex and at times restrictive for the law enforcement community. As a result, in order to remain an effective organization, police officers must be trained and educated on a continual basis.

With respect to its financial situation, the Winnipeg Police Service manages a $121 million dollar budget annually. Employee wages and benefits account for the majority of expenditures; vehicles, computer systems, radio and other necessary equipment account for the remaining expenditures.

In today’s environment, the Winnipeg Police Service, like many other organizations, is faced with a limited amount of financial funding although the demand for the service is always increasing. As is evident, the profession itself has become more multifaceted and all-encompassing and as a result it is

14 Morse, J. R. (2003, August). Parents or Prisons: When the Family Fails, the State Steps In. Policy Review (Number 120). Retrieved January 27th, 2006 from the World Wide Web: http: //www.policyreview.org/aug03/. 15 Winnipeg Police Service. (2004). Winnipeg Police Service Annual Report. Winnipeg: Author, p. 10.

11 becoming increasingly more difficult to provide a quality service with the funds provided. Essentially, it has become necessary for the Winnipeg Police Service to look for alternate sources of funding to assist them in achieving their goals and objectives. One practical option for the Service is the establishment of a police foundation.

Intended Audience

This paper is intended for the senior management of the Winnipeg Police Service as they will ultimately approve the concept and framework of a police foundation for the organization. Their support and influence will be critical to the success of the overall initiative.

Research Objectives

The objective of this research is to develop a framework for the creation of a police foundation for the Winnipeg Police Service. The purpose of the foundation will be to receive and administer monetary contributions from the private sector and alternate public sources that will ultimately assist in programs and endeavours that will significantly benefit the citizens of Winnipeg.

The result of the research will be an all-inclusive two-year business plan that will facilitate the sound establishment of a police foundation. It will focus on areas such as strategy, structure, marketing and human and financial resources. Consequently, the existence of a police foundation will complement the regular operations of the Winnipeg Police Service and it will enable the organization to remain successful in the future.

Research Questions

In order to achieve the aforementioned objective, the proposed research will focus on the following questions:

• What is the vision and mission of the police foundation? • What are the goals and objectives of the police foundation? • What is the most suitable governance model for the foundation? • How will the foundation be effectively marketed? • Who is eligible to receive funding; that is, what are the criteria for receiving funds for relevant programs and/or initiatives? • Who is responsible for the administration of funds, and how will they be administered? • What are the ethical boundaries of the foundation, both from a donor perspective and a recipient or payout perspective?

12 • What, if any, obstacles are there to its establishment? • What are the possible risks associated with the project?

Literature Review

Policing is a complex and dynamic industry and it has evolved significantly over the years. Literature pertaining to the topic of policing is extensive and it covers many facets of the profession. For the purpose of this paper, the research is limited in scope and focuses on the following areas:

• General history of policing • Community based policing • Challenges of policing today and tomorrow • Role and importance of a police foundation

As described in Police Administration written by Robert Sheehan and Gary Cordner, organized policing was formally established in 1829 when the Metropolitan Police Act became English law. The act empowered Sir Robert Peel to create a police force for the city of London, England. Shortly after, approximately 1,000 men were hired.

A set of guidelines, now known as the famous Peel Principles, was developed for the new force. The philosophy behind these principles – that the police are the public and the public are the police – is the basis for the modern community policing movement.16

Though Peel’s philosophy was followed by many countries, policing in Canada gradually changed and with that change saw a departure from the original philosophy. As communities developed, laws were created to deal with specific issues. Once created, police officers were responsible for the enforcement of laws and the overall ‘law and order’ within a particular community. If an individual broke the law, he/she was arrested and dealt with appropriately.

In the early 1950’s, the field of policing was studied more thoroughly and it was discovered that policing was more than merely enforcing the law. In fact, discretion was utilized on a regular basis and as a result, a number of alternatives may have been possible for police officers. Although their primary duty was to protect life and property, police officers also relied on a number of skills to deal with every day situations. For example, officers may have ‘problem solved’ to find a solution that resolved a situation without arresting anyone. For example, if a young person stole from a local grocery store, he/she may have

16 Public Policing in Canada, Future of Policing Project, Background/Discussion Paper. (2001). Federal/Provincial/Territorial Meeting of Deputy Ministers Responsible for Justice, Appendix B.

13 been verbally warned for his/her actions as opposed to being formally charged. Coupled with the warning, the young person may have worked at the store in order to ‘repay’ the proprietor and more importantly, learn from the experience. This may have satisfied all parties involved in the incident. In other words;

The law should not always be enforced simply because it is the law. Police officers have other choices, other solutions to problems that in many situations offer more goal attainment than would be achieved by enforcing the law.17

During the early 1960’s, the role of police officers was generally described as ‘crime fighters’. This image, although not accurate, was often portrayed in television shows like ‘Dragnet’ and ‘The Untouchables’. The profession continued to evolve and during the 1970’s police officers were described as being involved in order maintenance and social work. Their duties became more encompassing and they were viewed as a vital link to society in general.

Perhaps the most significant recent evolution with respect to policing took place in the 1980’s with the birth or some would say the re-birth of ‘community policing’. As authors Trojanowicz and Bucqueroux stated;

Community policing is a philosophy and an organizational strategy that promotes a new partnership between people and their police. It is based on the premise that both the police and the community must work together to identify, prioritize, and solve contemporary problems such as crime, drugs, fear of crime, social and physical disorder, and overall neighbourhood decay, with the goal of improving the overall quality of life in the area.18

The community policing philosophy empowers police officers to identify noteworthy issues within the community; then enables them to work in partnership with others in the community in order to solve problems. The concept also encourages police and citizens alike to embark on proactive initiatives that will ultimately improve the overall image of the community. The involvement of all stakeholders will ensure greater buy-in and commitment regarding any and all initiatives undertaken. Today, the community policing philosophy continues to be utilized and valued throughout Canada.

17 Sheehan, R. & Cordner, Gary W. (1995). Police Administration, 3rd Edition. Cincinnati, Ohio: Anderson Publishing Co. p. 26. 18Trojanowicz, R. & Bucqueroux, B. (1994). Community Policing: How to Get Started. Cincinnati, Ohio: Anderson Publishing Co., p. 2.

14 The evolution of society has brought with it significant challenges for the policing profession. These challenges will be discussed in greater detail and they include:

• Lack of human resources • Technological advancements • Increase in gangs and organized crimes • Changes in laws/legislation • Greater accountability • Comprehensive training • Budgetary restraints

With respect to human resources, as the population ages, there is a significant increase in the number of retirements in many professions, including policing. Retirements aside, the retention of police officers faces other challenges as well. Low unemployment has resulted in many Canadian police agencies targeting the same applicants. Often the agency with the best entry level wage and shortest background investigation process wins out. In the past, once hired, a new officer planned on staying with the particular agency. That is no longer case as ‘generation X’ employees have far fewer ties to any organization. This coupled with most Canadian policing agencies allowing and encouraging ‘lateral-entry’ hiring, has made hiring and retaining police employees difficult.

It is not only other policing agencies that are looking for personnel. The globalization and security issues post September 11th, 2001 have seen a myriad of consulting agencies formed. These agencies deal with everything from private security in Canada and abroad to armed private armies that just a few years ago would have been considered mercenaries. They are now call ‘security consultants’.

Once known for its peacekeepers, Canada is earning a reputation in the international security industry as a source for highly skilled guns for hire…

The corporate soldiers, former Canadian Forces personnel and a few retired RCMP, have a different view of their work. Governments, standing armies and official organizations such as the United Nations are too bureaucratic to cope with the lawless reality of the post-Cold War world...Private soldiers and companies are cheaper, they argue, and can react faster and more efficiently to the world's security problems…

“It is a known fact that many of the major positions throughout the world are filled by Canadians," adds Sam Dow, a former Canadian soldier also working in Iraq as a security contractor…

15 "At this stage, Canada is much more of a feeder (of personnel) than developing its own industry," says Christopher Spearin, a professor at the Canadian Forces College in Toronto…19

These trends have resulted in a shortage of police officers throughout the country. Furthermore, the general population has become much more diverse due to the continued influx of immigrants from a variety of countries. Although immigrants are extremely beneficial to the well-being of Canada, many of these individuals have little or no aspiration to become police officers. In fact, in some cultures, police officers and others in authority are feared by many individuals. Therefore, attracting qualified applicants is and continues to be a challenge for police organizations.

Scientific and technological advancements have impacted policing tremendously over the years. These advancements are beneficial to policing in that more tools are available to investigate and eventually solve crimes.

Regarding computer technology, as indicated in the report titled Strategic Human Resources Analysis of Public Policing in Canada;

New software has been developed which can analyse investigative evidence, provide crime mapping by tracking incident links and patterns, maintain paperless case files, and support new wide band communications and voice recognition systems. There have also been a number of scientific advances in forensic approaches – such as DNA testing – the impact of which has been felt throughout the judicial system.20

Although such technology is always embraced by the law enforcement community in general, it is complex and costly. Significant resources, human and financial, are required in order to acquire the technology and be properly trained to utilize it.

For the most part, technological advancements utilized by law enforcement have impacted policing in a positive manner; however there have been other consequences as well;

It should be noted that the introduction of technology in policing follows a path similar to the technology changes in government in general and in business as well. The increased technology provides

19 World: Soldiers of Fortune (2005, November 12). Retrieve on January 22, 2006 from the World Wide Web: http://www.corpwatch.org/print_article.php?id=12789. 20Strategic Human Resources Analysis of Public Policing in Canada. (2003). Human Resources Development Canada, p.34.

16 the potential improving the availability of information, but for most has an associated increase in administrative work.21

Criminal activity itself has changed considerably over the years. Today, crime is more organized and sophisticated. For example, the establishment and growth of organized crime groups and gangs along with their ability to use cutting-edge computer software and equipment make it difficult for police organizations to effectively investigate as there are often no jurisdictional boundaries. More often than not, a considerable amount of time and resources are required in order to deal with the intricacies of some cases.

Changes in laws and legislation create difficulties for police organizations as well. For example, today, full disclosure is required for all court cases; that is, detailed reports, documents, photographs, statements and officer’s notes have to be submitted to crown attorneys in a timely manner. Previously, although police reports were submitted, the information provided was much less detailed. It now takes a longer period of time for police officers to perform their duties and it obviously impacts their workload.

Regarding public opinion, as stated in Public Policing in Canada – Future of Policing Project;

Until a few decades ago, it was rare for police forces in Canada to encounter public distrust or serious criticism. Since the 1970s, however, Canadian police have become the subject of increased scrutiny from a variety of sectors, including minority groups, the media, social scientists, community groups and government.22

In other words, community groups and the public at large are more willing to question the conduct of police officers and as well, police leaders. Perhaps an obvious and visible example of public opinion and related scrutiny involves the issue of those individuals who are ‘wrongfully convicted’. In most instances, this may involve re-examination of some cases, inquests or public enquiries. Once again, this is a time-consuming and costly endeavour.

Training of police officers is required in order that they carry out their duties and responsibilities effectively. It is also necessary in order to minimize potential liability to police organizations. Due to the evolution of policing and the on-going intricacies of tasks, training of officers remains continual and is becoming

21 Malm, A., Pollard, N., Brantingham, P., Tinsley, P., Plecas, D., Brantingham, P., Cohen, I., & Kinney, B. (2005). A 30 Year Analysis of Police Service Delivery and Costing: “E” Division. Research Summary. Abbotsford, British Columbia: School of Criminology and Criminal Justice University College of the Fraser Valley, p. 9. 22 Public Policing in Canada, Future of Policing Project, Background/Discussion Paper. (2001). Federal/Provincial/Territorial Meeting of Deputy Ministers Responsible for Justice, p. 10.

17 increasingly expensive. Furthermore, with respect to technological advancements alone, additional complications have occurred;

New technology also makes demands on members’ time in terms of training and re-training in its use and in terms of connecting with and waiting for technical support when problems develop and glitches occur. There is another problem as well. New technical tools can be seductive, inviting members to spend more time working with technology (polishing the text of reports or printing better looking graphs, for instance) rather than working cases or implementing special projects.23

Issuing new equipment such as Taser guns requires training as well. Obviously, the equipment is a valuable tool for members although the purchase of weapons and training of members is expensive. Undoubtedly, the technology and tools available to police will continue to improve in the future. Unfortunately, the ability for police organizations to take advantage of such advancements may be limited due to increasing fiscal pressures.

Overall,

…the Canadian public policing sector has experienced a considerable number of inter-related economic and fiscal pressures in recent years, which have culminated in resource constraints for police services across Canada.24

These constraints, coupled with the increasing complexity of police work, have made it difficult for police organizations to meet public expectations as well as achieve internal goals and objectives. Often, organizations are diverting funds into operational areas in order to meet short-term goals however it will adversely affect them in achieving long-term goals. As stated by Chief Edgar MacLeod, former president of the Canadian Association of Chiefs of Police;

23 Malm, A., Pollard, N., Brantingham, P., Tinsley, P., Plecas, D., Brantingham, P., Cohen, I., & Kinney, B. (2005). A 30 Year Analysis of Police Service Delivery and Costing: “E” Division. Research Summary. Abbotsford, British Columbia: School of Criminology and Criminal Justice University College of the Fraser Valley, p. 8. 24 Strategic Human Resources Analysis of Public Policing in Canada. (2003). Human Resources Development Canada, p. 16. 25 Canada’s Police Chiefs Seek National Strategy. (2004). Moose-Jaw Times-Herald, p. 8.

18 Regrettably, the financial situation of police organizations will not change in the future unless alternate sources of funding are identified and pursued.

In recent years, some police organizations have established a police foundation in order to alleviate some of these fiscal pressures. This trend is occurring across North America, including Mexico. In 2002, Mexico City established a police foundation to;

…promote police development, provide scholarships for the children of deceased officers, carry out analysis to determine police wants, and build closer relationships between law enforcers and civil society.26

Many law enforcement organizations in the United States have established foundations as well. For example, with respect to the Los Angeles Police Department (LAPD), the purpose of its foundation is clearly stated on its webpage;

…exists to provide funding for the LAPD to support needs not met by the city budget. The goal is to enhance the safety of everyone in Los Angeles. Supporting the LAPD benefits the community while raising morale in the Department”.27

Likewise in New York;

The mission of the New York City Police Foundation is to improve public safety in New York City by providing resources and support to the New York City Police Department that are not readily available through other means.28

With respect to Canadian law enforcement organizations, in 2000, the Edmonton Police Service created a foundation which;

…exists to promote and support community policing, crime prevention and education initiatives developed by the Edmonton Police Service. Donations are not ordinarily used to fund programs or equipment normally provided for in operating or capital budgets of the Edmonton Police Service”.29

26 Boyd-Barrett, C. (2002). New Police Foundation to Help Officers. The Mexico News, p. 1. 27 Los Angeles Police Foundation. Retrieved November 2nd, 2005 from the World Wide Web: http://www.lapolicefoundation.org/apply.html. 28 New York City Police Foundation. Retrieved October 7th, 2005 from the World Wide Web: http://www.nycpolicefoundation.org/. 29 Edmonton Police Foundation Member Handbook. (Revised June 2005). Edmonton Police Service, p. 3.

19 Clearly, in all cases, foundations have been established in order to generate funds that will be utilized for programs and initiatives not normally provided for in operating and capital budgets. In other words, funds generated for foundations complement existing police budgets. This will enhance aspects of policing that will otherwise be adversely affected in today’s environment and in the future.

Research Methodology

The primary methodological approach utilized with respect to the establishment of a police foundation will be exploratory research with the anticipated outcome being more ‘evidence-based’. As mentioned earlier, over the years, and especially over the last ten years, police foundations have been created in a number of organizations throughout North America. As a result, a great deal of research has been conducted and much has been learned by these organizations. It will be imperative that the Winnipeg Police Service explore the foundations of other police agencies in order to develop a relevant framework that will suit their specific needs and wants. Keeping in mind the aforementioned research questions, a suitable mandate, organizational structure, and relevant criteria for fund allocation will be determined. In effect, this research paper will enable the Winnipeg Police Service to establish a foundation that meets their needs and ultimately the needs of the community for years to come.

The Police Industry and Foundations

Police departments in Canada and other liberal democratic countries face the constant challenge of meeting the public demands for effective law-enforcement services and cost-effective approaches to investigations. Given the vagaries of publicly funded agencies, especially the many budget restriction periods during the past 30 years, police departments have had to adapt accordingly.30

In Canada, the Royal Canadian Mounted Police Report on Plans and Priorities 2005-2006 speaks to the fact that over the years, policing has become more global. As a result, the cost of technology and training has increased substantially. Furthermore, the threat of terrorism has increased post September 11th, 2001 resulting in police organizations having to regularly train and prepare for such events. Yet again, this becomes costly and impacts normal operating

30 Malm, A., Pollard, N., Brantingham, P., Tinsley, P., Plecas, D., Brantingham, P., Cohen, I., & Kinney, B. (2005). A 30 Year Analysis of Police Service Delivery and Costing: “E” Division. Abbotsford, British Columbia: School of Criminology and Criminal Justice University College of the Fraser Valley. p.44.

20 budgets significantly.31 In the United States, as explained in a Seattle Police Foundation brochure;

Since more than 85 per cent of the Seattle Police Department’s budget goes directly to personnel services, it is impossible for the Department to keep pace with all of the rapidly evolving technology, training, and strategies for a major city police department. The Seattle Police Foundation is helping the department stay at the forefront.32

Other large police organizations are facing similar challenges. To effectively supplement organizational budgets, many police agencies are establishing, or have in recent years established, police foundations.

Vision and Mission of the Winnipeg Police Foundation

In order to create a foundation that will truly be beneficial to the Winnipeg Police Service, the development of a vision and mission statement will not only be valuable but necessary as well. As described by Fred R. David, author of Strategic Management Concepts and Cases (9th edition), while a vision statement assists in the overall strategic planning of an initiative;

“The mission statement describes the values and priorities of an organization.”33

In researching other police foundations, it was apparent that vision and mission statements varied significantly. All appeared to focus on specific needs and wants relative to their respective communities. For example;

31 Royal Canadian Mounted Police Report on Plans and Priorities 2005-2006. Retrieved December 15, 2005 from the World Wide Web: http://www.tbs-sct.gc.ca/est-pre/20052006/RCMP-GRC/RCMP- GRCr56_e.asp. 32 Seattle Police Foundation. Retrieved December 15th, 2005 from the World Wide Web: http://www.seattle.gov/police/foundation/About.htm. 33 David F. R. (2003). Strategic Management Concepts & Cases (9th Ed.). Upper Saddle River, New Jersey: Prentice Hall, p. 10. 34 New York City Police Foundation. Retrieved October 7th, 2005 from the World Wide Web: http://www.nycpolicefoundation.org/.

21 The missions of the Atlanta, Seattle and Edmonton Police Foundations read;

“…support the Mayor, the Chief of Police, and the Atlanta Police Department in the shared commitment to make Atlanta the safest and most inviting city for all its citizens, workers and visitors.”35

The mission of the Seattle Police Foundation is to foster visible and direct community support for the Seattle Police Department by strengthening pride in and connection to the Department’s mission of excellence.36

The Edmonton Police Foundation exists to promote and support crime prevention, community policing and education initiatives developed by the Edmonton Police Service to meet emerging needs within Edmonton’s communities.37

Prior to scribing statements for the Winnipeg Police Foundation, it is important to be cognizant of the vision and mission statements of the Winnipeg Police Service; then develop statements that align with and are relevant to the Service. It is important to realize that the foundation will be established to enhance police efforts in the community and as such, it will be imperative that the organizational statements complement each other. That being said, the vision of the Winnipeg Police Service is;

“Quality policing with commitment to excellence.”38

The mission statement of the WPS is;

“To provide a continuously improving police service to the citizens of Winnipeg through ongoing community commitment.”39

Prior to scribing statements for the foundation, it is equally important to more specifically examine the external opportunities and threats facing the Winnipeg Police Service. It is also critical to examine the organization’s internal strengths and weaknesses. This will paint a clearer picture of the composition of the organization and the environment it exists in. This assessment will also assist in developing relevant and realistic motherhood statements for the foundation.

35 The Atlanta Police Foundation. Retrieved November 2nd, 2005 from the World Wide Web: http://www.theapf.org/About/Mission.aspx. 36 Seattle Police Foundation. Retrieved December 15th, 2005 from the World Wide Web: http://www.seattle.gov/police/foundation/About.htm. 37 Edmonton Police Foundation Member Handbook. (Revised June 2005). Edmonton Police Service, p. 4. 38 Winnipeg Police Service. (2004). Winnipeg Police Service Annual Report. Winnipeg: Author. Page 1. 39 Winnipeg Police Service. (2004). Winnipeg Police Service Annual Report. Winnipeg: Author. Page 1.

22 There are many opportunities and threats that exist in today’s environment and each will impact the organization in a particular way. Opportunities and threats include the following:

Opportunities:

Technological advancements

The various advancements, be it scientific such as DNA analysis, or communication network technology, have provided police with tremendous opportunities. Such advancements will continue to be beneficial to policing in the future.

The Winnipeg Police Service has invested in the following technological advancements over the past few years:

• A new computer aided dispatch (CAD) and records management system (RMS) was purchased as the previous system was antiquated and at capacity. The new system is multi-faceted and enables the WPS to exchange confidential information with other agencies more easily. Cost of the initiative was $6.6 million.

• The Global Positioning System (GPS) in police vehicles has become a reality for the Winnipeg Police Service. This system is a navigation tool that enables users to determine their location at any time. Furthermore, the GPS tracks movement of vehicles and provides data with respect to such factors as speed and direction of travel. From an officer safety perspective, the tool is extremely valuable to the organization since the officer’s location, or at least the location of the police vehicle, is known at all times. Additionally, at times the GPS system may be utilized for investigative purposes. Cost of the Global Positioning System was included in the purchase of the new computer system.

• The AVID System is a forensic video analysis system that enables investigators to enhance video images from video surveillance cameras. Today, many businesses monitor activities within or close to their organization via surveillance cameras. When a crime is committed, the video tape is seized and examined by investigators. At times, enhancements to improve the quality of captured images may be required. This technology is capable of performing these improvements. Cost of the system was $75,000.

• The Forensic Identification Section of the Identification Unit is constantly purchasing and upgrading equipment required to analyze exhibits. Within the last year, $50,000 was spent on necessary equipment.

23 Limited competition

The WPS provides an essential service to the citizens of Winnipeg and as such, there is no direct competition for much of what public policing in Winnipeg provides. Although there is limited use of private security companies in Winnipeg, the services provided to clients is somewhat restricted and therefore, they are not considered to be direct competition for the Winnipeg Police Service. The Winnipeg Police Service has an opportunity to exploit this advantage but in doing so it must continue to pursue proactive, strategic and well thought out initiatives. Anything less could turn this opportunity into a threat.

Partnerships with other organizations

Although the cost of policing has risen over the years, partnerships with other agencies have enabled the Winnipeg Police Service and their partners to remain highly effective and efficient. Currently, the WPS is involved in a number of partnerships with the Royal Canadian Mounted Police. They have formed the Manitoba Integrated Organized Crime Unit (MIOCU), the Manitoba Integrated High Risk Offender Unit (MIHROU) and the Integrated Child Exploitation Unit (ICE). In each instance, the pooling of human and financial resources has allowed both organizations to achieve their respective goals and ultimately improve public safety. Partnerships with non government organizations (NGOs) such as Child Find Manitoba and Cybertip.ca have yielded many training opportunities for the Winnipeg Police Service.

Community Involvement

Nowadays, citizens and community groups are getting more involved in issues and events that are affecting them. In simple terms, these individuals and groups desire to be part of the solution as opposed to being part of the problem. Undoubtedly, they better comprehend the issues in the community and often they provide police with valuable information. Due to their understanding and knowledge, these individuals may propose viable solutions as well. By doing so, there may be greater buy-in from the community as a whole. With increased demands on police, it is incumbent on citizens and groups alike to assist with the enhancement of their community. Police organizations must endeavour to capitalize on these opportunities; certainly, they welcome their input and their involvement. Simply stated, in today’s fast paced environment, police officers cannot do it all.

Training opportunities

Training and educating sworn and civilian members is critical to the well-being of any police organization, especially in today’s global environment. Due to the dynamics of the profession, continuous training will improve policing since

24 members will remain knowledgeable with respect to changes in legislation and improvements in technology. Ultimately, they will remain competitive.

Currently, there are many options available to police including e-learning, blended learning and specialized programs. One such program is the Institute for Strategic International Studies (ISIS). In 2004, the Board of the Canadian Association of Chiefs of Police developed, approved and funded the program. In early 2006, a group of seventeen senior police executives were selected from across Canada to participate in the international research program. As explained in the ISIS 2006 program overview;

During the first phases of the program, participants will examine and select from among the most critical of themes and issues facing Canadian justice agencies, and will identify exemplary models and practices from the international community. The next phase of the program will focus on mission planning and team building. Participants will also develop skills and techniques for objective analysis and research. During the field study phase, participants will travel in teams to conduct in-depth research and analysis of the selected study sites with a view to identifying key elements, methodologies and insights that may be applicable to similar organizations in Canada. Team members will also be involved in “outbound” service projects in which the primary role of the study team will be to deliver value or service to a foreign agency or community. Returning to the classroom for the final phase, participants will further examine their findings and develop strategies for their generalized application. The final results from the program will be assembled, by the participants, during the final working phase to form a compendium of findings and recommendations to be shared across the Canadian criminal justice sector.40

As evident in the summary, the program is global in its efforts. Many concerns and issues facing the policing community are similar in nature and therefore, the participants will learn best practices from each other and from those abroad. Such initiatives are being viewed as a valuable educational experience and important for the police leaders of tomorrow.

Outside agencies participating in WPS training programs

On a more regular basis, the Winnipeg Police Service provides training for smaller police agencies surrounding the Winnipeg area. Their limited size, along with the significant expense that will be incurred, prevents them from developing their own training program. The WPS offers comprehensive training packages to the smaller agencies on a cost recovery basis. This is viewed as beneficial for

40 Institute for Strategic International Studies (ISIS) 2006. Student Courseware.

25 both organizations since the WPS maintains its positive reputation within the community and the police industry while the smaller agency receives training at an affordable price. This trend will continue in the future.

National Proceeds of Crime Legislation

This legislation is a federal, provincial and municipal initiative that will enable police organizations to access proceeds of crime money. Once accessed, the organization will utilize the funds to introduce proactive initiatives that will ultimately enhance the community. The additional resources afforded to police organizations will assist them with many aspects of police operations.

Revenue opportunities by charging fees for police related services

In the last few years, fees have been imposed for some police related services. For example, beginning in May of 2004, a new City of Winnipeg Alarm Response Policy was developed which dealt specifically with false alarms. In consultation with local alarm companies, a balanced protocol that met the needs of the alarm companies as well as the needs of the Service was crafted. Now, when police officers attend false burglar alarms, home and business owners are charged a considerable fee. By doing so, revenue is generated and complainants are obligated to be more accountable as well. During the six-month trial period in 2004, fines were not imposed however in 2005; $37,050 in revenue was generated.

Revenue aside, as indicated in the Winnipeg Police Service 2004 Annual Report;

A comparison of the statistics for the months of May to October, 2004, compared to the same months in 2003, highlight the following:

• Total alarm calls for service were reduced by an average of 82.8% and • Dispatched alarm calls for service were reduced by an average of 81.5%.

The statistics overwhelmingly indicate that there is a reduction in these types of calls for service. The reduction in false alarms meant 2.3 person-years of an officer’s time would have been required to attend calls in 2004, compared to 10.1 person-years in 2003. A less-measurable benefit is the reduction of risk to the public and officer safety with reduced numbers of emergency response to false alarms. Reduction in the number of alarm calls for service has also had positive effects on the workload of the Police 911 Communications Centre staff.41

41 Winnipeg Police Service. (2004). Winnipeg Police Service Annual Report. Winnipeg: Author, p. 8.

26 In other words, although revenue will be generated because of the new policy, it is also creating greater efficiencies within the Service, reducing overall risk and increasing public safety.

Threats:

Organized crime

The number of outlaw motorcycle gangs and other street gangs has significantly increased over the years; therefore, violence associated with their activities and the overall drug trade has increased too. Obviously, this has impacted the policing profession negatively.

Internet Crime

Although the advent of the internet has been beneficial to the vast majority of computer users and it has provided many opportunities to individuals and businesses alike, it has also been utilized in criminal and derogatory ways. Internet crimes involving child pornography, child exploitation, and luring have become a reality and have increased substantially over the last few years. Methods of dealing with and investigating these crimes have been innovative as well. One valuable tool, Cybertip.ca, was established and in fact originated out of Winnipeg. As stated on their webpage;

In the seven or eight years that Internet tiplines have been in existence, they have emerged as a best practice in combating the online sexual exploitation of children. Some of the factors that contribute to making tiplines a best practice in combating this problem or crime include visibility, accessibility, low operational costs, anonymity, and information sharing. Cybertip.ca specializes in the online protection of children. Having a specialized mandate is generally considered a best practice as it allows the tipline to focus expertise and build capacity in specific areas, making it more effective at addressing the type of Internet crime for which they were established.42

Furthermore,

On May 22, 2001, the Justice Minister of Manitoba, The Honourable Gord Mackintosh, announced the formation of the Child Online Protection Committee (COPC) to help safeguard Manitoba's children from being exploited on the Internet. The main goal of the COPC was to establish and maintain a tipline to address instances regarding the online sexual exploitation of children by providing the public with a place to report this type of illegal content on the

42 Cybertip.ca. Retrieved January 29, 2006 from the World Wide Web: http://www.cybertip.ca/en/cybertip/

27 Internet. The COPC became a sub-committee of Child Find Manitoba's Board of Directors and now oversees the operations of Cybertip.ca. The composition of this committee includes stakeholders from law enforcement, justice, education, child protection and advocacy, along with the information technology sector.43

Although Cybertip.ca has proven and continues to be successful with respect to combating internet crimes, these types of crimes remain a serious threat to the policing industry.

Threat of terrorism

Since the terrorist attacks of September 11, 2001, the threat of terrorism has become a reality for most of the Western world. To cope with threats, police organizations have developed relevant policies and implemented various related training initiatives. The training, although necessary, is very expensive. For example in Manitoba the Provincial CBRNE Team has been established. This specialized team deals with incidents involving chemical, biological, radiological, nuclear and explosive weapons. It consists of representatives from the following organizations:

• Public Safety and Emergency Preparedness Canada (PSEPC) • Emergency Measures Organization (EMO) Manitoba • Royal Canadian Mounted Police (RCMP) • Winnipeg Police Service (WPS) • Office of the Fire Commissioner (OFC) • Winnipeg Fire Paramedic Service (WFPS)

The team is funded both federally and provincially. All stakeholders participate in the provincial team and they are mandated to respond to an incident anywhere in Manitoba. To hone their skills they participate in joint training exercises in the province and at the Federal Emergency Preparedness College in Ottawa, Ontario. Currently, they are in the process of receiving advanced CBRNE training in Ottawa and at the Canadian Forces Base, Suffield, Alberta.

Court decisions

Court rulings have become complex and some have placed extreme limitations on police officers and how they carry out their duties. For example, R. v. Stinchcombe (1991) has had the most profound effect on policing across the country. The Supreme Court ruled that the accused had a constitutional right to

43 Cybertip.ca. Retrieved January 29, 2006 from the World Wide Web: http://www.cybertip.ca/en/cybertip/

28 full and complete disclosure of the police report. The issue of disclosure has continued to evolve and;

As a result, the administrative time and cost for police to prepare copies of all information and evidence (whether relied upon or not) of all investigations has increased significantly. Police are now required to submit transcriptions (validated by the original investigator) of: o all audio and video tapes, o notebook entries from all officers, o reports, o all source debriefings, o all tips (and outcomes of tips), o all connected cases, o all affiant material, o all wiretap information, o all operational plans, o all surveillance notes, o medical records, o all analyses of phone records or other documents, o undercover operation information, o information relating investigative techniques considered whether used or not, o investigative team minutes of meetings or debriefings, etc.

In communication intercepts, a complete transcript is required for every recorded communication, relevant or not (e.g., one week of interception will result in one or two months of disclosure time for an officer).

This duty often falls to investigative officers and cannot be done by support staff, increasing investigative time and expense substantially. The cost (in terms of time and expense) of disclosure is becoming prohibitive, criminal investigative capacity is being imperilled. For example, the cost associated with disclosure for even one large-scale fraud can easily reach into the tens of thousands of dollars and sap the entire operational budget of an investigative unit or department, limiting its capacity to conduct other investigations.44

The Stinchcombe ruling is but one example of the impact of court decisions on police officers and how it affects their workload and agency budgets.

44 Malm, A., Pollard, N., Brantingham, P., Tinsley, P., Plecas, D., Brantingham, P., Cohen, I., & Kinney, B. (2005). A 30 Year Analysis of Police Service Delivery and Costing: “E” Division. Research Summary. Abbotsford, British Columbia: School of Criminology and Criminal Justice University College of the Fraser Valley, p. 14.

29 IT system security

The utilization of computers has become a reality for almost all organizations. Although the technology provides a number of opportunities for organizations, it also brings with it a degree of risk. For example, in 2005, computer hackers penetrated the Victoria Police Department’s computer system on more than one occasion. As explained by Chief Paul Battershill in Blue Line News Week;

… “The interesting lesson is that anybody is susceptible to this kind of thing.” Battershill said the cost of using a computer-security firm to test its systems is not cheap – between $20,000 and $50,000 a year for the intrusion work, follow-up reports and recommended fix. But, he said, it’s worth it.45

Although expensive, a computer-security firm such as Digital Boundary Group may provide the much needed security on police computer systems. As explained on their website;

Digital Boundary Group Inc. is a privately owned, Canadian corporation, specializing in information security services. Digital Boundary Group provides professional security assessments, penetration testing, vulnerability scanning, security alerting, traffic analysis and computer forensics to ensure your organization meets its security objectives or regulatory compliance requirements. Utilizing industry standard tools and procedures, our security specialists will evaluate an organization's computing environment and prepare a GAP analysis against industry proven best-practices and general specifications contained within ISO 17799. We can then design a security solution that helps your organization balance risk and return on investment. Solutions can combine commercial and open source components to satisfy most security budgets.

Digital Boundary Group has focused on organizations within Federal and Municipal Government, Law Enforcement, Education, Financial/Insurance, Hydro Electric Utilities, HealthCare and Professional Services. Our expertise covers those sectors of the economy that are particularly risk averse and highly dependent on having and maintaining secure networks.46

This type of security is becoming ever so important in maintaining the integrity of databases especially when databases are becoming much more complex. Consider a newly established database, the Police Information Portal (PIP).

45 Blue Line News Week, A Weekly Chronicle of News for the Canadian Law Enforcement Community. (2006, January 6). Volume 11, No. 1, p. 7. 46 Digital Boundary Group. Retrieved February 6th, 2006 from the World Wide Web: http://www.digitalboundary.net/pages/aboutus.htm.

30 The PIP is a query tool capable of electronically accessing data in Records Management Systems (RMS) that are used by most Canadian police services and produced by Canadian vendors. Participating police services can query the PIP and search all participating agency RMS data and receive consolidated responses.47

Regarding the police industry in general, interoperability has become a priority because organizations have realized that integrated efforts contribute to overall crime prevention. This particular database will contain a vast amount of information from many police organizations across Canada and as well, it will be accessible by all of them. Obviously, the integrity and security of this database, like others, will be critical to its well-being.

Changing demographics

It is important to note that over the years, as communities have grown, the external environment has changed significantly. For example, with respect to societal trends, demographics have changed in that the population is aging and, as well, due to considerable immigration efforts, it has become more diverse. Culturally speaking, as a society, we have become more complex. Immigrants venture to Canada to seek a better way of life. When they reach Canada, usually they cannot speak the English language and they have a very different set of values and beliefs. Some have a minimal level of education and therefore job opportunities may be limited as well. These conflicting dynamics make it difficult for immigrants to adjust to their new way of life. They are not prepared for what Canada has to offer and subsequently out of frustration, and at times desperation, they may resort to criminal activities.

Regarding new immigrants, unexpected tragedies may also occur. Consider a recent Winnipeg Free Press article detailing the suicide of an Asian immigrant in the fall of 2005;

The 34-year-old Asian chef is happy to be in Canada, working and earning enough money to support his parents and daughter back home. He hopes to become a permanent Canadian resident one day, and bring his 10-year-old child to Canada.

But less than two years later, after complaining that he'd been working 84-hour weeks, and unsuccessfully taking his plight to two

47 The Police Information Portal (PIP) Protocol. Retrieved February 4th, 2006 from the World Wide Web: http://www.rcmp.ca/niii/pipprotocol_e.thm.

31 federal agencies and the provincial employment standards branch, Pradith Uksornpim hanged himself.48

In the future, although immigration efforts are required in order for the country to reach its economic potential, new immigrants may negatively impact the workload for police organizations.

The aging ‘baby boomer’ demographic has affected the profession of policing. It has reduced the labour market in general and therefore, fewer applicants are applying for the position of constable. To compound matters further, the aging population has contributed to the increased perception of fear in the community. Police organizations are now compelled to develop proactive programs that will alleviate this fear.

Changing demographics with respect to the increase of single parent and blended families has also brought with it some challenges as well. Often, police organizations and other support services are left to deal with incorrigible youth. Some of these individuals eventually lead a life of crime and consequently they are not a contributing member of society.

Technological advancements

Just as technological advancements provide the policing profession with tremendous opportunities, they also represent a significant threat. The advent of the internet and specifically the World Wide Web in 1991 has essentially made the world a much smaller place. Many organizations became much more global in scope and they are now able to access previously unreachable markets. Additionally, many individuals and organizations involved in criminal activity have become global as well.

Consider for a moment telemarketing frauds and the implications for police organizations. In 2000, the Winnipeg Police Service investigated an elaborate telemarketing scheme where an individual defrauded a number of elderly Winnipeg residents of large sums of money. Once the investigation was underway, it was determined that the individual responsible was indeed from the city of Winnipeg and he defrauded many elderly individuals here and throughout the United States. After a lengthy investigation, he was arrested and charged with a multitude of offences. From a police perspective, it was difficult to investigate because the complainants were literally scattered throughout most of North America. Police officers from a number of other agencies assisted the Winnipeg Police Service with conducting the investigation. From a crown

48 Sanders, C. (2006, January 28). Suicide Prompts Investigation into Foreign Worker's Life in Winnipeg. The Winnipeg Free Press, p. A1.

32 attorney perspective, it was difficult to prosecute the case. Most of the out of town complainants were too frail or ill to travel to Winnipeg to testify. Once again, other agencies were contacted and most of the individuals testified via video conference. As one can imagine, this took a tremendous amount of planning on everyone’s part to ensure the case was heard and the accused was ultimately held accountable for his actions.

Escalation of litigation

Over the years, society has demanded more accountability from police officers and as a result litigation cases have increased.

While Canadians remain confident in the ethics and professionalism of the police, this confidence has been somewhat eroded due to challenges brought about by such factors as the increasingly diverse nature of Canadian society, the decline of traditional institutions of authority, some police union activities and more aggressive and pervasive media reporting.49

The Winnipeg Police Service has a number of internal strengths and weaknesses. These factors influence the overall efficiency and effectiveness of the organization. The Service’s strengths and weaknesses include the following:

Strengths:

Excellent reputation

The Winnipeg Police Service is highly respected and is considered a leader within the policing industry. It has a long and distinguished history with the City of Winnipeg. Additionally, it is one of the few Canadian police organizations to be accredited by the Commission on Accreditation for Law Enforcement Agencies (CALEA).

Strong leadership

The senior management team of the Winnipeg Police Service consists of the Chief of Police, two Deputy Chiefs, three Superintendents, eighteen Inspectors and a number of civilian managers. A succession plan has been developed and is in place in order that the leadership remains visionary and progressive.

49 Public Policing in Canada, Future of Policing Project, Background/Discussion Paper. (2001). Federal/Provincial/Territorial Meeting of Deputy Ministers Responsible for Justice, p. 10.

33 Loyal, dedicated employees

Individuals working for the Winnipeg Police Service are loyal and dedicated to the organization. The vast majority enjoy their profession and they are committed to the goals and objectives of the organization. This was evident from the results of the City of Winnipeg 2004 Employee Survey. Respondents included a significant number of WPS employees and aggregate results revealed the following;

The overall City results indicate a number of key strengths: • Strong pride in working for the city • Very high perception of job security/intention to stay with city • A sense that the City can retain high quality staff • Good ratings of pay and benefits • A strong current and developmental training focus50

Young and diversified workforce

The Service is comprised of young, energetic and impressionable individuals. Currently, approximately one-half of the Service is comprised of sworn members with seniority of ten years or less. Furthermore, the workforce is diverse and reflective of the community it serves. This is extremely important since the city itself is demographically diverse.

Equipment and technology

The Winnipeg Police Service has always planned for and purchased state of the art equipment and technology. The organization’s communication network and the automated fingerprint identification system (AFIS) are two noteworthy examples. More recently, the Service purchased a multi-million dollar computer aided dispatch (CAD) and records management system (RMS). Wireless and mobile computing technology for police vehicles are an important part of this initiative as well.

Training programs

The profession of policing is constantly evolving; therefore, regular training and educational opportunities for members is necessary in order for them to remain effective and efficient. The Service provides a significant number of training programs, mandatory and elective, for its members. More recently, the establishment of the Internet Research Resource Center (IRRC) and the implementation of e-learning initiatives at the WPS Training Academy are indicative of the organization’s commitment to provide continuous and innovative training programs to its members.

50 City of Winnipeg 2004 Employee Survey Aggregate Results (2005, May). Winnipeg: Author, p. 3.

34 Culture of innovation

The WPS thrives on a culture of innovation. As mentioned earlier in this paper, policing in general and the WPS specifically has often led the way in innovative practices. Management and the general membership are constantly striving to find creative and innovative methods of conducting business. There are a number of examples of how the WPS has learned to police ‘smarter’ and in the process, enhanced and maximized its service to the citizens of Winnipeg.

When auto theft numbers were epidemic the Service partnered with the Province and with the Manitoba Public Insurance Company (MPI). This partnership saw MPI actually cover the wages of a number of officers. The result was a decrease in the number of stolen autos and MPI realizing a substantial saving due to a decrease in claims.

A rash of serial arsons that resulted in millions of dollars in damage was the catalyst for WPS to partner with the Winnipeg Fire Paramedic Service and the provincial Office of the Fire Commissioner. This partnership resulted in the creation the Arson Strike Force. A number of high profile arrests were made and once again the city saw a substantial reduction in both arson and serial arson cases.

When a major investigation regarding child pornography was undertaken in the United States the trail of customers and distributors led to many Canadian communities and Winnipeg was not immune. The WPS was the first major centre to take action in regards to this new and borderless exploitation of children. The WPS partnered with the Royal Canadian Mounted Police, Child Find Manitoba and Cybertip.ca. The Manitoba Integrated Child Exploitation Unit or ICE Unit was formed to deal with this disturbing new crime trend. The unit that was initially formed on a temporary basis is now permanently staffed. The model of the implementation of the integration has been used across Canada by many cities hoping to emulate the WPS/RCMP experience in the area of internet child exploitation. In 2005, the ICE unit received the highest award available to a ‘unit’ when it was awarded the prestigious RCMP Commissioner's Commendation Unit Ensign for Outstanding Service.

The rise in local and international organized crime has not gone unnoticed in Winnipeg. When a number of high profile Canadian and Winnipeg ‘mega-trials’ failed the WPS, the RCMP and the Province of Manitoba decided to partner and pool resources in this daunting task of dealing with organized crime. The Manitoba Integrated Organized Crime Unit was formed. This unit is staffed with members of the WPS and RCMP and funded by the Province of Manitoba. To date, due to the change and methodology which has resisted the mega-trial phenomenon the unit has been highly successful in dealing with local and national organized crime issues.

35 Currently, yet another integrated unit is being formed to deal with High Risk Sexual Offenders and the national and local commitment to the National Sex Offender Registry. Once again the WPS has partnered with the RCMP to share personnel and resources to deal effectively with this labour intensive yet critical component in crime prevention and behaviour compliance. Currently WPS and RCMP members are working hand in hand and the announcement of the Manitoba Integrated High Risk Offender Unit will be made in the near future.

The WPS has long realized that with the limited funding and resources available to Canadian law enforcement, integration is essential to the fulfilling of its obligations to citizens of Winnipeg and Manitoba.

These innovative undertakings are in keeping with a history of such innovation and will lead the WPS into the future.

Weaknesses:

Downsizing of the Winnipeg Police Service

Over time, the Service has downsized due to fiscal restraint and as a result the organization has flattened significantly. Management believes they are not as effective and efficient as they previously were. This is an area that continues to be problematic for senior managers simply because of the increased workload. For example, prior to restructuring the senior management ranks consisted of one Chief of Police, three Deputy Chiefs of Police, twelve Superintendents, and twenty-five Inspectors. Today, there is one Chief of Police, two Deputy Chiefs of Police, three Superintendents, eighteen Inspectors and a small number of civilian managers. Although the workload has increased and has become more complex, the number of senior managers performing these tasks has decreased.

Overtime expenses

Due to the volume of calls for service, the complexity of investigations and the lack of human resources, regular overtime expenditures have increased substantially. Regarding the complexity of cases, consider the following;

The amount of time needed to handle a case from call for service to acceptance by Crown has increased from a low of around 60% for B&E’s (break and enter’s) to a high of almost 1,000% for domestic assault. There are clear legal rulings and legislative changes that are forcing much of this increase (without providing for increased

36 resources), but there appear to be other increases in administrative work as well.51

In 2005, the Winnipeg Police Service incurred almost $1 million in court overtime and almost $6 million in regular overtime. Unfortunately, this trend is expected to continue in the future.

Inexperienced workforce

Although a young and diversified workforce is beneficial to the organization, it may also be disadvantageous in that members lack experience in many areas. It is important to remember that policing is and continues to be a complex and occasionally dangerous occupation. It takes time to develop skills and become proficient at performing the duties and responsibilities of a police officer. For example, junior members lack experience and much needed skills in armed and barricaded incidents and pursuits. Often, these types of incidents require split second decision-making and the consequences of such decisions may last a lifetime. Members may ultimately be involved in court cases and inquests if lethal use of force is utilized.

Inadequate pool of human resources

Due to retirements, new members are recruited and hired annually. Overall, the police community is experiencing a significant decrease with respect to its human resource pool. In other words, it has become difficult to recruit a sufficient number of qualified applicants and as a result, the Service finds itself competing with other agencies for the same individuals. This poses a significant threat since the organization may not be adequately staffed.

One layer of policing for weekends

Currently, plainclothes members assigned to the Criminal Investigation Branch are scheduled to work Monday through Friday. They provide no weekend coverage resulting in the general patrol members having to police the entire city. On many occasions, the workload of the general patrol members is impacted significantly during this time period. Additionally, the response time to calls for service increases and complainants are unhappy with the lack of customer service.

51 Malm, A., Pollard, N., Brantingham, P., Tinsley, P., Plecas, D., Brantingham, P., Cohen, I., & Kinney, B. (2005). A 30 Year Analysis of Police Service Delivery and Costing: “E” Division. Research Summary. Abbotsford, British Columbia: School of Criminology and Criminal Justice University College of the Fraser Valley, p.19.

37 Lack of mentors for junior constables

As previously mentioned, the Winnipeg Police Service is comprised of young and energetic, yet inexperienced members. Often, a junior member is training a new recruit and the mentorship necessary to mould the new recruit is lacking. This represents a significant weakness for the organization.

Union relations

Currently, the relationship between the Winnipeg Police Service Executive and the Winnipeg Police Association Executive is strained. More often than not, the Winnipeg Police Association will only be concerned regarding members’ well- being. On the other hand, the Service has to maintain a balance with respect to members’ well-being and what is best for the organization. Usually the two parties – the Winnipeg Police Service and the Winnipeg Police Association – have significantly different points of view. As a result, it becomes difficult to resolve issues and concerns from either party. Undoubtedly, an improved and amicable relationship will have a positive effect on everyone.

Concentrating on opportunities and threats facing the policing industry, an External Factor Evaluation (EFE) Matrix can be developed.

Key External Factors Weight Rating Weighted Score Opportunities 1. Technological Advancements .10 4 .40 2. Limited competition .05 2 .10 3. Partnerships with organizations .10 3 .30 4. Community Involvement .05 2 .10 5. Training opportunities .05 3 .15 6. Outside agencies participating in WPS .05 2 .10 training programs 7. National Proceeds of Crime Legislation .05 2 .10 8. Revenue opportunities .05 2 .10 Threats 1. Organized crime .05 3 .15 2. Internet crime .05 3 .15 3. Threat of terrorism .05 2 .10 4. Court decisions .10 2 .20 5. IT system security .05 3 .15 6. Changing demographics .05 2 .10 7. Technological advancements .10 4 .40 8. Escalation of litigation .05 2 .10 ______

TOTAL 1.00 2.70

With respect to the matrix, each external factor is assigned a weight ranging from 0.0 (not important) to 1.0 (very important). The weight is indicative of the importance of that factor to being successful in the police industry. As well, each

38 factor is assigned a rating of 1 to 4 signifying the effectiveness of the Service’s strategies in responding to the factor. (1 = response is poor, 2 = response is average, 3 = response is above average and 4 = response is superior).

As demonstrated in the matrix, with respect to today’s environment, there are many key opportunity factors for police organizations. Although all are important and often overlapping, the following are especially noteworthy:

• Technological advancements have enabled organizations to remain viable and competitive in the policing industry • Partnerships with other organizations have become more commonplace and they provide significant opportunities for police organizations • Training opportunities • Community involvement

As mentioned, technological advancements have played and will continue to play a more fundamental role in dealing with and solving complex and serious crimes. As well, it has provided policing with comprehensive and valuable communication networks.

Partnerships with other organizations, police and non-police, are occurring on a regular basis. Most organizations have realized that a lack of resources is preventing them from accomplishing goals and objectives. Often, these goals and objectives are overlapping and therefore, pooling of resources makes good sense and will assist everyone in achieving their goals.

Due to the complexity of police investigations and the constant changes in laws and legislation continual training of police officers has become imperative. In order to effectively meet the needs of the police community, training opportunities have evolved and expanded as well.

Community involvement remains invaluable and complements many proactive police initiatives. Today, citizens desire to improve and enhance their communities and as well, they want to play a more active role in achieving that goal. In many ways, this represents a golden opportunity for the Winnipeg Police Service.

Major threats for police organizations include a number of factors as well. The most significant are the following:

• While technological advancements have been beneficial to police organizations, they represent a significant threat to them as well • The presence of organized crime and internet crime has evolved over time and now, for the most part, it has become prevalent in many communities

39 • Court decisions continue to impact the justice system in general and policing in particular • IT system security is critical for police organizations

Technological advancements pose a major threat to the profession of policing as the criminal element utilizes leading edge technology to successfully profit from their activities. The challenge for all police organizations is that it makes it difficult for them to investigate and prosecute offenders. Another challenge for police is the fight against the growth of organized crime and internet crime.

“Crime on the Internet is an important concern, because the crimes transcend national boundaries and international law restricts police investigations.”52

Therefore, it becomes difficult and expensive for police to investigate these crimes.

As explained earlier, court decisions have impacted and will continue to impact policing negatively. Over the last twenty years a number of judicial decisions have had a direct impact on police workload and costs associated with the workload.

This set of prominent cases has changed the policing environment. Increasing the number of Charter safeguards for suspects and accused persons has the often unacknowledged effect of reducing overall policing capacity to deal with crime as each police officer must commit more time to accomplishing policing tasks properly. The additional time spent on meeting evolving Charter requirements take time away from the police’s ability to respond to the next call for service, and the one after that.53

Finally, the utilization of IT systems is required in this day and age however there is a degree of risk associated with such technology. Security of IT systems is necessary and will continue to pose a significant threat to the policing community.

The External Factor Evaluation Matrix weighted score of 2.70 (out of a possible 4.00) indicates that the Winnipeg Police Service is responding slightly above average to existing opportunities and threats in its industry.

52 Kratcoski, P. C. (2001). Special Meeting of the International Police Executive Symposium (IPES). RCMP Gazette 63 (1). Page 7. 53 Malm, A., Pollard, N., Brantingham, P., Tinsley, P., Plecas, D., Brantingham, P., Cohen, I., & Kinney, B. (2005). A 30 Year Analysis of Police Service Delivery and Costing: “E” Division. Research Summary. Abbotsford, British Columbia: School of Criminology and Criminal Justice University College of the Fraser Valley, p. 15.

40 Taking into account the internal strengths and weaknesses of the Winnipeg Police Service, an Internal Factor Evaluation (IFE) Matrix can be developed.

Key Internal Factors Weight Rating Weighted Score Internal Strengths 1. Excellent reputation .05 4 .20 2. Strong leadership .10 3 .30 3. Loyal, dedicated employees .10 4 .40 4. Young and diversified workforce .05 4 .20 5. Equipment and technology .10 4 .40 6. Training programs .05 3 .15 7. Culture of innovation .10 4 .40

Internal Weaknesses 1. Downsizing of the WPS .05 1 .05 2. Overtime expenses .05 2 .10 3. Inexperienced workforce .10 1 .10 4. Inadequate pool of human resources .10 1 .10 5. One layer of policing for weekends .05 2 .10 6. Lack of mentors for junior constables .05 2 .10 7. Union relations .05 2 .10

TOTAL 1.00 2.70

With respect to this matrix, each internal factor is assigned a weight ranging from 0.0 to 1.0 similarly to how the external factors were weighted. A rating of 1 to 4 is assigned to indicate whether the factor is a weakness or a strength (1 = major weakness, 2 = minor weakness, 3 = minor strength, 4 = major strength).

Key strengths for the Winnipeg Police Service are:

• WPS employees are loyal and dedicated to the organization • Equipment and technology utilized by the Service are state of the art and assist with police operations • A culture of innovation is evident and it assists the organization with remaining effective and efficient

As with all organizations, human resources are critical to its well-being. With respect to policing in general, it is naturally labour-intensive. A major strength of the Winnipeg Police Service lies with its employees; both civilian and sworn members are committed to achieving the goals of the organization.

Over the years, the WPS has purchased state of the art equipment and technology. Management and the general membership realize the importance of these tools in order to assist them with responding to and solving crimes; they strive to remain current in all technological areas.

41 The Service continues to exist in a culture of innovation. Constantly, new ideas or methods of doing business are being explored. As a result, the organization continues to be creative, innovative and successful.

Regarding the organization’s weaknesses, perhaps the two most significant factors are:

• An inexperienced workforce • An inadequate pool of human resources

As mentioned earlier, although a young workforce is desirable in many respects it can be somewhat detrimental as well. Police work is dynamic and over the years, it has become so complex. It takes time for members to learn the specifics of their job. The lack of experience by members brings with it risk – to them as individuals and to the organization.

The shrinking pool of human resources represents a major weakness for the WPS. This trend is applicable for almost every police organization and as a result, often, the agencies are competing against each other for the same applicants.

The Internal Factor Evaluation Matrix weighted score of 2.70 (out of a possible 4.00) indicates that the Winnipeg Police Service is characteristically stronger as opposed to weaker. (Refer to Appendix A for a SWOT Analysis).

Giving consideration to this information and keeping in mind the proposed role of the foundation, the following statements may be adopted by the Winnipeg Police Foundation:

Vision of the Winnipeg Police Foundation;

“To ensure Winnipeg is a safe place for all.”

Mission of the Winnipeg Police Foundation;

“To support and promote public safety by providing resources and developing partnerships within the community that will enable the Winnipeg Police Service to meet the needs of its community.”

These statements more than adequately express the foundation’s reason for being and it clearly identifies its vital link to the police service. In other words, it gives the foundation a purpose and a clear sense of direction.

42 Creating a Meaningful and Valued Foundation

To assist with the establishment of the foundation and to support it in achieving its vision and mission, it will be necessary to clearly outline critical steps to be taken. These include the following and they will each be discussed in further detail:

• Establishing goals and objectives • Establishing a strong governance model for the foundation • Establishing relevant foundation by-laws • Developing meaningful partnerships with the Winnipeg business community • Developing marketing strategies to assist in the promotion of the foundation • Establishing criteria that will ultimately determine if an individual, organization, or program receives funding • Administration of foundation funds • Establishing ethical boundaries of the foundation from a donor and a recipient perspective • Fundraising

Establishing Relevant and Timely Goals and Objectives

Goals and objectives are required in order to fulfill the mission statement of an organization. With respect to the Winnipeg Police Foundation, relevant and timely goals and objectives are required in order effectively support and promote public safety in general and more specifically, provide resources that will support the efforts of the Winnipeg Police Service.

Goals are broad-based statements that describe what is desired in a more general sense, and its long-range consequence. On the other hand, objectives are narrower in scope, and as well, more specific and measurable. For example, a goal of the foundation may be to purchase equipment in order to outfit members of a particular unit, perhaps the Mounted Patrol Unit, while the objective of the foundation may be to raise $200,000.00 in donations for the calendar year. With respect to the Winnipeg Police Foundation, although it may be difficult to accurately project the amount of funds raised in the first year of operation, it is anticipated that $200,000.00 is donations will be raised. This figure is realistic and achievable.

Clearly, goals and objectives guide and direct an organization eventually enabling it to achieve its mission. Failure to develop suitable and realistic goals and objectives will result in a floundering organization. Unknowingly, it will drift in a number of directions and ultimately it will be unable to achieve accomplishments that will mirror its reason for being.

43 With respect to long-term goals, the foundation will be striving to be a flourishing, yet prominent organization within the philanthropic community.

Establishing a Strong Governance Model for the Foundation

Although the Winnipeg Police Foundation will be perceived by Winnipeggers as an extension of the Winnipeg Police Service, it will be a separate entity. In researching various charitable organizations, it was apparent that with respect to its general structure, a Board of Directors, including a Chairperson, was created at the outset. For example, the Houston Police Foundation consists of a Chairperson, President, Secretary Treasurer and approximately ten other members.54 The Atlanta Police Foundation consists of a Chairperson, a twenty- five member Board of Trustees, one Ex-Officio member and a small support staff.55 The Edmonton Police Foundation consists of a Chairperson, Vice Chair, Treasurer, Secretary, nine directors and an administrative support clerk.56

Although the make-up of each group varies to a certain degree, there is a common theme; that is, with respect to organizational structure each foundation established a board to deal with the operations of the organization. Essentially, the Board of Directors assumes overall responsibility for the organization. They continually focus on achieving its mission and as well, they plan for the long- term.

Another noteworthy observation with respect to the composition of the various boards is the fact that directors and members are knowledgeable professionals or community leaders. Consider the Tucson Police Foundation Board of Directors. Each of its seven members is experienced, educated and successful in the community. For example, one member is a renowned microsurgical specialist and has earned an international reputation as a lecturer and author. Another member, a successful business leader, is currently President and Chief Executive Officer of two banking institutions. Yet another member is a founder and president of a prospering software company.57 Clearly, these board members have significant experience and they possess profound knowledge, skills and abilities in many areas. Their involvement in the operation of a charitable foundation will be invaluable and ultimately, it will enable the organization to achieve its vision and mission.

Although the Tucson Police Foundation Board of Directors are of exemplary character and undoubtedly possess a wealth of knowledge, their skills with

54 Houston Police Foundation. Retrieved November 2nd, 2005 from the World Wide Web: http://www.houstonpolicefoundation.org/. 55 The Atlanta Police Foundation. Retrieved November 2nd, 2005 from the World Wide Web: http://www.theapf.org/About/Mission.aspx. 56 Edmonton Police Foundation Member Handbook. (Revised June 2005). Edmonton Police Service, p. 35. 57Tucson Police Foundation. Retrieved October 7th, 2005 from the World Wide Web: http://www.tucsonpolicefoundation.org/.

44 respect to the policing profession will be limited. To keep them informed and to advise them of the various police programs, initiatives and crime trends in the community, an Advisory Board has been established. This group consists of five members; four high ranking police members and one educational advisor. The purpose of the advisory board is to provide assistance to the Board of Directors in order that they receive and understand relevant information on many police- related issues. This will enable them to make informed decisions with respect to granting funds for programs and initiatives.58

The Edmonton Police Foundation has a similar structure in that its Board of Directors is comprised of business and community leaders. The foundation does not have a formal Advisory Board however;

“…the Service will be consulted before the Foundation’s Board of Directors decides on which programs to fund, because as police officers, they are in a unique position to provide insight into the needs of Edmonton communities.”59

The Board of Directors for other police foundations are comprised of a mixture of police members and business or community leaders. The Upland Police Foundation is a good example of this as their board is comprised of ‘core’ board members and ‘general’ board members. Each group is comprised of police and non-police members.60

It is apparent that there is not a specific structure to any of the foundations; rather, the structure selected is the one that best suits the needs of the foundation. It is important to remember though that it is imperative for all boards, regardless of structure, to seek the input and the advice of police members.

With respect to the establishment of the Winnipeg Police Foundation, it will be registered as a charitable organization and it is proposed that it will be administered by an independent Board of Directors. At the outset, the board will consist of twelve members. All individuals will be volunteers from the community with no association or affiliation to the Winnipeg Police Service. The following positions will be created:

• Chair of the Board • Vice President • Director of Operations • Director of Finance • Board member x 8

58Tucson Police Foundation. Retrieved October 7th, 2005 from the World Wide Web: http://www.tucsonpolicefoundation.org/. 59 Edmonton Police Foundation Member Handbook. (Revised June 2005). Edmonton Police Service, p. 7. 60 Upland Police Foundation. Retrieved November 2nd, 2005 from the World Wide Web: http://www.uplandpolicefoundation.com/.

45 (Refer to Appendix B for a proposed organizational chart).

Job descriptions for each position within the foundation will be drafted; the duties and responsibilities of each board member will be somewhat different based on the position he/she holds.

The Chair of the Board will assume overall responsibility for the foundation. He/she will be involved in developing and implementing relevant policies and procedures with respect to the Board of Directors. He/she will offer and provide guidance and advice to board members. Publicly, this individual will represent the “face” of the foundation and as such, he/she will be responsible to attend various functions and gala events as required.

The Vice President of the Board will maintain more of a ‘hands-on’ approach with respect to the board itself. He/she will ensure policies and procedures are implemented in a timely manner. It will also be his/her responsibility to be directly involved in activities undertaken by the board; that is, fundraising initiatives, communication strategies and future planning. In the absence of the Chair of the Board, he/she will assume the responsibilities in an acting capacity.

The Director of Operations will focus on managing operations. For example, he/she will plan for and participate in fundraising initiatives. Many foundations host a yearly gala fundraising event. Often, these are large, high profile events with corporate and private sponsorship. A significant amount of time and planning are necessary in order for the event to be successful.

The Director of Finance will primarily be responsible for the financial management of the foundation. He/she will ensure that incoming and outgoing funds are properly accounted for, banked or distributed.

The main role of the eight board members will be to assist the executive members with carrying out their duties and responsibilities. They may be given a variety of tasks and assignments and they will be responsible for reporting back to these executive members.

Parameters must be established to ensure that a diverse group of individuals from varied backgrounds, professions and occupations will be selected as board members. They will bring with them a wealth of knowledge and experience. More importantly, they must be individuals of outstanding character exemplifying the core values of the Winnipeg Police Service: honesty, integrity, trust, respect, accountability and commitment to excellence.

Furthermore, with respect to the character of board members, ethical behaviour of these individuals is essential to the success of the foundation.

46 One way to help ensure ethical behaviour is to have a clear set of steps in the process of selecting new members for the board. There should be a clear understanding of the expertise that new members are expected to bring to the board. For example, the board may need a lawyer or an accountant, a person skilled in management or organizational growth, people who have a success record in raising money, people who are able to make large financial gifts. The process and guidelines prevent a person recommended and accepted into board membership because of nepotism or other invalid reasons. It is also important to immediately immerse new board members into an orientation and training program that clearly explains the work of the board and the organization they govern, and the expectations of that new member. Board members of non-profit organizations serve without compensation or benefit which needs to be made very clear to new members. Any real or potential conflict of interest, such as endowment funds being invested with the investment firm of a board member, must be avoided.61

In addition to the board members, the foundation will also require an administrative assistant. He/she will be required on a full-time basis performing a variety of clerical duties. Therefore, this individual will not be a volunteer but rather he/she will be compensated for their services.

It is important to remember that the proposed structure of the board may change over time. The creation of the foundation is a new endeavour for the City of Winnipeg and the Winnipeg Police Service. Its proposed structure will be suitable for the time being. As it continues to grow and evolve though, the structure may grow and evolve too. Consider for a moment an extremely successful foundation - The Winnipeg Foundation. By way of background, it was established in 1921 with a single donation of $100,000 from prominent banker Mr. William Forbes Alloway. As a young man, he settled in Winnipeg in 1870. Nine years later, he and two business partners opened the Alloway & Champion Bank; eventually it became the largest private bank in Western Canada. Mr. Alloway’s realized the city afforded him many opportunities and the sizeable donation was his way of giving back to the community. In 1921, the foundation was in its infancy; however it has grown substantially over the years. As quoted in The Winnipeg Free Press;

“In its first year of grantmaking, the Foundation distributed $6,000 among six different organizations. In 2005, grants totalling more the $16 million were made to 600 charities, for a total of more than $150 million distributed over the Foundation’s history.”62

61 Starting a Police Foundation Guidebook – New York Police Foundation, Inc. (2004). New York. 62 Solid Foundation. (2006, January 21). The Winnipeg Free Press, special insert.

47 Undoubtedly, the structure of the board has changed over the years; that is, not only has its mandate grown but its membership has grown as well. Currently, there are fifty-eight members on The Winnipeg Foundation Board of Directors. In essence, in order to remain effective, the board of the Winnipeg Foundation has expanded due to the increased volume of grant applications submitted to the foundation and the resulting disbursement of grant money to many charitable organizations.

Establishing Relevant Foundation Bylaws

Bylaws pertaining to the operation of the police foundation will have to be established and they will clearly direct the organization from the outset. For example, information relating to the membership in general as well as the specific board positions will be outlined. This will include the length of terms for directors and members and their respective responsibilities. Expectations with respect to holding general meetings and the related proceedings will be described as well.

With respect to other police foundations, the by-laws pertaining to Edmonton Police Foundation appear to be comprehensive and complete. They are divided into fourteen areas and cover a variety of topics including;

Part I – Interpretation Part II – Membership Part III – Meeting of Members Part IV – Proceedings at General Meetings Part V – Directors and Officers Part VI – Proceedings of the Board Part VII – Committees Part VIII – Duties of Officers Part IX – Seal Part X – Borrowing Part XI – Auditor Part XII – Notices to Members Part XIII – Indemnification Part XIV – Bylaws63

For example, with respect to Part IV – Proceedings at General Meetings, this section states in part:

18. All proceedings at a general meeting shall be governed by Robert’s Rules of Order as revised from time to time, except that, should there be any conflict between any section of these bylaws and Robert’s Rules of Order, these bylaws shall prevail. All

63 Edmonton Police Foundation Member Handbook. (Revised June 2005). Edmonton Police Service, p. 9.

48 business at an extraordinary general meeting shall be “special business” and all business that is transacted at an annual general meeting shall be “special business” except:

(a) consideration of the financial statement; (b) the report of the directors; (c) the report of the auditor; (d) the election of directors; (e) the appointment of the auditor, if any; and (f) such other business that, under these bylaws or any governing statutes, ought to be transacted at an annual general meeting, or business as brought under consideration by the report of the directors issued with the notice of the meeting.

19. No business, other than the election of a chair and the adjournment or termination of the meeting, shall be conducted at a general meeting at a time when the quorum is not present.

20. If at any time during a general meeting there ceases to be a quorum present, business then in progress shall be suspended until there is a quorum present, or until the meeting is adjourned or terminated.

21. A quorum at a general meeting is no less than three members in good standing present.64

Needless to say, the Winnipeg Police Foundation must endeavour to draft bylaws that will be specific to its needs, yet similar to its Canadian counterpart.

Developing Meaningful Partnerships with the Winnipeg Business Community

Although Winnipeg has a population of approximately 633,000, it is not considered a tremendously large metropolitan city. It has a significant and diverse business sector and overall, corporations and citizens alike are viewed as extremely charitable. To demonstrate the generosity of Winnipeggers, again consider The Winnipeg Foundation. It was Canada’s first community foundation and since its inception it has distributed in excess of $150 million to those in the community. The donor base continues to grow;

“these donors, who now number in the thousands, have all shared a commitment to the charitable organizations that enrich and

64 Edmonton Police Foundation Member Handbook. (Revised June 2005). Edmonton Police Service, p. 12.

49 sustain our community and the Foundation’s vision of ‘a Winnipeg where community life flourishes.’”65

Additionally, in 2005, the United Way Winnipeg raised more than $17 million in contributions. And finally, in early January, 2006, a local University of Manitoba pharmaceutical graduate, Mr. Kris Thorkelson, donated $500,000 for the construction of an on-campus pharmacy laboratory. During the news conference he stated;

“Really, this is something I’ve wanted to do for a long time. The profession has given me many rewards. I just wanted to be able to give something back.”66

According to a recent Globe and Mail article;

“Canadians have been giving more money than ever to charities in recent years and total donations are expected to top $7-billion this year, the highest on record.”67

This trend is expected to continue, with a twist. According to the article, although donors continue to give, they want to have more influence on where their donation will be spent.

Knowing that those within the community are supportive and giving to various programs and initiatives is important since the success of the Winnipeg Police Foundation will obviously be dependent on donor generosity. It is imperative too that those individuals associated with, and directly involved in, the foundation develop meaningful partnerships with prominent business leaders for the purpose of specifically endorsing the Winnipeg Police Foundation and related police initiatives. Cultivating such relationships will be necessary in order for the foundation to grow and prosper.

Representatives of the Winnipeg Police Foundation must endeavour to meet with and speak to many business leaders including those who grew up in Winnipeg and were successful here. It is quite apparent that business and community leaders appreciate and are thankful for the opportunity given to them and consequently, they want to give back to the community. They include but are not limited to the following local organizations:

• James Richardson & Sons Limited • Canwest Global Communications Corporation

65 The Winnipeg Foundation. Retrieved December 15th, 2005 from the World Wide Web: http://www.wpgfdn.org/about.php. 66 Janzen, L. (2006, January 21). Pharmacy Grad Donates $500,000. For New Lab. The Winnipeg Free Press, p. B3. 67 Waldie, P. (2005, December 19). Charity Finds a New Address: Bay Street. The Globe and Mail, p. B1.

50 • Buhler Industries Incorporated • Vansco Electronics LP • Canada Drugs

In all instances, these companies were founded by Winnipeggers who remain extremely loyal and committed to their community. For example, take into account Canwest Global Communications Corporation. The organization evolved from an independent television station in 1974 to become a Canadian media giant with a global reputation. The organization was founded by Winnipegger Israel Asper and today, his family continues to lead and manage the organization. As a family, they have donated millions of dollars to the community in a number of areas and they remain committed to improving the quality of life for all Winnipeggers.68 Meeting with and discussing the purpose of a police foundation for the city of Winnipeg may convince these influential and successful individuals to donate funds to the initiative.

Developing Marketing Strategies to Assist in the Promotion of the Foundation

Although some police organizations have had foundations in existence for some time, the concept of a police foundation is new to many organizations. Certainly, the establishment of a police foundation will be a new venture for the Winnipeg Police Service and as well, if will be new and innovative for the City of Winnipeg. As a result, comprehensive marketing strategies must be developed in order to properly promote the existence of the foundation, its purpose and its hopes for the future.

Prior to developing strategies, members of the foundation must define their stakeholders; that is, who has a stake in the organization? Stakeholders may include the foundation, the police organization, citizens, business owners, leaders of the community, elected politicians and so on. Once stakeholders are appropriately identified, they will be categorized as either private donors or corporate donors. To effectively target these two distinct groups of donors, appropriate and relevant strategies will be crafted and carried out.

With respect to the aspect of giving, the New York Police Foundation Guidebook aptly describes the difference between private donors and corporate donors. Regarding private donors, it states;

Why do people give? There are many reasons. Some give because they feel it is their duty, because they want to give back to the community, because of guilt, to buy their way into heaven, or because they have had an experience such as successful medical treatment and they make a charitable gift as a way of saying thank you. According to a recent report, giving for tax reasons was

68 Investing in Manitoba - Strategic Advantages: Leadership Profiles. Retrieved November 2nd, 2005 from the World Wide Web: http://www.gov.mb.ca/iedm/invest/leader/asper.html.

51 number fourteen on the list of why people give. The number one reason people give is because they are asked! And most importantly, people give to people. So go ahead, ask!69

On the other hand, when discussing corporate donors it states;

Many corporations make charitable contributions. These range from a few small gifts each year, often to take a table at a benefit, up to 5% or more of their pre tax profits. The process of soliciting a gift from a corporation is very similar to that used to request a grant from a foundation. But there are differences, the most significant being that corporations like to give in a way that supports their corporate image in the community.70

With respect to the Winnipeg Police Foundation, it is anticipated that the majority of funds, perhaps as high as 80%, will be generated from corporate donations while the remaining 20% will be generated from private donations.

Marketing the foundation may be accomplished in a number of ways depending on the target market. To solicit funds from private donors the following may be considered:

• Advertising through various media such as television, radio and newspaper • Advertising through local publications such as community flyers and newspapers • Advertising through public service announcements (PSA) • Designing and distributing attractive and eye-catching posters to local police stations and other organizations • Designing and distributing attractive Winnipeg Police Foundation pamphlets • Establishing a web site

Advertising via traditional means such as television, radio and newspaper may be extremely effective for the local market, especially private donors. Many Winnipeggers tune in to local, newsworthy stories and the promotion of a police foundation may be relatively easy to accomplish. On the other hand, targeting corporate donors will require a channeled marketing approach. It is important to note that a balanced marketing approach has to be undertaken; that is, if corporate and business donations primarily support the foundation then the bulk of marketing and advertising will be concentrated on this particular target market. For private donors, a scaled back advertising campaign will be conducted.

69 Starting a Police Foundation Guidebook – New York Police Foundation, Inc. (2004). New York, p. 27. 70 Starting a Police Foundation Guidebook – New York Police Foundation, Inc. (2004). New York, p. 30.

52 To effectively promote the Winnipeg Police Foundation, the grand opening will be held in conjunction with a gala dinner and dance. A well-planned media conference will highlight these events.

Although traditional methods of marketing are effective;

“…e-marketing describes company efforts to inform, communicate, promote, and sell its products and services over the Internet.”71

Essentially, capabilities offered by the internet have proven to be a powerful marketing tool for most, if not all, organizations. Undoubtedly, the establishment of a web site for the Winnipeg Police Foundation will be a valuable marketing tool as well. Consider the web site of the Seattle Police Foundation; it is attractive and inviting. It features a number of design elements including:

• Context • Content • Customization • Commerce

Browsing through the site, it is apparent the layout and design is contemporary and colorful. The text is easy to read and the various sections of the site are complemented by a number of photographs. Additionally, navigating to other pages of the site is trouble-free. Contributions are easily collected on-line making it convenient for many users of the site. It is important to note that the site clearly outlines the foundations projects and additionally, it highlights annual events that take place in support of the foundation. It also includes links to their brochure, annual reports and other financial data. In exploring the site, it is evident that the Seattle Police Foundation is open and transparent with respect to their purpose, the programs and equipment they fund and their financial situation. By doing so, they are further gaining the support of business owners and citizens alike. From a donor perspective, they remain well-informed and moreover, they can easily understand where funds have been allocated and why.72 Other foundations supporting major police organizations such as the Los Angeles Police Department and the Atlanta Police Department have similar comprehensive web sites established as well.

With respect to the Winnipeg Police Foundation web site, it may begin as a reasonably small, yet attractive and inviting web site. Over time though, the site may expand significantly and the organization has to be ready, willing and able to undertake such an expansion.

71 David F. R. (2003). Strategic Management Concepts & Cases (9th Ed.). Upper Saddle River, New Jersey: Prentice Hall, p. 40. 72 Seattle Police Foundation. Retrieved December 15th, 2005 from the World Wide Web:http://www.seattle.gov/police/foundation/About.htm.

53 With respect to promoting the foundation, it will be important to implement an integrated marketing approach; that is, utilization of a web site, traditional advertising, word of mouth, and public service announcements as it will broaden the overall scope of advertising. By doing so, a greater share of the market will be reached and ultimately organizational success will be easier to achieve.

Establishing Criteria to Determine Who Receives Funding

A critical aspect of the foundation will be establishing criteria to determine who (or what program) will receive funding. In researching several foundations, it was obvious that funding criteria varied from organization to organization. Although at times vastly different, it is important to note that relevant criteria were clearly explained in material pertaining to specific foundations. In order to have a better understanding of criteria utilized, consider the Seattle Police Foundation and the Edmonton Police Foundation.

The Seattle Police Foundation provides grants to three distinct funding areas on a bi-annual basis. These include:

• Community programs and partnerships • Police service equipment enhancements • Employee training and professional development

Community programs and partnerships focus on initiatives that will enhance the community in general. For example, the Seattle Police Department Domestic Violence Victim Support Team is a group of volunteers that provides crisis intervention and support to victims of domestic violence. It has been recognized nationally as one of the finest programs in the country. The Seattle Police Foundation provides funding for the necessary training of team members. Another initiative involves the Disaster Resistant Businesses Program. This proactive initiative, involving a number of partners, enables businesses to develop a disaster plan toolkit that will assist them in the event of major incident. The Seattle Police Foundation provides funding for the printing and distribution of the relevant material.

Police service equipment enhancements include specialized equipment and technology that are necessary for the policing profession in today’s environment but not available through the normal operating budget. For example, funding was provided by the foundation for the purchase of Rofin Polilights. These particular lights enable crime scene investigators attending major crime scenes to search for all-inclusive evidence that would otherwise not be located. Another innovative device purchased through foundation funding was a number of handheld devices commonly referred to as a Blackberry. They were issued to bike and foot patrol members enabling them to conveniently conduct computer checks on individuals and access referral information. The devices enabled the

54 members to perform more efficiently and ultimately they provided the community with a better service.

Employee training and professional development focuses on educational opportunities that will assist the Seattle Police Department employees in remaining up to date in a number of areas. For example, the foundation provides funding to the Seattle Police Department that enables them to hire guest speakers and subject matter experts to address current, and at times controversial, issues. Funding is also provided for the development of a training video for police officers and their families; the intent is to adequately prepare them for the challenges and related stress of law enforcement.73

The Edmonton Police Foundation’s philosophy mirrors the philosophy of the Edmonton Police Service. The Service was the first police organization in Canada to adopt the concept of, and embrace, community policing. That is, the police and community work in partnership to solve various social issues and related crime. Keeping in mind the philosophy of community policing, funding criteria are relatively straight-forward and initiatives and programs are supported if they;

“aid in the development of crime prevention programs, support educational opportunities related to community policing, or promote the practice of community policing.”74

As evident, the funding criteria for the two foundations are quite different from each other. Funding criteria for the Seattle Police Foundation appears to be all- encompassing while the criteria for the Edmonton Police Foundation are more limited to community programs and related initiatives. Regardless of the criteria adopted, it is imperative that foundations clearly outline how funds are allocated and for what purpose. With respect to criteria in general, an open and transparent strategy may assist foundations in easily receiving contributions;

“the Canadian donor is becoming more involved in where their money goes and in what they want that money to be used for.”75

Regarding the Winnipeg Police Service, and being cognizant of the fact that funds generated by the foundation will not be utilized for initiatives and equipment traditionally provided for in the normal capital or operating budgets, distribution of funds shall be all-encompassing. Three funding areas similar to the Seattle Police Foundation will be created. They will include:

73 Seattle Police Foundation. Retrieved December 15th, 2005 from the World Wide Web: http://www.seattle.gov/police/foundation/About.htm. 74 Edmonton Police Foundation Member Handbook. (Revised June 2005). Edmonton Police Service, p. 5. 75 Waldie, P. (2005, December 19). Charity Finds a New Address: Bay Street. The Globe and Mail, p. B1.

55 • Community programs • Equipment and enhancements • Professional development and training

As all areas are critical to the effectiveness of the WPS, funds raised will be equally distributed between the three funding areas. After the first year of operation, grant requests will be reviewed to determine if funding needs are greater in one area over another. If necessary, the following year funding allotments will be re-allocated between the three areas.

As mentioned earlier, community based policing is integral to the Winnipeg Police Service. Aside from being reactive in nature; that is, routinely responding to calls for service, the Service strives to develop, implement and participate in proactive initiatives. Often, a number of community groups and businesses work in partnership with the police in order to achieve common goals and objectives. Funding such programs will enable the WPS to work cooperatively with others and ultimately enhance the community.

In today’s environment, the cost of technology is always increasing. Although specialized equipment and enhancements are desirable by police organizations they are usually unaffordable. Funding of such equipment will enable the Winnipeg Police Service to remain competitive in the future.

Professional development and training are necessary for all police employees. Leadership training is imperative for the Executive and senior managers in order to move the organization forward in a progressive and innovative manner. Specialized training is necessary in many areas of policing. For instance, members assigned as identification specialists, collision analysts and forensic computer technicians require considerable training in order to be proficient in the workplace. Again, training courses, although readily available, are often expensive. Funding of members through the foundation will create an atmosphere of continuous learning and will enable the Service to remain competitive.

With respect to the three funding areas, suitable criteria will have to be established for each area in order to ensure that funding is fair and impartial for all grant applicants.

Administration of Foundation Funds

Administration of Winnipeg Police Foundation funds will be required in order to effectively maintain the integrity of the organization. Ultimately, the Board of Directors will be responsible for the foundation’s finances. At the outset, it shall ensure that appropriate financial controls and systems are in place. As well, it will be the responsibility of the board to set up appropriate bank accounts for monies raised by the foundation, manage daily cash flows, and conduct annual

56 audits. It is also imperative that thorough and complete financial records are maintained by the foundation.

Ethical Boundaries of the Foundation from a Donor and a Recipient Perspective

With respect to ethical boundaries of the foundation, prior to it becoming operational, two key areas will have to be addressed. That is, in order to maintain the integrity of the foundation and the values of the police service, guidelines regarding the solicitation of funds from corporate and private donors will have to be drafted and implemented. Furthermore, guidelines with respect to the disbursement of funds will have to be drafted and implemented as well.

Regarding the solicitation of funds, it is important that funds are requested from or received by reputable donors. As stated in the Edmonton Police Foundation Member Handbook;

Donations will be screened to determine that the donor’s gift would in no way bring into disrepute the integrity of the Edmonton Police Foundation. Once it is determined the donation is from a reputable donor or source, the donation will be accepted and deposit receipts will be issued.76

Obviously, screening of donations will be required. It will involve creating a process that will be inclusive of conducting criminal record checks, reviewing relevant intelligence reports and police records. If the donor is deemed acceptable, the donation will be processed.

On the other hand, when the donor is not acceptable, the donation will not be processed. In these instances, it will incumbent on a designated member of the Winnipeg Police Foundation to communicate with the anticipated donor and inform him/her of the reasons for rejection. Although at times this may be a difficult and uncomfortable task to accomplish, it is necessary as the integrity and credibility of the foundation is at stake.

With respect to the disbursement of foundation funds, a grant appraisal process will be developed and implemented. This will ensure that all submitted grant applications will be dealt with in the same fair and equitable manner. The appraisal process will address the following questions:

• When is the deadline for grant applications? • Who will be reviewing the applications? • Who will be responsible for awarding funds? • How much money will the foundation award annually?

76 Edmonton Police Foundation Member Handbook. (Revised June 2005). Edmonton Police Service, p. 8.

57 • Will funding be awarded on a one-time basis only? • How will applicants be notified if their request has been approved? • How will applicants be notified if their request has been denied? • If denied, are applicants permitted to submit another request for funding the following year? • How will the grant review process be reported? • How will the success of grants be measured?

Although the aforementioned list of questions is by no means exhaustive, it is necessary to recognize the importance of the questions themselves. For example, consider the last question: ‘How will the success of grants be measured?’ When the police foundation has been established and funds are solicited via corporate and private donors, the Board of Directors assumes tremendous responsibility in dispersing funds to meaningful initiatives. Occasionally, the board may be called upon to explain and justify its actions to the citizens of Winnipeg. Therefore, board members must remain fair and objective when approving grants. More important, once complete, the success of the initiative must be measured. Was it successful or not? One must remember that;

Grant evaluation can be very difficult. It is easier if the expectations for each grant are clear at the time the grant is made, and that all parties involved in the grant are clear about these expectations. One measure of grant effectiveness is whether or not the activity or program accomplished its stated goal as presented in the request or proposal to the Police Foundation. Another measure is whether the planned number of participants took part in an activity or program. Yet another measure is to have participants in a program complete a written evaluation of that program which can be reviewed and evaluated by the Police Foundation.77

Regardless of the processes established to solicit or disperse funds, it is important to recognize that relevant processes are indeed required in order to accurately monitor and control the actions of the foundation.

Fundraising

Fundraising initiatives will be developed and implemented in order to generate money for the foundation and ultimately assist with its long-term success. This may be accomplished in a number of ways.

Contributions will be solicited from both private and corporate donors. Regarding private donors, once the foundation is operational and a fundraising initiative is underway, monies will be solicited via mailing lists generated by the Winnipeg

77 Starting a Police Foundation Guidebook – New York Police Foundation, Inc. (2004). New York, p. 24.

58 Police Service. The personal selection of individuals will in all likelihood ensure the success of the initiative. In researching other organizations it was apparent that mass mail-outs are not suggested.

It is possible to purchase a list of people to whom you can send a “direct mail” letter asking for a contribution to the police foundation. This is not recommended during the early life of a police foundation. Lists are expensive, the return is usually very small and the average size gift is also very small. Direct mail is impersonal, preventing you from developing a relationship with a potential contributor that might result in significant financial support. All too frequently non-profit organizations end up losing money on direct mail appeals.78

Fundraising via the internet will also generate funds from individuals supporting the cause.

With respect to corporate donors, relationships and partnerships with various corporations will be necessary and may be relatively straightforward to accomplish.

Business in every city has a major interest in low crime, and some are particularly sensitive to this issue. For example, the hotel industry is a likely partner because low crime and safe streets are keys to their long-term success and they are willing to play a role in public safety activities.79

Most, if not all, police foundations host at least one major event per year. Often, a gala dinner and dance is held. This is advantageous in a number of ways. First, it certainly raises the profile of the police organization and the foundation within the community. In fact, some police organizations utilize the opportunity to recognize the efforts of its members and various police initiatives. Second, it showcases the partnerships between the police and corporate donors as well as the positive relationship between the police and private donors. Finally, it is a very profitable fundraising initiative. For example, the 2004 Atlanta Police Foundation’s Crime Fighters’ Ball was an elaborate affair;

As guests arrived to “A Night in Blue” they were greeted by the men and women in BLUE, the officers of the APD. Guests entered into a vibrant and colourful blue atmosphere with spinning blue police lights, architecturally designed bars and centerpieces, and a room filled with symbols of Atlanta. An APD motorcycle and the new BLUE APD squad car were on hand for guests to explore. Guests

78 Starting a Police Foundation Guidebook – New York Police Foundation, Inc. (2004). New York, p. 32. 79 Starting a Police Foundation Guidebook – New York Police Foundation, Inc. (2004). New York, p. 34.

59 were able to bid on gift certificates and experiences from Atlanta area restaurants and theatres in the Officer’s Lounge Silent Auction or dance the night away to up beat Blues music in the Crime Fighter’s Club! Throughout the evening the DJ enlightened the crowd with bits and pieces of APD trivia and helped our guests learn how our police force answers the call to help our community.80

Some fundraising initiatives include selling foundation memberships and merchandise. The cost of a membership and the merchandise available for purchase varies from organization to organization.

Potential Obstacles to the Establishment of a Foundation

The establishment of a foundation for the Winnipeg Police Service will be a new initiative for the organization. As with any new venture, there may be potential obstacles prior to it becoming a reality. As a result, it is important to identify potential obstacles and develop relevant strategies to effectively deal with them.

In this case, potential obstacles may include the following:

• The concept and establishment of a foundation is not supported by local politicians • The concept and establishment of a foundation is not supported by the Executive of the Winnipeg Police Service • Start-up funds for the initiative may not be available • The initiative may not be supported by the tax-paying public

With respect to the first two points, the support of local politicians and the Executive of the Winnipeg Police Service will be necessary if the venture is to be successful. At the outset, the concept of a foundation, its purpose and its general operating framework must be clearly outlined to these individuals. As a result, they will understand why and how a foundation exists. More important, they will understand the long-term benefits that will result from the undertaking.

Secondly, although a foundation will provide funds to complement already existing operating budgets, the initiative will obviously require start-up funds. At a time when public sector budgets are shrinking and demand for services is increasing, start-up funds may not be considered a priority. In order to receive funding it will be imperative to develop strategies that will more than adequately ‘sell’ the initiative to local politicians and the senior management of the Winnipeg Police Service.

80 The Atlanta Police Foundation. Retrieved November 2nd, 2005 from the World Wide Web: http://www.theapf.org/About/Mission.aspx.

60 Finally, the initiative may not be supported by the tax-paying public. Today, many organizations, groups and individuals support a variety of different causes; often they select a cause that is significant to them for one reason or another. It is important to recognize that some individuals and groups may frown upon the establishment of a police foundation. They realize that police organizations are publicly funded and certainly, they may question why these organizations are looking for supplemental funding. Once again, relevant and timely strategies will have to be developed that will adequately address the questions and concerns of the public.

Potential Risks to the Establishment of a Foundation

As with any new initiative there will be potential risks associated to it. The establishment of a foundation is no different; potential risks include:

• A reduction in the normal operating budget • A reduction in funding from outside partners (Manitoba Public Insurance and the Provincial Government) • The perception that affluent donors may gain considerable influence because of their support to the foundation

Regarding the first two points, provincial and municipal politicians may view the establishment of a foundation and the funds generated by them as their opportunity to reduce funding already provided to the Winnipeg Police Service. They may further capitalize on the opportunity by shifting the funds elsewhere. Obviously, this will be detrimental to the initiative and it defeats the true intent of a foundation. Prior to proceeding with the establishment of a foundation it must be made perfectly clear that funds generated by the foundation will complement the normal operating budget not replace it. It must also be stressed that policing has become a more expensive profession over the years and as a result, the funding generated by the foundation will assist the Winnipeg Police Service with remaining competitive and innovative in the future.

With respect to the third point;

Police and foundation officials acknowledge that mixing private money and policing has inherent risks. In particular, they say they guard against the possibility that wealthy donors can gain undue influence.81

It will be imperative that the senior leadership of the Winnipeg Police Service and those individuals involved in creating the foundation mitigate this risk as much as

81 New York City Police Foundation. Retrieved October 7th, 2005 from the World Wide Web: http://www.nycpolicefoundation.org/.

61 possible. That is, contributions will be accepted by all reputable donors however there will be no favouritism to any individual or group due to the size of their contribution. This will be necessary in order to maintain the integrity of the foundation as well as the Winnipeg Police Service.

Action Plan

In order to cope with increased costs associated to present day policing and giving consideration to the potential risks and obstacles associated with the establishment of a police foundation, the Winnipeg Police Service must endeavour to move forward with this initiative. As mentioned earlier, this entity will generate funds that will ultimately complement an already existing operating budget; furthermore it will assist the Service with remaining viable in the future.

First and foremost, a working group of six to eight members shall be selected and tasked with developing and implementing an action plan that will result in the foundation becoming a reality within two years. An Inspector shall be assigned to oversee the initiative and guide and direct the group as necessary. Additionally, he/she shall provide senior management of the Winnipeg Police Service with regular updates regarding the progress of the initiative. The remainder of the working group will be chosen based on their knowledge, skills and abilities. The intent is to create a well-rounded, diverse working group capable of accomplishing a variety of tasks. Representatives from the Organizational Development and Support Division, Human Resources, Finance Division, Public Affairs Unit, Community Relations and the WPS legal counsel will serve as contacts for the working group and will assist them when required.

Prior to the start of the project, municipal politicians including the Mayor and Chief Administrative Officer (CAO) will be provided with relevant details regarding the initiative. Any questions and concerns raised must be fully addressed at that time.

62 Planning of the project will take place over a two year period. During the first year, the following tasks will be undertaken and completed:

Task Time Frame Assigned To The mission and vision of the Winnipeg Police 3 months Working Group and Foundation will be finalized. Organizational Development and Support Representative Goals and objectives will be clearly outlined. 3 months Working Group and Organizational Development and Support Representative The structure of the organization will be 2 months Working Group and finalized. Organizational Development and Support Representative Job descriptions regarding various board 4 months Working Group and positions will be drafted. Human Resources Representative Foundation by-laws must be drafted. 9 months Working Group and Legal Counsel Funding criteria must be determined; that is, 4 months Working Group and what ‘funding areas’ will be eligible to receive Organizational grants? Development and Support Representative Evaluation criteria must be determined; that is, 5 months Working Group and was a funded initiative successful or not? Organizational Would it be worthwhile to fund it again? Development and Support Representative Explore and determine budgetary needs for the 5 months Working Group and first three to five years of operation. Finance Division Representative

As evident, the first year of planning revolves around creating a comprehensive framework with respect to the overall operation of the foundation. Although the majority of the aforementioned tasks were previously discussed in this paper, they must be further examined and finalized. The time frame associated to each task is simply an estimation of the time required to complete the task. Furthermore, more than one task may be undertaken at the same time. Perhaps the most complex and time-consuming task will be drafting relevant by-laws. Many areas need to be covered and it will be imperative that the by-laws are in place prior to the foundation becoming functional. A review of the drafted bylaws will be required and, if possible, should be conducted by WPS legal counsel. Another significant task will be determining budgetary requirements of the foundation. Although board members will be participating voluntarily there will be a cost associated to the clerical position and various administrative supplies required for day to day operations.

63 During the second year, the following tasks will be undertaken and completed:

Task Time Frame Assigned To Partnerships with the business 7 months Working Group community and prominent business leaders must be developed. From those partnerships, the 3 months Working Group and Human recruitment and selection of Resource Representative suitable board members will take place. Marketing strategies will be 6 months Working Group and Public developed and implemented. Affairs Representative A Winnipeg Police Foundation 6 months Working Group and Web website will be created. Writer Representative Internal and external 4 months Working Group and Public communication strategies will Affairs Representative be developed and implemented. Fundraising events, including 8 months Working Group and the Gala Dinner and Dance, Community Relations will be planned. Representative Bank accounts will be set up. 2 months Working Group and Finance Division Representative

As demonstrated, tasks slated for the second year focus on developing the necessary partnerships with the business community; selecting board members; and developing and implementing effective marketing and communication strategies. Essentially, more time will be spent dealing with individuals and groups external to the organization in order to publicly ‘sell’ the concept of a foundation. Once all the tasks have been completed and formally reviewed, the foundation will become operational.

64 Conclusion

Policing, like many other professions has evolved significantly over the years. Globalization and the complexity of a multitude of issues have placed increased pressures on police organizations, including the Winnipeg Police Service. Additionally, the reduction of operational budgets has impacted the overall situation even more so. One has only to look at the ISIS 2006 mandate to see that policing across Canada is at a crucial fork in the road.

Affordability and sustainability are two of four components that our current police leaders have identified as being fundamental to a survivability of public policing in Canada.

In an effort to sustain and improve the level of service provided, police organizations are identifying alternate sources of funding. One such feasible source is the establishment and utilization of a police foundation.

The purpose of this paper was to develop a framework for the creation of a police foundation for the Winnipeg Police Service. In keeping with more of an ‘evidence-based’ philosophy coupled with significant research of other police foundations across North America an effective and relevant framework for the Winnipeg Police Service has been developed.

82 Institute for Strategic International Studies (ISIS) 2006. Student Courseware.

65 Once implemented, the Winnipeg Police Foundation will enable the Winnipeg Police Service to continue with its long history of being an innovative and progressive leader within the Canadian policing community.

Contemporary policing operates in a climate where, on the one hand, there is an apparent desire of the public, as expressed by the policies of their elected officials and the decisions of the judiciary, to have increasing protections against potential police abuses of their liberties and, on the other hand, the complexity of crime, the fear of crime, and the public demand that their police respond with maximum effectiveness to all crimes. In order to address both sets of concerns, police require additional members, training, and education, and an overall increase in resources to allow them to deliver the full range of police services expected by Canadians.83

83 Malm, A., Pollard, N., Brantingham, P., Tinsley, P., Plecas, D., Brantingham, P., Cohen, I., & Kinney, B. (2005). A 30 Year Analysis of Police Service Delivery and Costing: “E” Division. Abbotsford, British Columbia: School of Criminology and Criminal Justice University College of the Fraser Valley.

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67 Malm, A., Pollard, N., Brantingham, P., Tinsley, P., Plecas, D., Brantingham, P., Cohen, I., & Kinney, B. (2005). A 30 Year Analysis of Police Service Delivery and Costing: “E” Division. Abbotsford, British Columbia: School of Criminology and Criminal Justice University College of the Fraser Valley.

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69 Appendix A

SWOT Analysis

Strengths Weaknesses

• Excellent reputation • Downsizing of the WPS • Strong leadership • Overtime expenses • Loyal, dedicated employees • Inexperienced workforce • Young and diversified workforce • Inadequate pool of human • Equipment and technology resources • Training programs • One layer of policing for • Culture of innovation weekends • Lack of mentors for junior constables • Union relations

Opportunities Threats

• Technological advancements • Organized crime • Limited competition • Internet crime • Partnerships with organizations • Threat of terrorism • Community involvement • Court decisions • Training opportunities • IT system security • Outside agencies participating in • Changing demographics WPS training programs • Technological advancements • National Proceeds of Crime • Escalation of litigation Legislation • Revenue opportunities

70 Appendix B

Foundation Organizational Chart

Winnipeg Police Foundation

Chair of the Board

Vice President

Director of Director of Finance Operations

Board Member