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Independent Review of the Manitoba Police Services Act, 2009

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Independent Review of the Manitoba Police Services Act, 2009 FINAL REPORT INDEPENDENT REVIEW OF THE MANITOBA POLICE SERVICES ACT, 2009 September 2020 Community Safety Knowledge Alliance 120 Sonnenschein Way – Main Saskatoon, Saskatchewan Canada S7M 0W2 www.cskacanada.ca This page intentionally left blank. REPORT ON THE INDEPENDENT REVIEW OF THE MANITOBA POLICE SERVICES ACT, 2009 REVIEW TEAM PRINCIPAL Cal Corley Chief Executive Officer Community Safety Knowledge Alliance, Inc. REPORT AUTHORS Cal Corley, MBA Rick Linden, Ph.D Fred Kaustinen, MBA Mark Reber, MA SENIOR PEER REVIEW PANEL This project was supported by a senior peer review panel, featuring: Roger Chaffin, O.O.M. Former Chief, Calgary Police Service Shirley Currierrilller, M.O.M. Assistant Commissioner (Rtd), Royal Canadian Mounted Police Kevin Fenwick, QC Senior Visiting Fellow, Johnson Shoyama Graduate School of Public Police and former Deputy Attorney General, Saskatchewan Matt Torigian, MPA Distinguished Fellow and Director of Global Policing, Munk School of Global Affairs and Public Policy, and former Ontario Deputy Minister of Community Safety This report was reviewed in draft form by the panel. The panel also brought diverse perspectives and expertise in meeting with the review team periodically over the course of the project to discuss and reflect upon emerging findings and analysis. They have not seen the final report. The authors alone are responsible for the final content of this report. ACKNOWLEDGEMENTS The review team would like to acknowledge the contributions, assistance, and insights of the many stakeholders that participated in our consultations. All of the organizations and individuals contacted by the review team shared their views and perspectives freely, in many cases with passion and conviction. In particular we would like to acknowledge the support of: • Manitoba Justice and Manitoba Police Commission officials who used their considerable professional networks to ensure that stakeholder awareness and participation in the review process was as wide-ranging as possible; • The leadership and staff of the many community, policing, justice, and civil society organizations across Canada who offered important information and insights that contributed to our mission. The contributions of these individuals and organizations were invaluable and allowed the review team to engage in its work more effectively. This, in turn, allowed us to develop a more representative and meaningful framework from which to develop our analysis, conclusions, and recommendations. ABOUT COMMUNITY SAFETY KNOWLEDGE ALLIANCE CSKA is a non-profit that supports governments and others in the development, implementation, and evaluation of new approaches to community safety and well-being. Through its work, it mobilizes, facilitates, and integrates research and the development of new knowledge that: • informs how community safety-related work is organized, and delivered; • informs and improves professional practices across the community safety system; • informs alignment within the sector; and • improves safety and well-being outcomes at the individual, community, and policy levels. For further information on Community Safety Knowledge Alliance, please contact: Shannon Fraser-Hanson, Manager Tel: (306) 384-2751 Community Safety Knowledge Alliance Email: [email protected] 120 Sonnenschein Way - Main Web: www.cskacanada.ca Saskatoon SK S7M 0W2 REPORT ON THE INDEPENDENT REVIEW OF THE MANITOBA POLICE SERVICES ACT, 2009 CONTENTS EXECUTIVE SUMMARY ........................................................................................................... 1 1. INTRODUCTION .............................................................................................................. 23 1.1 Background ................................................................................................................................. 23 1.2 Methodology ............................................................................................................................... 24 1.2.1 Literature Review ............................................................................................................. 24 1.2.2 Legislative Analysis ........................................................................................................... 24 1.2.3 Stakeholder Consultations ................................................................................................ 25 1.2.4 Data Review and Analysis ................................................................................................. 25 1.2.5 Peer Review and Challenge .............................................................................................. 26 1.3 The Policing Landscape ............................................................................................................... 26 1.3.1 The Rule of Law ................................................................................................................ 28 1.4 Organization of the Report ......................................................................................................... 29 2. SUMMARY OF FINDINGS ................................................................................................. 30 2.1 Literature Review Summary ........................................................................................................ 30 2.1.1 External Factors ................................................................................................................ 30 2.1.2 Internal Factors ................................................................................................................. 33 2.1.3 Looking Toward the Future .............................................................................................. 35 2.2 Legislative Gap Analysis .............................................................................................................. 36 2.2.1 Jurisdictional Review of Legislation .................................................................................. 36 2.2.2 Governance....................................................................................................................... 36 2.2.3 Oversight .......................................................................................................................... 37 2.3 Consultations .............................................................................................................................. 38 2.3.1 Legislation ......................................................................................................................... 39 2.3.2 Governance....................................................................................................................... 40 2.3.3 Police Service Delivery ...................................................................................................... 42 2.3.4 Oversight .......................................................................................................................... 44 3. ANALYSIS, CONCLUSIONS, AND RECOMMENDATIONS ..................................................... 48 3.1 The Police Service Act, Regulations, and Standards .................................................................... 48 3.1.1 Police and Board Accountability Framework ................................................................... 49 3.1.2 Roles and Responsibilities ................................................................................................ 50 3.1.3 Adequate and Effective Policing ....................................................................................... 52 3.1.4 Current State of Policing Standards in Manitoba ............................................................. 53 i REPORT ON THE INDEPENDENT REVIEW OF THE MANITOBA POLICE SERVICES ACT, 2009 3.1.5 Policing Standards in Other Jurisdictions ......................................................................... 55 3.1.6 Priority Standards for Three Key Risk Areas ..................................................................... 59 3.2 Governance ................................................................................................................................. 62 3.2.1 Manitoba Police Commission ........................................................................................... 62 3.2.2 Municipal and First Nations Police Boards ....................................................................... 65 3.3 Police Service Delivery ................................................................................................................ 73 3.3.1 Rural and Urban Populations ............................................................................................ 73 3.3.2 Population Thresholds ...................................................................................................... 76 3.3.3 Indigenous Community Safety and Policing ..................................................................... 78 3.3.4 Policing Service Delivery ................................................................................................... 82 3.3.5 Community Safety Needs ................................................................................................. 84 3.4 Oversight ..................................................................................................................................... 91 3.4.1 Oath of Allegiance ............................................................................................................ 93 3.4.2 Codes
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