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Eliminating Racial Profiling in Law Enforcement Policy

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Eliminating Racial Profiling in Law Enforcement Policy POLICY ELIMINATING RACIAL PROFILING IN LAW ENFORCEMENT POLICY ELIMINATING RACIAL PROFILING IN LAW ENFORCEMENT Ontario Human Rights Commission Approved by the OHRC: June 20, 2019 © August 2019, Government of Ontario ISBN: 978-1-4868-3694-9 (Print) 978-1-4868-3695-6 (HTML) 978-1-4868-3696-3 (PDF) Available in various formats on request Also available online: www.ohrc.on.ca Disponible en français Policy on eliminating racial profiling in law enforcement Contents Contents ....................................................................................................................................... 1 . Executive summary ................................................................................................................ 3 1. Introduction ........................................................................................................................ 6 1.1. About this policy ........................................................................................................................ 6 1.1.2. Research and consultation .................................................................................................. 8 1.2. The legal context ........................................................................................................................... 8 1.3. The role of police and law enforcement ................................................................................ 11 1.3.1. Police chiefs and police services boards......................................................................... 12 1.3.2. Police oversight .................................................................................................................... 12 1.4. Why should law enforcement take steps to prevent racial profiling? ............................. 13 1.4.2. Racial profiling is illegal ...................................................................................................... 14 1.4.3. Racial profiling is not effective .......................................................................................... 14 1.4.4. Racial profiling undermines trust and legitimacy ......................................................... 14 2. What is racial profiling? ................................................................................................... 15 2.1. Defining racial profiling: over-policing and under-policing................................................ 15 2.2. Racial under-policing .................................................................................................................. 18 2.2.1. Indigenous experiences of under-policing ..................................................................... 19 2.3. Establishing racial profiling ....................................................................................................... 21 2.3.2 Intersecting Code grounds .................................................................................................. 22 2.4. Criminal profiling and suspect descriptions.......................................................................... 23 2.4.1. Criminal profiling ................................................................................................................. 24 2.4.2. Suspect descriptions ........................................................................................................... 25 2.5. Organizational liability ............................................................................................................... 26 3. Racial profiling by individuals ......................................................................................... 27 3.1. Explicit and implicit bias ............................................................................................................ 27 3.2. Establishing racial profiling by an individual ......................................................................... 28 3.2.1. Unprofessional or degrading statements or treatment.............................................. 28 3.2.2. Deviations from normal practice...................................................................................... 29 ________________________________________________ Ontario Human Rights Commission 1 Policy on eliminating racial profiling in law enforcement 3.2.3. Failing to assess the totality of circumstances .............................................................. 31 3.2.4. No sufficient, credible, non-discriminatory reason ...................................................... 32 4. Understanding systemic racial profiling ....................................................................... 34 4.1. Establishing systemic racial profiling ...................................................................................... 36 4.1.1. Numerical data ..................................................................................................................... 37 4.1.2. Policies, practices and decision-making processes ...................................................... 38 4.1.3. Organizational culture ........................................................................................................ 39 4.2. Activities that may contribute to systemic racial profiling ................................................. 40 4.2.1. Unwarranted deployment ................................................................................................. 40 4.2.2. Proactive or pretext stops .................................................................................................. 42 4.2.3. Enforcement incentives and performance targets ...................................................... 43 4.2.4. Setting priorities that adversely affect Indigenous or racialized people ................. 44 4.2.5. Techniques related to national security or anti-terrorism ......................................... 44 4.2.6. Artificial intelligence ............................................................................................................ 46 4.2.6.1. Risk assessment and predictive policing .......................................................................... 46 5. Principles, best practices and recommendations for addressing racial profiling ... 50 5.1. Principles ....................................................................................................................................... 50 5.2. Best practices ............................................................................................................................... 50 5.2.1. Acknowledgement and engagement ............................................................................... 50 5.2.2. Policy guidance ..................................................................................................................... 51 5.2.3. Data collection ...................................................................................................................... 51 5.2.4. Monitoring and accountability .......................................................................................... 52 5.2.5. Organizational change ........................................................................................................ 52 6. Recommendations ............................................................................................................ 53 6.1. To the Government of Ontario ................................................................................................ 53 6.2. To police services boards .......................................................................................................... 55 6.3. To police services ........................................................................................................................ 56 6.4. Recommendations to police oversight agencies ................................................................. 61 6.5. Recommendations to other law enforcement entities ....................................................... 62 Appendix A: Police oversight agencies in Ontario ............................................................ 63 Appendix B: Glossary of terms ............................................................................................ 70 Endnotes ................................................................................................................................ 72 ________________________________________________ Ontario Human Rights Commission 2 Policy on eliminating racial profiling in law enforcement Executive summary With extensive powers come great responsibilities. As the Supreme Court of Canada suggested recently in R v Le, requiring law enforcement organizations to meet their obligations under the Charter of Rights and Freedoms (Charter) and the Ontario Human Rights Code (Code) and to respect the rights of all people upholds the rule of law, promotes public confidence, and provides safer communities. Canadian courts and human rights tribunals have long recognized that racial profiling exists, affects people from Indigenous and racialized communities, and is contrary to the Charter and human rights laws, including the Code. The Ontario Human Rights Commission (OHRC) is a global leader in understanding and addressing racial profiling. Canadian and international human rights institutions and police oversight agencies regularly look to the OHRC for guidance on these issues. The Supreme Court in R v Le referred extensively to the OHRC’s body of work on racial profiling, identifying the OHRC as a “highly credible
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