INDEPENDENT CIVILIAN REVIEW INTO MATTERS RELATING TO THE G20 SUMMIT REPORT Honourable John W. Morden June 2012 INDEPENDENT CIVILIAN REVIEW INTO MATTERS RELATING TO THE G20 SUMMIT REPORT Honourable John W. Morden June 2012 I TABLE OF CONTENTS ACKNOWLEDGMENTS .............................................................................................................. 1 EXECUTIVE SUMMARY AND RECOMMENDATIONS ....................................................... 3 NATURE AND SCOPE OF THE REVIEW .............................................................................. 37 PROCESS FOR THE REVIEW .................................................................................................. 39 A. INTRODUCTION ................................................................................................................... 39 B. PROCEDURAL AND INITIAL MATTERS .......................................................................... 40 i. Creation of the Review’s Procedural Guidelines ............................................................ 40 ii. Analysis of the Terms of Reference ................................................................................ 40 C. RESEARCH ............................................................................................................................ 40 D. MEETINGS WITH OTHER G20-RELATED INVESTIGATIONS ...................................... 41 E. PUBLIC CONSULTATION HEARINGS .............................................................................. 41 F. DOCUMENT IDENTIFICATION, REQUEST AND PRODUCTION PROCESS ................ 42 i. Board and Toronto Police Service Documents ............................................................... 42 ii. RCMP documents ........................................................................................................... 43 iii. Joint documents .............................................................................................................. 43 G. INTERVIEWS ......................................................................................................................... 44 H. CONSULTATIONS WITH EXPERTS ................................................................................... 45 I. PUBLIC COMMUNICATION AND INFORMATION ......................................................... 45 CHAPTER ONE: THE LEGISLATION THAT GOVERNS THE TORONTO POLICE SERVICES BOARD AND THE TORONTO POLICE SERVICE .......................... 47 A. INTRODUCTION ................................................................................................................... 47 B. THE HISTORY OF LEGISLATION IN ONTARIO ON POLICING IN MUNICIPALITIES ................................................................................................................. 47 C. THE CURRENT POLICE SERVICES ACT ............................................................................ 49 i. The responsibilities of boards of police services and of chiefs of police ........................ 49 a. The board’s composition ........................................................................................................... 49 b. The legislation ........................................................................................................................... 50 c. Policy and operations ................................................................................................................. 54 d. The independence of the police force ........................................................................................ 56 e. The consultation process – information exchange ..................................................................... 58 f. Two helpful decisions ................................................................................................................ 60 ii. The Adequacy and Effectiveness Regulation – O. Reg. 3/99 ......................................... 63 D. BOARD POLICIES MADE UNDER O. REG. 3/99 AND RELATED MINISTER’S GUIDELINE POLICIES ......................................................................................................... 67 II i. Introduction ..................................................................................................................... 67 ii. Six board policies ............................................................................................................ 68 iii. Concluding comments .................................................................................................... 75 E. BY-LAWS MADE BY THE BOARD UNDER THE POLICE SERVICES ACT FOR THE EFFECTIVE MANAGEMENT OF THE POLICE FORCE .......................................... 76 F. THE BOARD: TRAINING OF MEMBERS AND LEGAL ADVICE ................................... 78 i. Training of members ....................................................................................................... 78 ii. Legal advice .................................................................................................................... 79 CHAPTER TWO: CIVILIAN OVERSIGHT IN POLICING .................................................. 81 A. INTRODUCTION ................................................................................................................... 81 B. THE FUNDAMENTAL ROLE OF CIVILIAN OVERSIGHT ............................................... 81 i. Effective policing requires public confidence ................................................................. 81 ii. The value of civilian oversight in policing ..................................................................... 82 iii. The components of civilian oversight in policing ........................................................... 82 iv. The territory on which the consultative process occurs .................................................. 84 C. THE NEED FOR A CONSULTATION PROTOCOL ............................................................ 84 i. First element: information exchange between the Board and the chief of police ........... 85 ii. Second element: identifying the “critical points” ........................................................... 89 iii. Third element: the Board should always be able to collaborate in defining the “what” – but not the “how” – of an operation ................................................................. 92 D. THE CONSULTATION PROTOCOL IN PRACTICE .......................................................... 95 i. Accountability after the event ......................................................................................... 96 ii. Governance in advance of the event ............................................................................... 98 E. CONCLUSION........................................................................................................................ 99 CHAPTER THREE: THE PLANNING AND POLICING FRAMEWORK FOR THE G20 SUMMIT ............................................................................................................................. 101 INTRODUCTION ........................................................................................................................ 101 PART I THE TORONTO POLICE SERVICE’S PLANNING FOR THE G20 SUMMIT ............................................................................................................................... 102 A. TWO INTERNATIONAL SUMMITS .................................................................................. 102 i. The G8 Summit ............................................................................................................. 102 ii. A second summit .......................................................................................................... 103 iii. No consultation in decision-making ............................................................................. 103 B. THE SELECTION BY THE FEDERAL GOVERNMENT OF THE LOCATION AND VENUE FOR THE G20 SUMMIT........................................................................................ 104 i. The Summit Management Office .................................................................................. 104 ii. Initial information provided to the Toronto Police Service .......................................... 104 iii. The federal government’s official announcement about the G20 Summit’s location ......................................................................................................................... 105 iv. The federal government’s official announcement about the G20 Summit’s venue ...... 106 III C. THE TIMING OF THE FEDERAL GOVERNMENT’S SELECTIONS AND ANNOUNCEMENTS REGARDING THE G20 SUMMIT AFFECTED THE TORONTO POLICE SERVICE’S PLANNING FOR THE EVENT.................................... 109 i. Official announcement required for planning purposes ................................................ 109 ii. Funding challenges respecting the Toronto Police Service’s involvement ................... 109 iii. Challenges regarding acquisition of equipment and facility arrangements ................... 113 iv. Challenges regarding the development of policing plans for the event ........................ 114 a. Dependency on another source for necessary planning information ........................................ 114 b. Short timeline for Toronto Police Service to develop the policing plans ................................. 115 c. Short timeline prevented full involvement of operational decision-makers in planning and necessary testing of plans .................................................................................................