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This document is archival in nature and is intended Le présent document a une valeur archivistique et for those who wish to consult archival documents fait partie des documents d’archives rendus made available from the collection of Public Safety disponibles par Sécurité publique Canada à ceux Canada. qui souhaitent consulter ces documents issus de sa collection. Some of these documents are available in only one official language. Translation, to be provided Certains de ces documents ne sont disponibles by Public Safety Canada, is available upon que dans une langue officielle. Sécurité publique request. Canada fournira une traduction sur demande. USE OF FORCE COMMITTEE Final Report Many are left to wonder whether there was not some other way the situation could have been resolved... (Geller, Scott: vvi) MAY 1998 Table of Contents THE USE OF FORCE COMMITTEE 3 ...................................................................... ACKNOWLEDGEMENTS 6 ........................................................................................ EXECUTIVE SUMMARY 7 ......................................................................................... SUMMARY OF RECOMMENDATIONS 9 ................................................................ INTRODUCTION 13 ..................................................................................................... FINDINGS AND RECOMMENDATIONS 17 ............................................................. LESS-LETHAL FORCE TECHNOLOGY 50 ............................................................. EXECUTIVE SUMMARY 52 ....................................................................................... STATISTICAL RESEARCH 110 .................................................................................. THE USE OF FORCE COMMITTEE COMMITTEE MEMBERS Staff Inspector Ken Cenzura, Sexual Assault Squad (Chair) Staff Inspector John Mellor, Training and Education Staff Inspector Selwyn Fernandes, 14 Division A/Inspector Wes Ryan, Public Safety Unit A/Inspector Wayne Cotgreave, Chief’s Staff Detective Sergeant Michael Federico, Detective Support Command Detective Sergeant Brian Raybould, Operational Support Command A/Staff Sergeant Peter Button, Training and Education Sergeant Glenn DeCaire, Training and Education Sergeant Ron Aalen, Corporate Planning Sergeant John Howell, Emergency Task Force Detective Constable Tracey Marshall, Sexual Assault Squad Constable Scott Maywood, Community Policing Support Unit Constable Juin Pinto, 14 Division Ursula Smallwood, Sexual Assault Squad with assistance of Andrew Clarke, Toronto Police Association Dr. Peter Collins, Forensic Psychiatrist MAY 1998 TABLE OF CONTENTS ACKNOWLEDGMENTS............................................................. i EXECUTIVE SUMMARY .......................................................... 1 SUMMARY OF RECOMMENDATIONS................................. 3 INTRODUCTION ........................................................................ 8 Underlying Principles .................................................. 9 Methodology................................................................. 9 Scope .......................................................................... 10 FINDINGS AND RECOMMENDATIONS ............................. 12 1. Rules and Directives .............................................. 12 2. Supervision............................................................. 17 3. Training.................................................................. 22 4. Less Lethal Force Options. ................................... 34 5. Dealing With Emotionally Disturbed Persons ..... 38 6. Emergency Task Force Special Weapons Teams . 43 7. General ................................................................... 45 CONCLUSION ........................................................................... 48 BIBLIOGRAPHY ...................................................................... 50 APPENDIX A Less Lethal Force Technology APPENDIX B Emergency Task Force Internal Memo of 97.05.22 APPENDIX C DATA AND STATISTICS USE OF FORCE COMMITTEE FINAL REPORT Acknowledgements The Committee wishes to acknowledge the assistance and co-operation received from Victoria Police of Australia, Metro Dade Police in Florida, other police institutions and agencies that were consulted, and the Queen Street Mental Health Care Centre. In particular, the Committee wishes to thank Assist- ant Commissioner Ray Shuey of Victoria Police. He generously provided insight and guidance based on Project Beacon and granted our Committee members access to individual members of his Service to further our research. As well, the Committee is grateful for the opportunity to work with Ms Allison Stewart, Chief Executive Officer, Queen Street Mental Health Care Centre, and members of Workman’s Theatre Project in presenting the play Vincent. In addition, the team is grateful for the input and support it received from the Florida Martin Luther King Jr. Institute for Non Violence. Finally, the team would like to express its appreciation to all members of our Service who participated in surveys and interviews, for their thoughtful and informed comments and advice. USE OF FORCE COMMITTEE FINAL REPORT EXECUTIVE SUMMARY In May, 1997, the Chief of Police, David Boothby, established a committee to review all aspects of police use of force. The mandate of the Committee was, “to examine if there are ways to reduce the necessity for the application of deadly force, without compromising officer safety, and to communicate findings to the public (TP Media Release, 97.06.16).” Staff Inspector Ken Cenzura was named chair. The Use of Force Committee was comprised of representatives from the Training and Education Unit, the Emergency Task Force, Public Safety Unit, Corporate Planning, Operational Support Command, the Chief’s Staff, Detective Support Command, and the Field Commands. As well, the Service’s Forensic Consultant, Dr Peter Collins, and Constable Andrew Clarke, Toronto Police Association, participated. The use of deadly force by police in recent years has come under closer scrutiny by the police and the community. The issues surrounding such use of force are complex and have generated much debate and concern. At the outset it must be stated that the safety of police officers is recognized as a fundamen- tal concern and this report and subsequent recommendations are not intended to compromise that safety in any way. Indeed, the issue of officer and community safety formed the foundation for the Commit- tee’s work. This report also takes into account that there are no philosophies or practises which will anticipate the entire range of human behaviour that officers might encounter in the course of police work. Nevertheless, the Committee recognizes its responsibility to explore any reasonable option if it may help officers cope with violent or potentially violent situations. The Committee has conducted extensive research into this topic by contacting many other police agen- cies in Canada, the United States and Australia. Further research was conducted by reviewing the literature, academic studies, correspondence, books and publications associated with the use of deadly force, less lethal weapons and dealing with emotionally disturbed persons. While much of the empirical data had been collected outside of Canada, many of the lessons learned from the research have equal application to law enforcement in our country. A survey of front line officers representing the field command was conducted resulting in valuable input touching on the issues identified by the Committee. As well, the Committee collected data on officer involved shootings in Toronto during the past 10 years, which allows an analytical study of these incidents to be completed. The Training and Education Unit was tasked with reviewing current training dealing with crisis resolu- tion. As a result a proposed course was drafted that attempts to incorporate the findings of the Commit- tee. The course is designed to meet the needs of front line officers. The emphasis will be upon identifi- cation and transition from one force option to another force option within the context of the scenario, thus establishing versatility and flexibility in crisis resolution techniques. While recognizing that officer safety is the critical concern, the course will balance the emphasis placed on force options between escalation and disengagement and containment responses. On the matter of less lethal weapons, a comprehensive study was performed by Acting Staff Sergeant Peter Button, Armament officer, Training and Education Unit. He has concluded that at the present time the Service should rely on conventional equipment such as O.C. spray and batons. Terms of Reference A broad spectrum of issues was identified including the