Consultation report: Police, police services and community safety

Background

The role of police officers has changed since the Police Service Act became law in 1990. Advances in technology, more frequent police interactions with vulnerable individuals and public expectations for enhanced oversight and accountability have changed the nature of policing and the role of the police officer.

In August 2015, the Ministry of Community Safety and Correctional Services (MCSCS) announced it was developing a Strategy for a Safer Ontario, including modernizing the Police Services Act. The Strategy for a Safer Ontario is being developed in consultation with the public and stakeholders and will provide a new framework to:

• promote a collaborative approach to community safety and well-being
• improve interactions between police and vulnerable Ontarians
• clarify core police responsibilities and support more effective community safety
• enhance civilian police governance, accountability and oversight
• explore expanded use of technology to support community safety
• update education and training requirements for police officers
• address the sustainability of First Nations policing

Between February 18, 2016 and April 2, 2016, MCSCS conducted 11 stakeholder and 8 public consultation sessions across the province. These consultations were supported by an online survey that invited public input. The survey ran from February 12, 2016 to April 29, 2016.

The stakeholder and public consultations, and online survey were organized into 4 themes:

• community safety and well-being
• community safety – delivery of services and technology
• education and training
• accountability to the public

The online survey included a 5^th theme: serving vulnerable people.

Consultations overview

Over 480 stakeholders from police services, police associations, community organizations and social groups, as well as representatives from municipal governments and the provincial government attended 11 stakeholder consultation sessions.

Over 290 participants, including local residents, members of police services and local organizations, as well as representatives from municipal government and the provincial government attended the public consultation sessions in 8 communities across Ontario.

There were 1,717 responses to the online survey.

Executive summary

Stakeholder and public consultations were carried out across the province from February 18 to April 29, 2016, and was supported by an online survey. Participants in both the consultations and survey were asked for feedback on the key pillars for building safer communities, including:

• modernizing police services, including the use of technology
• training
• support for vulnerable groups
• oversight and accountability structures

The overall consultation attracted 775 stakeholders and members of the public, and 1,717 online responses. A diverse range of views and ideas were put forward, with participants sometimes on opposite sides of the issues discussed. However, there were some areas in each of the 4 themes where a consensus reached.

Community safety and well-being

Developing and implementing a community safety and well-being plan requires a coordinated approach between provincial ministries, municipal government, support organizations, especially those serving vulnerable groups, and police services. There is no room for a “one size fits all approach” to planning, and the community safety and well-being plan must reflect the unique needs of each community.

Modernizing what police do

There was agreement that other types of public safety personnel could perform some of the duties of traditional police officers in situations where the public’s safety is not jeopardized or when use-of-force is not required. Some examples include directing traffic, animal control, court security, prisoner transport and administration. A key concern over using special constables or other public safety personnel was ensuring adequate training and accountability

There was also a general receptiveness to the expanded use of technologies such as body-worn cameras and traffic enforcement technology such as photo radar and red light cameras. However, acceptance was tempered by privacy and cost concerns. Technology should also not be seen to replace police officers.

Education and training

The current education requirement for police officers in Ontario is completion of grade 12. While there was strong agreement that this is adequate, some respondents suggested increasing the education level to a college diploma or university degree. It was observed that this may present a barrier to Indigenous applicants and those from lower-income families who are less likely to have post-secondary education. It was also noted that life experience is also a strong foundation for a good police officer.

There was strong acceptance for including specific skills and abilities in the Basic Constable Training program. Priorities were:

• training related to effective intervention with vulnerable people
• conflict resolution
• cultural awareness

Accountability to the public

Many participants want to see greater accountability from police oversight bodies such as Police Services Boards (PSB). A constant theme throughout the consultation sessions and online survey was to overhaul the appointment process so that PSBs can better reflect the community (e.g. greater Indigenous representation and gender equality) more emphasis on the skill levels of board members, and greater transparency.

Stakeholder consultation

Theme 1: community safety and well-being

In this section, stakeholders discussed participation in developing and implementing a community safety and well-being plan, including what programs and services are most important to help meet the diverse needs of vulnerable groups such as the homeless, Indigenous people, troubled youth and individuals with mental health issues, and what community resources the police require to better serve this group.

Participants across all sessions are seeking a coordinated approach to community safety and well-being planning. They believe that provincial ministries such as the MCSCS, Health and Long-Term Care and Children and Youth Services already have the mandate and authority to provide the necessary funding to bring about changes in community safety and well-being.

According to stakeholders, these provincial ministries, and others, must work together with municipal governments and service providers, especially those whose mandate includes serving vulnerable groups in the planning process. It was suggested that vulnerable persons, wherever possible, be directly involved in the process since they will be impacted most by a community safety and well-being plan.

Police services should also be involved because as front-line workers, they are keenly aware of the needs of the community.

It was noted that a number of community safety and well-being supports are already in place, but the groups delivering those supports are not working together to achieve a shared goal. It was suggested that the responsibility for community safety and well-being planning should not fall to one single group.

When it came to heading up the planning process, three leadership models emerged:

• joint leadership: based largely on a ‘situation table’ model that brings together many stakeholders in the community to arrive at solutions to better serve vulnerable people
• municipalities: because of their ability to develop community safety and well-being plans tailored to local needs
• police services: because of their connections with the community and local governance

It was important to stakeholders that each community safety and well-being plan be unique to the community and that planners stay away from a “one size fits all” approach, noting that the needs of rural communities, for example, will differ from the needs of urban municipalities. For the implementation of the community safety and well-being plan, 2 models were most popular:

• municipalities because they are aware of community-specific needs
• a collaborative approach, including groups that represent a number of social services and community interests

Whatever model is chosen (and participants felt it could alter from community to community), accountability was an issue identified by stakeholders. It was felt that organizations and groups identified to develop the community safety and well-being plan must also be held accountable for its implementation, monitoring and evaluation. Some participants also cautioned against duplication.

When asked about what programs and services are most important when meeting the needs of vulnerable people, priorities were mental health programs or services, including addiction services, housing supports, and community and social services.

Stakeholders commonly stressed the need for a single point of access for community supports – possibly through a help hotline or central agency – so vulnerable people can quickly know where to go for help. Participants also highlighted the need for improved after hours services, including 24/7 mental health crisis response teams. Another popular suggestion was community hubs to provide programs that engage and support vulnerable persons and encourage social inclusion.

It was suggested that, in order to build greater awareness of available mental health services, police officers serving vulnerable people should themselves be provided with mental health and addiction training, or that mental health workers partner with first responders to enable police officers to better serve people suffering from mental illness.

Theme 2: modernizing what police do

Stakeholders were evenly split on whether to expand the role of special constables. Those in favour believe that a greater role exists in situations where the public’s safety was not jeopardized and when use-of-force was not required. Examples include, directing traffic, policing schools, animal control, court security and prisoner transport, and administration. It was noted that an expanded role for special constables would help reduce the cost of policing.

Those hesitant to expand the role of special constables cited a lack of adequate training and experience to handle situations should they escalate. They noted that it is hard to assess the severity of a situation based on a 911 police call, and that special constables should not be sent out as first responders. Some also questioned whether an expanded role would really result in cost savings.

There was general support for transferring administrative, court security and prisoner transport functions to special constables.

The consultation also looked beyond special constables to consider the role of other public safety personnel to deliver services. Those in favour suggested this would allow ‘over-burdened’ police officers to focus on their core police duties and threats to public safety, and would again be an effective measure toward lowering the cost of policing.

When asked what services could be transferred to non-police personnel, these stakeholders identified event security (although some expressed concern over the lack of training), administrative work, animal control, crime scene monitoring and community education.

Stakeholders not in favour pointed to a lack of accountability of personnel other than police officers and special constables providing victim assistance or event security. They also cited a lack of training and skills, sometimes resulting in police officers being dispatched in any case. Also, a general preference among the public and companies to use police officers in these situations.

More than half the participants expressed concern over having public safety personnel act as first responders in interactions with vulnerable people. Concerns focused primarily around risk to safety and uncertainty of situations confronted. Stakeholders suggested officers could first assess the risk level during a call and if the situation was deemed safe, non-police personnel could take over.

There was strong support for traffic enforcement technology such as photo radar and red light cameras in high traffic and accident areas, or in school zones. However, there was skepticism about how such technologies improve public safety. A speeding ticket mailed 3 weeks from the violation, for example, does not prevent speeding now. The technology is also not meant to replace police officers, who will always have to manage impaired driving or gather intelligence at road side checks.

There was also a call for any technology being deployed to be ‘evidence-based’.

Theme 3: education and training

The current educational requirement for police officers in Ontario is grade 12. Stakeholders were asked whether they believed that remained adequate. They were also asked what abilities and skills a police officer should now possess, and how to update the Basic Constable Training program.

The majority of stakeholders felt that grade 12 is adequate for police recruits in Ontario. A concern was raised as to whether increasing the level would disqualify a number of otherwise qualified applicants including many Indigenous applicants and those from lower-income families who are less likely to have post-secondary education. It was noted that the majority of new recruits already have a college or university degree, so there is no need to make a formal change. Among some stakeholders, life experience was also considered more important to the foundation of a good police officer than formal education.

Some suggested that instead of raising the educational requirement, the province should consider increasing the minimum age for recruits to give them the opportunity to develop the necessary life skills.

Those who supported higher education requirements said that the educational requirements of other professions are also rising and police should be no different. They noted that post-secondary education enables graduates to think critically and build management skills. They also pointed out that since the vast majority of successful recruits already have a post-secondary education, raising the requirement would only negatively impact a small number of people. A college diploma was the most common cited form of post-secondary education.

The majority of participants were supportive of an alternative entry stream for those who do not meet the education requirement, but demonstrate the required competencies and skills to become a successful police officer.

When asked to identify specific skills and abilities that need to be included in modern police training, stakeholder priorities were:

• interpersonal and communication skills (empathy, positive interactions with the public)
• social competencies and cultural sensitivity (social justice, understanding of community resources, diversity awareness)
• life skills (common sense, situational awareness)
• negotiation and conflict resolution (de-escalation techniques)
• technology skills (ability to be ‘tech savvy’)

The stakeholders were also asked to identify changes or enhancements when updating the Basic Constable Training program. Priorities were:

• training related to effective intervention with vulnerable people (mental health, post-traumatic stress disorder, crisis intervention, human rights, substance abuse, domestic violence and trauma)
• scenario-based and practical training (co-op programs, driving techniques, situational assessment training and use of force training)
• cultural awareness and diversity training (cultural competency courses, training on social and cultural issues, diversity sensitivity training, including sexual , cultural, ethnic and religious diversity)
• content expertise and technical knowledge (drug recognition, psychology, social media and public relations)

It was pointed out by some stakeholders that to allow for enhancements and updates, the Basic Constable Training program would need to be increased from the current 12 weeks. One respondent observed that while policing has become more complex and demanding, overall training has been shortened, and is now 20% shorter than it was.

Theme 4: accountability to the public

Stakeholders were asked whether the Police Services Act should be amended to require all municipalities, including those policed by the Ontario Provincial Police (OPP) on both a contract and non-contract basis to have a Police Services Board.

The discussion about this question revealed 3 distinct positions: one group was in support due in large measure to the importance of ensuring civilian governance across the province. A second group expressed significant practical and principle-based objections to making this mandatory. A sizeable group did not feel qualified to voice an opinion.

Much of the support for the amendment was rooted in stakeholders’ feelings that representation and civilian oversight ensures accountability to the public and allows the concerns and needs of the community to be reflected in local police efforts.

With respect to OPP policed communities, it was noted that municipalities pay the cost of policing without the accountability that a governing body would provide. It was suggested that PSBs should be in place to which the OPP is accountable, and that boards should be consistent across OPP-policed communities, whether a contract is in place or not.

Those opposed were largely concerned over the challenges such an amendment would have on rural communities including, a lack of qualified individuals and logistical and funding issues. They also questioned the influence rural PSBs would have over police services. Some stakeholders suggested that integrated boards on a regional level in rural areas could mitigate logistical concerns, and create operational efficiencies.

It was also pointed out that the size of PSB should be tailored to reflect the needs of the community.

Strategic plan for policing

The consultation probed the role in developing a strategic business plan for policing in a community, and the priority setting roles between the PSB and the chief of police. Many participants expressed their preference for a collaborative approach, noting for example that police should be responsible for policing, but that when it comes to overall community safety, other ministries and agencies need to be involved.

One group of participants pointed out that a collaborative approach should include insights from every stakeholder group, leveraged to develop the most effective business plan possible. For example, a council member will not make the same observations as a police chief with 35 years of experience.

Several stakeholders supported PSBs taking a leadership role, but also agreed that boards should consult with police services and relevant stakeholders. While a small group preferred having the police administration lead the development of the strategic business plan, there was also broader consensus that if this was to be done, it should be in consultation with PSBs, city council and stakeholders.

Police Services Boards roles and responsibilities

When it came to clarifying the priority roles of the PSB versus the chief, many stakeholders suggested that board training should be made mandatory to ensure all members are fully aware of their roles and responsibilities.

It came up in the sessions that greater clarity in the Police Services Act was needed to set out the roles and responsibilities of the PSB. Some said that clarity over roles and responsibilities already exists in their communities. There was a bit of an urban/rural divide, with participants pointing out that overlap of roles may be an issue in larger urban centres, but is not a concern within their own communities.

Some recommended that municipalities must have the autonomy to determine priority setting roles.

In determining whether a PSB is operating effectively, stakeholders suggested a series of measurements. There was broad consensus that PSBs need increased engagement and communication with the community, including:

• strategic planning with measurements
  • holding PSBs accountable by clarifying strategic plan goals and through tangible outcome-based measurements
  • lowering crime rates was offered as an example of a way to measure board success
• community engagement
  • effectiveness should be determined by the manner in which PSBs are engaging with the community and how they are communicating with the public
• qualified membership and training
  • there was support for enhanced training requirements for board members, and that membership on boards be limited to ‘qualified’ candidates such as those with relevant education
• good relationship with the police chief
  • the relationship with the chief was considered essential in achieving board effectiveness
• reflective of community
  • stakeholders felt that an effective board needs to reflect the diversity of the community
  • Indigenous representation and gender equality were highlighted as being particularly important
  • diverse education backgrounds and perspective is also important

Police Services Board oversight

When it came down to what body was best positioned to evaluate the effectiveness of a PSB, a majority of stakeholders suggested that the MCSCS carry out this function in order to hold boards accountable.

A minority of stakeholders suggested PSBs evaluate themselves (in contrast to some participants supporting MCSCS oversight who said that PSBs should not be allowed to evaluate themselves). Other participants want to de-politicize the entire process by having an independent review board evaluate board effectiveness.

It was suggested by some that since municipalities are paying the bill, municipal councils should be responsible for evaluating the boards. Some supporters of municipal evaluations also believed that the MCSCS should be involved in the process also.

Finally, there was some support for a higher level of community involvement in any evaluation, along with public input through surveys or community consultations to enhance board effectiveness.

Where a PSB was found to be ineffective, there was support for removing members contributing to the overall ineffectiveness of the board from their positions. Or that a third party – namely MCSCS – should intervene. It was felt that MCSCS should play a role in making the determination that a board is ineffective and to then identify the steps that need to be taken to rectify the situation.

Stakeholders were also asked what competencies board members should have. This discussion focused on two criteria: community involvement, including an understanding of their communities’ social profile and needs; and, specific skills such as business skills and clear knowledge such as an understanding of past board experience and of policing.

Stakeholders were asked for their thoughts on how to enhance the recruitment process for PSBs. Participants from all sectors recognized the need for a more straight forward process to appoint board members, which would eliminate delays and inefficiencies. Many participants believe that the process should be determined exclusively at the municipal level without the province being involved in appointments. There was also some support for board members to be elected by the community directly.

Expanded use of technology

Finally, the stakeholder consultation asked about the role of technology, such as body-worn cameras, in enhancing police accountability. Many participants suggested that technology will help to protect police officers from false accusations, while also protecting the public from ‘bad’ police officers. Participants felt that body-worn cameras create evidence that will help to reduce the number of public complaints against police and reduce the risk of litigation, and can be used in court to speed up the process.

Those who felt that the use of body-worn cameras is not necessary noted that accountability mechanisms are already in place; the public already records police interactions and that technology will not lead to improvements in police behaviour.

There were also cost and privacy concerns expressed. Participants from most sessions raised concerns over the purchasing of cameras, the recording of data and the maintenance of records. Smaller municipalities in particular were concerned that the cost would be borne by the municipality, and that MCSCS should pay for implementation.

A number of participants said that the use of certain forms of technology could pose a threat to an individual’s right to privacy, although some questioned what rights police officers have when it comes to them being recorded by citizens.

Public consultation

Theme 1: community safety and well-being

Participants identified four specific ways the relationship between the police and the public, including vulnerable groups such as the homeless, Indigenous people, troubled youth and individuals with mental health issues, could be improved to enhance trust and respect. Areas of focus included:

• increased communication and partnerships with the police and community
  • increased two-way dialogue between the community and police services, and increased communication and partnerships between the police and local organizations were described as an effective way to foster enhanced trust and respect
• a new approach and better services for mental health
  • police are often unaware of residents’ disabilities or are dealing with vulnerable people at their lowest state
  • police services need to change their existing approach to responding to those with mental health issues, and provide improved service
• enhanced police officer training
  • participants called for enhanced training and specifically noted that communication and interpersonal skills (notably empathy and sensitivity) would be helpful
  • areas for enhanced training included dispute resolution, escalation, mental illness, sexual assault and serving vulnerable people
• integration of existing services
  • increased integration of existing social, community health and police services would improve the efficiency and effectiveness of the services offered
  • it was noted that police should not be solely responsible for answering such calls, and that ‘situational tables’ to develop next steps with health care providers and social workers need to be established

Theme 2: modernizing what police do

Participants were asked about roles for non-police personnel in situations such as crisis response for mental health calls, and using special constables for functions such as traffic control and road safety, school safety and non-emergency response.

There was consensus in over half the sessions that social service providers should work collaboratively with front-line police officers, including liaison officers. Paramedics and nurses, for example, could provide onsite screening.

A majority of participants in more than half of the sessions felt that service supports for mental health and victims services are two of the most important roles for non-police personnel. Participants were evenly divided on whether non-police personnel should take on this role in partnership with the police. While half were supportive, the other half raised concerns about public safety.

It was suggested that appropriate crisis response training would be required before non-police personnel could take on this role.

Construction work, road repairs, traffic control and traffic reporting (the distribution of information about road conditions) were seen by some participants as suitable roles for non-police personnel such as special constables. Some participants even suggested that traffic control for non-emergency events could be transferred to civilian officers.

A sizeable number of participants from both larger cities and smaller, remote areas identified public education and safety education programs in schools as a responsibility that could be transferred to special constables, citizens or volunteer emergency response teams.

Many participants also felt that non-emergency response calls such as animal complaints, noise complaints and low-priority dispatch calls could be provided by special constables or security personnel with sufficient training, thereby freeing up police to take on core responsibilities.

Expanded use of technology

Participants were asked about what forms of technology would improve community safety and whether they held privacy concerns over the use of such technologies. There was a wide acceptance for a variety of technologies, especially body-worn cameras to protect both the public and police officers. Those opposed to body-worn cameras largely objected due to cost and privacy concerns.

Other popular forms of technology to improve community safety included speed monitoring devices such as photo radar, red light cameras, speed control signs and mobile photo radar cameras. Participants from Toronto were least accepting of these technologies.

Many participants agreed that tracking tools such as crime mapping, GPS, the recording of police notes and investigation tools are important technologies for police officers to do their jobs.

The most commonly cited privacy concern was that of individual privacy protection. There was concern over how data – especially medical and financial data – is managed and who has access to it. Some participants worried about the admissibility of video footage in court due to issues of consent and the need for a warrant when entering private property.

A number of participants said they do not have any concerns with the use of technology by police officers to enhance community safety, and that allowing the use of technology will help police officers do their jobs.

Theme 3: education and training

A majority of participants felt that a college diploma should be the required minimum level of education for new police service recruits, although there was some concern that the requirement to have a college diploma or higher would prevent otherwise qualified individuals from applying, and would make it harder for Indigenous and low-income individuals to qualify.

When asked about any additional training they would recommend, 3 priorities emerged:

• interpersonal, critical thinking and communications
  • participants frequently mentioned common sense, empathy, sensitivity, critical thinking and patience when interacting with the public
• conflict resolution
  • this included negotiation and mediation skills, dispute resolution skills, de-escalation tactics, and appropriate use of force and risk identification
• cultural awareness
  • participants recommended that police officers receive anti-racism training and cultural sensitivity training

Theme 4: accountability to the public

Most participants were aware of the existence of at least one of Ontario’s police oversight bodies, with the Special Investigation Unit as the most recognized followed by the Office of the Independent Police Review Director and Ontario Civilian Police Commission. When asked how the government could help the public to better understand the role of Ontario’s oversight and accountability bodies, various participants recommended a number of improvements:

• improved complaints process
• improved communication techniques
• improved promotion
• accessibility

There was a suggestion for the development of an Ombudsman position, or consider consolidating accountability bodies to help reduce public confusion and enable the public to automatically know where to go with a complaint.

Some participants wanted to see more accountability from PSBs. Measures included making the details of PSB budgets open to the public, publicizing meeting minutes, producing data on investigations, consulting with communities and hosting town hall-style meetings. Others felt that transparency needs to be balanced against due process, and to avoid overburdening PSBs with onerous requirements to produce public reports.

A majority of participants agreed that changes to the makeup of PSBs are necessary to improve how these boards connect with the community. The need for Indigenous representation, increased civilian representation and for greater diversity of skills were all suggested.

Some participants called for changes to the appointment process, including establishing guidelines for who can be appointed, imposing 2-year term limits on appointees and avoiding vacant positions by ensuring a new appointee is selected before a member steps down. There were suggestions that board members be elected by the community rather than appointed by municipal council./p>

There was some concern in that PSBs are not currently diverse enough to accurately reflect their communities. Those who expressed such views highlighted the need for increased diversity by having greater diversity in skills, backgrounds, age and ethnicity. Some suggested that the province consider having youth representation on PSBs.

Online consultation

The online consultation gave a voice to stakeholders and members of the public who were unable to attend the consultation sessions. This summary contains the key findings of this consultation.

Theme 1: community safety and well-being

The majority of responses indicated a positive relationship with the police. However, when it came to community engagement and trust and respect, positive and negative themes emerged.

On the positive side:

• police engagement was cited as a positive example of the relationship between police and the community
  • highlights included attending community events, participating in education programs and workshops, visiting schools, social media use and regular consultation between police services and the community
• respondents pointed to a high level of mutual trust, support and co-operation, and highlighted their admiration for the difficult job police have
• some participants felt that the reputation of police services was being undermined by the media and special interest groups, while others suggested that the political process either used police as ‘scapegoats’ or interfered with the ability to police effectively

On the negative side:

• participants did not feel that they or their communities have much respect or trust for police services
  • while many respondents did not go into further detail, those who did attributed their lack of appreciation for police to perceived abuses of power, and police biases against adolescents, those living with mental illness, members of the LGBTQ community and minorities
• some were critical of police for their lack of engagement with the community, while other respondents said that harassment and abuse of power had damaged the relationship between police and the community
• among a very small number of respondents, there was a belief that police act to preserve their own interests and approach the community with hostility

Participants shared an extensive list of ideas for improving the relationship between police and the larger community. These included:

• a more positive police presence within the community, including increasing the number of foot and bike patrols as well as attendance at community events and volunteer work
• improving police transparency and accountability, such as providing more information and data about crime and police duties to help the public better understand how police serve their communities
  • some respondents called for greater punitive measures for officers found guilty of misconduct
• improving communication between police and the community, including citizens and police officers working together to identify the greatest public safety issues and how to best address them
  • participants consistently identified ‘ride-alongs’ with police officers, town hall-style meetings and public meetings as feasible ways of improving communication
• increasing respect and empathy for citizens, including a need for more courteous and professional conduct when interacting with citizens
• improving support for vulnerable persons, including victims of domestic violence, sex workers, the homeless and individuals with mental illness
  • participants said that police services should help facilitate greater access to social services that support vulnerable people, while some suggested that police services should become vocal advocates for the need to provide greater support for vulnerable people
• ending profiling and other discriminatory tactics
• improving the relationship with youth, including treating youth as valuable members of the community, doing more outreach in schools as well as participating in mentorship programs
• improving use-of-force and de-escalation tactics
  • many respondents felt that de-escalation and non-violent use-of-force tactics were particularly beneficial when dealing with vulnerable people such as those with mental illness

Some respondents suggested that trust and respect between police officers and members of the community is sufficient, and no improvements are needed. Others pointed to a need for more trust and respect for police officers by the community. In particular, many respondents felt that parents have a greater role to play in teaching their children to have greater respect for police officers.

Finally, respondents were asked about developing community safety and well-being plans that focus on bringing together police with education, health care and social services providers. Respondents offered a variety of suggestions that would help to involve the public, however, the overarching premise was to focus on relationship building activities such as community meetings, more police presence at community events, community outreach and engagement by police, and opportunities for community members to add input into police processes.

Theme 2: serving vulnerable people

Respondents had diverging views when asked what resources or training should be available to police services to help them serve vulnerable people in the community. One view held that the role of police services is purely to enforce law and order. Individuals who held this view also frequently suggested that greater services were needed to assist vulnerable people.

A second viewpoint held that vulnerable people frequently interact with police services and, as such, police officers need increased training to better manage such interactions.

When outlining how police and service providers should work together, the most common suggestions included:

• ‘ride-along’ programs where a nurse or other professional accompanies police and aids them in assessing situations
• mental health workers, social workers and others join or be embedded in the police service
• creating a special number for police to use when they need outside expertise with a vulnerable person

Specialized training for responding to vulnerable groups

With respect to training, there was a general consensus among participants that training on helping vulnerable people was both needed and likely helpful for police services. The following were some of the recommendations:

• generally, participants felt that training should be seen as a regular and on-going process within police services
• the most common suggestion was for police officers to volunteer in their community, specifically with vulnerable people
• the need for training on mental health and addiction was seen as a growing concern and the largest area of need for many respondents
• there is a need for de-escalation or non-violent response training, particularly when engaging with vulnerable people and especially those with mental health issues
• the need for police officers to have empathy, particularly when dealing with vulnerable people was frequently stressed by participants

Many participants said that police need to have a thorough understanding of what community resources are available to them and how they can be accessed. Some participants felt that an ongoing database for police of available resources would be helpful. Similarly, other participants suggested a database tracking vulnerable or at risk individuals known by service providers would provide greater information to the police in advance of an interaction.

A clear majority of respondents felt that social service personnel such as mental health nurses and social workers have a role to play when police are called to deal with vulnerable people. Even among the detractors there was a consensus that social services personnel should be provided appropriate training and resources if they were to be involved.

Some respondents felt that social service personnel should take the lead on interacting with vulnerable people. Others believed that interaction should only occur in instances where there is no imminent threat, and that police officers should continue to act as first responders to secure the scene.

Some respondents felt that social service personnel could provide valuable advice on how best to approach vulnerable people and mitigate the potential for conflict. Moreover, social service personnel are perceived as caregivers and more likely to be trusted by vulnerable people.

A small number of respondents felt that police respond too aggressively and elicit fear among vulnerable individuals. The presence of social service personnel would provide a witness that could attest to accusations of police misconduct.

Theme 3: community safety – delivery of services and technology

A large majority of respondents felt comfortable or somewhat comfortable with other types of public safety personnel such as special constables, by-law officers and private security performing certain public safety duties such as special event security, traffic control, court security and prisoner transport. Some of the respondents advocated mixed tiered security with police and public safety personnel.

There was a level of discomfort among some of the respondents to personnel other than police handling duties such as court security, prisoner transport and event security. Their main concern was that public safety personnel lack training and oversight, leaving the public vulnerable to safety threats. The threat of terrorism was mentioned as a reason why police should remain in charge of these duties.

Some respondents added caveats such as other public safety personnel only providing security if proper training and oversight mechanisms were in place to hold them accountable, or the need for police supervision during the transport of an inmate if the inmate is determined to be high risk.

When specifically referring to the role of the special constable, some respondents saw them as a reliable alternative to police officers for duties such as special event security, court security, inmate transport and traffic control. In addition to these duties, some respondents felt that special constables should receive additional training to take on more public safety duties to support front-line officers.

Cost savings was a key driver among some respondents. These participants expressed their frustration over rising costs of policing and felt that utilizing other public safety personnel instead of highly paid police officers would bring costs down. For example, some respondents felt that simple traffic control performed by highly trained police officers was a poor use of taxpayer money. It was suggested that Ontario study policies in Alberta and British Columbia that have specially designated personnel to deal with traffic-related matters, freeing up officers to focus on core duties.

The majority of respondents felt that there are forms of technology that could be used by police officers to improve public safety and help police do their jobs better. Those opposed cited costs and privacy concerns.

Technologies largely identified that could improve public safety include:

• making body-worn cameras mandatory for all officers, without the ability to turn the camera off (some respondents who expressed concerns about the use of other technology by police saw benefits in body-worn cameras)
• dash cameras (also known as cruiser cameras) to help enhance police accountability and protect the public
• CCTV video surveillance in public spaces, especially in high problem areas, high traffic areas and high risk areas like parks
• traffic cameras such as red light cameras and photo radar
  • support for these cameras came largely from the anticipated reduction in speeding and dangerous driving they would cause
• new communications devices, including computers, cell phones, radio scanners and the use of social media
  • a few respondents saw the need for improved ways for citizens to communicate with police, including 911 texting and real-time alert applications
  • there were some comments for hands-free technology for officers in order to improve their safety on the road
• tasers and non-lethal weapons such as bean-bag guns and pepper spray
  • many of those advocating for non-lethal weapons also indicated a desire to reduce the use of tasers by police officers

A majority of respondents did not have concerns with police services using technology more often in their work. Privacy, transparency and cost implications tended to drive the opinions of both groups; both for those with concerns over the use of technology as well as those with no concerns.

Those with no concerns noted that:

• technologies are already used in public places and citizens are aware of their use, and that any potential infringements on personal privacy are outweighed by the positive impact these technologies will have on promoting public safety
• technology promotes police transparency and accountability
• law enforcement technologies have the potential to reduce policing costs because they can lead to greater efficiencies

Those with concerns noted that:

• certain forms of technology such as licence plate readers and body-worn cameras can infringe on the privacy rights of citizens (within this group, some respondents felt that the benefits of body-worn cameras were greater than the concerns mentioned)
• there would need to be clearly defined policies and procedures outlining the legal and ethical use of technology
• given their limited utility, the costs of certain forms of technology like body-worn cameras could be prohibitive

Theme 4: education and training

More than half of the respondents believed that a college diploma is the ideal education level for police officer. A minority of respondents felt that a grade 12 diploma remains sufficient, while a slightly larger group felt that a university degree was ideal. In some instances, a candidate’s moral character and the ability to act with common sense were stressed as being more important than the level of education. Participants also outlined the importance of candidates having demonstrated life experience rather than a post-secondary education.

It was pointed out that there is no ‘one size fits all’ strategy for education. Various ranks and roles require different types of education, so the level of education an officer obtains should be determined by the rank they aspire to.

When considering what additional training police officers should have, the main themes were:

• mental health training
• diversity sensitivity
• conflict resolution and de-escalation

Theme 5: accountability to the public

The vast majority of respondents have not had an encounter with any of Ontario’s police oversight bodies. Of those who had dealt with one of these bodies, experiences were split with a slight majority reporting a negative experience.

When responding to the question of how to improve the police oversight process, top ideas include streamlining the oversight process, which currently places an unnecessary burden on police officers and citizens who have filed a complaint; providing more robust civilian oversight, including employing a greater number of citizens with no connections to police services, and preventing individuals with known connections to police services from conducting an investigation; improving the training of Police Service Board appointees; conducting more transparent investigations of police misconduct, including publicly releasing reports and decisions by oversight bodies in a timely manner; and, eliminating the bias against police officers that exists within these organizations.

Respondents put forward a variety of suggestions to help improve public understanding of the role of Ontario’s police oversight and accountability bodies. Ideas mentioned included increasing media coverage of the oversight bodies as well as using social media, advertising, promotions and school education programs to augment citizen awareness of these agencies. Participants also suggested that increased public awareness of their roles and responsibilities and greater information sharing would improve public understanding of the province’s oversight bodies.

Police Services Boards

A majority of respondents believe that PSBs should oversee all police services in the province, including the OPP. The chief reasons among the minority that did not support PSBs oversight were that PSBs lack the required skills necessary to do such a job, they lack impartiality and are viewed as political in nature.

Asked what the Ontario government could do to make sure that PSBs meet the needs of the communities they serve, a number of key themes emerged:

• greater engagement and consultation with both the community at large and community organizations
  • community surveys and town hall meetings were the most common suggestions for consulting with the community
• specific educational or background requirements
  • board members need to be educated and qualified, with participants frequently suggesting members hold at least a university degree
  • on background requirements there was strong opinion that board members need to reflect the community they serve
• greater transparency - many respondents felt that clear and open communication between the community and PSBs was lacking
  • common transparency suggestions included PSBs meetings being open to the public, meeting minutes published in local newspapers and meeting agendas being open to public review
• greater community member representation
  • some respondents called for PSBs to be comprised entirely of community members while others simply called for greater community member representation
• clearer guidelines, rules and frameworks
  • a revision of existing policies, guidelines or rules would be helpful in developing a clearer understanding of PSBs mandate and objectives
• increased and mandatory training would enable members to become better equipped to serve on the board
  • common suggestions included ride-along programs, mental health, addiction and cultural sensitivity/cultural diversity training
• increased accountability
• regular reviews and reports on PSBs were needed
  • common suggestions included annual reviews and reports, performance measurement reports and reports on yearly goals and targets
• some participants called for increased oversight of PSBs such as provincial or ministerial oversight, or provincially appointed oversight boards or an oversight representative
  • calls for greater oversight were often made in concert with calls for increased review and reporting of PSBs activities

Respondents made a number of suggestions regarding the nature of PSBs information that should be released to the public. These suggestions ranged from releasing all information to making public specific information such as law enforcement statistics, details on police misconduct and disciplinary action taken, full financial disclosure, information on the positive impact of police services and all non-confidential information.

Some participants expressed the belief that PSBs are publicly funded bodies and communities should have access to their information. Others felt that a greater release of information would give the public a better understanding of community safety and allow the community to hold PSBs accountable.

The majority of respondents felt that policy development, negotiation, problem-solving, analytical and financial skills were necessary skills for a PSBs to have. Some respondents suggested that rather than have a board comprised of individuals with all of the listed skills, members specialize in specific skill sets, Some respondents felt that possessing all listed skills should be a minimum qualification before sitting on a board. Others felt that PSBs members also have an understanding of policing and local community knowledge.

Other skills sets respondents wanted boards to have were a knowledge of policing, policing experience and communications skills.

Related

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