June 10, 1998

 TO:Toronto Emergency & Protective Services Committee

 FROM:Norman Gardner, Chairman

Toronto Police Services Board

 SUBJECT:GUN-RELATED CRIME IN THE CITY OF TORONTO

 Recommendation:

 It is recommended that the following report be received for information.

  Council Reference/Background History:

 At its meeting on May 21, 1998, the Toronto Police Services Board was in receipt of the following report APRIL 2, 1998 from David J. Boothby, Chief of Police:

  "SUBJECT:REPORT ON GUN RELATED CRIME - EMERGENCY

& PROTECTIVE SERVICES COMMITTEE REQUEST

 RECOMMENDATION:1)THAT the Board receive the

following response in relation to gun

related crimes and strategies employed

by the Toronto Police and other

agencies.

 2)THAT a copy of this report be forwarded to the City of Toronto, Emergency and Protective Services Committee.

  BACKGROUND:

 The Board at its meeting on February 26, 1998 (Minute No. 90) approved the request from the Emergency and Protective Services Committee that the Chief of Police prepare a response to the Committee's recommendation (1) for the Board's consideration.

 On February 10, 1998, the Emergency and Protective Services Committee requested that the Chief of Police report back to the committee on the following:

 (a)the alarming increase of gun related crimes on the streets of Toronto,

 (b)a strategy to reduce the proliferation of guns on our streets,

 (c)the level of co-operation and commitment of the Ontario Provincial Police (OPP) and Royal Canadian Mounted Police in stemming the flow of illegal firearms into our City, and

 (d)an overview of programs that have been implemented with success in other cities which have reduced crimes, e.g., New York City

 On February 12, 1998, the Toronto Star reported that Toronto residents had become frightened by the escalation of violent crimes involving guns.

 In the article, Councillor Brian Ashton was quoted as saying,

  "the last few weeks have been like the Wild Wild West because of these evil punks wandering through our city with firearms."

 "the federal government has to make sure the Criminal Code is tough on guns that are used in the commission of an indictable offence."

  In a related article on the same day, the Toronto Sun quoted the same Councillor,

  "I'll light a fire under anybody's butt to get the police.active and engaged in getting these illegal guns and these evil punks off the street. People are literally strutting around with guns on their hips now, because they feel immune from the legal system and from the police."

  These articles led to a further report in the Toronto Sun on March 8, 1998, which stated, "Since 1993 violent offences involving firearms have declined in Toronto but we are a long way from the 1980's" ( when gun seizures were rare).

 Media reports which forecast doom and gloom are, in fact, not supported by statistical data. Nevertheless, violent crimes that are reported in the media often contributes to the public's perception that the streets of Toronto are a place of violence and inundated with illegal firearms.

  CRIME STATISTICS

 In reference to point 1(a) an alarming increase of gun related crimes on the streets of Toronto, crime statistics are outlined below identifying several crime types. Statistics are set out in the charts 1 through 7 which display crimes of violence, calls for service and seizures from 1993 to 1997.

   Homicides

chart 1

  Compared to other North American cities the homicide rate and the related use of firearms in committing homicides, is relatively low. In addition, this rate has been stable for the past five years.

 Without diminishing the concern attached to any homicide statistic, recent media reports covering shoot-outs in restaurants, after-hours clubs and public areas are not the norm.

 These types of crimes tend to be sensationalized and lend legitimacy to views expressed in the media about gun crimes. When incidents occur at public locations they expose additional victims to the potential for violence and increase the overall public perception of fear.

 Perceptions are not supported by the actual numbers. In 1997, four homicides occurred in after hour clubs which were a direct result of a shooting. Two others occurred in donut shops and a plaza.

 The statistics with respect to the use of firearms in homicides relates to both legal and illegal possession of the firearms. The history and ownership of firearms used in the commission of the offences are generally unknown. Statistics show that approximately thirty percent of weapons, identified as being stolen during other offences, were used in homicides. Six firearms were identified as being lawfully registered to the accused. The remainder either have not been recovered or are unable to be traced.

  Homicides Committed by Strangers

 chart 2

note:The percentages and numbers may not represent 100% due to the involvement of multiple suspects. Cases presently active where the suspect has not yet been determined to be known to the victim accounts for differences

 The low figure outlined above in relation to strangers demonstrates that the perception of people wandering our streets committing crimes is a misinterpretation. The percentages included in the 1993 figures involve some cases of multiple suspects in single homicides cases. Approximately sixty percent of all homicides are committed by or against an acquaintance.

 Many articles talk of gangs and hooligans wandering our streets committing crimes of violence. There are gangs and criminals on our streets but they are not openly carrying firearms or weapons. Offenders are targeted when known and apprehended. Increased penalties are sought through the courts, (which result in the successful removal from our streets). To achieve incarceration, increased awareness within the judicial component is carried out leading to increased penalties.

Statistics confirm that only a very low percentage of homicides are committed by a stranger on the streets of Toronto. No proactive program or strategy can deal with these occurrences unless the location is specific to the crime, (e.g. a subway pushing incident). In those circumstances, awareness programs are implemented in concert with affected agencies.

 Programs which are implemented through other agencies target the majority of these types of crimes. Initiatives brought forward specifically for domestic violence, alcohol and drug dependency continue to move forward with success. Programs within the Attorney Generals Office ensure that violent crimes are targeted for increased penalties. Unfortunately the entire circumstances surrounding the event may contribute to a lessor sentence. Such a discretionary result may infuriate the general public who are unaware of all the circumstances.

 Emergency Task Force

 The Emergency Task Force (ETF) attended more calls in 1997, than in previous years. This specialized unit continues to train its personnel to respond to gun related occurrences and incidents involving emotionally disturbed persons.

 The procedure in dealing with emotionally disturbed has changed. The ETF must now be advised by units attending calls regarding the emotionally disturbed as set out in chart 3.

 Emergency Task Force Calls For Service

 chart 3

  Although there is an increase in calls for service, the increased proportion is attributed to incidents involving emotionally disturbed persons. Specialised training by ETF officers and increased involvement in these types of incidents was due in part to the implementation of recommendations from Coroner's inquests and new policies implemented by the Toronto Police Service. Gun calls where ETF has been notified, have decreased from 324 in 1996 to 317 in 1997.

 Firearm and Related Calls

 Statistics set out in chart 4, collected through the Toronto Police Service Communications Bureau, illustrate that the number of gun calls have decreased in number from 2528 in 1995, to 2241 in 1997 or an 8.8 percent drop. These include, persons with a gun, a shooting or sounds of gunshots. The hours invested by personnel to bring these occurrences to a successful conclusion have increased by 19.3 percent.

  Firearm related Crimes

Chart 4

 This increase has in many circumstances been seen as a direct result of additional time personnel spend at the scene and additional personnel dispatched to the area.

 Violent Crime Statistics

 A review of violent crime statistics which include criminal offences where firearms were used in incidents such as mischief up to and including murder also highlight a declining trend. In 1993 there were 4,942 crimes reported, to a reported low in 1997 of 2952 crimes. These incidents have declined 40.2 percent as set out in chart 5.

 Violent Crime Statistics

 chart 5

 Various strategies have been implemented Service wide with input from community groups and partners where units have utilized a variety of selective enforcement strategies to contribute to that decline. There does not appear to be any one particular initiative that is a clear contributor to those numbers.

 In a Toronto Sun article written March 8, 1998, Staff Inspector Sam Fairclough of 12 Division and Inspector Randall Munroe of 51 Division, commented on the drop in related gun crime. Both senior officers have confirmed that this drop in gun related crime is related to the support they receive from their communities in addressing this and other crime initiatives.

  Robbery

 This decrease is reflected by retail store robbery statistics produced by the Hold Up Squad. Robberies have declined from 1568 in 1993, to 1006 in 1997. This represents a decrease of 35.9 per cent. The statistics are reproduced in chart 6.

 Retail Business Robbery's

chart 6

 Unfortunately, during these robberies the use of firearms fluctuates in the area of fifty percent. This percentage has remained steady for the past five years, even with a high ratio of arrests and effective sentencing. This rate continues to be unacceptable and initiatives are continually evaluated in relation to any enforcement strategy, including sentencing guidelines.

 Strategies, have been developed through a consultative process and presented to the Command. These initiatives are identified as the Robbery Reduction Strategy for the Service. They are both proactive and reactive, which involve the community, businesses, media and the justice systems. Although the crime rate continues to remain high, the increased focus has been useful in removing the criminals from the street for longer periods of time. Further initiatives will have to be implemented regarding rehabilitation where possible. The use of weapons during robberies, to ensure compliance and success in their venture may be a defining characteristic of the crime.

 The goal of the Robbery Reduction Strategy was the achievement of a twenty percent reduction. That goal appears to have been achieved within the retail industry however steps are being undertaken in conjunction with the divisions to achieve those successes or higher in relation to street robberies. A further reduction in relation to business robberies is continuing and will be co-ordinated through the Hold Up Squad.

 Seizure of Firearms

chart 7

 * note 1997 statistics only to April 30, 1997.

@ note 1997 statistics extrapolated out using 1997 numbers to end date of December

 Our records identifying the total number of firearms investigated by this Service, does not discriminate between the number of firearms seized as a result of criminal activity, versus firearms that are registered and require investigation on behalf of the permit holder. These investigations validate the Firearm Acquisition Certificate (FAC) application process.

New legislation, amnesties and seizures of firearms for safe keeping will continue to affect the numbers of firearms collected. The 1997 statistics are not an accurate reflection of a rise or decline due to the lengthy internal investigation that is still ongoing. The numbers recorded to April 30th 1997, were multiplied by three to represent the estimated number of firearms investigated that year.

 There exists a disturbing trend that indicates an increase in the number of handguns and machine guns that are being seized or identified. Due to enforcement strategies the seizure of such weapons has increased. Whether this indicates a trend in the use of such weapons or better enforcement is unknown. The Provincial Weapons Enforcement Unit (P.W.E.U.), continues to employ effective enforcement strategies through integrated, Ontario-wide teams which in time will provide the necessary information from which an informed decision can be made.

 The application of restorative techniques and strategies employed within this Service, the office of the Attorney General, Solicitor General or within other law enforcement agencies, have affected the proliferation of guns on Toronto's streets. The declining trend has continued for the past three years which is supported the above reported statistics.

  STRATEGIES

 (b)Strategy to reduce the proliferation of guns on our streets.(c)The level of co-operation and commitment of The Ontario Provincial Police (OPP) and Royal Canadian Mounted Police (RCMP) in stemming the flow of illegal firearms into our city,

 The preceding pages have demonstrated that strategies to address firearms issues are a continuation of our community policing philosophy.

 This philosophy consists of two distinct elements of equal importance. There is the delivery of a service to the public that is appropriate to the needs of the community.

 Secondly, there is the involvement of many areas of community stakeholders in the decision making process. This involvement must be sufficiently empowering to give meaning and motivation to the process to sustain these partnerships. Without meaningful participation a barrier to true crime reduction strategies will persist.

 The Service Robbery Reduction Strategy is an example of this process. The Robbery Reduction initiative was developed in partnership with the community in 1997. It is currently being implemented and may account for some of the reduction.

 The community role in this partnership strategy is reflected in a variety of ways. Increased awareness has resulted in greater penalties of incarceration and has ensured that repeat criminal offenders are removed from society. Bill C-55 is utilized when possible to place conditions upon such individuals who are considered a risk and fall within the definition outlined within that legislation.

 At the same time, legislation and court rulings have negatively affected the length of time investigations are taking to be carried out and the resulting court trials. These procedural changes impact on the time officers actually spend investigating cases.

  A review conducted within the Homicide Squad revealed that homicide investigators spend fifty percent of their time attending court proceedings. Thirty percent of their time is spent on disclosure and procedural matters due in part to the reduction of civilian staff. The remaining twenty percent of time is spent actively investigating the case.

 New legislative initiatives to implement a National DNA data bank, improved technological enhancements, coupled with implementation of recommendations from Mr. Justice Campbell's report, will all enhance the sharing of information. When these initiatives are implemented the reduction or duplication, where it exists, will impact positively on the information sharing required to deal with crimes of violence. These changes will effect training, impact budgets and challenge deployment strategies. They will be challenged through the justice systems, and the outcome of those challenges are not yet determined. Whatever the outcome, the long term gain will not be realized for several years, although there may be some short term gains.

 These tools are intended to improve the effectiveness of policing and impact the efficiency of investigators involved in major investigations, not solve them. Time and resources will continue to influence the effectiveness of homicide and other criminal investigations.

 The three Field Commands utilize traffic officers, street crime units, and community response units within the divisions to target known high crime zones or locations and to enforce provincial and criminal code laws. These targeted enforcement strategies are also supported through the use of personnel from drug squads, major crime and plainclothes officers, armed with knowledge and expertise from their respective units. These initiatives are being identified in part through community police liaison committees, officer enforcement actions and crime analysts. These proactive enforcement strategies are short term with the intention of identifying and seizing weapons before any events take place. These types of initiatives will continue to be employed, ensuring that all stakeholders have input through their links within the service.

 Detective Support Command has implemented proactive enforcement strategies within the Reporting Center and Special Investigations Services. The two special enforcement teams operating within those units, identified as the Repeat Offender Program Enforcement (R.O.P.E.) and the Fugitive Unit are mandated to target identified deviant behaviour releases, and persons who are identified as recidivists or high risk. The Sexual Assault Squad utilize new legislation under Bill C-55, to target high risk release sex offenders. They are supported when required by other investigative teams to monitor the activities of these high risk releases. Although not a panacea this legislation does afford some level of control over the offender.

 The Fugitive Unit supported by members from Immigration and RCMP have implemented some initiatives involving new technology in the past four months. Enhancements to current computer programs have been successful in identifying repeat foreign fugitives for this Service and Immigration Canada. This has led to an increase in the apprehension rate and removal of repeat criminals. Many of these criminals are responsible for violent offences where firearms are used. Continuing improvements with technology and increased information sharing between the Toronto Police Service, RCMP and Immigration Canada will lead to further improvements in apprehension and early removal.

 Linkage with the system used by the enforcement branch of Immigration Canada and input into their administrative hearings will improve with this strategy. This action will result in the expulsion of foreign criminals. This will have a direct impact on our crime rate in the future.

 In conjunction with that program the fugitive section target identified foreign fugitives with the assistance of various units within Toronto Police Service. In 1997, the Fugitive unit, supporting other investigative units within the Toronto Police Service, successfully arrested ninety such criminals wanted on charges for murder, drugs, firearms and violent crimes. An additional 969 charges were laid relevant to these criminals, resulting in thirty three being deported.

 Both of these innovative units are being recommended for the IACP's Webber Seavey award. This award recognises programs which foster the exchange of ideas and solutions so others can learn. The award is evaluated by a qualified panel of IACP judges, which takes place after May 1st 1998.

 The Emergency Task Force (ETF) strategy continues to involve training. This tactical unit is recognized as a leader in the field of emergency tactical response. Two training officers continue to train internal and external members.

 Initiatives involving members from the intelligence branch, hold up squad and drug squads, trained in high risk stops, continues to be a priority. Members within the Emergency Task Force (ETF) are also trained to deal effectively with violent emotionally disturbed persons. Dr. Peter Collins a psychiatrist, supports this training and attends incidents when required to assist the (ETF). Special tactical paramedics have also been trained to work alongside the (ETF) personnel in situations where there is potential for the use of deadly force. The paramedics provide immediate first aid during such dangerous situations, and have, since November 1996, prevented the loss of life due to their immediate availability and training. This program is continuing with additional training being offered.

Training continues to be a priority to our members in other areas. Steps are underway to improve our training in the investigative areas to support the front line officer. In contrast the training given to the front line officer will support the investigator. Use of force training continues, and is expected to remain a priority of officers, to ensure compliance and to maintain a suitable level of readiness to meet the needs of our changing society. As reported earlier the increase in time spent at gun calls, and resulting successful conclusions, is one indicator or our success in this area. Continuous monitoring will ensure programs continually are improved.

 The Provincial Solicitor General and Attorney General continue to support recommendations being placed before them requesting increased penalties. Recommendations to introduce new legislative changes have also be included. This support has resulted in increased penalties involving the possession of firearms, trafficking and smuggling since 1994.

 Traditionally, possession of a firearm resulted in a thirty day to six month sentence, where now the offender will likely receive one year to eighteen months. The penalty for smuggling or trafficking in firearms range from four to six years. The likelihood of receiving the penitentiary term is normal. In addition, applications are sought for five and ten year prohibitions, and are attained in most cases. Further lobbying will continue to assist in this area.

 The Toronto Police Service is dedicated to prevent crime and apprehend dangerous criminals and as such participate in the Provincial Weapons Enforcement Unit, (P.W.E.U.). Dedicated members of the Toronto Police Service, supporting a combined force of members representing the Ontario Provincial Police (OPP), Customs, GTA Regional Forces, Waterloo, and the Royal Canadian Mounted Police (RCMP), all concentrate on illegal possession, sale and smuggling of firearms, weapons, ammunition and explosives in Toronto and the Province. The recovery of firearms, and tracing the origin of those seized, is supported by law enforcement agencies south of the border, who in turn indict American counterparts for their criminal actions.

 Initiatives being implemented through the Provincial Weapons Enforcement Unit have attracted support Nationally, in developing a similar model designed to dismantle groups involved in the trafficking of firearms, and firearm related offences.

 This unit is not only gathering intelligence on criminals involved in these activities, but also taking enforcement action to dismantle such networks. Information sharing continues to grow between this unit and various sub units within the Toronto Police Service.

 Other initiatives ensure Toronto Police Service personnel are trained in handling and tracing firearms. Computerised registration and tracking programs are being developed and implemented. Firearm Acquisition Certificate (FAC) application protocol, supported by newly trained Divisional Firearms Liaison officers, are being phased into each Division. Ongoing training between these officers and the Special Investigations Services will continue. This will ensure additional officers receive speciality training to enforce newly constructed firearm legislation.

 Training initiatives offered through The Alcohol Tobacco and Firearms (ATF) involve firearms. This training goes on continuously with support provided through the Royal Canadian Mounted Police (RCMP), Ontario Provincial Police (OPP) and other American counterparts.

 As a result of a recent audit of the Firearm Registration Unit, new protocols and electronic systems are being implemented. This will ensure that confidence is restored to the community surrounding the retention, seizure and storage of firearms.

  OVERVIEW OF OTHER CITIES

 With reference to 1(d) an overview of programs that have been implemented with success in other cities which have reduced crimes, e.g., New York City.

 The Robbery Reduction and Crime Management initiatives were born out of the Command's awareness of community concerns. In October of 1996 the Crime Management Working Group (CMWG) was formed with representation from all Commands.

 The CMWG reviewed crime management initiatives in other police jurisdictions. Fact finding site visits were conducted in Montreal and New York City. The New York City model had some good features which were adopted or customised in some fashion to develop our crime management model. However, policing initiatives in crime management were not delivered in a community policing model within a Canadian context, in that the New York Police Department (NYPD), were in the main, the sole arbiters of policing priorities and problem typing. Their engagement with the community as a key stakeholder in crime reduction was minimal. The NYPD is of sufficient size and scale that they can over-resource certain crime problems.

 New York's initiative resulted in the city hiring an additional seven thousand officers. They also had many problems to address due to years of neglect and inefficiency. Given the economic climate of today that result is highly unlikely in Toronto. Many of the other initiatives viewed in other cities were not delivered in a community policing model consistent with the Toronto strategy. Many are now moving to that model. Toronto in many respects is already leading the way.

 The CMWG conducted a broad brush consultation with the Chief's Consultative Committees and separately with Divisional CPLC's. The purpose of these consultations was to solicit input into their roles within the Crime Management initiative.

 The strength of the Crime Management process and related strategies lies in the ability to improve communication and crime analysis within the Service. In addition, problems require identification at an early stage, which leads to developing strategies for a co-ordinated and integrated use of resources.

 The Service has developed crime management strategies to address Service wide crime problems and priorities. These strategies form a framework for action, but do not restrict a Unit Commander from tailoring strategies to fit their own needs and resources.

 One thing is critical, where police agencies incorporate the community in crime management (prevention) strategies, programs and practices, recent research indicates that the combined effort can reduce crime rates. The reduction of crime is at the core of crime management and robbery reduction and puts a measurable face to community policing strategies. Community policing is the delivery mechanism, crime reduction is the end result.

 The production of the Robbery Reduction initiatives also reviewed cities such as New York, Chicago, Seattle and their abilities to institute programs to reduce the proliferation of guns, reduce robberies and violent crime. This reduction included a meaningful crime prevention model consistent with crime management, in addition to an apprehension model.

 The Robbery Reduction strategy once fully implemented will impact the proliferation of guns, achieve the level of interaction we work towards in community policing, and address many of the concerns echoed by the Emergency and Protective Services Committee. These issues have been forecasted by the Chief and his Command Officers prior to this request. Strategies have been developed and are underway with the realization that a controlled approach to this matter is desirable.

 The Service is also engaged in establishing an Auto Crimes Strategy, Drug Crimes Strategy, Property Crimes Strategy, a Graffiti Strategy and a Tourism Strategy. Involvement of the community can act as an early warning system and a barometer of police effectiveness in joint problem solving. The picture of success will vary from neighbourhood to neighbourhood and from Division to Division based on local problems and priorities. Citizens need to feel secure and safe when using public spaces.

Numerous strategies are underway and newly formed partnerships continue to flourish both in Canada and the United States. As intelligence is gathered, additional criminals are targeted and subsequently apprehended. Financial gains will also be attacked to ensure that motives for carrying out these types of crimes are reduced to its lowest possible level. Increased penalties, and prohibitions, supported through the courts and in communities will target the reduction of the use of firearms in our society.

 Detective Sergeant Kim Derry, Detective Support Command (8-7483) will be in attendance to answer any questions that the Board may have."

  Conclusions:

 Det.Sgt. Kim Derry, Detective Support Command, was in attendance and responded to questions from the Board about this report.

 The Board received the foregoing and noted that it would be forwarded to the Emergency & Protective Services Committee for information.

  Contact Name and Telephone Number:

 Detective Sergeant Kim Derry, Detective Support Command, telephone no. 808-7483.

 Respectfully submitted,

 Norman Gardner

Chairman