December 22, 1999

To: Policy & Finance Committee, City of Toronto

From: Norman Gardner, Chairman

Subject: Request for funds - Year 2000 Community Action Policing Program (CAP)

Purpose:

To request the Policy & Finance Committee to approve an additional $2.9 million in operating funds for the Toronto Police Service to support the year 2000 CAP program.

Financial Implications and Impact Statement:

The Toronto Police Services Board is requesting the City of Toronto to provide $2.9 million in addition to the year 2000 operating budget specifically for the purpose of implementing a CAP program in the year 2000.

Recommendations:

It is recommended that:

(1) the Policy & Finance Committee approve an additional $2.9 million in operating funds to support the year 2000 CAP program; and

(2) upon the approval of recommendation (1), the Policy & Finance Committee forward this request to the next meeting of Council for approval.

Background:

At its meeting on November 22, 1999, the Toronto Police Services Board was in receipt of the following report NOVEMBER 2, 1999 from David J. Boothby, Chief of Police:

"SUBJECT: Community Action Policing (C.A.P.)

RECOMMENDATION: 1) THAT the Board receive this report for information; and

2) THAT the Board forward a copy of the attached report to the City of Toronto Policy and Finance Committee for their information.

BACKGROUND:

With the reduction in staffing levels in recent years, the Toronto Police Service has faced a difficult challenge to deliver policing services to communities across the city.

This challenge has been further magnified by the requirement to assign on- duty police officers to approximately eight hundred special events, parades, and demonstrations held yearly in the downtown core representing approximately thirty five thousand hours of policing time. Officers are re-deployed from their assigned neighbourhoods and communities to cover these events.

The urgency to meet this challenge is reflected in concerns from City Councillors that "people do not see enough police officers in their community, and are unable to enjoy public places in certain problem areas because of criminal activities including; drug trafficking, prostitution, youth gangs and disorderly behaviour. Used condoms and needles can be found lying around in parks where children are meant to play".

In an effort to address present concerns the Service in the 1998 and 1999 budget submissions to City Council included a two million dollar request as part of a strategic plan for target policing and transitional staffing.

City Council did not approve this request in 1998, and during submissions in April 1999, Council reached an impasse and the funding was not approved for 1999.

Mayor Mel Lastman wished to further explore the challenges to the Police Service recognizing the importance of meeting the policing needs of communities city-wide. He moved that this issue be taken from Council, and be assigned to a newly established Safer City Task Force for review which was to report back to Council.

Safer City Task Force:

City Council established the Safer City Task Force on April 28, 1999, to ensure a safer city for all residents and visitors. Part of the Task Force's responsibility was to review the deployment strategy for police officers assigned to special events and demonstrations, especially in the central area of Toronto.

Additionally, Council requested that the Task Force review the deployment of police officers where needed in problem areas, the issues of community safety and tourism; and report on how and where funds for target policing could be used.

Members of the Task Force included, Mayor Mel Lastman, Chairman of the Task Force, the Mayor's Special Assistants Sean Goetz-Gadon and Anthony Rossi, Chief of Staff Rod Phillips, Councillors Norm Gardner, Kyle Rae, Brian Ashton and Bas Balkissoon, Deputy Chief Michael Boyd and Sergeant Tom Russell of Central Field Command, Parks and Recreation Director John MacIntyre and the Manager of Licencing and Municipal Standards, Frank Weinstock.

The Task Force acknowledged the concerns of Council members regarding constituents' complaints about the lack of police visibility in their communities and the fear of criminal and disorderly behaviour in their parks.

The Task Force also accepted that these issues are magnified during the spring and summer months, when demands on police resources are highest. In particular, they acknowledged the commitment of time and human resources that the Toronto Police Service devotes to the multitude of special events, parades, festivals and demonstrations held annually.

The Task Force concluded that there was an urgent need to supplement the City's existing safety initiatives in the summer of 1999. To meet those needs, the Task Force recommended that Toronto City Council support the Community Action Policing project, (C.A.P.) consisting of target policing and community safety initiatives. The Community Action Policing project builds on the previous consultation and recommendations made in the Toronto. My City. A Safe City report released in February of 1999.

Target Policing (C.A.P.):

The purpose of high visibility target policing is to provide immediate relief to a neighborhood or community. The Toronto Police Service experience has been that this short term, tactical approach using a highly visible concentration of officers in an area, is a quick, effective way to improve the quality of life in the community by reducing crime and disorder and enhancing public safety. This approach however, must be combined with a long-term maintenance plan in collaboration with the Big Five partners if short-term gains are to lead to long term solutions in these areas.

The Task Force requested funding of $1.8 million for 1999 to implement high visibility target policing projects utilizing teams of officers on foot, bicycle and in patrol vehicles, where appropriate. The officers participating in the project were called back from days off and paid overtime for their duties, consistent with contractual agreements.

Council Approval:

On July 7, 1999, City Council approved the following in a vote of 53 to 1:

(1) Approval of the Community Action Policing (C.A.P) project as proposed by the Safer City Task Force for an eleven week period during the summer of 1999 (July 15 to Sept. 30), and that upon completion, the Safer City Task Force report the findings back to Toronto City Council;

(2) endorsement of the co-operative effort of the Big Five partners as a key element of the Community Action Policing project; including the Parks and Recreation Division, and the Community and Neighbourhood Services Department;

(3) endorse the creation of a new reserve fund, Safer City Initiatives, with total funding of $3.5 million emanating from excess one time 1998 revenues; and the costs incurred by the Toronto Police Service of $1,820,000; the Economic Development, Culture and Tourism Department of $90,000 and the Community Action Policing project proposal as outlined in this report be charged to this reserve fund to a maximum of $2,000,000; and

(4) the appropriate City Officials be authorized and directed to take the necessary action to give effect to the above recommendations.

Community Action Policing (C.A.P) Partners:

The effectiveness of this approach required co-ordination with other City Departments and community partners. Police Unit Commanders consulted with the Big Five partners and ensured that they were involved in the development and implementation of the program.

A further $180,000 was allocated as part of the C.A.P program to the City Parks and Recreation Division and the Community Services Department, to provide increased staffing resources and to strengthen existing community safety projects. This component of the project focused on physical and social safety audits for the impacted neighbourhoods.

(A) Big Five:

The Big Five include the residential and business community, government and social agencies, politicians, media and the police. An example of discussions already ongoing with the Big Five partners include various city departments such as; Parks and Recreation Division and the Community and Neighborhood Service Department who worked together to identify shelter space as a viable alternative to people camping and sleeping in parks and city spaces.

Community Action Policing (C.A.P) Project Details:

During the past two years, the Toronto Police Service has moved towards the implementation of a process called Strategic Crime Management. This process helps to identify crime, public safety and disorder problems at an early stage, and assists in prioritizing these problems and developing strategies for the coordinated deployment of resources. The thrust of Strategic Crime Management is crime prevention, aimed at reducing victimization.

The Community Action Policing project was designed around the principles of the Strategic Crime Management process to implement high visibility target policing projects city-wide, utilizing teams of officers on foot, bicycle and when appropriate, in police vehicles. City-wide, all seventeen police divisions participated in the project and recorded a seven-step process of analysis and implementation using a standardized Crime Management Strategy form.

These seven steps were:

· problem analysis

· target area analysis

· strategy details

· measurement

· maintenance

· final assessment

· summary of results

Each of the above seven steps included sub-categories that assisted the divisions in collaborating with their local communities in addressing priorities of concern. Each division is in the process of finalizing these forms for reporting back to City Council at the end of November 1999.

C.A.P. Structure (All Divisions):

In general, each division was provided with the financial resources to pay a team consisting of one Sergeant and seven Constables to work six hours at a time, four evenings per week for eleven weeks. These officers, called back from scheduled days off, were paid overtime rates consistent with their contractual working agreement. Call-backs were filled on a voluntary basis and officers retained the right to decline.

Unit Commanders had complete autonomy and flexibility to alter the size and deployment characteristics of the team to best address the problem they faced. The experience however, was that most Unit Commanders found the original team description and deployment of officers in the late evenings, four nights per week to be most effective.

In addition, the following supplemental resources were applied in the downtown core:

No.'s 14, 51 and 52 Divisions:

No.'s 14, 51 and 52 Divisions were provided with twice the financial resources to call-back two teams of officers. These divisions have historically (and presently) experienced the highest concentrations of street crime, disorder issues, and pedestrian traffic in the city.

Parks Teams:

A mobile team consisting of one Sergeant and three Constables on bicycles, were deployed nightly to patrol the parks (adjacent) to the downtown core and were available for deployment elsewhere if required. The team however, was utilized primarily in the downtown area and was not called out across the city.

Target Squad:

This squad was composed of one Senior Officer, four Sergeants and twenty Constables. Twelve officers patrolled on foot, six patrolled on bicycle and six patrolled on motorcycles. The squad was deployed at various times throughout the eleven weeks to strategic locations in the downtown core. The purpose was to supplement the activities of the parks and divisional teams and to create a lasting impression of police presence within the greater community.

The Target Squad was also available for re-deployment to other areas in the city, but were utilized primarily in the downtown core.

Project Leader:

Deputy Chief Michael Boyd assigned stewardship of the C.A.P. program in Central Field Command to Inspector Randal Munroe of No. 51 Division. Inspector Munroe's responsibilities included, but were not limited to:

· Operational Commander for the supplemental Target Squad

· Co-ordinate Central Field Command divisional strategies

· Co-ordinate budget expenditures and requests related to C.A.P.

· Co-ordinate and collaborate with government agencies and other Big Five partners.

· Address media and general requests for information relating to C.A.P.

Although Inspector Munroe co-ordinated most corporate issues relating to C.A.P. for Central Field Command and Area Field Command through his office, all operational strategies implemented at the divisional level were the responsibilities of each Unit Commander.

Activities and Strategies:

All Unit Commanders ensured that the local Community Police Liaison Committees and other Big Five partners were consulted and involved in the implementation of the project.

The strategy at each site was tailored to meet the demands of the problem and flexible enough to adjust or move to another problem if required. Most problems focused on drug trafficking, prostitution, disorderly conduct and related criminal activity. These problems were beyond the scope of one or two neighbourhood officers to control, and required a co-ordinated team approach.

In general, each division deployed their team of uniform officers into the target area to provide a high visibility patrol on foot, bicycle and vehicle (where appropriate). Officers were instructed to apply their community policing skills to make contact, communicate and develop trust with the community in the target areas. The stop and chat activity provided valuable information and insight towards understanding the problems in the area and identifying potential solutions.

Officers were further instructed that C.A.P. was not a zero tolerance program and that each officer retained the discretion to deal with the problem in ways that they deemed appropriate. Consequently, officers were not restricted to one approach and were encouraged to involve their community partners. Officers were told that if enforcement was the appropriate method of dealing with the problem then enforcement should be applied.

Positive community and race relations and collaborative partnerships were stressed as desirable outcomes of the program. This program was not meant to be a short-term solution, but was the first step in building towards long term solutions through maintenance plans linked to daily police operations.

The following figures represent a snap shot of police activities for the eleven-week project:

Outcomes:

The objective of the C.A.P. program was to improve the quality of life in the community by reducing crime, reducing disorder and enhancing public safety.

The evaluation of the program relies on quantitative and qualitative measurements designed to show what changes occurred in the target environment during the C.A.P. time period compared to the same period in 1998.

Most of the quantitative data has been captured for analysis and evaluation showing police activities and information impacting on the community. The qualitative information is still being collected from community surveys. Final evaluations from all measurements will be available for review in the final report due to City Council in the last week of November.

Some of those measurements include but are not limited to:

Quantitative (numbers of)

· Reported crimes

· Arrests

· Provincial Offence Notices

· Person's contact cards (208's)

· residents using parks and open spaces

Qualitative (survey results)

· Reduced crime and fear of crime

· Reduced disorder

· Enhanced public safety

· Improved environment

· Community involvement

Seven Crime Indicators

The Toronto Police Service, Statistics Canada and the Federal Bureau of Investigation in the United States use seven reported "impact" crimes as a global-indicator of the criminal environment in a geographic area.

These seven reported crimes are:

· Murder

· Sexual Assault

· Assault

· Robbery

· Break and Enter

· Auto Theft

· Theft Over

What is interesting and important to note is that the C.A.P. program focused primarily on street disorder such as drug trafficking, prostitution and related criminal behaviours. The C.A.P. program not only had a positive impact on those things but it had a residual impact on the seven crime indicators showing a 13.8% reduction city-wide.

Preliminary outcomes based on reported crimes indicate a significant reduction in crime during the C.A.P. time frame compared to the same period in 1998. Further, there is anecdotal evidence to indicate that the project had a positive impact in the community and for the Police Service as well.

Preliminary analysis indicates the following quantitative results:

13.8% reduction in reported crimes city wide

20.0% reduction in reported crimes in the downtown core

Certain areas of the city experienced much higher reductions in crimes that the C.A.P. program focused on including but not limited to:

· 30.0% reduction in Assaults in 52 Division (Core of the city)

· 24.0% reduction in Robbery in 55 Division (East of the Don River)

· 49.0% reduction in B & E in 11 Division (West of Lansdowne)

· 17.0% reduction in Auto Theft in 42 Division (Scarborough)

· 40.0% reduction in Robbery in 23 Division ( North Etobicoke)

Preliminary information indicates the following qualitative results:

Community:

· Improved communication and commitment with community partners

· Improved feeling of safety among residents in target areas

· Improved environments in and around business premises

· Improved environments in and usage of parks for area residents

· Valuable insight into community concerns and priorities

Police Service:

For the Toronto Police Service, the C.A.P. project was a morale booster. Many of the officers assigned to the C.A.P. program were assigned to Primary Response Mobile Patrol and due to operational requirements did not have the job flexibility to focus on one problem for long before being called away to respond to another call for service.

During the C.A.P. program these officers were assigned to areas and duties that they ordinarily would not have the opportunity to focus on. This has provided officers with valuable insights into community policing and the importance of developing contact, communication and trust in the community.

Further, many of the officers who were assigned to the Target Squad did not ordinarily work in the downtown core. This assignment brought officers together from across the city and provided many with a diverse experience. It added value to their understanding of community policing and the different problems, approaches and solutions that other officers have been exposed to.

Partnerships:

During the initial planning for the C.A.P program, a number of city services were approached with a view to establishing and strengthening partnerships.

In order for the program to reach full potential, a co-ordination of services was clearly indicated. Members of the Service met with Ms. Shirley Hoy, Commissioner of Community Services, Mr. John Jagt, Director of Hostel Services and Mr. John Macintyre, Director of Parks and their respective staff. A holistic approach to public concerns was established through multiple service delivery. New and strengthend partnerships have endured beyond the eleven weeks of operational police activity.

Complaints:

There has been some media attention given to "professional" activists such as the Ontario Coalition Against Poverty (OCAP). They have complained in general terms that the C.A.P. program was abusive, targeting the homeless and that C.A.P. funds would have been better spent on social programs.

Professional Standards records indicate that there has been a slight decrease of 0.5% in citizen's complaints this year compared to 1998. A check of divisions indicated that there was one complaint filed regarding the conduct of Toronto Police Officers assigned to the C.A.P. program.

This is significant given that approximately seven hundred officers were assigned to this program weekly, recording contact cards with approximately 25,000 individuals.

Budget:

The Toronto Police Service came in under budget on the C.A.P. program by $65,000.00 of the $1.8 million dollars assigned to the C.A.P. program.

C.A.P. Impact on Court Costs:

During the development of the C.A.P. program, questions and concerns arose as to the impact that the C.A.P. program might have on court costs not anticipated and budgeted for in premium pay.

This issue needs further analysis and evaluation to determine the impact, and will form part of the report and submission for the year 2000 budget.

Operating Intentions for C.A.P. 2000:

It is the intent of the Toronto Police Service to make submissions for continuing the program in the year 2000. However, this requires further analysis and evaluation for inclusion as part of the operating proposal in the year 2000 budget submissions. Finer details such as program duration need to be discussed and evaluated.

Conclusion:

The Community Action Policing program has been a tremendous success for the communities served by the Toronto Police Service and all of the partners involved. Through collaborative partnerships the Toronto Police Service has met the C.A.P. objective, that being to:

"Improve the quality of life in the community by reducing crime, disorder and enhancing public safety."

Already community members working with local Police Divisions are discussing how, when and where the C.A.P. program should be implemented next year. The Toronto Police Service supports the theme of these discussions and intends to make budget submissions for continuing this program in the year 2000.

The C.A.P. funding has allowed the Toronto Police Service to provide an increased and sustained uniform presence to multiple target areas across the city, while continuing to address all other daily demands for police resources including the requirement to police special events, parades and demonstrations.

Deputy Chief Michael Boyd, Central Field Command (8-5015) will be in attendance to answer any questions the Board may have."

Conclusions:

Mayor Mel Lastman provided his comments to the Board about the positive results of the Community Action Policing program.

The following persons were in attendance and made deputations to the Board:

1. Sam Godfrey *

Parkdale Community Legal Services

2. Laura Cowan *

Street Health

3. Kathy Hardill *

Toronto Disaster Relief Committee

4. Maureen Thompson *

Regent Park Community Health Centre

5. Susan Piggott *

St. Christopher House

6. Margarita Mendez *

Community Social Planning Council

7. Sheena Scott & Mary Birdsell *

Justice for Children & Youth

8. Rick Zerr *

Committee to End Targetted Policing

9. Jeff Rice *

Youth Link Inner City

10. Carol Ann Barr *

The Squeegee Working Youth Mobilization (S.W.Y.M.)

11. Victor Willis *

Parkdale Activity - Recreation Centre

* written submission also provided

Deputy Chief Michael Boyd, Central Field Command, and Inspector Randy Munroe, No. 52 Division, were also in attendance and made a presentation to the Board. They advised that a final report on the results of CAP program community evaluation surveys would be forwarded to the Board for the December 9, 1999 meeting.

The Board considered the following Motion:

THAT, in the year 2000, the CAP program be expanded to a term of 16 weeks, specifically June 1 - September 30, 2000, at a cost of $2.9 million.

The Board discussed the foregoing and subsequently approved the following Motions:

1. THAT the deputations be received;

2. THAT the written submissions provided by the deputants be referred to the Chief of Police for review;

3. THAT the Chief of Police provide the Board with a further report on the following:

(a) response to issues raised in the deputants' written submissions

(b) any deployment changes that may have occurred so that CAP officers were assigned to work in familiar areas

(c) the types/number of tickets issued and charges laid and their results, e.g. convictions, charges withdrawn, etc.

(d) response to allegations that CAP officers seized personal property e.g. sleeping bags;

5. THAT the Chief of Police, or a designate on his behalf, meet with vulnerable groups or their representatives in an attempt to resolve some of the conflicts raised by the deputants regarding the CAP program;

6. THAT the foregoing report be approved;

7. THAT social service agencies in the City of Toronto be consulted with regard to any future CAP initiatives;

8. THAT the Board approve the expansion of the CAP program in the year 2000 to a term of 16 weeks from June 1 to September 30 at a cost of $2.9 million;

9. THAT the Board request the City of Toronto Policy & Finance Committee to approve an additional $2.9 million in operating funds to support the year 2000 CAP program; and

10. THAT consideration of the structure of the year 2000 CAP program be deferred until the Board has received the Chief's final report in December and the additional report requested in Motion #3 .

Contact:

Deputy Chief Michael Boyd, Central Field Command, Toronto Police Service, telephone no. (416) 808-5015 or fax no. (416) 808-5302.

____________________________

Norman Gardner

Chairman

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