Establishment of a Protocol Governing Future Special
Events in the City of Toronto that Require Extensive
Policing by the Toronto Police Service
The Policy and Finance Committee recommends the adoption of the following report (December 21, 1999) from the
Chief Financial Officer and Treasurer:
Purpose:
To respond to Policy and Finance Committee's request at its meeting of November 10, 1999, that the Chief Financial
Officer and Treasurer report on the establishment of a protocol for governing future special events requiring extensive
policing within the City of Toronto.
Financial Implications:
There are no specific financial implications associated with the recommendations of this report.
Recommendations:
It is recommended that the:
(1) Toronto Police Service be requested to work with representatives from the provincial and federal Solicitor General
Offices to establish operational protocols governing policing requirements and expected practises relating to future
situations requiring policing services for events not specific to municipal occurrences
(2) Toronto Police Service continue to establish unique account codes for tracking all direct and indirect expenditures in
2000 and future operating budgets related to any future demonstrations or other occurrences for the purposes of
approaching other levels of government for compensation for these activities; and
(3) Chief Financial Officer and Treasurer develop a financial control policy respecting all Agencies, Boards and
Commissions' operating and capital budget requirements and report back to the Policy and Finance Committee prior to
final Council approval of the 2000 operating budget.
Council Reference/Background/History:
The Policy and Finance Committee, on November 10, 1999, reviewed a communication dated October 8, 1999, from the
Toronto Police Services Board regarding the establishment of a protocol governing issues related to future special events in
the City of Toronto that require extensive policing by the Toronto Police Services. The Chief Financial Officer and
Treasurer was requested to report back to the Policy and Finance Committee on this matter.
Background:
At its meeting of September 23, 1999, the Toronto Police Services Board received a report from the Chief of Police
regarding the cost of the Serbian Demonstrations during the Spring of 1999. It was noted in this report that the direct costs
associated with the Kosovo Crisis totalled $1.3 million and consisted primarily of staffing related labour expenditures. It
was further noted that demonstrations that took place at the U.S. Consulate twice daily for the period of March 24, 1999, to
June 17,1999, required this extensive police presence. Some assistance with the policing requirements during this time was
also provided from other police services including Durham Regional Police, Peel Regional Police Services and the RCMP.
At its meeting of September 23, 1999, the Toronto Police Services Board also received a communication from The
Honourable Arthur C. Eggleton, Minister of National Defence. This letter stated that the federal government was
sympathetic to Toronto Police Services concerns over the extraordinary costs incurred for the Kosovo Crisis. The Minister
advised, however, that the Department of National Defence was not responsible for the security of foreign consulates or
embassies and therefore could not provide any financial assistance for these expenditures. The Minister concluded that
Toronto Police Service contact the Solicitor General for Canada noting that under certain circumstances the RCMP may
become involved in the security of foreign consulates and embassies. A further communication was received from the
Chief of Protocol, Department of Foreign Affairs and International Trade that also suggested that Toronto Police Service
contact the Office of the Solicitor General for Canada regarding the Serbian Demonstrations.
The Toronto Police Services Board received the reports described above and approved a number of motions on the issue.
First, the Board recommended that the Policy and Finance Committee be requested to establish a protocol between the City
of Toronto, and both the provincial and federal governments, regarding future situations requiring policing services for
foreign governments, and, particularly the financial impact to the Toronto Police Service. Second, the Board requested that
the protocol be established prior to completing the Toronto Police Services 2000 operating budget. At its meeting of
November 10, 1999 the Policy and Finance Committee received these reports and recommendations, and requested that the
Chief Financial Officer and Treasurer report on the establishment of this protocol at its next scheduled meeting of
December 7, 1999. This report is written in response to this request.
Discussion:
The establishment of a policing protocol for demonstrations and major events that occur within the Greater Toronto Area
has two elements: a) financial impacts; and, b) operational requirements.
(a) Financial Impacts:
An implicit understanding of monitoring and reporting requirements already exists with respect to expenditures for all
Agencies, Boards and Commissions. These entities have responsibility for identification and monitoring of all expenditures
within the Council approved funding envelope including those arising from the occurrence of extraordinary, unbudgeted
circumstances such as the Kosovo Crisis. All City Agencies, Boards and Commissions advise Council where appropriate
regarding unplanned expenditure pressures when the costs are deemed to be the responsibility of entities outside of the City
(e.g. NATO demonstrations). This report therefore recommends that existing budgeting and monitoring practises continue.
It is further recommended that appropriate accounts be established to identify and track all associated costs thereby making
detailed back-up information available for pursuing compensation.
Unfortunately, while there is an implicit expectation that all Agencies, Boards and Commissions will appropriately
monitor and report on all expenditure impacts for any item in any given budget year, there is a need for making this
explicit. A review of the legislative requirements respecting liabilities incurred by the City's Agencies, Boards and
Commissions as a result of overexpenditures is therefore necessary. A protocol respecting these issues for all Agencies,
Boards and Commissions is required. As these needs are beyond the scope of the specific issue of protocols for
extraordinary policing activities, it is recommended that a report that addresses financial protocols for all Agencies, Boards
and Commissions be submitted to the Policy and Finance Committee for consideration prior to Council approval of the
2000 operating budget.
(b) Operational Requirements:
The Chief of Police is responsible for determining what is an appropriate policing level for demonstrations or major
events. The Chief of Police is also responsible for deciding between competing priorities when determining where to
concentrate front line personnel and defending these actions. Thus, any protocol regarding how and where police presence
is required for extraordinary events is the responsibility of the Chief of Police. This report therefore recommends that the
Toronto Police Service be requested to liase with the respective offices of the provincial and federal solicitor generals to
establish operational requirements for dealing with major events such as the Serbian Demonstrations.
Conclusion:
At its meeting of November 10, 1999, the Policy and Finance Committee requested a report from the Chief Financial
Officer and Treasurer regarding establishment of a protocol governing future special events in the City of Toronto that
require extensive policing by Toronto Police Service. This report explains that protocols on financial impacts relating to
extraordinary items are already implicit as part of the City's formal variance reporting process, but recommends that this be
made formal through a policy governing Agencies, Boards and Commissions. In the interim, Toronto Police Service is
requested to continue to identify unique accounts for tracking such expenditures in the event of future occurrences. Finally,
the report notes that it would be expected that formal protocols would also include operational impacts and recommends
that the Chief of Police pursue this possibility with representatives from other levels of governments.
Contact Names:
Al Horsman 397-4532
Carmine Bruno 397-4218
Glenn Vollebregt 392-8095
