Discussion Paper APD The Implications of Current Policing

Discussion Paper APD “The Implications of Current Policing and Policy Trends for Aboriginal Policing and Policy” Draft Presentation Dr. Chris Murphy

Objectives • Provide a critical overview and analysis of the key global and national policing trends that may have an impact on Aboriginal policing and policing policy. • Identify current Aboriginal policing and policy challenges. • Provide recommendations related to possible future directions in policy development (APD). 2

Methodology • Based on author’s experience and expertise in policing policy research. • Critical review of recent relevant general and FN police policing and policy literature. • Interviews with key polcing and policing policy personnel. • Consultant to project: Dr. Don Clairmont – Aboriginal Police researcher and academic. 3

Policing issues will be addressed in the following way: • Selected general policing and policy trends; • Current Aboriginal policing developments • Implications for FN policing and policy possibilities. 4

Report Outline 1) Selected Global and National Policing Issues and Trends. 2) Selected Police Organizational and Managerial Issues. 3) Operational Issues: Alternative Policing Models and Strategies. 4) Policy Implications and Possibilities. 5

Global-National Policy Issues and Trends International Organized Crime • More global – national- local linkages • New international org crime groups: • Increasing rewards / opportunities for smuggling goods and people National Security • Post 9/11 – now “security” and crime • International and domestic terrorism • Linkages to global crime • Local community as suspect location • Community surveillance and intelligence gathering 6

Emergency and Crisis Policing • • • Natural and social causes Climate change Pandemics Terrorist attacks Accidents Political action 7

Implications for Police and Policing • • • Requires a more sophisticated and complex police response capacity. Collaborative policing responses. Investment in preventative and investigative resources. National security / impact on local police operations. Surveillance and intelligence functions / tensions for local police. Broaden scope and skill requirements. 8

Aboriginal Policing • • Organized Crime and FN Policing Especially vulnerable some FN communities (border). Criminal gangs well funded and powerful community influence, Mixed community attitudes and support. Extra pressure on FN police. National Security and FN Policing Role and obligations of local FN police, re national security? Local security intelligence function re nation security = potential conflict. Potential national security threat posed by some militant or radical Aboriginal groups. Aboriginal protest – on/off reserve – police role? 9

Emergency and Crisis FN Policing • Is training and education adequate? • Are there developed protocols regarding role and relationships. • Are Aboriginal police part national and provincial emergency planning? • Other Issues ? 10

“Integrated” Policing and Police Integration • Variety of meanings. • Police services more connected, collaborative and coordinated. • Can mean integration of police with other community / private agencies. • Rational: trans-national and jurisdictional, complex crime; and security threats requires a coordinated trans-national police response. • Some integration concerns • (CACP) who governs police integration (the RCMP? ) • Who is responsible and who pays? (Federal / Provincial / Municipal) • Whose policing priorities and loss of local police resources. 11

Implications for Police • Increase integration pressures in the future. • Police invest more resources in collaborative and shared policing activities. • Local police services vs non-local concerns • Training and capacity questions. • Resource demands. Aboriginal Policing • Autonomy of Aboriginal police re other police ? • Variation in expertise and technologies • Protocols 12

Urbanization and Aboriginal Policing? • Canada increasingly an urban society • Approx. 50% of Aboriginal population are urban dwellers. • Numbers of Aboriginal people move to or between urban and rural reserve environment. • Some reserve crime and order issues are products of urban links and vice versa. • More urban Aboriginal reserves ? . • Shifting government policy, re urban Aboriginal services? • Aboriginal police in municipal police services increasing. 13

Implications for Aboriginal Policing • More links between urban police and FNP re. common interests? • Is urban off reserve policing part of APD mandate? • Should APD role extend to insuring adequate police services for Aboriginals who are off reserves? • Should APD have a role with Aboriginal police in municipal police services? 14

Policing Costs and Consequences • Policing costs in Canada – increased yearly • New growth in policing costs • Expensive and expansive government service Drivers of Policing Costs • • Salaries and benefits Expensive technology and equipment. Expanding general and specialized demand for service. Accountability: legal, public and government. Future Trends Increases: in officer costs. • Technology costs. • Demands for police service. 15

Implications for Policing in General /24 • More political and public pressure to manage costs of policing. • More accountability – fiscal and operational – show value for money. • Reducing general “non core” responsibilities of police. • Expand more alternative full police responses. • Increase efficiency of policing? Probable Outcomes /24 • Limited ability to manage police costs. • Reduce public police service • Developing public and private police alternatives. 16

Aboriginal Policing Costs and Consequences • Aboriginal policing cost even higher per capita. • Some special circumstances – help explain. • Future growth in Aboriginal policing cost and resource – may not be sustainable – need more evidence of effectives. • Require better systematic collection of information, evaluation and strategies planning. • Longer term cost saving strategy invest in more preventative and targeted social development – demand reduction. 17

Governance Trends: Public and Political Public Governance and Accountability • Public opinion, changing expectations and declining deference to authority. • Suspicion and scrutiny of all political institutions like the police. • Rights driven public culture. Implications for Police • Mistakes and errors – managed through training and procedures • Public image and perception central to public support. • Professionalism in police will need to develop. 18

• • Political Governance Ongoing debates re police and governance. Complex and unresolved legal, political and judicial issues Police Independence – Ipperwash. National and local Accountability issues. Provincial Governance • Province playing an increasing important role in local police governance. • Provincial standards and processes for many aspects of police operations • Integrated, regional and standardized service models. 19

Municipal Police Governance • Varied practices and relationships. • Police being over or under governed. • Provincial governments are trying to define more clearly. role relations and operations re police services. • Effective municipal police commission can create conditions for police excellence and responsive. 20

Aboriginal Policing and Governance Issues • Share many of the same issues – some unique. • Size, community politics and community expectations, political traditions • Some FNP in some reports suffering from “too much” community governance- political interference. • “Too little” community governance or input in some RCMP FN communities. • Aboriginal Police Boards: don’t directly pay for police services – different and motivation for involvement in costeffectiveness and other governance aspects. • Liability issues of growing concern – re police mistakes, etc. • Supports APD important role supporting First Nation Police Boards Governance? 21

Police Organizational and Managerial Issues and Trends Size Matters: The Future of Small Police Services • • • Factors working against the viability, desirability and effectiveness of small police services. Changing public expectation. Police work – crime less local, more complex. Costly and sophisticated police services increasingly specialized. Provincial standards – hard to meet. Integrated and networked policing standards. Recruiting and career limits. 22

Current Response Trends • National trend to amalgamate and /or regionalize small police services. • Problems – retain local community influence and priorities as part of a regional and a larger police network. • Aboriginal Policing • Renewed pressures on small SA police services. • increasingly be hard to sustain and guarantee equitable police service as the rest of police environment becomes more complex, specialized and standardized. • Need to explore new models of organization such as regionalization, provincialism, partnerships etc. allow for autonomy but also share resources / expertise, etc. with other police services. • Policy question to support small independent SA services even if can’t provide comparable services? • Self government and autonomy may trump efficiency, effectiveness. Provincial position and provincial police re integration unclear. 23

Management Issues Senior Police Management Issues • • • Chief of Police: a complex and demanding position. Multiple demands- limited authority Leadership and management skills required. Turnover and burnout problems. No clear career path / training or development process in Canada. • Attracting / retaining the best – an ongoing challenge. 24

The Core Leadership Challenges • Managing a more complex service in a more demanding and uncertain environment. • Managing and motivating an increasingly young and diverse work force. • Meeting an increasingly diverse set of service expectations with limited resources. • Negotiating a changing role for police in shifting security environment. • Justifying an increasing demand on public purse for costly police services. • Operating effective in a publicly visible and volatile political and media environment. • Maintaining an organizational flexibility and capacity to meet unusual and unexpected demands. • Limited resources require more strategic management and prioritization of police services. 25

Aboriginal Policing • Additional management problems – making Chiefs position even more challenging. • Many are small police services in rural areas. • High service demands. • Complex local politics. • Cultural and tribal differences. • Staff turnover / burnout. • Smaller policing pool to choose from. • Strong chiefs critical to developing competent, professional FN Policy – can’s develop without high caliber police leaders / managers. • Need to explore as a separate problem, but central to future of SA / FNP. 26

The Role of Police Research and Development • Research and development plays an increasingly important role in policing. • Developing new programs. • Operational assessment and evaluation. • Performance measurement. • Strategic planning. • Problem solving Police Research in Canada • Canada – relatively undeveloped, poorly funded, uncoordinated, • limited in capacity and scope and lacking federal or national leadership. • Most done in-house – in larger police services have capacity • Most have limited operational and planning research • Academic interest in applied or policy police research limited. • More support and development – federal leadership needed. 27

Aboriginal Policing Implications /24 • Aboriginal police research – even more limited than non. Aboriginal police research. • Given unique policing challenges, need for more and different research as a source of information, ideas, innovation, assessment and support. • Need to develop an ongoing Aboriginal police research capacity • More inn house policy research – APD. • Support Aboriginal police / research – larger police services? • Develop more capacity with academic research. • Developing connections to larger police research community – recent developments. 28

Performance Assessment and Measurement • Concerns over rising costs, questionable efficiencies, unclear outcomes – demonstrate “value for money” • Expensive public service – little empirical evidence of its effectiveness, efficiency or performance. • A complex exercise - much academic and applied research and policy discussion. • Measures are often imperfect – but process of evaluation – produces a more manageable and accountable police service. Aboriginal Policing Implications • New model of policing – broader and some unconventional expectations and strategies. • Little current systematic measurement, assessment or evaluation being done. • Need to engage in exercise in clarifying roles, goals, expectations and activities and develop community specific measures, standards and benchmarks (strategic plan? ). 29

Police Human Resource Issues • General demographic trends, police now in the middle of very active retirement and recruiting period – stabilize over next 5 years (2010). • Canadian police with a relatively young and inexperienced officer core. • Concerned about both the loss of experience and seniority. • Diversity of policing and special recruiting challenges. • • • Recruiting Challenges Competition now for suitable candidates – entry standards become more flexible. Recruit in new populations. Variety of pro-active recruiting responses. Talk of standardizing police recruiting and training. Other related human resource challenges, promotion, retention, “training” and career motivation raised by this cohort issue. 30

Aboriginal Policing • Similar general recruiting problems , though bigger potential youth population. • Special FN recruiting problems / challenges? • Some special initiatives (RCMP), others required ? • Role of APD in this process? 31

Operational Policing: Alternative Service Models and Strategies Signal Crime and Disorder and Reassurance Policing • Explain the “diffuse, yet pervasive, sense of fear” experienced by many citizens. • Certain criminal events (public) act as “signals” – signs of increased criminogenic risk. • Signal disorder – criminal or antisocial events seen as a problem - “warning signal”. • Create public fear and result in behavioral and attitude shift. • Increase sense of risk and anxiety among a given population. 32

Reassurance Policing • England’s new policing model. • Policing model which seeks to improve public confidence in public safety and in policing. • Reassure public that some-thing tangible is being done to address their crime and order concerns. • Police emphasize visible, active and public response. • Local communities assist in identifying their priority crime and disorder issues in their neighborhood – • Police and community tackle together with the police and other public services and partners. • Develop a problem-oriented responses to anti-social problems particularly. 33

Relevance to Aboriginal Policing • EKOS Community Survey • Reveals , major public concern on reserves about public and personal safety. • Say they have too few police, absence of police presence. • Poor ranking of police response – especially in supplying information and responding to calls. • Poor relationship with community? • Community say want faster response, more community police interaction and more police patrol. • Few want more law enforcement. • Supports a community-based reassurance policing approach: emphasizing police visibility, responsiveness, information and involvement. 34

Alternative Police Service Strategies • Police Based Community Policing • Community Based Policing • • • “ Police” Based Community Policing Models Most investment in “police response” to community crime, safety and order problems. Law enforcement as central response to most community crime, safety and order problems. Little active linkage between police and community and other agencies. Police leaders of community response to crime and safety problems. Sound policing but limited sustained impact on crime and order problems – management. 35

Community Based Policing Responses • More holistic approach to crime, order and safety problems. • Complex view of causes of crime / disorder. • Response is a mixture of social prevention, community development and law enforcement. • Develop community capacity to strengthen social institutions, family , schools, social services. • Multi-agency response, police are central but not only or necessarily primary response. • Police in partnering, development role • Invests in community as part of policing, not just police. • Appealing in theory – difficult in practice. 36

Post Script: Community Policing Evolves Community policing no longer used to describe progressive policing, either assumed to be a basis for police service or has been rejected as ineffective in some urban high crime environments. • Growing demand for more effective crime control and public safety policing, want a more aggressive and effective policing – can be community based. • Policing response driven more by information gathering and crime and problem analysis ie intelligence led polcing and problem oriented polcing • more results focus and less process oriented. 37

Alternative Service Delivery • • Private Security Growing use of private security in public and private settings. Perform a variety of traditional and new policing tasks Indication of need and demand for lower cost or specialized policing and security – “niche” policing. Advantage – customer driven – more flexibility than public police, special skills. Can be seen as a polcing problem or solution. Police response to P. S. mixed – mostly critical. Standards, justice, accountability and cost concerns Alternative approach – recognizes their legitimacy and utility, answer to some un-adressed policing problems. Include as part of police response. 38

Aboriginal Policing • Private security use limited. • Potential for deployment re band by law enforcement – others? • A way of providing some police services otherwise unavailable. • Desirability, governance issues, relationship to police service needs exploration. • More exploration of this issue? 39

Tiered Policing • Concept of creating different types of police with different roles, responsibilities and powers. • Different skill sets, entry requirements, training and pay scales • More flexibility in police response, • Britain extensive use of Community Constables (UK) • Arguments for: • Some tasks do not require full trained police officers for low risk laborintensive police work. • Regular police not cost efficient - so neglect some police service due to high cost or concede to private security. • Modified police function allow recruit more selective • Arguments against: • Police resistance / union led – safety and justice reasons. • Costs will not be saved. • Legal liability. • Governance issues. 40

Aboriginal Policing • • History of tiered policing in Aboriginal policing. Special constables, 3 B, etc. Lesson learned? Special case, re community expectations for 24/7 police presence and response in rural FN communities. • Special case, re broad social order and security problems and need for community based response – recruit from community – different skills and standards – more of a community based response. • Community / safety / service officers (CSO) being explored by RCMP / APD – promising new policy and program to address special policing needs in FN communities. • Some concerns, re jurisdiction, liability, job descriptions, governance and cost management. 41

Problem Oriented Policing • Promising police response strategy to policing problems – (SARA). • Strategic, focused and collaborative problem solving – pragmatic and practical. • More theory than practice in general policing • If developed and implemented appropriately can be very effective – more concrete than vague community policing strategies – has clear outcomes. • Combines community and police information and resources in joint problem solving. Aboriginal Policing: • FNP suitable environment for creative culturally appropriate policing strategies like POP. • Requires a supportive, organizational and managed environment. • Should be encouraged and developed. 42

From Police to Policing • General trend and direction of the Canadian police environment. Moving from a police centered, homogenous, independent, separate police agencies limited by jurisdiction, law and resources, decentralized in governance and operation and focused on crime control. To • A diverse, tiered and multi-agency policing environment with expansive policing functions, including security, order and crime functions, working in global and cross jurisdictional relationship, organized and integrated in policing complexes with increasingly specialized and under public and legal scrutiny. 43

5. Implications: FNPP and APD FNPP Policy Goals • Providing First Nations communities with policing services equal in quality to those provided in non-First Nations communities; • Providing First Nations communities with police services suited to their needs and culture; • Providing First Nations police services are responsible for enforcing all laws normally assigned to police officers; • Accommodating local and regional variations in policing services; and • Ensuring First Nations policing services are consistent with generally accepted practice and due process related to public complaints, grievances and redress. 44

APD Functions • Negotiating / re-negotiating – tripartite agreement. • Managing and administering the First Nations Policing Program. • Providing ongoing support to First Nations police services and police boards to assist them in addressing the formative and developmental challenges they are facing; and facilitating linkages which promote effective, efficient and culturally appropriate policing services for Aboriginal peoples on and off-reserve. 45

So What? : Implications for FNP Policy &APD • FNP will exist in an increasingly complicated, unstable and demanding policing environment. • More pressure on FNP to provide more cost effective, efficient, responsive and professional police services. • Renewed pressures on all aspect of FN police services, some more directly affected than others. • So, will require more external support, advice, training, direction in order to meet policy goals, community expectation and policing standards. • This would require an enhanced APD role in providing these kinds of support services, etc. – either in house or through contract, etc. – other implications? • If policy goals of FNPP are to be met APD needs to develop in these areas next. 46

A Renewed Role for APD in FPP • • • Managing and administering FNP Supporting and promoting effective policing Strategic planning at local and national level. Research and development Audit and evaluation Training and recruitment Other ? 47

• • Multiple Roles of APD Funder and Auditor Developmental policing partner Governance functions Other? Policy Considerations and Implications? • Role of APD – changes to role need to be negotiated in relation to : • Aboriginal communities and FN police, • Province governance policing responsibilities, • RCMP – FNP policy. 48