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Los Angeles Webster Commission records, 1931-1992
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Toronto environmental scan, 1992-05-28
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Toronto environmental scan, 1992-05-28
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Content
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1992 ENVIRONMENT AL SCAN
AND
1993 FORCE GOALS AND OBJECTIVES
May 28, 1992
METRO POLIT AN TORONTO POLICE
CORPORATE PLANNING UNIT
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METRO POLIT AN TORONTO POLICE
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1992 ENVIRONMENT AL SCAN
AND
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1993 FORCE GOALS AND OBJECTIVES
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May 28, 1992
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© METRO POLIT AN TORONTO POLICE
CORPORA TE PLANNING UNIT
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TABLE OF CONTENTS
Page
Message from the Chair of the Metropolitan Toronto Police Services Board ix
Message from the Chief of Police x
Beyond 2000 ... The Strategic Plan of the Metropolitan Toronto Police xii
1993 Force Goals and Objectives xiv
I.
II.
DEMOGRAPHIC AND SOCIAL TRENDS
Highlights
A. Projections of Growth in Metropolitan Toronto and
Surrounding Regions
B. Aging of the Population
C. Immigration
D. Race Relations
E. Demographic and Social Characteristics of
Police Divisions and Districts in Metropolitan Toronto
Implications for Policing Services
ECONOMIC TRENDS
Highlights
A. Job Losses / Unemployment
B. Crime and the Economy .
C. Welfare Disbursements
D. Unemployment Insurance Payouts
E. Food Banks
F. Poverty and Women
G. Economic Structure
H. Housing
I. Office Space / Construction
J. Cross-Border Shopping
K. Sunday Shoppping
L. World Economy and Freer Trade
M. Interest Rates, Inflation and Economic Recovery
Implications for Policing Services
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4
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8
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f:
TABLE OF CONTENTS (Cont'd)
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III. CRIME TRENDS
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Highlights
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A Historical Patterns
37
B. Rates for Comparisons
38
C. Changes in Major Offence Groups 39
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D. Changes in Specific Categories of Crime 40
E. Crimes of Violence
40
F. Use of Weapons and Injury of Crime Victims 41
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G. Persons Arrested and Charged 42
H. Drug Related Crimes
44
I. Crimes Occurring on School Premises
46
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J. Trends Across Police Districts 47
K. Crime in Metropolitan Toronto and Selected Canadian Cities 49
Implications for Policing Services
51
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IV.
VICTIMIZATION AND SPECIAL GROUPS AT RISK 52
Highlights
52
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A. Victimization - General
53
B. Population Groups at Special Risk
55
I Implications for Policing Services
62
V.
LEGISLATIVE IMPACTS AND POLITICAL TRENDS
63 I
Highlights
63
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A. Police Services Act
63
B. Use of Force
65
C. Gun Law Amendments (Bill C-17)
66
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D. Court Security (Bill 187)
66
E. Harassment in the Workplace
66
F. Hate Crime Statistics
67
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G. Proceeds of Crime Legislation (Bill C-61)
67
H. Continuing Effect of Earlier Influences
68
I. Political Trends
68
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Implications for Policing Services
69
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TABLE OF CONTENTS (Cont'd)
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VI. PUBLIC PERCEPTIONS
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Highlights
71
A. Sources of Public Perceptions
72
B. Perceptions of Safety
72
C. Perceptions of Police
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D. Public Complaints
76
E. Public Consultation Presentations
76
Implications for Policing Services
79
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VII. URBAN TRENDS
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Highlights
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A. Metropolitan Toronto Strategic Plan
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B. Cordon Counts and Public Transit
81
C. Conventions / Tourism
84
D. Private Policing
85
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E. Potential for Deterioration of the City
87
F. Compact Urban Form
87
Implications for Policing Services
89
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VIII. TRAFFIC
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Highlights
91
Implications for Policing Services
94
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IX. TECHNOLOGY
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Highlights
95
Implications for Policing Services-
98
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X.
TABLE OF CONTENTS (Cont'd)
POLICE SERVICE REQUIREMENTS
Highlights
A. Response to Calls for Service
B. 1991 Human Resource Management
C. 1992-93 Human Resource Management
D. Organizational Design
Implications for Policing Services
XI. FINANCIAL RESOURCES
Highlights
A. Accountability
B. Police Funding
C. Police Expenditures
D. Ex,ense Components
Implications for Policing Services
XII. 1991 YEAR END ANALYSIS
Highlights
A. Background
B. Findings: Year-End Reports
C. Findings: Pilot Project
APPENDIX A: Sources of Reference
APPENDIX B: Public Forum Meeting - January 16, 1992
APPENDIX C: Participants - Public Consultation, April 3, 1992
APPENDIX D: Members of the External Scanning Committee
APPENDIX E: Corporate Planning Members involved in
the 1992 Environmental Scan
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FIGURES
1.1 Population of Metro and Surrounding Regions by Age (1991)
1.2 Census and Projected Population: Metro Toronto and
Surrounding Regions
1.3 Projected Population of Metro Toronto by Four Age Groups
1986-2011
1.4 Number of New Landed Immigrants and Intended Destination
1981-1991
1.5 Official Language Ability of New Landed Immigrants to
Metro Toronto 1987-1991
1.6 New Landed Immigrants to Metro Toronto: Area of Last
Permanent Residence
1.7 Police Divisions & Popuiation - Metropolitan Toronto 1991
1.8 % Population by Age and Division - 1990
1.9 % Population by Housing Type and Division - 1990
1. 10 % Households by Housing Type and Division - 1990
1.11 Household Size by Housing Type and Division - 1990
1.12 % Type of Social Unit by Division - 1990
3.1 Total Criminal Code Offences
Metropolitan Toronto: 1966-1991
Page
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13
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37
3.2
3.3
Total Increase in Criminal Code Offences and Crime Rate: 1987-1991 38
3.4
Number of Offences Per 1000 Population
Metro Toronto: 1987-1991
% Change in Number of Crimes by Offence Groups
3.5 Major Offence Categories: % of Total Crimes
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FIGURES (Cont'd)
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3.6 Number of Offences
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Major Offence Groups - 1987 & 1991 41
3.7 Young Persons & Adults Charged for Criminal Code Offences:
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% Change 1990-91 44
3.8 prug Offences and Number of Persons Arrested
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1987, 1990& 1991 45
3.9 . Drug Offences: Arrest Rate by Age Group by Sex - 1991 46
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3.10 District % of Total Offences 1987-1991 47
4.1 Male Victims - Selected Violent Crimes by Age (1987-1991) 54
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4.2 Female Victims - Selected Violent Crimes by Age (1987-1991) 54
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6.1 Perceptions of Safety
73
6.2 Public Perceptions of Police Service 74 I
6.3 Perceptions of Police
75
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7.1 Number of Vehicle Trips: AM & PM Peak Periods Cordon Count 82
7.2 Person Trips Crossing Metro Boundary: AM Peak Period 83 I
7.3 Metro Employment & TIC Ridership Comparison 84
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7.4 Private Investigator & Security Guard Licences
86
8.1 Number of Traffic Accidents by Month 1990 and 1991 92
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8.2 Distribution of Traffic Accidents by Hours of the Day: 1989,
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1990 & 1991
93
10.1 Calls for Service: Emergency, Non-Emergency & Total Calls 100
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10.2 Calls for Service: Modes of Response 101
10.3 Uniform/Civilian Strength 1982-1991 105
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10.4
10.5
10.6
10.7
10.8
10.9
10.10
FIGURES (Cont'd)
Uniform Constables 1987-1991
Uniform Middle and Senior Management
1987-1991
Criminal Code Offences/Strength Ratio
1982 to 1991
Service of Uniform Police Officers
1990-1992 Comparison
Age of Uniform Police Officers
1990(Nov)-1992(Feb) Comparison
Retirement Projections 1991-1994
Age & Service Retirement Profile (1985-1990)
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TABLES
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1.1 Population/Percentage of Population by Age and Division - 1990 15
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1.2 Population/Percentage of Population by Housing Type
and Division - 1990 17
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1.3 Number /Percentage of Households by Housing Type
and Division - 1990 19
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1.4 Average Size of Households by Housing Type and Division - 1990 21
1.5 Type/Percentage of Social Units by Division - 1990 23
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2.1 Toronto CMA: Unemployment and Participation Rates 25
2.2 Toronto District U.l.C. Payouts (net) 27
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2.3 Metropolitan Toronto: Employment by Job Category 30
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3.1 Criminal Code Offence Groups - % of Total Number of Crimes
and Change 40
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3.2 Number of Robbery & Other Assaults and Injury of Crime Victims
1987, 1990, & 1991 42
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3.3 Persons Arrested by Age Group
Total of 6 Major Offences, 1987-1991 43
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3.4 Persons Arrested Per 1000 Population
Total of 6 Major Offences, 1987-1991 43
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3.5 Crimes Occurring in School Premises 46
3.6 Summary of Comparison: 1987-1991 48
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3.7 Crime Rates (number of offences per 10,000 population) and Police Strength
in Selected Canadian Municipalities 50
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4.1 Domestic Violence 56
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8.1 Number of Persons Injured/Killed in Traffic Accidents 93
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MESSAGE FROM
TI-IE CHAIR OF TI-IE METROPOLlTAN TORONTO POLlCE SERVICES BOARD
This year, the environmental scanning
process has taken on a more dynamic
role to help us face hard choices in a
more demanding climate.
In the 1990s, the only constant has been
change. While the concern for safety in
the streets has not changed, the policing
environment is transforming at an ever
increasing pace. Demographic changes,
economic concerns and international
pressures all combine to create complex
and dynamic challenges for policing. The
Metropolitan Toronto Police Services
Board is committed to ensuring that our
Force is equipped to meet these
demands.
We have engaged in a long term planning
process. Our report: "Beyond 2000 .... The
Strategic Plan of the Metropolitan
Toronto Police Force", sets forth the plan
for reshaping our Force into a modem,
neighbourhood based police organization.
The environmental scan is the foundation
of the annual planning process and sets
our Goals and Objectives for the follow
ing year. As such, the scan document is a
working document which sets spending
priorities as well as the direction for
operational decisions. At all times, it must
remain consistent with the long term plan
and it must be responsive to the needs
and expectations of the public we serve
and the members of the Force who pro
vide that service.
IX
This year's Goals and ·objectives reflect a
stronger focus on community cooperation,
local concerns and responsiveness to
diverse community needs. A priority is
placed on state of the art training and
technology to enable the members of the
Force to fulfill their responsibilities effec
tively and efficiently.
The complexities of the neighbourhood
based police force will also make severe
demands on management, not only to
manage information flows or budgets, but
also in ensuring that local community
needs and expectations are met.
The process of transformation has started.
"Beyond 2000 ... " seeks to enhance the
traditional partnership between the com
munity and the police which is at the
heart of neighbourhood policing. Para
doxically, modernizing also means getting
back to basics. The sense of safety in the
streets depends very much on how well
we address local, neighbourhood con
cerns. The 1992 Environmental Scan sets
the course for a flexible and effective
response in a rapidly changing environ
ment.
On behalf of the Police Services Board, I
extend our appreciation to the Environ
mental Scan Committee for their dedi-
cated and professional role in this critical
planning pr?;
~u'W\
an Eng
Chair
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MESSAGE FROM
THE CHIEF OF POLICE
The 1992 Environmental Scan presents the challenges facing our community during a
very difficult period. Not only are the economic constraints we face severe, but the
complex urban problems of our times are placing extra pressures on policing and other
public institutions. The 1993 Goals and Objectives specify what our priorities will be as
we address those challenges with limited resources. These Goals and Objectives provide
the terms of reference guiding each unit within the Metropolitan Toronto Police Force in
planning and delivering services.
In 1993, as in the past two years, our top priority will be enhancing the safety and security
of the public. We will seek greater community involvement . in preventing crime and
violence. Because the budgetary constraints are more severe than in recent years, the
effective manar,ement of all resources (personnel, finances, information, technology) will
remain a primary focus of everything we do.
We have made a commitment to the Beyond 2000 long term plan for neighbourhood
policing. In 1993 we will embark on a process of change to a more decentralized
organization which has stronger partnerships with members of the public and
strategic alliances with a variety of agencies and organizations. In our multicultural
and complex urban society, it is essential that the public join us in establishing
priorities and developing solutions to major problems.
I want to commend members of the Force for the professionalism they have
displayed in recent years in delivering a high quality service consistent with Force
Goals and Objectives. The strides we have made in such areas as community
policing, investigative activities, employment equity, race relations, . alternate
response to calls for service, programs for vulnerable groups and professional
standards, to name only a few, are deserving of great praise. The problems we
face in a metropolitan area as diverse as ours will not be easily solved. They are
complex and require a total community effort.
Much work is ahead of us. Implementation of Beyond 2000 will soon begin and will
require many adjustments. I am confident that members of the Force will join with
me in offering assistance as these changes evolve. Your suggestions and
concerns should be communicated; your input will be welcomed.
X
;·,
Now, as we begin our preparation for 1993 with these Goals and Objectives, it is
essential that each unit within the Force identify its priorities and prepare strategies
to address the major concerns. While recognizing the limits of our resources, we
must determine what is most important for our resources to accomplish. It is
equally important for units to determine how they will evaluate their achievements
in the coming year.
My Command Officers and I wish to thank Staff Superintendent J. Grant Waddell,
Chairman, and the members of the Environmental Scan Committee for their
significant contribution to the Force through the Environmental Scan process. We
also wish to thank the members of Corporate Planning for their efforts co
ordinating the planning process and in preparing this document.
~~/2
't'fifef · of Police
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:
:
Beyond 2000
The Long-Range Strategy for Policing in Metropolitan Toronto
The Beyond 2000 philosophy is intended to furnish a model that will carry the Force
into the next century. It involves some fundamental changes to the way the Force
carries out its duties. In particular, the philosophy of neighbourhood policing, with
its emphasis on public consultation and local, decentralized decision-making, will
expand and re-define the role of the Force - and of the police officer - in society.
Anticipated changes also include:
• the re-defining of policing boundaries within the municipality, the down-sizing of
the larger divisions, and a review of police facilities;
• the updating of technological investments ( especially relative to communication
and information retrieval);
• changes in a broad range of human resources processes and the re-defining ( and
often the broadening) of members' roles within the organization;
• introduction of alternate means of providing service and responding to demands
for service; and,
• changes in the training given to members and the systems by which they are
evaluated.
This process, the influence of which stretches well into the next century, involves
fundamental changes to the structure of the Force. It is absolutely essential,
therefore, that all short-term decisions made by the Force be consistent with the
strategic plan. Failure to follow such a policy could result in disruption and waste
in the long term.
This means that all structural changes, all changes to regulations and policies, and
all purchases beyond those needed to operate the organization from day to day, will
have to be examined in terms of their role in the future of the Force.
Not only does this create a need for responsible long-range financial planning, but
virtually all short-term decisions must coincide with the long-term goals. A
comprehensive capital plan must certainly be framed for the organization so that
money is spent on initiatives or resources that fit the concept of neighbourhood
policing. Just as importantly, though, consideration of Force goals, objectives,
policies and procedures must conform to the Beyond 2000 vision.
Xll
For this reason, the Force Goals and Objectives for 1993 have been formulated for
the future with Beyond 2000 in mind. The Goals and Objectives are designed to
guide us one year into the future, and to help keep consistent the direction being
followed by the Force. Setting them without consideration of the strategic plan of
the Force would have been irresponsible.
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1993 FORCE GOALS AND OBJECfIVES
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BEYOND2()()()
AND THE
1993 FORCE GOALS AND OBJECTIVES
In 1993, the Metropolitan Toronto Police Force will begin to implement the first
phase of the Beyond 2000 long-range plan. This year's ·annual process of planning
Force goals and objectives, and unit strategies, must ensure consistency with the
long-range plan. Although implementation of the Beyond 2000 vision will take
several years, the corporate goals and objectives have been designed so that the 1993
service priorities are compatible with the Beyond 2000 principles.
The foundation of the Beyond 2000 vision is neighbourhood policing. This is an
extension of the community-based policing strategies implemented by the Force in
recent years. Both require the development of closer ties with members of the
public for joint priority-setting and problem-solving. Both require co-operation with
a variety of agencies and organizations in developing a range of strategies to address
high priority safety concerns.
Neighbourhood policing will ensure that police resources and support systems are
organized and allocated to strengthen the relationships between police and the
people who live and work within specific geographic areas. This is a recognition of
the cosmopolitan nature of the people of Metropolitan Toronto and the diversity of
its many neighbourhoods. It is a given that not only will the problems and
challenges vary in different neighbourhoods, but the priorities of the people and the
solutions will also differ. Decentralized decision-making and flexibility in service
delivery are essential.
Neighbourhood officers will be the most important resource in the delivery of police
service. These officers will be expected to get to know the members of ethnic/racial
communities and diverse groups living within the neighbourhoods to which they are
assigned. They will work closely with representatives of various communities and
groups to enhance public safety. The management, support and specialized services
of the police force will facilitate the work of the neighbourhood officer.
The implementation of Beyond 2000 will begin during 1993 and will be phased in
over several years. Activities and programs introduced during the last few years
consistent with the philosophy of enhanced responsiveness to public needs and
mutual problem-solving will be continued and strengthened.
XIV
GOAL 1: ENHANCE THE SAFETY AND SECURITY OF THE PUBLIC AND
ADDRESS RELATED CONCERNS AND PRIORITIES
Objectives:
1. COMMUNITY CO-OPERATION IN CRIME PREVENTION
Promote police and community co-operation in crime prevention
to reduce risks, minimize violence and address fears.
2. PRIORITIZE RESOURCES FOR EFFECTIVE RESPONSE
Identify, with the community on an on-going basis, areas with the
· greatest need for police service, and prioritize resources to enhance
the safety of individuals and property through law enforcement,
informati9n sharing, joint problem-solving and inter-agency _ co
operation.
3. PREVENTION OF VIOLENCE AGAINST GROUPS AT SPECIAL RISK
Involve the community to develop and strengthen special
prevention, public education and officer training programs designed
to prevent violence against groups at special risk due to age,
gender, ethnicity, race, religion, sexual orientation or other specific
circumstances.
4. REDUCED DRUG DEMAND AND SUPPLY
Reduce demand for drugs through co-ordinated prevention and
education efforts with all levels of government, community
organizations and agencies; reduce supply and related violence
through continued investigative and enforcement activities.
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GOAL 2: ENHANCE RESPONSIVENESS TO COMMUNI1Y NEEDS
Objectives:
1. NEIGHBOURHOOD POLICING
Begin modifications across the Force to ~nsure that neighbourhood
policing is effectively launched in accordance with the Beyond 2000
implementation schedule.
2. ALTERNATE RESPONSE MECHANISMS (LOW PRIORITY CALI.S)
Continue to develop alternate methods of response, where possible,
for lower priority calls for service.
3. PARTNERSHIP, PRIORITY-SETTING AND PROBLEM-SOLVING WITH
PUBLIC
Strengthen partnerships with neighbourhood representatives to help
establish local priorities, solve local problems and evaluate the
results of co-operative efforts.
4. TIES WITH DIVERSE GROUPS, ABORIGINAL PEOPLES AND ETHNIC/
RACIAL COMMUNITIES
Continue to build ties for co-operative problem-solving with
members of diverse groups, aboriginal peoples and ethnic/racial
communities.
5. INTER-AGENCY ALLIANCES
Establish alliances with other service providers and community
organizations to address mutual community concerns, such as
family violence, drug use and youth issues.
xvi
~---- - --- -------- ------ - - --------~ -
GOAL 3: MANAGE RESOURCES TO DELIVER EFFECTIVE SERVICE
CONSISTENT WITH EXTERNAL AND INTERNAL NEEDS
Objectives:
1. HUMAN RESOURCES
Enhance the capability of the human resources of the organization
to meet the changing expectations in the delivery of police services
by:
(a) Effective Performance Management
Implement performance management and appraisal systems which
recognize the full range of job and skill requirements and the need
for creative problem-solving.
(b) Training, Development and Education
Supply training and educational opportunities to ensure on-going
skill development is compatible with changing job requirements
and the long-term career development of the individual employee.
Provide training to emphasize skills to enhance positive relations
and effective service to groups at special risk, diverse groups,
aborignal peoples and ethnic/racial communities.
(c) Quality of Work Life
Enhance the quality of work life for members by supporting
participatory management practices; encouraging innovation and
creativity; providing a supportive working environment where
employee contributions are a valued and integral part of decision
making; and continuing the development of workplace harassment
policies.
(d) Occupational Health and Safety
Continue the corporate development and implementation of
occupational health and safety policies, procedures and programs.
xvii
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2. FINANCIAL RESOURCES
Ensure fiscal responsibility by:
(a) Cost-Effective Measures
Ensure all levels of staff initiate and adhere to cost-effective
measures.
Optimize use of resources by joining with other levels of
government, their agencies and the community to achieve more
cost-effective service delivery.
(b) Targeting Spending to Objectives
Ensure that program funding and spending is consistent with
priorities derived from the Force's goals and objectives.
( c) Budget Contra]
Continue to develop policies and procedures to ensure that
adequate budget controls and measurements are maintained at the
unit level and are consistent with Force priorities.
3. TECHNOLOGY AND INFORMATION RESOURCES
(a) Networks and Information Access
Continue to develop information systems capable of supporting
neighbourhood policing in a decentralized environment by
providing tools to make members more productive and responsive
to service public needs.
(b) Metropolis
Continue the implementation of the Metropolis long-term
technology strategy which addresses the information needs of the
Force in a complete, accurate, timely, force-wide and secure
system.
XVlll
GOAL 4: ENHANCE OUR ABILITY TO ANALYZE, PREVENT AND SOLVE
CRIME
Objectives:
1. INFORMATION AND COMMUNICATION
Utilize networks and information systems to better analyze crimes
and related problems and to assist in problem-solving.
2. PUBLIC EDUCATION
Develop mechanisms for on-going communication with the public
about crime trends and appropriate prevention measures.
3. TRAINING
Strengthen the professional crime-solving skills of appropriate
personnel by ensuring that they receive training (provided in-house
or by other agencies) in the most up-to-date techniques.
4. CO-ORDINATION AND CO-OPERATION WITH OTHER AGENCIES
Develop and maintain on-going links with other agencies and
organizations on a local, national, and international level in the
analysis and investigation of crimes.
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GOAL S: CO-ORDINATE EFFORTS FOR TRAFFIC MANAGEMENT AND
URBAN DESIGN
Objectives:
1. ENVIRONMENTAL DESIGN FOR PUBLIC SAFETY
Participate in co-ordinated planning and environmental design
activities at the local and municipal levels so that public safety and
related community concerns are addressed and dangers and hazards
are minimized throughout Metropolitan Toronto.
2. COMMUNITY PARTNERSHIP FOR TRAFFIC SAFETY
In co-operation with community representatives, develop or
enhance special traffic programs designed to improve driver and
pedestrian education, with an emphasis on promoting traffic safety.
3. TRAFFIC POLICIES TO ADDRESS CONGESTION
Work with various levels of government and community
representatives to encourage the development of traffic
management policies to reduce traffic congestion and improve
public safety.
4. INTER-FORCE CO-ORDINATION OF TRAFFIC PROGRAMS
Maximize effectiveness of traffic programs by inter-force co operation.
xx
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DEMOGRAPIIlC AND SOCIAL TRENDS
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: I. DEMOGRAPHIC AND SOCIAL TRENDS
Infonnation on demographic and social trends is a necessary, al,though not
sufficient, basis for good planning. This type of infonnation enables the
identification of areas where changes are likely to occur. The task for the
planner is then to relate these population and social changes to possible service
needs: what are the implications for cu"ent and future decisions regarding
delivery of police service, provision of programs, allocation of resources, and so
on.
Highlights
• Assuming a medium growth scenario, the population of Metropolitan Toronto is
expected to increase from 2.2 million in 1986 to 2.5 million in 2011.
• Of the five municipalities that make up the Greater Toronto Area, Metropolitan
Toronto is expected to have the smallest population increase to 2011.
• There is a trend towards an older population. Over the next 20 years, the
proportion of those over 40 years of age is expected to increase, while the
proportion of those under 40 years of age will decrease. This may mean a
change in the types of calls for service received by police.
• There was roughly the same number of new landed immigrants to Canada in
1990 and in 1991. However, Metro received a slightly smaller proportion of
these immigrants. With Metropolitan Toronto's ethnic and racial diversity, there
is a need for continuing commitment by the Force to understanding, sensitivity,
special language skills, and public education.
• Just over half of the new landed immigrants to Metropolitan Toronto could
speak some English in 1991, a slight increase from 1990.
• The largest proportion of new landed immigrants to Metropolitan Toronto
continues to come from Asia.
• The localized problem-solving approach of Beyond 2000 should have an impact
on the ability of members of different ethnic and cultural groups to be involved
in the consultation process.
• The 1990 Metropolitan Toronto Assessment data showed few changes from 1989
in the divisional distribution of age, housing types, household types and sizes, and
family structure.
1
: : Many of the demographic trends, and the implications of these trends, outlined in
the 1991 Environmental Scan have changed little since the publication of that report.
A. Projections of Growth in Metropolitan Toronto and Surrounding Regions
The population of Metropolitan Toronto has changed relatively little during the
past few years. Assuming a medium growth scenario to the year 2011, Metropolitan
Toronto is expected to increase from 2.2 million in 1986 to 2.5 million in 2011.
1
Under different growth scenarios, the population projection ranges from a 'low' of
2.3 miilion to a 'high' of 2.7 million.
It is expected that the population of the Greater Toronto Area will increase from
3.7 million at the 1986 Census to 5.3 million in 2011.
2
The 'low' growth scenario
projects a population increase to 5.0 million in 2011, while the 'high' growth scenario
projects an increase to 5.8 million.
Of the five municipalities that make up the Greater Toronto Area, Metro is
expected to have the smallest population increase. The regions of York and
Durham, on the other hand, are expected to show relatively large increases in
population. According to the Metropolitan Toronto Planning Department, in the
early 1980's, Metro had about 63% of the Greater Toronto Area population; by
1991, this figure had dropped to 53%. As can be seen in Figure 1.1, young adults
(20 to 30 years of age) and people over 50 years of age tend to live in Metro, while
those under 19 years and 31 to 50 years of age tend to live in the surrounding
regions.
Population levels at the 1986 Census and the projected populations to 2011 for the
municipalities of the Greater Toronto Area are shown in Figure 1.2.
The growth in the surrounding regions suggests that people seeking affordable
housing have been moving to where space is available for single family structures.
The growing residential communities are far from the major centres of employment,
entertainment, and education in Metropolitan Toronto, putting pressure on
transportation networks and contributing to congestion, parking, and pollution
problems. Parking concerns are a priority for many local community groups,
especially when access to businesses or residences is blocked.
1
Of the three scenarios used by · the Demographics and Social Economics Branch of the Ontario
Ministry of Treasury and Economics, the scenario chosen as the most likely to occur was that of medium
fertility, medium migration, and medium mortality.
2
The Greater Toronto Area includes: Metropolitan Toronto, Durham, Halton, Peel, and York.
2
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Population of Metro and Surrounding Regions
by Age (1991)
Percent
20~-------------------.
5
0
0-9 10-19 20-30 31-40 41-50 51-59 60-69 70-79 80+
Years of Age
Metro ~ Regions
Source: Metropolitan Toronto Planning Department
Figure 1.1
Census and Projected Population
Metro Toronto and Surrounding Regions
Reference Scenario: Medium Fertility, Mortality. & Migration
(Thousands)
3000~----------------~
2500
2000
1500
o~--~---~--~-------
1986 1991 1996 2001 2006 2011
Year
- Metro + Durham - ~ Halton ..... Peel * York
Souroe: C..-1 o1 Clnada:Ontarlo Mir.slry ot T-..y erd Econcmcs. J,.;f ,eee
Figure 1.2
3
~-------------- - --- -------------- -
B. Aging of the Population
One of the most important demographic trends facing not only Metropolitan Toronto
but society as a whole is the trend towards an older population. As can be seen in
Figure 1.3, over the next 20 years in Metropolitan Toronto it is estimated that there
will be increasing numbers of people 40 years of age and older, while at the same
time there will be decreasing numbers of people under 40 years of age.
While people 40 years of age and older made up only 40% of the total Metropolitan
Toronto population at the · 1986 Census, it is expected under the medium growth
scenario that this same age group will make up 57% of the population by 2011.
Projected Population of Metro Toronto
by Four Age Groups 1986-2011
Reference Scenario: Medium Fertility, Mortality, & Migration
(Thousands)
1000.---------- ---- --- -----,
80 ~ --: ,.._ ..,. _ -; :-.-:-+ =----- --·..:.·· ..: .:..· +-· ~ --· · · · · · · · -· · -· · · · · · ·
--+-
............. · . · .· .· .· .· .· .· .· .-.· .-.· . · .-.· .--: .~- :.-:· .-.-~+:... · ..; ;_· .:.· ..: .
....
200
o~--~-- -~--~ ---~ --~
1986 1991 1996 2001 2006 201 1
Year
· •· 0-19 + 20-39 * 40-59 .... 60+
Sour ce: C-.is ot Canada; Ontario Mr,lltry of T,_ry .,d Econom1 ct, July , 989
Figure 1.3
With a decline in the number of people in the age groups traditionally considered
peak years for the commission of crimes (late 'teens, early twenties), there may be
a decline in certain types of crime, such as street crime. However, with an increase
in the number of older people, there may be a corresponding increase in other types
of crime, such as computer crime or fraud.
Further, the elderly are often more fearful and will require different types of
outreach to enhance their feelings of safety and security. The calls for service to
4
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'• the police, especially if they continue to be perceived as the only available source
of assistance, will likely increase. With an increasing number of elderly living alone,
police should also expect some change in the types of calls for service they receive.
The aging of the population will mean a smaller pool of potential applicants to the
Force in the younger age groups, resulting in an older police force. It will also
result in a larger number of older people in the community who could be drawn
upon as volunteers by various agencies offering services to the public, including the
police. These volunteers may provide the police with assistance in such areas as the
. victim services program and in various activities associated with community policing,
such as community liaison committees.
C. Immigration
Since the mid-1980's, immigration to Canada has steadily increased. While complete
data for 1991 is not available from the Ministry of Citizenship at this time, estimates
based on data from January to June 1991 show that immigration to Canada
decreased slightly (about 1.3%) over the 1990 level: from 214,230 new landed
immigrants in 1990 to approximately 211,518 in 1991 (Figure 1.4).
Metropolitan Toronto has been identified as one of the most racially and culturally
diverse cities of the world. Since the mid-1980's, Metro has typically received about
60% of the immigrants to Ontario, and roughly one-third of the total new landed
immigrants to Canada. These proportions have decreased slightly in the past few
years, although, until 1991, the actual number of immigrants to Metro continued to
increase. In 1991, Metropolitan Toronto received an estimated 59,606 new landed
immigrants, representing about 55% of the immigrants to Ontario and about 28%
of the immigrants to Canada. This slight drop in immigration to Metro may be a
result of the current recession.
In 1989, of the new landed immigrants to Metropolitan Toronto, just over half
(50.6%) were able to speak some English. This proportion increased to 52% in 1990
and to an estimated 53.5% in 1991. The very small proportions that could speak
either French or both French and English in 1989 have remained relatively
unchanged. The proportion of immigrants unable to speak either of Canada's
official languages ( or for whom language ability was unknown) has decreased from
46.5% in 1989 to 44% in 1991 (Figure 1.5).
5
Number of New Landed Immigrants
And Intended Destination 1981-1991
Thousands
250~-------------------,
200
150
100
· ·· ·· -,IE;• ... . * ..... -,tE•·· · · *···••l'llf
981
1
82
1
83 '84
1
85
1
86
Year
'87
1
88 '89
-- To Canada + To Ontario ·*· To Metro Toronto
1
90
• Estimates based on data from January 1 to June 30, 1991
Sol.see: Enl>IOyment and lmm"8,tion Cl.nade; E~ Dam Offiol. Ministry c:J CltiZ9n~
Figure 1.4
100%
75%
50%
25%
0%
Official Language Ability Of
New Landed Immigrants to Metro Toronto
1987-1991
Percent
1987 1988 1989
Year
1990
English ~ French ~ Both ~ Neither/Unknown
1991
Source: Ethnocuttural Data Office. Ministry of Citizenship
Figure 1.5
6
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As can be seen in the pie charts shown in Figure 1.6, while the majority of new
immigrants to Metropolitan Toronto came from Asia in both 1990 and 1991, the
proportion decreased slightly from 47% to about 44%. Correspondingly, there were
slight increases in the proportion of immigrants from the Caribbean/Guyana, the
Middle East, and both Central and South America.
~ew Landed Immigrants to Metro Toronto
Area of Last Permanent Residence
C.Amel\c.l
s. America
C.ri
Europe
1990
• Estimates based on data tor January , to June 30, , 991
Scuce Elhnocu~ural Data Otfiee. M,r.st,y of Cttizenthlp
Figure 1.6
Europe
1991*
Of the approximately 300,000 new landed immigrants to Metropol_ itan Toronto in the
past 5 years, only about one-quarter have come from Europe, the United Kingdom,
or the United States. This has resulted in a greater proportion of visible minorities
within Metro, as well as a variety of cultural heritages. Many newcomers to
Metropolitan Toronto have had political and economic experiences that are quite
different from what is common in Canadian cities. They also bring different family
role expectations and different experiences with and attitudes toward police.
The Force has been successful in exceeding its employment equity targets in the past
few years as outlined in Section X on Police Service Requirements. In order to
achieve the employment equity guidelines of the provincial government, the Force
would have to continue to recruit with greater vigour among the growing immigrant
populations of Metro. However, with a freeze on hiring during 1992, this will not
be feasible.
7
1 : Immigrants can contribute not only to a region's cultural interest but also to its
economic health, especially in areas with declining fertility rates. In November,
1991, the federal government announced impending changes to its current
immigration policy in a stated effort to increase the economic benefit that
immigrants bring to Canada. The proposal is to increase the number of skilled
immigrants; however, to do this, new regulations with a more restrictive definition
of 'dependent' children will limit the number of family class immigrants.
D. Race Relations
With the great diversity of ethnic and racial groups in Metropolitan Toronto, there
is a need for continuing commitment by the Force to understanding, sensitivity,
special language skills, and public education. Police personnel will need to
understand the group dynamics involved and respond to a public with changing types
of victims and off enders.
While there is some concern with how best to involve everyone from all groups in
the consultation process, it is believed the more localized approach to problem
solving outlined in Beyond 2000 ... The Strategic Plan of the Metropolitan Toronto Police
will have an impact. Neighbourhood officers will work closely with local residents
and business people to solve problems and address their concerns, fears, and
priorities.
At present, the Force is involved in a number of initiatives that attempt to improve
relations between police and various ethnic/racial groups, including the use of a
multi-lingual (140 languages) interpreter service for the 9-1-1 system and involvement
with a community radio drama series that focuses on relations between police and
black youths.
Further, in September 1990, four police divisions also became involved in a pilot
project known as "Building Partnerships". This program, co-funded by the provincial
and federal governments and the Police Services Board, was designed to meet one
of the key objectives of community policing: to build partnerships with diverse
communities through community liaison and public education. Each of the pilot
divisions, under the direction of the Chiefs Community Liaison unit, selected
different ethnic or cultural groups on which to focus efforts to enhance community
and police relations. Together, community members and police officers identified
barriers to co-operative relationships between police and members of multicultural
groups in Metropolitan Toronto; they then produced a plan of action to introduce
specific measures to overcome these barriers.
8
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According to the consultant's final report,
''The main product of this project is ... the fact that a change process has been
initiated in four communities in Metropolitan Toronto. Mutual awareness on
the part of police officers and community members and the partnerships that
have been put into place will serve as a foundation for future collaboration
and are major accomplishments of this pilot program. This project is
expected to yield strong lasting effects - not because the primary resource is
expansive funding but because of the collective strength of strong
police/community partnerships at the local level "
3
The Force's Race Relations Policy, enacted by the Police Services Board in
November 1990, also remains in effect. At this time, the Race Relations Policy
Implementation Committee is working to develop strategies for policy
implementation in the areas of community relations, employment equity, training,
media relations, public complaints, and evaluation and enforcement. The
Implementation Committee, composed of members of the community, the Police
Services Board, and the Force, is expected to complete its work in September 1992.
E. Demographic and Social Characteristics of Police Divisions and Districts in
Metropolitan Toronto
The population of Metropolitan Toronto changed very little between 1990 and 1991.
Statistics Canada estimates show an increase of about 0.1 % in the population.
Estimates for 1991 by division are shown in Figure 1.7, and can be compared with
those shown in last year's assessment. In absolute numbers, 42 Division in
Scarborough remains the division with the largest resident population, while 21
Division in Etobicoke remains the division with the smallest.
Metropolitan Toronto Assessment Data:
In the 1991 Environmental Assessment, 1989 Metropolitan Toronto Assessment data
were presented by police division and district. Although the information has
changed little, data are now presented from the 1990 Metro Assessment. These
data are provided as an update on the demographic and social characteristics of
each division and district. Some of the highlights follow:
3
Building Police-Community Partnerships with Culturally, Racially and Linguistically Diverse
Populations within Metropolitan Toronto. K.E. Asbury, Research Management Consultants, Inc., January
1992.
9
AGE (Figure 1.8; Table 1. 1)
• One-quarter to one-third of every divisional population remained between 35 and
59 years of age.
• Overall, the proportion of people 60 years of age and over increased slightly,
while the proportion 20 to 34 years of age decreased slightly.
• The divisions with the largest proportions of young people (19 years of age and
younger) remained: 42 Division (23.8%), 31 Division (23.1 %), 12 Division
(22.3% ), and 23 Division (21.3% ). Again, these proportions were slightly less
than those presented for 1989 last year.
• The divisions with the largest proportion of people 60 years of age and older
remained: 22 Division (25.9% ), 32 Division (25.4% ), and 53 Division (22.6% ).
These proportions are very slight increases over those for 1989.
HOUSING TYPES (Figure 1.9; Table 1.2)
• About half of Metropolitan Toronto's population lived in houses, while one
quarter lived in apartments. These proportions have changed little from those
presented for 1989 last year.
• Divisions with the largest proportions of their population in houses remained 22
Division (65.5%) and 42 Division (65.0%).
• Divisions with the largest proportions of their population in apartments remained
51 Division (48.5%), 53 Division (39.6%), and 52 Division (38.1%). These
proportions all decreased very slightly from the 1989 figures.
• Almost one-quarter (24.3%) of the population of 52 Division was in
condominiums, marking a 2.7% increase over 1989 figures. This division again
had the largest proportion of the population in condominiums.
HOUSEHOLDS AND HOUSING TYPES (Figure 1.10; Table 1.3)
• An analysis of 1990 households, rather than individuals, revealed that again just
under half (41.2%) of households were in houses and almost one-third (32.5%)
were in apartments. This was the same as in 1989.
• Again, in 22 and 42 Divisions, about 57% of the households were in houses; in
51 and 53 Divisions just over half of the households were in apartments (52.9%).
10
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• While in 1989 roughly half of the households (49.4%) in 52 Division were also
in apartments, in 1990 this proportion decreased slightly to 45.7%. There was
a corresponding increase in the proportion of households in condominiums.
HOUSEHOLD SIZE AND HOUSING TYPE (Figure 1.11; Table 1.4)
• As in 1989, in 1990 the average size of households in Metropolitan Toronto was
about 3 perSOJlS or less:
~
Houses
Condominiums
Plexes
Apartments
Others
Average Size
3.1
2.2
2.6
1.9
2.8
• Number 31 and 42 Divisions again had the largest average household size (3.0),
while 52 Division again had the smallest (1.8).
SOCIAL UNITS (Figure 1.12; Table 1.5)
• In 1990, only 22.3% of all households were two-parent households - roughly the
same proportion as in 1989 (22.6%). The reported proportion of one-parent
households (mainly headed by women
4
) and the proportion of single person
households/other groupings also remained the same (7% and 70%, respectively).
• As in 1989, 51 Division had the largest proportion of one-parent households
(10.1 %). Both 42 and 31 Divisions had the largest proportions of two-parent
families ( about 30% ).
4
Metro in Transition, Canadian Urban Institute, 1991.
11
Implications for Policing Services
• With continued growth in the Greater Toronto Area, people living in downtown
Metropolitan Toronto neighbourhoods will continue to be concerned about the
negative effects on the quality of life in their communities; for example, parking
will remain a problem for many neighbourhoods.
• If city neighbourhoods become congested or dominated by people just passing
through, increasing concern about safety and disorder may result.
• With a changing age structure, there may be decreases in certain types of crimes
and increases in others, as well as changes in the types of calls for service
received by police.
• Also, with an aging population, there will be a smaller pool of potential
applicants to the Force in the younger age groups, which may result in both
increased competition for suitable applicants and an older Force.
• With large numbers of new immigrants continuing to settle in Metropolitan
Toronto, the Force must continue to emphasize and receive training related to
understanding, sensitivity, special language skills, and public education.
• With the great diversity of cultural and ethnic groups in Metro, the Force must
continue to develop or be involved in initiatives directed towards enhancing
relations between the police and the public.
• The variations between divisions in age, housing types, household sizes and types,
and family structure may require different service delivery and crime prevention
strategies (for example, variations in Neighbourhood Watch programs).
12
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POLICE DIVISIONS & POPULATION - METROPOLITAN TORONTO 1991
•
23
( 12 ) . 6 )
( 11 9 . 7)
•
•
31
(17 2 . 0 )
•
12
• 32
( l 6 I . 1 l
13
•
•
53
( l 2 11 . 6 ) ( 11 9 . 11 l
14.
(133 . 9 ) • 52
* Population estimates from Statistics Canada
r----------42
•
33
( 2 76 . 7)
( 167 . 8)
•
41
•
(1 98. 5 )
54
( 11 8 . 1 l
Divisional Boundaries
( ) Population in Thousands *
Figure 1.8
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% Population by Age and Division - 1990
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1 District
2 District
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11 Divlalon 12 Diviaion 13 Diviaion 1-4 Diviaion
3 District
21 Divlaion 22 Diviaion 23 Dlvlalon
4 District
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31 Diviaion 32 Diviaion 33 Diviaion
41 Diviaion 42 Olviaion
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5 District ALL DISTRICTS
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&1 Dlvlalon &2 Dlvlaion 53 Divlaion ~ Divlaion 66 Divlaion 1 Dlatrlct 2 Dlatrlct 3 Dlatrlct • Dlatrlct a Dlatrlct
- 0-19
_, 20-34
CJ 35-59 ~60•
, .............. ,Unknown
..............
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Source: Metropolitan Toronto Planning Department, Assessment Data
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Table 1.1
POPULATION BY AGE AND DMSION - 1990
0-19 20-34 35-59 60 + · Unknown Total
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11 Division 13,053 20,724 24,814 16,654 8,769 84,014
12 Division 17,437 19,997 20,928 13,149 6,788 78,299
13 Division 23,250 30,787 34,343 23,873 11,271 123,524
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14 Division 25,907 36,287 37,876 20,335 16,598 137,003
21 Division 8,519 12,256 14,466 10,087 4,134 49,462
22 Division 19,496 25,807 36,408 30,844 6,643 119,198
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23 Division 27,064 33,173 36,430 21,577 8,867 127,111
31 Division 41,311 52,267 50,165 25,951 9,271 178,965
32 Division 26,010 32,029 40,885 36,640 8,713 144,277
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33 Division 27,844 30,133 43,107 24,701 7,670 133,455
41 Division 35,562 45,122 52,184 38,321 15,642 186,831
42 Division 67,641 65,008 88,297 33,839 29,054 283,839
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51 Division 9,292 14,560 16,551 9,383 5,055 54,841
52 Division 3,698 17,727 17,208 9,638 9,024 57,295
53 Division 15,960 28,281 39,582 26,930 8,503 119,256
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54 Division 20,279 28,111 33,107 21,912 9,134 112,543
55 Division 16,478 23,355 28,729 15,769 11,621 95,952
Total 398,801 515,624 615,080 379,603 176,757 2,085,865
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PERCENTAGE OF POPULATION BY AGE AND DMSION - 1990
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0-19 20-34 35-59 60 + Unknown Total
11 Division 15.5 24.7 29.5 19.8 10.4 100.0
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12 Division 22.3 25.5 26.7 16.8 8.7 100.0
13 Division 18.8 24.6 27.8 19.3 9.1 100.0
14 Division 18.9 26.5 27.6 14.8 12.1 100.0
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21 Division 17.2 24.8 29.2 20.4 8.4 100.0
22 Division 16.4 21.7 30.5 25.9 5.6 100.0
23 Division 21.3 26.1 28.7 17.0 7.0 100.0
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31 Division 23.1 29.2 28.0 14.5 5.2 100.0
32 Division 18.0 22.2 28.3 25.4 6.0 100.0
33 Division 20.9 22.6 32.3 18.5 5.7 100.0
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41 Division 19.0 24.2 27.9 20.5 8.4 100.0
42 Division 23.8 22.9 31.1 11.9 10.2 100.0
51 Division 16.9 26.5 30.2 17.1 9.2 100.0
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52 Division 6.5 30.9 30.0 16.8 15.8 100.0
53 Division 13.4 23.7 33.2 22.6 7.1 100.0
54 Division 18.0 25.0 29.4 19.5 8.1 100.0
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55 Division 17.2 24.3 29.9 16.4 12.1 100.0
Total 19.1 24.7 29.5 18.2 8.5 100.0
Source: Metropolitan Toronto Planning Department, Assessment Data
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Figure 1.9
% Population by Housing Type and Division - 1990
1 District 2 District
04'
0'4
11 Diviaion 12 Diviaion 13 Dlviaion 14 Diviaion
21 Divlalon 22 Dlviaion 13 DMaion
3 District 4 District
1004' 100,
764' 764'
604' 604'
264' 264'
o,
04'
31 Diviaion 32 Dhdaion 33 Diviaion 4'1 Diviaion 4'2 Dlvialon
5 District ALL DISTRICTS
100, 100,
764' 764'
10, 604'
264' 264'
°'
o,
61 Divlaion 12 Divlalon 63 Divlalon 64' Diviaion 66 Diviaion 1 Diatrict 2 Diatrict 3 Diatrlct • Dlatrlct I Dlatrlct
IIII Houses
~ Condos C] Plexes ~Apts L ......... J Others
Source: Metropolitan Toronto Planning Department, Assessment Data
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Table 1.2
• ' POPULATION BY HOUSING TYPE AND DIVISION - 1990
, '
Condo- Apart-
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Houses miniums Plexes ments Others Total
11 Division 30,058 3,418 26,861 16,729 6,948 84,014
12 Division 34,732 5,228 10,543 24,450 3,346 78,299
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13 Division 56,405 6,591 31,165 23,330 6,033 123,524
14 Division 29,159 3,592 64,279 25,615 14,358 137,003
21 Division 25,254 3,531 8,026 10,347 2,304 49,462
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22 Division 78,056 12,704 2,454 23,886 2,098 119,198
23 Division 72,203 16,981 2,506 33,046 2,375 127,111
31 Division 90,698 16,127 5,495 61,590 5,055 178,965
32 Division 81,763 11,693 8,776 38,634 3,411 144,277
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33 Division 79,722 22,877 2,211 25,958 2,687 133,455
41 Division 100,977 13,264 19,617 . 48,850 4,123 186,831
42 Division 184,459 48,177 7,120 41,803 2,280 283,839
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51 Division 10,898 6,469 3,959 26,611 6,904 54,841
52 Division 5,849 13,944 4,845 21,802 10,855 57,295
53 Division 54,277 3,240 9,848 47,250 4,641 119,256
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54 Division 47,691 13,345 12,179 34,324 5,004 112,543
55 Division 52,190 3,057 22,747 11,629 6,329 95,952
Total 1,034,391 204,238 242,631 515,854 88,751 2,085,865
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PERCENTAGE OF POPULATION BY HOUSING TYPE AND DIVISION - 1990
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Condo- Apart-
Houses miniums Plexes ments Others Total
11 Division 37.1 4.2 33.2 20.6 8.6 100.0
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12 Division 44.4 6.7 13.5 31.2 4.3 100.0
13 Division 45.7 5.3 25.2 18.9 4.9 100.0
14 Division 21.3 2.6 46.9 18.7 10.5 100.0
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21 Division 51.1 7.1 16.2 20.9 4.7 100.0
22 Division 65.5 10.7 2.1 20.0 1.8 100.0
23 Division 56.8 13.4 2.0 26.0 1.9 100.0
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31 Division 50.7 9.0 3.1 34.4 2.8 100.0
32 Division 56.7 8.1 6.1 26.8 2.4 100.0
33 Division 59.7 17.1 1.7 19.5 2.0 100.0
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41 Division 54.0 7.1 10.5 26.1 2.2 100.0
42 Division 65.0 17.0 2.5 14.7 0.8 100.0
51 Division 19.9 11.8 7.2 48.5 12.6 100.0
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52 Division 10.2 24.3 8.5 38.1 18.9 100.0
53 Division 45.5 2.7 8.3 39.6 3.9 100.0
54 Division 42.4 11.9 10.8 30.5 4.4 100.0
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55 Division 54.4 3.2 23.7 12.1 6.6 100.0
Total 49.6 9.8 11.6 24.7 4.3 100.0
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Source: Metropolitan Toronto Planning Department, Assessment Data
17
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Figure 1.10
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% Households by Housing Type and Division - 1990
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1 District 2 District
100'-
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7H
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60'-
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2H
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11 Olvlalon 12 Oiviaion 13 Diviaion °'" M Divialon 21 Divlalon 22 Divlalon n Dlvlalon
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3 District
4 District
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31 Divlaion 32 Oivlaion 33 Oiviaion
41 Oiviaion 42 Oivialon I
5 District ALL DISTRICTS
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t51 Dfvlalon t52 Olvlalon t53 Olvlalon 154 Olvlalon t55 Dlvlalon
1 Diatrlct 2 Oiatrlct 3 Olatrlct • Oiatrlct 6 Olatrlcl
- Houses ~ Condos CJPlexes -Apts mmmiillillJ Others
Source: Metropolitan Toronto Planning Department, Assessment Data
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Table 1.3
NUMBER OF HOUSEHOLDS BY HOUSING 1YPE AND DMSION · 1990
Condo- Apart-
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Houses miniums Plexes ments Others Total
11 Division 11,121 1,942 11,410 9,788 3,236 37,497
12 Division 11,625 2,618 3,566 10,588 958 29,355
13 Division 18,393 2,853 11,229 14,437 1,839 48,751
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14 Division 9,324 1,878 21,432 13,172 4,952 50,758
21 Division 9,299 1,897 3,521 5,917 938 21,572
22 Division 27,167 6,084 1,153 13,017 639 48,060
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23 Division 21,708 6,705 920 13,998 593 43,924
31 Division 26,053 5,520 1,875 25,256 1,380 60,084
32 Division 28,399 5,893 3,541 20,134 1,078 59,045
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33 Division 23,278 9,570 759 12,680 377 46,664
41 Division 34,851 6,061 6,962 22,620 722 71,216
42 Division 54,501 19,835 2,384 18,398 584 95,702
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51 Division 3,835 3,667 1,890 14,513 3,523 27,428
52 Division 2,056 8,750 2,117 14,813 4,672 32,408
53 Division 19,990 2,136 4,992 32,698 1,951 61,767
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54 Division 17,786 5,595 4,958 17,987 1,767 48,093
55 Division 19,626 1,434 9,351 7,058 2,209 39,678
Total 339,012 92,438 92,060 267,074 31,418 822,002
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PERCENTAGE OF HOUSEHOLDS BY HOUSING 1YPE AND DMSION - 1990
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Condo- Apart-
Houses mmmms Plexes ments Others Total
11 Division 29.7 5.2 30.4 26.1 8.6 100.0
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12 Division 39.6 8.9 12.1 36.1 3.3 100.0
13 Division 37.7 5.9 23.0 29.6 3.8 100.0
14 Division 18.4 3.7 42.2 26.0 9.8 100.0
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21 Division 43.1 8.8 16.3 27.4 4.3 100.0
22 Division 56.5 12.7 2.4 27.1 1.3 100.0
23 Division 49.4 15.3 2.1 31.9 1.4 100.0
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31 Division 43.4 9.2 3.1 42.0 2.3 100.0
32 Division 48.1 10.0 6.0 34.1 1.8 100.0
33 Division 49.9 20.5 1.6 27.2 0.8 100.0
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41 Division 48.9 8.5 9.8 31.8 1.0 100.0
42 Division 56.9 20.7 2.5 19.2 0.6 100.0
51 Division 14.0 13.4 6.9 52.9 12.8 100.0
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52 Division 6.3 27.0 6.5 45.7 14.4 100.0
53 Division 32.4 3.5 8.1 52.9 3.2 100.0
54 Division 37.0 11.6 10.3 37.4 3.7 100.0
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55 Division 49.5 3.6 23.6 17.8 5.6 100.0
Total 41.2 11.2 11.2 32.5 3.8 100.0
Source: Metropolitan Toronto Planning Department, Assessment Data
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Figure 1.11
Household Size by Housing Type and Division - 1990
1 District 2 District
Nu .. ber of P9raona
&.----------------------~
3 .. ..... ·······•·········· , ..... .
2
0
11 Dlvlalon 12 Divlalon 13 Diviaion 14 Diviaion
21 Diviaion 22 Diviaion 23 Dlvlaion
3 District 4 District
Number of Peraona
8,--------------------------,
Number of Peraona
e.-----------------------
IS
4
3
2
31 Dlvlaion 32 Diviaion 33 Diviaion
0
41 Divlalon 42 Dlvlalon
5 District ALL DISTRICTS
Number of P9raona Number of Peraona
&.------------------------, &.-------------------------,
4
3 3
2
IS1 Dlvlalon IS2 Dlvlaion 63 Divlalon U Diviaion ISIS Diviaion 1 Dlatrlct 2 Diatrict 3 Dlatrict 4 Dlatrlct IS ~trlct
- Houses a\'I Condos
LJPlexes
fmApts ~ Others
lliiliiliiliili
Source: Metropolitan Toronto Planning Department, Assessment Data
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Table 1.4
AVERAGE SIZE OF HOUSEHOLDS BY HOUSING 1YPE AND DMSION - 1990
Condo-
Apart-
Houses miniums Plexes
ments
Others
Total
11 Division
2.7 1.8 2.4
1.7
2.2
2.2
12 Division
3.0 2.0 3.0
2.3 3.5
2.7
13 Division
3.1 2.3 2.8 1.6 3.3
2.5
14 Division
3.1 1.9 3.0
1.9
2.9
2.7
21 Division
2.7 1.9 2.3
1.8
2.5 2.3
22 Division 2.9 2.1 2.1 1.8
3.3
2.5
23 Division 3.3 2.5 2.7
2.4
4.0 2.9
31 Division 3.5 2.9 2.9 2.4 3.7
3.0
32 Division
2.9 2.0 2.5 1.9
3.2 2.4
33 Division
3.4 2.4 2.9
2.1 7.1
2.9
41 Division
2.9 2.2 2.8 2.2
5.7 - 2.6
42 Division 3.4 2.4 3.0
2.3 3.9 3.0
51 Division 2.8 1.8 2.1 1.8 2.0 2.0
52 Division 2.8 1.6 2.3 1.5
2.3 1.8
53 Division
2.7 1.5 2.0 1.5 2.4
1.9
54 Division
2.7 2.4 2.5 1.9
2.8 2.3
55 Division
2.7 2.1 2.4
1.7 2.9 2.4
Total
3.1 2.2 2.6 1.9
2.8 2.5
Source: Metropolitan Toronto Planning Department, Assessment Data
21
Figure 1.12
:..-
% Type of Social Unit by Division - 1990
1 District 2 District
12 Diviaion 13 Divlaion 14 Diviaion 21 Oiviaion 22 Diviaion 23 Olviaion
3 District 4 District
31 Diviaion 32 Diviaion 33 Diviaion
41 Oivlaion 42 Oivialon
5 District
ALL DISTRICTS
61 Dlvlalon 62 Divlalon 63 Divialon 64 Olviaion 66 Oiviaion 1 Oiatrict 2 Olatrlct 3 Oiatrict 4 Diatrict I Dlatrict
- One Parent Two Parent
, . ···· .. ·.•· :1
Other
Source: Metropolitan Toronto Planning Department, Assessment Data
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Table 1.5
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1YPE OF SOCIAL UNITS BY DMSION - 1990
One Two
Parent Parent
Other
Total
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11 Division 2,714 7,481 34,652
44,847
12 Division
3,423 9,131
24,076
36,630
13 Division 3,480 13,631 43,633
60,744
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14 Division 4,042 14,767
49,103
67,912
21 Division 1,701 5,122 18,632
25,455
22 Division 3,339 13,477 39,940
56,756
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23 Division 4,470 15,605 35,878
55,953
31 Division 7,144 22,897
47,606
77,647
32 Division
4,493 15,441 50,527
70,461
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33 Division 3,905
16,781 38,163
58,849
41 Division
7,211 21,017 59,052
87,280
42 Division 8,916 36,859 76,644
122,419
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51 Division 3,057 2,979 24,198
30,234
52 Division
1,060 1,982 34,936
37,978
53 Division
2,547 9,140 58,526
70,213
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54 Division
4,051 11,149 42,120 57,320
55 Division 3,883 8,128 38,693
50,704
Total
69,436 22~,587 716,379
1,011,402
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PERCENTAGE OF SOCIAL UNIT 1YPE BY DIVISION - 1990
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One Two
Parent Parent Other
Total
11 Division 6.1 16.7 77.3 100.0
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12 Division 9.3 24.9 65.7 100.0
13 Division 5.7
22.4 71.8
100.0
14 Division 6.0
21.7 72.3 100.0
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21 Division 6.7 20.1 73.2 100.0
22 Division 5.9 23.7 70.4
100.0
23 Division 8.0 27.9
64.1 100.0
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31 Division 9.2 29.5 61.3 100.0
32 Division 6.4 21.9 71.7
100.0
33 Division
6.6 28.5 64.8 100.0
41 Division 8.3
24.1 67.7
100.0
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42 Division 7.3 30.1 62.6 100.0
51 Division
10.1 9.9 80.0 100.0
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52 Division
2.8 5.2 92.0 100.0
53 Division
3.6 13.0 83.4 100.0
54 Division
7.1 19.5 73.5 100.0
55 Division 7.7 16.0 76.3 100.0
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Total
6.9
22.3 70.8 100.0
Source: Metropolitan Toronto Planning Department, Assessment Data
I 23
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ECONOMIC TRENDS
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II. ECONOMIC TRENDS
The standard of living of the people of Metropolitan Toronto affects their
expectations and perceptions of police services. In the cu"ent economic
recession, many people are experiencing the stress of job loss; welfare rolls and
the number of unemployed have increased substantially. Also, municipal services
are competing for an increasingly limited pool of funds. These influences have
an effect on the types of police service required and the way in which these
services can be delivered.
Highlights
• Unemployment resulting from the 1991 recession is more severe, in terms of
quantity and duration, than that experienced in the 1982 recession.
• The increase in the unemployment rate for the Census Metropolitan Area of
Toronto, from 4.4% in February 1990 to 10.8% in February 1992, is more than
a temporary aberration, as the current recession is accompanied by more
permanent closures than short-term layoffs.
1
• The number of people employed in Metropolitan Toronto dropped by 78,154
persons during 1991. The manufacturing sector continues to decline, employing
37,679 fewer people than 1990.
• Opinions differ as to when the current economic decline will level off. There is,
however, general agreement among corporate and public economists that no
significant growth will occur over the next 12 to 18 months.
• Although problems such as family violence and substance abuse may increase
during periods of economic stress, no consistent relationship between crime and
shifts in the economy has been proven.
A. Job 1..-0sses / Unemployment
As noted in last year's Environmental Scan, 1990 saw the beginning of a recession.
During 1991, the recession deepened. Average employment in the Metropolitan
Toronto CMA fell by 107,000 people.
1
The Census Metropolitan Area for Toronto (the Toronto CMA) is a geographical area larger than
Metropolitan Toronto. It covers the region from Ajax to Oakville, north to Orangeville and the southern
shore of Lake Simcoe, inclusive.
24
------ - --------- ---- -
------------- - -------~ ~ ~ --
In the Toronto CMA, the unemployment rate for December 1991 was 9.7%, up
from 6.6% in December 1990 and 4.4% in December 1989.
2
The number of people
employed during that two year period (December 1989 to December 1991) dropped
by 116,000 persons, from 1,932,200 to 1,816,200 persons, or by 8.1 %.
As a group, males aged 15 to 24 years experienced larger increases in unemployment
than did any other group. Between December 1989 and December 1991, the
number of unemployed males aged 15 to 24 in the Toronto CMA increased 156%
to 31,000, generating an increase in their unemployment rate from 6.5% to 17.9%.
The participation rate dropped 7.2 percentage points to 67.2%. In total, these
factors result in only 55.2% of the working-age population in this age group being
employed in December 1991, down from 69.6% in December 1989.
The dramatic increase in unemployment among males aged 15 to 24 years is of some
concern. Studies have shown that this group is at particular risk of engaging in
criminal behaviour if job skills and opportunities for finding jobs are weak. As
noted in Section III, they have shown the highest, and an increasing, arrest rate.
Reflecting expectations of poor job prospects, the labour force participation rate fell
to 69.5% from 71.2% during 1991. Even though the working age population for
the region increased by 31,500 people, the labour force shrank by 25,400 people.
The 56,900 people who ceased to be members of the labour force may have returned
to sch_ ool; may be unemployed and no longer looking for work; may have chosen
early retirement; etc. (Table 2.1 ).
Table 2.1
Toronto CMA
Unemployment and Participation Rates
(%, 3 month average, ending December)
1989 1990 1991
Unemployment Rate
Males 15-24 6.5 12 . 9 17.9
Females 15-24 5.4 9.0 10.1
Both Sexes 25-44 4.0 7.1 9.8
Both Sexes 45-over 3 . 2 3.1 6.8
Both Sexes Total 4.1 6.6 9.7
Participation Rate
Males 15-24 74.4 69.0 67.2
Females 15-24 69.7 67.3 66.3
Both Sexes 25-44 90.3 88.3 87.5
Both Sexes 45-over 51. 9 53.7 50.6
Both Sexes Total 71.6 71.2 69.5
2
All unemployment information is from Employment and Immigration, Canada.
3
Participation rate is defined as the labour force divided by the working-age population, expressed
as a percentage. Labour force participants are both those working and those looking for work.
25
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B. Crime and the Economy
A number of community agencies working with families and children report that the
stress added during periods of economic difficulty affects their caseloads. Problems
such as child abuse, domestic assault, alcohol and drug abuse are reported to
increase during serious recessions. A recent U.S. study on the effects of arrest on
domestic violence found that unemployed off enders became more violent after arrest
(see Section IV).
Examination of the relationship between unemployment and crime in a broader
context has shown no simplistic relationship. In fact, a number of studies have been
undertaken to establish such a correlation with inconclusive results. Two formal
studies were conducted in Edmonton, Alberta, in 1982 and 1985.
4
During 1982, the
economy was booming and unemployment was low. Rates for four categories of
property crime were established as benchmarks. In 1985, the study was repeated.
At that time, due to the local oil industry recession, unemployment had soared and
the number of adult males in the population had increased. The expectation of the
researchers was for a dramatic increase in property crime. Total property crime,
however, had decreased by 16% relative to 1982.
An examination of American studies concludes that most results are ambiguous and
that there is no consistent relationship between crime and unemployment. Some
researchers have found consistent relationships between economic distress and crime,
while others have been unable to confirm such findings. Many factors besides the
economy can influence crime. The National Institute of Justice in the United States
concluded that crime patterns may be tied to deterrence from police, the courts and
prisons; to differences in families and neighbourhoods; and to other unobserved
factors. One researcher has shown that some income-oriented crimes (robbery and
burglary) may be influenced by economic conditions, but, once again, the
relationship was not clear.
5
In Metropolitan Toronto, during the 1982 recession, crime rates dropped. During
the economic boom years in the late 1980's, an increase in crime occurred. This
increase accelerated during 1991, but has stabilized during the first quarter of 1992
(see page 36).
4
'Patterns in Property Crime', Canadian Urban Victimization Survey, Bulletin #9, 1988, Solicitor
General Canada.
5
Richard McGahey, 'Jobs and Crime' National Institute of Justice
26
C. Welfare Disbursements
One indication of a troubled economy is the increase in the number of people
requiring public assistance. This increase is clearly a result of the loss of
employment opportunities.
The cash disbursements for welfare in Metropolitan Toronto have increased
dramatically over the last two years. The amount for 'general assistance' budgeted
for 1992 is $795.5 million, up 116% from $368 million in 1990. Other welfare
programs and administration costs push the total welfare budget to over $1.1 billion.
The number of cases is budgeted at 97,000 for 1992, up 90% from 1990. The cost
per case is also increasing, up 13.7% since 1990 to $8,201. These massive increases
in disbursements, although substantially offset by federal and provincial transfer
payments, remain a cause of great concern to the financial managers of Metropolitan
Toronto.
D. Unemployment Insurance Payouts
In the Metropolitan Toronto District, the payout for unemployment insurance claims
increased from $1,215.2 million in the year ended March 1991 to $1,764.9 million
(estimated) for the year ended March 1992, representing an increase of 45% (Table
2.2).
6
This change is lower than the 70% increase that occurred in the year ended
March 1991.
Table 2.2
Toronto District U.I.C Payouts (net)
Year $ Millions
1989-1990 715.6
1990-1991 1,215.2
1991-1992 1,764.9
% Change
70%
45%
More unemployment insurance claims than normal are reaching their maximum
duration, and more people than normal are exhausting this form of security.
Consequently, greater pressure is put on the welfare system.
6
Source: Public Affairs Department, Employment and Immigration Canada.
27
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An area of growing concern that reflects the level of poverty within the Greater
Toronto Area is the expanding role of the food banks. Each month, the Daily
Bread Food Bank distributes over one million dollars worth of food to approximately
115,000 people in the Greater Toronto Area (GTA). According to a report from
the Daily Bread Food Bank:
• Two-thirds of recipients are on provincial or municipal welfare.
• Eighty-two percent are Canadian citizens or landed immigrants and at least two
thirds have lived in Metro Toronto for at least five years.
• Eighteen percent have either college or university education and this continues
to grow as a proportion of the total number of people using the food bank.
• Forty-five percent of food recipients are under the age of 18 years and most of
these are under the age of ten.
• Twenty-four percent of food bank families have at least one person working.
F. Poverty and Women
According to a 1990 report (Women and Labour Market Poverty) from the Canadian
Advisory Council on the Status of Women, the probability of being poor is much
higher for women than for men: in 1986, women made up 51.1 % of the adult
population but constituted 58.7% of the poor.
7
Of the total population in 1986,
16.0% of women were poor compared to 11.7% of men. Further, service sector or
clerical occupations, which tend to be those most open to women, are more likely
to be low-wage and/or part-time, resulting in the "working poor".
Ms. Beverley Wybrow, Executive Director of the Canadian Women's Foundation,
reports that about 75% of all women spend the last quarter of their life in poverty.
Women may be vulnerable to being poor when they are old, either because they
have never been a member of the labour force or they may have had employment
interrupted due to family responsibilities. Further, Canada's income security system
is related, in large part, to labour market earnings and the jobs many women may
7
Poverty was defined by Statistics Canada's low income cut-offs (which vary by family size and
population size in area of residence) for 1986.
28
occupy may not have good pensions or fringe benefits.
8
The poor economy, which
results in many competitive demands on limited social service resources, may cause
more hardship to elderly women than to others.
G. Economic Structure
The economic difficulties Metropolitan Toronto faces in 1992 may be a reflection
of serious structural long-term change, as opposed to a general cyclical downturn.
Historically, Metro Toronto has had, relative to the rest of Canada, fairly stable, well
manag'ed growth.
The Toronto CMA has been affected by the current recession more severely than
by the 1982 recession. Average annual unemployment increased from 139,000
persons in 1982 to 198,000 persons in 1991. Also, relative to Ontario, Metro is
bearing more of the current recession than that of 1982. Today, the area accounts
for 39.1 % of the provincial unemployment compared with 31.7% in 1982.
Analyzing provincial data helps distinguish the two recessions. During the recession
of 1982, 21.5% of the lay0ffs in Ontario were classified as being 'complete closures'
rather than 'partial closures' or 'reduced operations'.
9
The 1991 recession is not only
larger in terms of persons unemployed, it also has more than double the ratio of
complete closures, with 118 companies, representing 55% of all layoffs, being so
classified.
As seen in Table 2.3, of the six employment categories Metropolitan Toronto, five
recorded reductions in the number of persons employed between 1990 and 1991.
The office and manufacturing categories suffered the largest decreases; total
employment in these two industries dropped by 66,700, to 781,200 persons. More
alarming is the fact that during 1991 employment in the manufacturing sector
decreased by 16.2% This sector now accounts for only 15.4% of employment in the
Metropolitan Toronto, down from 17.3% in 1991, and has not been lower, in
absolute terms, since 1982.
The 1991 Environmental Scan reported that the relatively high paying manufacturing
jobs were being replaced by lower paid service sector jobs. Unfortunately, not even
this categorical shift is occurring, as virtually the total spectrum of employment is
being affected.
8
Women and Labour Market Policy, M. Gunderson, L. Muszynski, J. Keck, Canadian Advisory
Council on the Status of Women, June 1990.
9
Source: Ontario Ministry of Labour, Employment Adjustment Branch
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Table 2.3
Metropolitan Toronto
Employment By Job Category
(000's)
1990 1991 Change
Employment Category
Office 614.9 585.9 -29.0
Mfg . & Whse. 233.0 195.3 -37 . 7
Institutional 164 . 1 176 . 9 12 . 8
Retail 155 . 2 141. 7 -13.5
Service 149 . 6 142.5 -7 . 1
Other 33 . 4 29.7 -3 . 7
Total 1350 . 2 1272 . 1 -78.1
Another trend, identified in previous Environmental Scans, also reflects the changing
economic structure of the city. The percentage of part-time workers increased from
17% of persons employed in 1990 to 18.8% in 1991. The three categories with the
most part-time jobs are office (28% ), retail (24% ), and institutional (20% ). The
retail and service categories have the highest percentages of jobs that are part-time,
66% and 42% respectively.
Also indicative of the ailing economy is the fact that the number of business
establishments, after having posted a gair. of 1,500 in 1990, fell in 1991 by 2,669 to
79,331 establishments.
H. Housing
· After several years of housing shortages and general affordability strains, the
availability of housing has increased and prices have dropped.
Construction:
Total housing starts for 1991 in the Toronto CMA, at 18,814 units, was virtually
unchanged from 1990.
10
However, the mix of unit types strongly reflected the change
in market conditions. Private rental starts declined drastically from 2,484 units in
1990 to 198 units in 1991. To boost the ailing construction industry, government
assisted rental starts increased 130.4% from 2,484 to 5,724 units. In response to
falling prices, condominiums recorded a 65.7% decrease, to 2,181 units. The largest
number of starts was in the freehold category, up 31.3% to 10,634 units.
Although the housing starts for the Toronto CMA remained flat, the number of
starts for Metropolitan Toronto fell by 37.8%, from 6,922 in 1991 to 4,304 in 1992.
The decline would have been more severe if not for the construction of government
10
Source: CMHC Local Housing Market Report: December 1991
30
assisted rental units, which increased to 2,338 from 748. Construction of
condominiums fell (from 3,891 to 1,052).
Sales:
Recovering from the poor performance in 1990, new home sales in the Metropolitan
Toronto area increased in 1991 by 53.7% to 12,576 units of all types. Resale activity
also increased. As the median price fell 5% between December 1990 and December
1991, to $190,000, the number of resale homes sold increased by 42.4% to 38,144.
The recent legislative change enabling personal registered retirement savings plan
funds to be used as a source of financing, combined with the reduction of the
required minimum down payment to 5% is credited with the recent boost in national
multiple listing service sales. In February 1992, national sales were up 17.2% over
the same period in 1991. Interest rate pressures and job security remain the main
challenges facing the industry.
Rental:
There is somewhat more selection available to people who wish rental
accommodation. The overall vacancy rate in the Toronto CMA is 2%, significantly
higher than the 0.1 % reported in 1987. Buildings constructed after 1984 have the
highest vacancy rate, at 9.8%, and tend to have the highest rents. Those constructed
between 1960 and 1974 have the lowest vacancy rate, at 0.7%. In October, 1991,
average rents ranged from $482 per month for a bachelor to $880 per month for a
three bedroom apartment.
I. Office Space/Construction
A disturbing indicator of the economic problems Metropolitan Toronto is
experiencing is the office vacancy rate. The Toronto Real Estate Board reports that
the office vacancy rate for the Metro Toronto area was 18.9% in January 1992, only
slightly better than the 19.7% recorded a year earlier. Since January 1990, when the
vacancy rate reached 15.1 %, several projects have been delayed, abandoned or
mothballed for revival at a more appropriate time.
For the Metro core, the vacancy rate was 14.3% in December 1991, up from 3.5%
in 1987. The Metropolitan Toronto Commissioner of Planning and Development
has reported that when vacancies, and space approved for and under construction,
are considered, there is no need for new projects until past the year 2010. Currently,
rents are falling as landlords compete for tenants. Also, vacancies and low
construction levels place further strains on municipal revenues.
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J. Cross-Border Shopping
Metro retailers are affected by the increased national wave of cross-border shoppers.
Gasoline prices, truces on cigarettes and alcohol, the Goods and Services Tax, federal
duties, provincial truces, and a distribution system less efficient than that of the
northern United States are sending record numbers of Canadians on 'same-day'
border crossings to the United States. Recent reductions in the import duty for
certain consumer electronic items and increased enforcement at border crossing are
two recent attempts to curb the trend. The effectiveness of these tactics has yet to
be determined.
K. Sunday Shopping
The law pertaining to Sunday shopping is a current issue. Some believe that relrucing
or eliminating the law would improve the retail economy through increased
efficiency and enhanced competition, especially against American border retailers.
Others argue for the values associated with a common day of rest. Questions have
also been raised about the use of scarce police resources to enforce Sunday shopping
legislation.
A recent survey, conducted by Coopers and Lybrand, found that 74% of Ontario
consumers who shop in the United States on Sunday would shop in Canada if they
were able to do so. It was reported that the survey clearly showed a strong demand
among consumers and retailers for Sunday shopping. The survey estimated that
cross-border shopping costs Canadian retailers $3.5 to $5.0 billion per year in lost
sales.
L. World Economy and Freer Trade
The world economy is increasingly dominated by three distinct groups: Western
Europe, North America, and the Western Pacific. Freer trade, increased
competition and domination of global markets are no longer ideas or tendencies, but
harsh realities.
As the effects of the Free Trade Agreement settle in, all companies, whether
multinational, American, or Canadian, quickly determine the necessity of being
globally competitive in terms of price, quality, and service. Often, this requires being
the lowest cost producer. Manufacturing companies located in Canada are feeling
the effects of a poor U.S. economy and world-wide competition. Frequently, after
analyzing the profitability of different locations, companies decide to consolidate
operations elsewhere.
32
---- -------------- ----------
Currently, there are indications of an end to the recession in the United States. It
remains to be seen whether the demand generated by an improving U.S. economy
is sufficient to once again significantly assist the ailing Canadian economy.
North American Free Trade:
There are current negotiations among Canada, the United States and Mexico about
entering into a free trade agreement. Although only 1 % of Canada's current trade
level is with Mexico, this agreement could have an impact on the manufacturing base
of the Toronto region, especially in the automotive sector.
Canada has for several decades enjoyed some of the world's highest standards of
health care, social services, and environmental protection. Increased competition
with economies that do not enjoy the same standard of living will put further
pressures on the local economy.
M. Interest Rates, Inflation and Economic Recovery
Opinions differ as to when the current economic decline will level off. Public and
private economists have recently revised their forecasts to indicate lower economic
growth during the next 12 to 18 months than previously expected.
11
The sooner the
economy recovers, the sooner unemployment and related problems will be eased.
Also, a stronger economy will show immediate benefits to the financial status of the
municipal governments.
Stable interest rates at a low level and low inflation rates are conducive to economic
recovery. During 1991, the bank rate fell steadily from 10.73% to 7.67% while the
Canadian dollar fluctuated between 0.86 and 0.89 U.S. dollars. Also during the year,
inflation for Metro Toronto was less than 1 %. From a monetary perspective, this
economic performance ranked very high among the industrialized nations.
Recently, reduced confidence in the Canadian economy has placed strong downward
pressures on the Canadian dollar. In responding to these pressures on the dollar,
the Bank of Canada may have to increase interest rates. As interest rates are
increased, economic recovery becomes more difficult, which in turn brings further
negative pressures to bear.
The two main options to deal with this dilemma are to stimulate exports by letting
the dollar drop or to keep inflation low by 'riding out' the recession. Although many
11
Sources: Conference Board of Canada, Royal Bank of Canada.
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argue that Metropolitan Toronto's economy will improve more quickly if the dollar
drops, the Governor of the Bank of Canada appears to pref er the latter approach.
Implications r or Policing Senrices
• Job losses, high unemployment, and absolute increases in welfare roles and
disbursements all strain the financial resources of Metropolitan Toronto, leading
to strict limitations on the funds available to provide effective police services.
• The public will continue to scrutinize the services it pays for, expecting the Police
Force and other agencies to be accountable for activities and expenditures.
• The strains on individuals and families during periods of financial crisis will affect
the requirements for police service. The Force must be prepared to respond to
those most vulnerable to victimization during such periods.
• If the economy continues to be under stress, it will be increasingly difficult for
the Force to be funded for a level of service consistent with recent years.
Changes will likely be necessary to provide policing services in less labour
intensive ways.
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CRIME TRENDS
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III. CRIME TRENDS
A significant portion of police activity is spent in the prevention and detection
of crime and the apprehension of offenders. Infonnation about changing crime
patterns or types of offenders allows Force members the opportunity to develop
strategies to address changing problems, make rational decisions, and plan Force .. ~- •
activities according to, or in anticipation of, crime related trends. Analysis of
crime trends by specific areas is a vital component of community based policing
in tenns of deriving feasible operational strategies and measuring the impact of
change.
A word of caution is necessary in analyzing and interpreting crime statistics. Official
crime statistics usually represent one of the most systematic ways of recording
criminal occurrences. However, it must be recognised that official crime statistics
cover only the detected or known crimes; unreported/undetected crimes constitute
hidden crime. Official crime statistics are affected by changes in legislation, the
criminal justice system and enforcement practices. Statistics from other sources, such
as vicHmization studies and surveys on the public's perception of safety, play an
important role in bridging the gap.
The methodology of measuring crime also has an effect on crime statistics. For
example, the total number of crimes will be affected by whether crimes are
measured in terms of individual offences or incident, the latter of which may involve
more than one offence.
Other factors have an effect on the occurrence and analysis of crime, and at times
make cross-community comparisons difficult. These include population density, size
and composition of population, size of the transient population, characteristics of the
population, organization and co-operation of adjoining and overlapping police
jurisdictions, etc.. While it is not possible to consider all these factors in an analysis,
some of the problems can be overcome by using more standardized measurements
for comparison, such as crime rates and ratios. Other solutions include maintaining
the consistency of definitions and of the data collection method used, restricting
comparisons to those crime categories having the most precise definitions, and
noting specific limitations involved in the comparison. For the above stated reasons,
only offences under the Criminal Code and specific federal statutes (Narcotic
Control Act and Food and Drug Act) are analyzed in this report, due to their
uniform definition and nation-wide application.
For the purpose of analysis, Criminal Code offences are categorised into major
offence groups: offences against the person, comprised of all violent crimes
including Robbery, which includes Purse-Snatching; offences against property,
35
comprised of Theft, Break and Enter and Fraud; other Criminal Code offences,
comprised of a variety of offences ranging from Escape from Legal Custody,
Possession of Stolen Property, Harassing, etc.; and Criminal Code traffic offences.
Not all offences involve a direct confrontation between the victim and the crime
perpetrator perhaps resulting in actual violence. Crimes against the person, which
do involve a direct confrontation and violence, constitute a relatively low proportion '"
(11 % ) . of the total number of Criminal Code offences . ... However, they are usually•-~ ,.
the crimes which have the greatest impact on the public's perception of safety.
Highlights
• In 1991, the total number of crimes went up by 10.1 % over 1990; the crime rate
increased by 11.4 offences per 1,000 population. This represented the largest
increase for any single year between 1987 and 1991.
• Of the five major offence groups, property crimes accounted for 71.8% of the
total increase in 1991.
• Since 1987, violent crimes increased 31.6%, this being the highest five year rate
of increase among the major offence groups.
• Criminal Code traffic offences decreased over the past five years by 9.1 %.
• For the first three months of 1992, no significant increase in total number of
crimes has been noted; violent crimes show an 11.6% decrease compared with
the same three months in 1991.
• Although 4 District was not a high crime area when compared with other
Districts, it had the highest increase in the crime rate (from 82.7 offences per
1,000 population in 1987 to 116.9 offences in 1991). The second highest rate of
increase was 1 District (from 114 offences in 1997 to 144.3 offences in 1991).
• Use of weapons in violent crimes increased in 1991 by 11.4% over 1990. The
five year increase between 1987 and 1991 was 79.4%.
• Persons under 25 years of age had the highest arrest rate (for six major offences)
of all age categories: 41.9 persons per 1,000 population.
• Crimes occurring in schools increased during 1991. The five year increase was
31.7%, with three-fifths of this occurring in 1991.
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• Drug offences increased significantly, with the arrest rate for males in the 18-24
year age group higher than any other age category, at 7.7 persons per 1,000
population.
• In 1990, in comparisons among 10 selected major Canadian cities, the overall
crime rate per 10,000 population in Metro Toronto was less than that in six
others. · This is an improvement over 1989 when Metro Toronto's crime rate was '.'':•·
less than that of five of these cities.
A. Historical Patterns
A significant increase in crime occurred in 1991. This is a continuation of the
upward trend which began in 1987, after a period of stabilization during the first half
of the 1980's. The total number of criminal code offences rose 10.1 %, from 265,475
in 1990 to 292,180 in 1991 (Figure 3.1).
Between 1987 and 1991, there was an increase of 56,998 criminal code offences.
The one year increase between 1990 and 1991 was 26,705 offences. The increase in
offences seen in 1991 was, therefore, responsible for nearly half ( 47%) of the five
year increase experienced between 1987 and 1991 (Figure 3.2).
Total Criminal Code Offenses
Metropolitan Toronto: 1966-1991
Thousands
350.--------------------,
300 ······································································································································
250
200
150 .................................................................................................................................. .
100 .................................................................................................................................. .
50 ················································· ·································· ···················································
0 ..___._____,___,___..___._____,___,___..___._____,___..__..___.____.__--'---''---'----'----'--'---'-----'---'--'-'
1967 1969 1971 1973 1975 1977 1979 1981 1983 1985 1987 1989 1991
Source: M.T.P.F., RIii Information Cantre
Figure 3.1
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100%-
75%-
50%-
25%-
Total Increase in Criminal Code
Offenses & Crime Rate: 1987-1991
Proportion of Each Year
(lncr•••••58,888)
-
-·
Offenses
(lnoreaH•28.8)
-
• ··
Rate (per 1000 pop)
~ 1988 Wffi 1989 ~ 1990 - 1991
Source: M.T.P.F . Information Centre
Figure 3.2
B. Rates for Comparisons
Crime rates per 1,000 population
are considered better indicators of
the crime situation than number of
crimes alone. They enable fair
comparison between different places
and/or across time because they
control for the size of resident
population; however, they do not
control for the effect of the
transient population on crime.
Areas with large transient
populations will, therefore, show
significantly higher rates than areas
with mainly resident populations and
the same number of crimes.
Number of Offenses Per 1000 Population
Metro Toronto: 1987-1991
OffenHt/1000 Population
190...----------------,
1,0 ................................................................................... 1311.ll .... .
123.8
120 ..................... ... .1tU ............. .1t7,L ......... .
107.3
,oo .. .
80 .. .
e0 ···
,0 ... .
20 ... .
0 '---"=:1...----'-'-=-_.lue"""""1.---LI.
1887 1988
•-•• M. T.,.F.l11tor111at10n ca..,,.,
M•t,. l'lannlng
Figure 3.3
1H9
Year
1990 1991
As shown in Figure 3.3, in 1991, a total of 135.9 offences occurred for every 1,000
people residing in Metropolitan Toronto. The crime rates for each of the past five
years has shown an increase. Between 1987 and 1991, the crime rate increased by
38
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28.6 offences per 1,000 population. The crime rate between 1990 and 1991 increased
by 12.3 offences per 1,000 population. The increase in 1991, therefore, accounted
for 43% of the total increase in the crime rate over the past five years.
C. Changes in Major Offence Groups
Between 1987 and 1991, most of the
major offence categories showed
incre~es, with the exception of .
Criminal Code traffic. Crimes
against the person had the largest
percent increase {31.6%) over five
years (Figure 3.4).
The significant increase in the total
number of criminal code offences in
1991 was a reflection of the
disproportionate one year increase
in property crimes.
% Change in Number of Crimes
by Offense Groups
"'Change
,o~----------------,
II.I
•ID ···· ·•································································· · ··· ··········· ····· ··········
.•. ,
1987-91 1990-91
- ... r,on fZ2:I Property EilB Otller CC &SSj CC Tratllo ~ Total
OeuNe, 1i1.,.T.r. la,-,aall•• Ceotre
Figure 3.4
During the past five years, the
proportion each major offence
group constituted of the total
number of crimes did not change
significantly. Property crimes have
consistently constituted about half of
the total number of crimes. Crimes
against persons have consistently
accounted for close to 11 % of all
Criminal Code offences.
Major Offense Categories:
% of Total Crimes
10.4 ..
"· '"
.. , .11 ..
10., ..
1987 1900 1991
30.1t.
111.011,
1tH
Property crimes increased by 19,166
occurrences in 1991. This increase
~ Peraon -Property lffitl Other CC ~ Traffic CC
constituted 71.8% of the total ....... tu.,. , ..... ,_, .. c .. , ..
---------------------
increase in Criminal Code offences Figure 3.5
between 1990 and 1991. As a
result, the proportion of property
crimes in the total number of Criminal Code offences did increase slightly, from
48.9% in 1990 to 51 % in 1991 (Figure 3.5).
39
D. Changes in Specific Categories of Crime
A breakdown of changes in specific offence categories showed that for the past five
years, robbery had the greatest rate of increase, followed by motor vehicle theft and
weapons offences (Table 3.1 ). Change in different types of robbery is further
analyzed under Section E on crimes of violence.
Between 1990 and 1991, most of the offences showing the largest rate of increase
were crimes against property. This significant increase in property crimes in 1991
presented another challenge to the Force, since the increase in violent crimes noted
since 1987 also continued.
Table 3.1
Criminal Code Offence Groups - % of Total Number of Crimes and Change
% of Total Crimes % Change
1987 1990 1991 1987-91 1990-91
--------------------------
-------- --------
Homicide & Attempts 0.1 0.1 0.1 20.6 35.5
Sexual Assault 1.0 0.9 0.9 · 6.2 10.8
Other Assault 8.3 8.7 8.4 26.2 6 . 1
Robbery 1.3 1.8 1.9 86.9 18.9
Break & Enter 9.4 9.2 9.2 21. 8 10.2
Motor Vehicle Theft 2.6 3.0 3.6 70.0 32.5
Other Theft 31. 8 31. 4 32.7 27.8 14.7
Fraud 5.6 5.3 5.5 21.4 12.9
Offensive Weapons 1. 3 1.5 1.6 48 . 5 16.4
Other Criminal Code 28.2 29.7 28.5 25.8 5.9
Criminal Code Traffic 10.4 8.5 7.6 (9.1) ( 1. 4)
Total 100.0 100 . 0 100.0 24.2 10 . 1
The fact that property crimes experienced such an increase during a recessionary
year has led some analysts to conclude that the economic downturn has caused the
increase in crime. As discussed in Section II on Economic Trends, a body of
carefully documented research over time does not support this type of simplistic
causal relationship. It is beyond the scope of this Scan to determine the extent to
which significant relationships can be found between increases or decreases in
specific crime categories and economic changes over time.
E. Crimes of Violence
Analysis of major offence groups indicates that crimes against the person was the
category which had the greatest increase (31.6%) between 1987 and 1991. In 1991,
violent crimes showed the second largest increase (8.6%) after property crimes.
In terms of specific types of violent crimes, homicide (including attempts) had the
largest one year increase (35.5%) in 1991, from 138 to 187 occurrences. Between
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1987 and 1991, robbery jumped 86.9%, from 2,997 to 5,602 occurrences. Armed
robbery increased the most (163.3%), from 982 to 2,586 occurrences and its
proportion in the total number of robberies increased from 32.8% in 1987 to 46.1 %
in 1991. For the same five year period, unarmed robbery and purse snatching
increased 69.3% (from 1,357 to 2,297 occurrences) and 24.2% (from 488 to 606
occurrences), respectively. Although these crimes are fewer in absolute numbers
than property crimes, because of their seriousness, they have the ·most. significanL ·.
impact on the public's perception of safety.
As seen in Figure 3.6, in 1991, the rate of occurrence for violent crimes was 15.3
offences per 1,000 population, compared with 69.3 offences for property crimes and
the overall crime rate ·of 135.9 offences. Between 1987 and 1991, violent crimes had
an increase of about 4 offences per 1,000 population, compared with 28.6 offences
for the overall crime rate. Although the trend toward increasing violence has
continued, violent crimes still constitute a relatively low proportion (11.2%) of the
total number of crimes.
Number of Offenses Per 1000 Population
Major Offense Groups - 198 7 & 1991
Offenses/1000 Pop
160~-----------------~
140 ······ ·················· ········· ······ ·············· ···················· ······ ·························· ............ ..... 135...Q .. ..
120
100
80
60
40
Person Property Other CC CC Traffic
8ouroe: M.P.T.F. lnlormat ion Centre;
8tatl1tlce Canada
Figure 3.6
- 1987 ~ 1991
F. Use of Weapons and Injury of Crime Victims
Total
The trend toward increased use of weapons, and guns in particular, in the
· .,commission of crimes continued in 1991 (Table 3.2). Between -1987 and 1991, the
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A.
B.
proportion of robberies involving the use of guns doubled. In terms of numbers,
robberies and non-sexual assaults involving the use of guns increased by 278.6%
between 1987 and 1991, and by 36.8% between 1990 and 1991. The proportions of
robberies and assaults involving the use of some form of weapon has increased
steadily. The proportion was 28.5% in 1987; it - increased to 37% in -1990, and to
38% in 1991.
· An increased number of police officers were also victims of the upward trend of
violence. Included in the total number of assaults of 1987 are 382 assaults on police
officers. This number increased to 510 in 1991, a 33.5% rise in five years.
Table 3.2
Number of Robbery and Other Assaults, and Injury of Crime Victims: 1987, 1990 & 1991
------------------------------------------------------------------------------------
Robbery Other Assault* Total of Robbery and Assault
** ** % Change
1987 1990 1991 1987 1990 1991 1987 1990 1991 1990-91 1987-91
----------------------- ----------------------- ----------------------- ---------------
Total No . of Offences 2 , 997 4,711 5 , 602 19,440 23,118 24,538 22,437 27,829 30,140 8 . 3 34 . 3
No. where weapons used
(1) Guns 336 915 1,261 65 195 257 401 1,110 1,518 36.8 278 . 6
% Total 11 . 2 19.4 22.5 0.3 0 . 8 1. 0 1.8 4 . 0 5 . 0
(2) Knives/sharp obj. 547 1,003 1,071 1,501 2,318 2,480 2,048 3,321 3,551 6 . 9 73 . 4
% Total 18.3 21.3 19.1 7.7 10.0 10.1 9.1 11. 9 11.8
(3) Others 429 713 928 3,516 5,147 5,471 3,945 5,860 6,399 9.2 62.2
% Total 14.3 15 . 1 16 . 6 18 . 1 22.3 22 . 3 17 . 6 21.1 21.2
(4) Sum of (1) to (3) 1,312 2 , 631 3,260 5,082 7,660 8,208 6,394 10,291 11,468 11. 4 79.4
% Total 43.8 55.8 58 . 2 26 . 1 33.1 33.5 28.5 37.0 38.0
(5) Total# Victim 2,983 4,699 5,589 19,450 24 , 564 24,564 22,433 29,263 30,153 3.0 34.4
# Injured 1,022 1,400 1,551 13,685 15,362 16,058 14,707 16,762 17,609 5 . 1 19 . 7
% Injured 34.3 29.8 27.8 70.4 62.5 65.4 65.6 57.3 58.4
* Other Assault includes all except sexual assaults.
**Statistics of last SCAN report revised .
Source: M.T .P.F., RIS Information Centre .
Although there was an increase in the number of victims injured due to robbery and
non-sexual assault, the injury rates during 1990 and 1991 were similar. In fact, the
rate of injury to people resulting from robbery has decreased from 34.3% in 1987
to 27.8% in 1991.
G. Persons Arrested and Charged
Tables 3.3 and 3.4 show the breakdown of persons arrested for six major offences
42
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by age group and arrest rate. Between 1987 and 1991, the number of arrests for six
major crime categories (robbery, sexual assault, assault, break and enter, theft and
vehicle theft) increased by 17%, with significant increases in the 25 to 34 year and
35 to 44 year age groups. The 18 to 24 year age group constituted the largest
proportion (29.5%) of the total arrests for these six offences in 1987. In 1991, the
25 to 34 year age group had the largest proportion (31.5% ). This was due to the
large increase in number of arrests for the 25 to 44 year age group and a slight
decline in number of arrests for the 18 to 24 year group. In general, the proportions
of arrests for the age groups below 25 years decreased, while those between 25 to
44 years of age increased.
•
Table 3.3
PERSONS ARRESTED BY AGE GROUP - TOTAL OF 6 MAJOR Offences*, 1987 - 1991
1987 1990 1991 % Change
% of % of % of
Age Group Number Total Number Total Number Total 1990-91 1987-91
--------- ---------------- ---------------- ---------------- ----------------
12-17 5,397 18.8 5,583 18.6 5,918 17.6 6.0 9.7
18-24 8,498 29.5 7,783 26.0 8,416 25.0 8.1 (1.0)
25-34 7,964 27.7 9,139 30.5 10,595 31.5 15.9 33.0
35-44 3,975 13.8 4,440 14.8 5,373 16.0 21. 0 35.2
45 &+ 2,887 10.0 2,720 9.1 3,106 9.2 14.2 7.6
Total** 28,762 100.0 29,966 100.0 33,620 100.0 12.2 16.9
* Offences include Robbery, Sexual Assault, Assault, Break & Enter, Theft and Vehicle
Theft.
** The number of total arrest includes those aged below 12 and the age unknowns.
Source: M.P.T.F. RIS Information Centre
In terms of number of persons arrested per 1,000 population, the 12 to 17 year and
18 to 24 year age groups continued to have the highest arrest rates in 1991 (Table
3.4). About 42 persons were arrested per 1,000 population for these two groups,
compared with 24 persons and 15 persons for the 25 to 34 year and 35 to 44 year
age groups, respectively. After a slight decrease in 1990, the arrest rates for all the
age groups increased in 1991.
Table 3.4
PERSONS ARRESTED PER 1000 POPULATION - TOTAL OF 6 MAJOR Offences, 1987 - 1991
1987 1990 1991
Arrest Arrest Arrest
Age Group Pop Arrest Rate Pop Arrest Rate Pop Arrest Rate
--------- ---------------------------- ---------------------------- ----------------------------
12-17 140,270 5,397 38.5 147,401 5,583 37.9 139,860 5,918 42.3
18-24 229,693 8,498 37.0 220,870 7,783 35.2 202,476 8,416 41. 6
25-34 362,368 7,964 22.0 457,248 9,139 20.0 442,379 10,595 24.0
35-44 266,852 3,975 14.9 354,243 4,440 12.5 355,107 5,373 15.1
45 &+ 678,643 2,887 4.3 770,671 2,720 3.5 771,564 3,106 4.0
Total* 2,125,520 28,762 13.5 2,290,753 29,966 13.1 2,247,950 33,620 15.0
* Total population includes also those not in the above age groups.
Source: M.P.T.F. RIS Information Centre; Metro Planning
43
Statistics on number of persons charged for Criminal Code offences provide further
indication about young persons' involvement in criminal activities. In 1991, young
persons (aged 12 to 17 years) comprised 14.5% of the total number of persons
charged for Criminal Code offences, a slight increase from the 14.1 % in 1987. Also,
as seen in Figure 3.7, the number of young persons charged increased by-13% in ·
1991, compared with a 9% increase for adults. Male youths charged showed . the
largest increase in number charged (15%) compared with the other age ·groups.
Young Persons & Adults• Charged for
Criminal Code Offenses: % Change 1990-91
1'i Change
11~ - ---------------~
11 ··············· ················ ································································································
16
M Young F Young M Adult F Adult Total Young Total Adult
• Young per1on1 were aged 12 to 17 and
adulta were aged 18 and over.
Figure 3.7
H. Drug Related Crimes
•
Between 1987 and 1991, the number of offences under the Narcotic Control Act and
the Food and Drug Act increased by 41.7%. In 1991, a total of 9,550 drug offences
occurred, which was a 17.6% increase over 1990. The number of persons arrested
for drug offences was 4,883, up by 19% from 1987, but a 2.2% drop from 1990.
Therefore, despite the significant increase in the number of drug offences in 1991,
the number of drug arrests did not increase. This is due to the increase in number
of persons arrested who were charged with multiple offences. It should be
remembered that any changes in these drug related statistics may be due to changes
in the community with regard to drug use, changes in police enforcement practices,
or some combination of both these factors.
Most of the persons arrested for drug offences were males: 86% of all drug arrests
(Figure 3.8). However, the ratio of females arrested to males arrested has gone up.
44
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In 1987, for every female arrested for a drug offence, there were seven males
. arrested. In 1991, there was 1 female to every 6.2 males arrested for drug offences.
This change was caused by a decrease in the number of males arrested and a slight
increase in the number of females arrested between 1990 and 1991.
Drug Offenses and Persons Arrested
1987, 1990 & 1991
Thouaande
12 ,---- - --- --------------,
10 ········· ···· ····· · ... 11e ······ ······ ······ ················ ······································································
Ofh nses Total Arrest Males Arrested Females Arrested
- 1987 ~ 1990 film 1991
Source: M.T.P.F. Information Centre
Figure 3.8
In terms of number of arrests for drug offences per 1,000 population, the 18 to 24
year age bracket was the high risk group in 1991, with 7.7 persons per 1,000
population (Figure 3.9). It was followed by the 25 to 34 year age group, with 5
persons arrested per 1,000 population. The overall arrest rate for drug offences was
2.2 persons in 1991.
Between 1987 and 1991, males in the 18 to 24 year age group consistently had the
highest arrest rates. The rate for this group dropped from 14.9 persons in 1987 to
12.8 persons in 1990, but it went up slightly to 13.1 persons in 1991.
45
Drug Offenses: Arrest Rate
by Age Group by Sex - 1991
Persona Charged/1000 Pop
19 ,---- - ----------------- ----,
14 ················································································-·································· ···············
12 .............. ....... . · ·· ··································································································
10 ........... ........... . ................................................................................................... .
• ....•..••..•...••••.•• . •..• :Z.1 ....•.
• ...................... . ..... • .....................................................................
0
12-17 18-24 26-34 36-44
Age Groups
- Male ~ Female film Total
Source: M.T.P.F. lnrormatlon Centre
-·, Metro Planning.
Figure 3.9
I. Crimes Occurring on School Premises
Total
There was a significant increase (17.3%) in the number of Criminal Code offences
occurring in schools (under the Public and Separate School Boards), from 4,946 in
1990 to 5,802 in 1991 (Table 3.5). In fact, the one year increase between 1990 and
1991 accounted for 61.3% of the total five year increase between 1987 and 1991,
clearly indicating a difficult year in schools. It should also be noted, however, that
intensified efforts of Street Crime Units within schools may have resulted in
increased willingness to report incidents.
Sexual Assault
Other Assaults
Robbery
Uttering Threats
Weapons Offences
Theft
Break & Enter
Mischief
Others
Total
Table 3.5
Crimes Occurring on School Premises
1987 1990
% Change
1991 1990-91 1987 - 91
-------- -------- -------- -------- --------
78 133 178 33.8 128 . 2
519 736 803 9 . 1 54.7
25 73 116 58 . 9 364.0
41 140 177 26 . 4 331 . 7
62 135 159 17 . 8 156 . 5
2,054 1,839 2,227 21 . 1 8.4
442 665 747 12.3 69 . 0
923 887 990 11.6 7 . 3
261 338 405 19.8 55.2
4,405 4,946 5,802 17.3 31. 7
Source : M . T. P. F . RIS Information Centre
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The most frequently occurring crimes in schools were crimes against property,
.. specifically, theft and malicious damage of property. Non-sexual assaults were the -
predominant violent crime, and was the third largest group of offences. Robbery,
although constituting less than 2% of the total offences occurring in schools, had the
largest rate of increase between 1990 and 1991 and over the past five years. The
trend of increasing violence and numbers of crimes in schools is cause for .serious -
concern. In most cases, offences involved students enroled in the school, but
sometimes the problem involved intruders whom school officials had difficulty
excluding from school premises due to constraints arising from existing legislation
on trespassing.
J. Trends Across Police Districts
Between 1987 and 1991, the proportion of the total number of crimes occurring in
each of the five police districts did not change significantly. No. 5 District continued
to have the largest proportion of crime occurrences and 2 District the smallest
(Figure 3.10).
4 Dis
17.1
Figure 3.10
District % of Total Offenses
1987 & 1991
2 Dis
11. 7
1987
2 Dis
12
1991
Both 4 and 5 Districts had relatively large changes in terms of their proportion of
the total number of crimes in Metropolitan Toronto: the proportion of 4 District
in all major offence groups increased; 5 District, on the contrary, had decreased
proportions for all offence groups.
47
In 1991, 4 District's proportion of the total number of violent crimes increased, from
16.4% in 1987 to 19.4%. In fact, 4 District had the largest rate of increase ·· for
violent crimes, property crimes and the total number of crimes during the past 5
years (Table 3.6).
In terms of number - of offences per 1,000 population, 5 and 1 Districts continued to ....
have the highest crime rates and 3 District the lowest. Between. 1987 and 1991, 4
· District had the largest increase in the rate for violent crime,. property crime and .
total crime. ·
Table 3.6
SUM-1ARY OF CCliPARISON: 1987-1991
--------------------------------
Metro
1 Dist 2 Dist 3 Dist 4 Dist 5 Dist Total
-------- -------- -------- -------- -------- --------
(A) % of Metro Total by
Offence Groups in 1991
(1) Against Person 23.3 lLO 16.7 19.4 29.6 100.0
(2) Against Property 20.3 11. 7 17.7 20.0 30.3 100.0
(3) Other Crim. Code 20.5 12.7 15.8 16.9 34.1 100.0
(4) Crim. Code Traffic 22.7 13.1 20.6 20.5 23.1 100.0
Total Offences 20.9 12.0 17.3 19.0 30.8 100.0
(B) % Change in No. of Offences
1987-91
(1) Against Person 30.4 39.7 39.1 56.6 14.5 31.6
(2) Against Property 35.5 27.1 29.0 47.7 14.0 28.1
(3) Other Crim. Code 15.4 38.1 33.0 35.1 24.0 26.8
( 4) Crim. Code Traffic (4.8) (9.1) (10. 3) (5.6) (14. 6) (9.1)
Total Offences 24.1 27.3 26.0 38.7 14.9 24.2
(C) Change in Rate of Offences Per
1,000 Population 1987-1991
(1) Against Person 4.5 3.7 3.2 5.0 3.1 3.9
(2) Against Property 19.8 13.4 12.6 21.0 14.2 16.2
(3) Other Crim. Code 6.4 10.9 7.2 8.5 14.0 9.3
(4) Crim. Code Traffic (0.4) (0.8) (0.8) (0.3) ( 1. 7) (0.8)
Total Offences 30.3 27.2 22.1 34.2 29.5 28.6
(D) Rate of Offences per
1,000 Population 1991
(1) Against Person 18.1 12.2 10.8 13.4 21. 7 15.3
(2) Against Property 71.5 58.6 52.2 62.6 101. 0 69.3
(3) Other Crim. Code 42.7 37.7 27.3 31.2 66.9 40.9
(4) Crim. Code Traffic 12.0 9.8 9.1 9.7 11. 5 10.4
Total Offences 144.3 118 . 3 99.4 116.9 201.1 135.9
Source: M.T.P.F. RIS Information Centre; Metro Planning; Statistics Canada.
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K. Crime in Metropolitan Toronto and Selected Canadian Cities
1
To understand the crime situation of Metropolitan Toronto in relation to other
Canadian cities, nine other municipalities representing various population sizes were ,
selected for comparison (Table 3.7). For a number of reasons, the crime situation
·of Metro Toronto is expected to be different from other Canadian ·cities. It should .. -·
be understood that population size is only one factor having an impact on the
number of crimes and demand for police services. Other factors that influence the · ·
need for police service include characteristics of the population (such as ethnic
diversity and the age composition), size of the transient population, patterns of
crime and calls for service, special services required by the municipality or the
Province, exclusiveness of the region from surrounding areas, and the number of
visitors and major events.
Metropolitan Toronto is one of the most diverse and multicultural cities in the
world. Being the largest metropolitan area in Canada with rapidly developing
surrounding regions, it is also the cultural and economic centre for the country,
attracting a considerably-sized transient population during the daytime and during
specific events. All these factors have an effect on crime and create an additional
load on the resources of the Force.
In 1990, in comparisons among 10 selected major Canadian cities, the overall crime
rate per 10,000 population in Metropolitan Toronto was less than that in six others.
This is an improvement over 1989 when Metro Toronto's crime rate was less than
that of five of these cities. In terms of the population-per-officer ratio, Metropolitan
Toronto remained in the third highest position for the period from 1986 to 1990.
It was one of the two out of 10 forces reviewed which had an increased ratio for the
period.
In terms of increase in number of crimes per 10,000 population, Metropolitan
Toronto had the sixth largest increase in the overall crime rate between 1986 and
1990. However, it had the second largest increase in number of violent crimes per
ten thousand population for the same period.
1
Possible variations in reporting methods by police agencies are not specified in the source of this
data.
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Table 3.7
Crime Rates (number of offenses per 10,000 population) and Police Strength in Selected Canadian Hunicipalities
2
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(1) (2) (3)
Violent Crimes Property Crimes Other Crimes Total Crimes* Police Pop/Pol
Population No. Rate No. Rate No. Rate No. Rate Strength Ratio
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1990
----------- -----------------
----------------- ----------------- ----------------- -----------------
Metro Toronto 2,248,000 30,256 134.6 136,285 606.3 73,869 328.6 240,410 1,069.4 5,532 406.4
Montreal 1,783,700 23,574 132.2 141,881 795.4 47,491 266.2 212,946 1,193.8 4,457 400.2
Calgary 692,900 4,931 71.2 48,756 703.7 17,531 253.0 71,218 1,027.8 1,194 580.3
Winnipeg 619,900 5,243 84.6 46,437 749.1 15,552 250.9 67,232 1,084.6 1,108 559.5
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Edmonton 605,500 8,858 146.3 61,141 1,009.8 24,939 411.9 94,938 1,567.9 1,093 554.0
Vancouver 457,100 7,417 162.3 56,284 1,231.3 26,458 578.8 90,159 1,972.4 1,048 436.2
Hamilton-Wentworth 442,400 5,609 126.8 27,441 620.3 13,642 308.4 46,692 1,055.4 680 650.6
Ottawa 327,000 4,213 128.8 22,576 690.4 11,489 351.3 38,278 1,170.6 612 534.3
Halifax 113,600 1,755 154.5 11,210 986.8 4,753 418.4 17,718 1,559.7 258 440.3
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Saint John 76,400 956 125.1 4,480 586.4 2,188 286.4 7,624 997.9 191 400.0
1986
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Metro Toronto 2,163,300 20,577 95.1 119,130 550.7 54,217 250.6 193,924 896.4 5,222 414.3
Montreal 1,702,000 19,264 113.2 127,765 750.7 37,239 218.8 184,268 1,082.7 4,473 380.5
Calgary 640,600 3,290 51. 4 35,410 552.8 11,579 180.8 50,279 784.9 1,161 551.8
Winnipeg ··554, "500 5,578 98.8 57,508 1,018.7 19,570 346.7 82,656 1,464.2 1 , 042 541.7
Edmonton 571,500 7,962 139.3 53,156 930.1 15,027 262.9 76,145 1,332.4 1,086 526.2
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Vancouver 432,400 7,334 169.6 51,165 1,183.3 18,453 426.8 76,952 1,779.6 1,047 413.0
Hamilton-Wentworth 419,000 4,878 116.4 22,947 547.7 11,000 262.5 38,825 926.6 651 643.6
Ottawa 304,500 2,671 87.7 26,182 859.8 8,070 265.0 36,923 1,212.6 604 504.1
Halifax 114,600 1,152 100.5 10,957 956.1 3,597 313.9 15,706 1,370.5 263 435.7
Saint John 80,500 705 87.6 3,522 437.5 1,822 226.3 6,049 751.4 190 423.7
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Change in Population, Number of Crimes, Crime Rates and Police Strength in Selected Canadian Municipalities 1986-1990
(1) (2) (3)
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Violent Crimes Property Crimes Other Crimes Total Crimes* Police Pop/Pol
Population No. Rate No. Rate No. Rate No. Rate Strength Ratio
----------- ----------------- ----------------- ----------------- ----------------- ------------------
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Metro Toronto 84,700 9,679 39.5 17,155 55.6 19,652 78.0 46,486 173.0 310 (7.9)
Montreal 81,700 4,310 19.0 14,116 44.8 10,252 47.5 28,678 111.2 (16) 19.7
Calgary 52,300 1,641 19.8 13,346 150.9 5,952 72.3 20,939 243 . 0 33 28.6
Winnipeg 55,400 (335) (14. 2) (11,071) (269.6) (4,018) (95.8) (15,424) (379.7) 66 17.7
Edmonton 34,000 896 7.0 7,985 79.6 9,912 148.9 18,793 235.6 7 27.7
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Vancouver 24,700 83 (7. 3) 5,119 48.0 8,005 152.1 13,207 192 . 8 1 23.2
Hamilton-Wentworth 23,400 731 10.4 4,494 72.6 2,642 45.8 7,867 128.8 29 7. 0
Ottawa 22,500 1,542 41.1 (3,606) (169. 4) 3,419 86.3 1,355 (42.0) 8 30 . 2
Halifax (1,000) 603 54 . 0 253 30.7 1,156 104.5 2,012 189 . 2 (5) 4.6
Saint John (4,100) 251 37.6 958 148.9 366 60.1 1,575 246.5 1 (23 . 7)
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Notes:
Only Criminal Code offences are included in this analysis. Also note that Criminal Code traffic offences are not included.
(1) Violent crimes include homicide & attempts, assault, sexual offences, abduction & robbery.
(2) Property crimes include break & enter, thefts and fraud.
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(3) Other crimes include prostitution, gaming & betting, offensive weapons and other Criminal Code offences.
* Sum of (1) through (3).
Source: Crime Indicators, Canadian Centre for Justice Statistics, Statistics Canada .
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2
Cities are listed in order of population size .
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Implications for Policing Services
• Increasing crime has a serious effect on the quality of life in Metropolitan
Toronto. Crimes of violence, in particular, result in growing fears especially ·
among groups most vulnerable and will result in increased requirements for
service and increased resources to investigate cases and enforce the law. The
problem-solving and crime prevention strategies integral to the Beyond 2000
vision are expected to involve members of the public in addressing local problems
and to assist the police in using limited resources effectively.
• Although crimes of violence constitute a small proportion of total crime, these
are the crimes most destructive to people's lives and most likely to create a
climate of fear. Police will have to focus training and service delivery efforts on
proactive measures to prevent violence and on responses which decrease the
probability of repeat occurrences. The safety of police officers must also be a
focus of attention. The increasing use of weapons in the commission of crime
is a serious problem which requires a multi-faceted response by society.
• Increases in property crime present a challenge in terms of resources needed to
prevent and/ or adequately respond to a wide variety of offence types. Although
property crimes do not involve a direct confrontation between off ender and
victim, the sense of loss and fear has an impact on the quality of life in the
community.
• The disproportionate increase in number of young persons ( 12 to 17 years)
involved in crime, as revealed by their high arrest rates and the continued growth
of crimes taking place on school premises, indicates the need for new initiatives
between police, schools, and community agencies in responding to youth who may
be in high risk situations.
• The increase in the crime rates in both 4 and 1 Districts should be monitored to
determine whether policing strategies are effective in responding to local
problems.
• The budget constraints during a period of increasing crime create a major
challenge. The Beyond 2000 long-term strategy is expected to include in its
implementation plan mechanisms for more effective use of resources and the
encouragement of partnerships in addressing serious issues.
• Major cities have been experiencing serious problems involving growing crime
rates over the past five years. The reasons are complex. Although it would be
inappropriate to minimize the significance of the problem, it is important to
recognise that of ten major Canadian cities, Metro Toronto ranked seventh in
overall crime rate in 1990.
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VICTIMIZATION AND SPECIAL GROUPS
ATRISK
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IV. VICTIMIZATION AND SPECIAL GROUPS AT RISK
One of the Force's corporate objectives continues to address the concerns and
fears of, as well as the dangers to, both the public as a whole and those groups
vulnerable to victimization. Victims of crime have different needs. Changing · -. , --:
patterns of victimization will have implications not only for deployment of police
resources, but also for the types of services that must be provided.
Highlights
• Men and women tended to be victims of crimes against the person in relatively
equal numbers in 1991.
1
However, over the past five years, female victimization
has increased more than male victimization.
• There have been increases between 1987 and 1991 in the number of victims
across age groups for both men and women. However, the proportion of male
victims within each age group has remained unchanged while the proportion of
females in the middle age groups has increased.
• There was a 35 % increase in reported domestic violence occurrences between
1987 and 1991, with half of the occurrences in 1991 involving the use of a
weapon.
• Of the past five years, 1991 showed the largest proportion of domestic violence
occurrences with charges laid by police.
• Attempts to replicate the Minneapolis study ( effects of arrest on domestic
violence offenders) found that unemployed offenders became more violent after
arrest.
• While there was an increase from 1987 to 1991 in the actual number of those
under 18 years of age being victimized by selected crimes, the rate of
victimization per 1,000 remained unchanged. Similar victimization results were
found for those 65 years of age and older.
• Public consultation revealed concern among members of the Gay /Lesbian
community regarding an increase in "gay bashing" incidents. Appreciation was
expressed for the Force's efforts in 52 Division; however, there was concern that
this was not the only area where this type of assault was occurring.
1
These crimes against the person are: homicide, assault, sexual assault, and robbery.
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• Victimization of those within racial/ ethnic groups, of aboriginal peoples, and of
the disabled continues to be of concern to the Force.
• The collection of hate-motivated crime statistics, beginning in January .1993, will : .•
aid in the allocation and deployment of Force resources.
The Police Services Act requires that officers provide assistance to victims of crime.
The Metropolitan Toronto Police Force has instructed its officers to ensure, among
other things, that· victims are aware of available community services, that they are
provided with assistance in obtaining counselling if needed, that they are kept
informed of the status of their cases, and that they are provided with a brief
overview of the criminal justice system and those involved. The Force continues to
strengthen efforts to ensure that the needs of victims are met.
As noted above, addressing the concerns and fears of, as well as the dangers to, both
the public as a whole and groups vulnerable to victimization continues to be one of
the Force's goals. While many initiatives address this objective at a unit level, others
are more general in nature. For example, the Victim Services Program continues
to ensure that assistance and referrals can be offered to victims through police
officers investigating incidents, and the Wandering Patient Registry, established in
conjunction with the Alzheimer's Society, continues to assist in locating people with
Alzheimer's disease.
A. Victimization - General
While in 1990, in absolute numbers, men tended to be victims of the selected crimes
of violence (total of homicide, assault, sexual assault, and robbery) slightly more
often than women, over the past five years, female victimization has increased more
than male victimization. Between 1987 and 1991, the number of men victimized by
these crimes increased by 25 %, while the number of women victimized increased by
29%. The numbers of male and female victims were roughly similar in 1991.
As seen in Figure 4.1, there has been some increase over the past five years in the
number of male victims in all age groups. The greatest number of victims continues
to be in the age group that comprises the largest proportion of the population (25
to 34 years).
Information on female victims of these crimes by age group is shown in Figure 4.2.
As with the male victims, there has been some increase in the number of female
victims over the past five years in most age groups. And again, the greatest number
of victims continues to be in the age group that comprises the largest proportion of
the population.
53
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Male Victims-Selected Violent Crimes*
By Age (1987-1991)
(Thousands)
5..---------------------,
4 --- -- -- ··-. -------- --· .
3 -- ----------- -- --- ----
2 -- -- -- -------
0
0-11 12-17 18-24 25-34 35-44 45-54 55-64 65+
Years
1987 ~ 1988 11111989 ~ 1990 1!11991
• includes Homicide. Assault. Sexual Assault. Robbery/Purse Snatching
Source: MTPF Information Centre
Figure 4.1
Female Victims-Selected Violent Crimes*
By Age (1987-1991)
(Thousands)
5..------------------- ----,
4 . --- - -.. -. .. --
3 ----- --- -
2 -- -------
0
0-11 12-17 18-24 25-34 35-44 45-54 55-64 65+
Years
1987 ~ 1988 11111989 ~ 1990 1!11991
• includes Homicide. Assault, Sexual Assault, Robbery/Purse Snatching
Source: MTPF Information Centre
Figure 4.2
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While proportions are not shown on the Figures, over the five year period of 1987
to 1991, there was little change in the proportion of male victims within each age
group. For example, in each of these five years, over 30% of male victims of the
selected crimes were between 25 and 34 years of age.
However, the proportion of female victims within each of the age groups has
changed over the five year period: the proportion of 18 to 24 year old victims
decreased slightly, while the proportion of victims in the 25 to 34 and 35 to 44 year
groups increased slightly. Female victims of these crimes are getting slightly older~ -····
B. Population Groups at Special Risk
In recent years, increasing concern has been expressed about protection for special
categories of people who are vulnerable to victimization. There has also been a
focus on the response of the justice system to those who have been victimized. In
order to deal most effectively with the special needs of these types of victims,
training for Force members must promote understanding of, and sensitivity to, the
diversity of cultures, lifestyles, and abilities of those in Metropolitan Toronto.
Further, special categories of people have been identified not only as being 'at-risk'
of becoming victims, but also of entering into criminal activity.
Women:
As stated earlier, while in 1991 roughly the same number of women and men were
victims of certain violent crimes, surveys of the public show dramatic differences
between men and women in their perceptions of safety. Women are far more fearful
in their neighbourhoods, on public transit, and downtown after dark.
There are also differences within certain categories of crime between the
victimization of men and women. According to the Canadian Centre for Justice
Statistics, of the solved homicides from 1980 to 1990, over half (58%) of the female
victims were killed by someone with whom they had a domestic relationship. In
contrast, about half ( 49%) of male homicide victims were killed by an acquaintance.
Homicides committed by strangers were the least frequent for both males and
females.
In recent years, the Force has shown· increasing concern · with the problem of
domestic violence. Over the past five years the number of domestic violence
occurrences reported by the Force increased 35%, from 3,762 to 5,094 occurrences.
Following the 4% decrease in occurrences reported from 1989 to 1990, there was a
33% increase from 1990 to 1991 (Table 4.1).
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TABLE 4.1
DOMESTIC VIOLENCE
1987 1988 1989 1990 1991
# % # % # % # % # %
Total Number of Occurrences 3762 3471 3990 3841 5094
.
Charges Laid by Police 2299 (61.1) 2005 (57 .8) 2322 (58.2) 2116 (55.1) 3267 (64.1)
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Charges Laid by Victim 520 ( 13.8) 469 ( 13.5) 551 (13.8) 446 (I 1.6) 482 ( 9.5)
.
No Charges Laid 943 (25.1) 997 (28. 7) 1117 (28.0) 1279 (33.3) 1345 (26.4)
Where No Charges Laid:
.
No Reason~ble Grounds (RG )* 18 ( 1.9) 23 ( 2.3) 41 ( 3.7) 40 ( 3.1) 42 ( 3.1)
• Victim Advised May Attend 289 (30.6) 244 (24.5) 306 (27.4) 247 (19.3) 273 (20.2)
Justice of the Peace
.
Victim's Request (Some RG) 623 (66.1) 730 (73.2) 770 (68.9) 992 (77.6) 1030 (76.6)
Total Number of Charges Laid 2819 2474 2873 2562 3749
.
against males 2581 (91.6) 2274 (91.9) 2647 (92.1) 2390 (93.3) 3417 (91.l)
.
against females 238 ( 8.4) 200 ( 8.1) 226 ( 7.9) 172 ( 6.7) 332 ( 8.9)
Number of Cases where Weapons Used 1319 1392 1825 1673 2569
• proportion of total number of 35.1 40.1 45.7 43.6 50.4
occurrences
* Currently, in training for recruits and police officers, 'reasonable grounds' is defined as 'a set of facts or circumstances which would
satisfy an ordinary cautious and prudent person that there is reason to believe and which goes beyond mere suspicion'.
Source: RIS Information Centre, MTPF
Charges were laid by police in over half of the occurrences in each year, increasing
from just over half (55%) to almost two-thirds (64%) between 1990 and 1991.
There -was a corresponding drop in the proportion of occurrences where no charge _
was laid (33% in 1990; 26% in 1991). Although Force policy since 1986 has clearly
stated that officers are required to lay ·charges when reasonable ·and . probable .
grounds (changed simply to reasonable grounds in February 1989) exist, in over half ·
of the occurrences where no charges were laid each year since 1987, some ..
reasonable and probable grounds existed and yet charges were not laid at the
victim's request.
When charges were laid in domestic violence situations, they were most likely laid
against men, although the proportion of charges laid against women increased
slightly from 6.7% in 1990 to 8.9% in 1991. Women have represented less than 10%
of those charged in each of the past five years.
Finally, the proportion of domestic violence occurrences where weapons were used
. has increased rather steadily from just over one-third in 1987 to half in 1991,
indicating that the severity of violence within domestic situations may be increasing.
This may mean that women and children, who are most often the victims of this type
of violence, may face an even greater threat, as will police officers responding to
these calls.
As discussed in Section II on Economic Trends, it is apparent that there are growing
numbers in society who, although they do not normally need welfare or food bank
services, are having trouble sustaining themselves. Family tensions may increase as
these people must resort to charity or welfare for support. This stress will continue
to increase as the families cut back on goods and services that only a few years ago
were taken for granted. The possibility of an increasing number of family disputes
could place an additional burden on Force resources.
Following conversations with several organizations offering assistance to women,
Beverley Wybrow, Executive Director of the Canadian Women's Foundation, told
the Force's Environmental Scanning Committee that the perception exists among
these organizations that there is an increasing number of reports from women about
violence in the home, but not a corresponding increase in response from the
criminaljustice system. It is further believed that despite recent initiatives by the
police, women continue to have little faith in the criminal justice system as a whole
and, therefore, relatively few women report the violence against them to police. Ms.
Wybrow also noted the lack of services to which victims and offenders can be
referred for assistance and/ or counselling.
The policy mentioned previously ( officers required to lay charges when reasonable
grounds exist) was adopted by many North American police forces following an
·_. ·-experiment in Minneapolis, reported in 1984. This study- found .that arrest was more
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effective than either mediation or separation for the night in reducing repeat
violence.
Recent information from a study in Milwaukee ( and confirmed by a .study. in a __ :
second city) by the same primary - author suggests that the Minneapolis .findings may
not hold true in all communities. This new study found that unemployed offenders
who · were arrested for domestic battery. became more . violent than if they had not , . : ... .
been arrested, while employed offenders were made somewhat less violent by arrest.
The author suggested that communities should reconsider recent laws mandating :
police to make arrests in all cases of domestic battery since the laws may protect
some women while increasing violence against others. The Milwaukee findings may
be especially noteworthy during this time of recession and high unemployment rates.
Children:
As noted previously, the proportion of victims under 18 years of age (both male and
female), as a proportion of total number of victims of the selected violent crimes,
has changed little from 1987 to 1991 (18% in both years). While the number of
children who were victims increased 28% in the same time period, from 4,183 to
5,355, the rate of victimization per 1,000 population did not change (11.4 in 1987;
11.2 in 1991). Similar to what was noted in the 1991 Environmental Scan, most of
the increase in actual numbers was due to a 41 % increase in the number of victims
between the ages of 12 and 17 years.
As for all victims, while a greater number of young males were victimized in 1987,
by 1991 almost equal numbers of young males and females were victimized. A
number of highly publicized abductions and attempted abductions of children in
1991 focused awareness on, and resulted in a growing concern for, the safety of
children within Metropolitan Toronto.
A recent report from Statistics Canada on national victimization stated that almost
one-quarter of violent crime victims since 1988 were aged 12 to 19 years, although
teenagers made up only 11 % of the population. The report further stated that a
large proportion of teenage victims were victimized by other teenagers.
Violence by youths has become an issue of increasing concern in recent years. A
Statistics Canada report released last fall indicated that the number of young people
charged with violent crime has risen by at least 34% over the past four years. There
has also been concern regarding increasing use of weapons by youth. A number of
factors are thought to be related to the increasing violence, including diminshed .
material expectations, a lack of ethical certainty in society, media portrayals and
glorification of violence, families under both economic and personal strain, child
abuse, and a lack of creditable role models.
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According to Rix Rogers, the Chief Executive Officer of the Institute for the
Prevention of Child Abuse, on a national level, there is an increasing amount of
violence by and against children. Changes in the structure of society and the family,
enhanced by stressors such as poverty, are resulting in more vulnerable, less
socialized children at all socio-economic levels. Mr. Rogers also stated, in a
-presentation to the Environmental Scanning Committee, that victimization early in
a person's life often results later in problems with which the police may have to deal.
Child abuse often results in the destruction of emotional and ego processes which
may be manifested later in violence, hostility, and alienation.
While he acknowledged that the linkages which may form in community policing are
valuable, Mr. Rogers stated the need for much more, including changes in laws,
policing, and police training. He believed that with a good early intervention system,
there would be a significant drop in the number of children with psychological
problems, children who drop out of school, and violent children.
Elderly:
As with those under 18 years of age, the proportion of those 65 years of age and
older who were victims of selected violent crimes has not changed between 1987 and
1991 (about 2% in both years), similarly there was no change in the rates of
victimization per 1,000 population (1.8 in 1987; 1.9 in 1991). The actual number of
elderly victims increased during this time from 457 in 1987 to 556 in 1991,
representing a 22% increase. While elderly women were more likely to be victims
than elderly men, at both times, the number of elderly men victims increased more
than did the number of elderly women victims.
As the population ages, the senior segment of society will become of greater concern
to law enforcement. Public surveys have shown that elderly citizens are quite fearful
of victimization. As well, media reports of abuse of the elderly living in institutions
and within the family seem to be increasingly common. As more families cope with
the stress of caring for seniors, such victimization is likely to increase.
As reported in the previous scan, studies have found that at least 4% of those 65
years of age and older are subjected to abuse by friends, relatives, or persons in a
position of trust. The most common type of abuse has been found to be financial
or material exploitation.
In an effort to address the growing concern for this type of victimization, in
December, 1990, the Force appointed a full-time Elder Abuse Co-ordinator.
Working from Community Programs, the responsibilities of this position include
gathering statistics on abuse, developing strategies for prevention and intervention,
monitoring cases and legislative changes, acting as a resource for the Force, and
participating on inter-agency committees.
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In 1991, the Co-ordinator began to collect information on the number of occurrences
involving elder abuse. Of the occurrences in 1991 where the relationship of the
off ender to the victim was indicated, the most frequent off enders were sons,
neighbours, and husbands, and the most frequent offences were assault and uttering
• threats. Contrary to study findings, none of these occurrences involved reports of.
thefts, frauds, or forgeries. It is possible that victims of this type of abuse are not
making reports to the police or that this type of report is not being captured as elder
abuse.
Other Force initiatives addressing this type of victimization include the publication
of information pamphlets in various languages, increased liaison with other agencies
working with the elderly, and enhanced officer training. The Force is also working
with the Ontario Network for the Prevention of Elder Abuse to produce a manual
focusing on elder crime and abuse for police officers.
Sexual Orientation:
The Force has expressed concern over attacks related to the sexual orientation of
individuals and has begun a program stemming from community consultation. This
program, effected in rme division, involves high visibility policing (including a mobile
community station), community service seminars, and police/community workshops.
At a recent Police Services Board public consultation, a representative of the
Gay /Lesbian community reported that a primary concern of the community was the
increase in incidents of "gay bashing". While appreciation was expressed for the
Force's efforts in the division mentioned above, there was concern that this was not
the only area where this type of assault was occurring.
Racial/Ethnic Groups and Aboriginal Peoples:
Victimization within racial/ethnic groups is also a growing concern. Crimes of
violence, including shootings, woundings, homicides, robberies and extortions, have
continued to escalate within communities where police intervention is restricted by
language and cultural barriers to communication.
Many groups of immigrant women may be particularly vulnerable to the experience
of violence. Due to linguistic barriers, lack of knowledge about the law, cultural
norms in some groups, fears of the justice system in a strange country, and pressures
from within their own communities, many immigrant women remain in violent living
situations without support.
A study released in 1991 by the Multicultural Coalition for Access to Family Services
found that "established family services agencies have not adequately addressed
... barriers to providing services to individuals and families in most ethnocultural and
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racial communities in Metropolitan Toronto."
2
Aboriginal people are often vulnerable to other types of victimization. They are
over-represented within the criminal justice and correctional systems, and experience
disproportionate suicides and substance abuse. Metropolitan Toronto has one of
the largest aboriginal communities in Canada. This fact has been recognized by the
Police Force which has allocated resources to address the needs of this community.-··· However, it is important for the Force to continue to liaise with the social service
organizations that are focused on assisting this population.
Mentally and Physically Challenged:
A recent report by the DisAbled Women's Network estimated that there are over
1.2 million disabled people in Ontario. Further, the philosophy of de
institutionalization and community integration espoused over the past few decades,
along with financial constraints, have resulted in increasing outpatient care for those
with psychiatric illnesses.
People with disabilities, physical, mental, or psychological, are often at a greater risk
of victimization because of their perceived, and perhaps actual, inability to
adequately protect themselves. Although methodological concerns have been raised,
the recent DisAbled Women's Network study reported that disabled women were
sexually assaulted twice as often as other women, often by relatives, friends, or paid
caregivers.
3
The Force is currently involved in a number of initiatives which address the concerns
about this area of victimization. These initiatives include the training of all officers
on issues surrounding disabled victims and Force involvement on an advisory
committee with the Roeber Institute at York University to develop a manual for
police across the country on the issue of abuse of the disabled.
Hate Crime Statistics:
The Toronto Mayor's Committee on Community and Race Relations has defined
hate crime as a criminal act involving a victim's ethnicity, race, gender, sexual
orientation, and/or religion. Beginning January, 1993, in a positive initiative that
will strengthen the relationship between the Force and the public by showing that
2
Family Services For All: Study of Family Services for Ethnocultural and Racial Communities in
Metropolitan Toronto. Multicultural Coalition for Access to Family Services, 1991.
3
The research methodology is not fully described in the report. Many questions regarding the
statistical representation of the sample size and selection, the participanLscreening. process and the
interview process are left unanswered.
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--------------- ------ -------- - - ------- ------------
the police are concerned with this type of problem, the Force will begin collecting
statistics on hate-motivated crime. The increased information available through such
data collection will aid in the allocation and deployment of Force resources. This
issue is discussed in greater detail in the following section on Legislative Impacts. and
Political Trends.
Implications for Policing Services
• The Force must continue efforts toward public education and awareness of issues
related to victimization, and, in particular, victimization of vulnerable groups.
• The increase in reported occurrences of domestic violence where weapons were
used suggests that the severity of violence within these situations may be
increasing, posing an even greater threat to the most common victims (women
and children) as well as to police officers responding to the calls.
• The possibility of an increasing number of family disputes resulting from
economic stresses could place an additional burden on Force resources.
• Police initiatives to encourage women to report incidents of violence in the home
must be continued and enhanced where possible.
• Efforts must be made to improve the Force's ability to intervene early in
situations of child abuse.
• The Force must continue to address the issue of elder abuse through training and
liaison with other community services.
• Training for Force members must promote understanding of, and sensitivity to,
the diversity of cultures, lifestyles, and abilities of those in Metropolitan Toronto
and the changing types of victims and off enders.
• Efforts to address the concern over assaults related to sexual orientation must
continue.
• There is a growing need for specialized, culturally sensitive investigative and
support services.
• The Force must be able to respond to the specialized needs of victims who are
physically or mentally challenged.
• Calls for police service will increase as education and communication between
police and various groups within Metropolitan Toronto improve.-
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LEGISLATIVE IMPACfS AND POLITICAL TRENDS
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V. LEGISLATIVE IMPACTS AND POLITICAL TRENDS
Laws set out many of the mandates and parameters by which the Force operates,
and by which its members conduct themselves both on and off duty. Changes
. that take place or that are expected to take place relative to those laws, therefore,
affect the Force, its members, and the community as a whole.
Laws also reflect the expectations the community has of the police. Changes
in l,aws can reflect changes in those expectations, and can also affect Force
morale, depending on the perceptions of Force members.
It is, therefore, vital that the Force take legislation and legislative changes into
account when planning and providing service, whether the changes come from
the Police Services Board, the municipality, the province, or the federal
government.
Political changes, both real and anticipated, can also have a significant impact
on the police community and the policing environment. Changes in government
and in the political climate can influence not only specific legislation, but also
the social climate of Metropolitan Toronto and the province as a whole.
Highlights
• Legislative changes, especially those that add to the responsibilities faced by the
Force, can impact strongly on the budget. Many of the laws that have come into
effect in the last few years have led to an increase in the cost of policing, and
this trend is expected to continue in the near future.
• Legislation enacted in the last few years has augmented external control and
scrutiny over Force operations and the conduct of members.
• The exact impact of a number of legislative and political influences over the next
few years is not known, as some anticipated legislation has not yet been
implemented or finalized. In addition, instability at the federal level makes the
political climate even in the near future somewhat unclear.
A. Police Services Act
The full impact of the Police Services Act, 1990 continues to be unknown, as its
Regulations have not yet been finalized. However, much of the impact of this
legislation is apparent now, just over a year after the law was proclaimed.
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Among the most significant influences of this Act is section 41, which requires the
discharge of duties "in a manner that reflects the needs of the community". The
Force is responding to this through the Beyond 2000 initiative and through pilot
projects at a number of units. The Beyond 2000 Implementation Committee will
establish, before the end of 1992, a specific plan by which the Force will enter the
21st Century embracing a philosophy of Neighbourhood Policing.
The Police Services Act also contains an enhanced complaint process. Based on the
Metropolitan Toronto Police Force Complaints Act, 1984, Part VI-of the Act makes - · . . -
province-wide the complaint process that has become familiar in the Toronto
context. This is indicative of the increasing public scrutiny to which the Force has
opened itself.
Another example of this augmented public scrutiny is the provincial Special
Investigations Unit (S.I.U.), which operates under the authority of Part VII of the
Act. This unit is mandated to investigate circumstances of serious injuries and
deaths that may have resulted from criminal offences committed by police officers.
It has had the effect within the organization of creating a sense of closer
examination of all use of force by police officers. ·
On January 31, 1992, the Honourable John H. Osler, Director of the S.I.U., issued
a news release that announced new "standard operating procedures that will provide
direction to police services on the respective roles and responsibilities of the police
and of the Unit during an investigation by the Unit".
The new regulations, intended to "reinforce the Unit's authority and independence",
are subject to public discussion and input, but should be finalized later in the year.
The finalized regulations will be of considerable interest to the Force as they will
affect its working relationship with the S.I.U ..
The complaint and public scrutiny processes exist to improve the accountability of
the police to the public they serve, and to provide a non-intimidating, effective
mechanism for the hearing of complaints against police officers. This process is
expected to prevent major problems. It has become more complex and more costly
since first initiated.
The present Public Complaints Investigation Unit is not the only unit charged with
complaint investigation responsibilities. The Complaints Review and Internal Affairs
units are also involved in this function, as are Legal Services, Civil Liaison, the
Trials Office and the Trials Preparation Unit.
It should also be remembered that the costs associated with complaints against
police officers do not end with the Force. Costs are also incurred by the civilian
• ... agencies when they review matters or when public inquiries are heard. In addition,
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despite its ongoing efforts to achieve independence from police operations, the S.1.U.
continues to rely upon police investigative support due to limitations in its own
resources.
Section 48 of the Police Services Act sets out requirements relative to employment
equity plans. Such plans must contain "positive measures with respect to the · •
. recruitment and promotion of [ members of prescribed groups], so as to make the ·
police force more representative of the community or communities it serves". To
date, the Force has exceeded its· employment equity goals. ·However, due to :."·
restraints on the Force budget early this year, restrictions have been placed on both
hiring and promotion. The Force will have to rely on internal methods, such as
workplace harassment procedures, a limited number of promotions, and adjustments
to other related internal practices to try to maintain its excellent record.
B. Use of Force
The use of force by police officers is currently under close scrutiny, not only at the
Police Services Board level, but also at the provincial and federal government levels.
It continues, in fact, to be an issue of importance across the community. Among the
topics being considered at the provincial and federal levels are the drawing and
discharging of a firearm, the filing of a 'Use of Force' report, non-lethal use of force,
training and education surrounding the use of force, the type of firearm and
ammunition most appropriate for use by the police, police conduct and the code of
offences, and techniques and tools for the use of force.
One of the topics under discussion in regard to techniques and tools is the use of
new 'intermediate' implements such as expandable batons and aerosol sprays. If
adopted, these devices will have both operational and budgetary implications. One
of the main benefits is that implements such as capsicum sprays or expandable
batons would provide additional non-lethal force options. This is especially
important for plainclothes officers, who can not be equipped with standard batons.
The Force itself is currently studying some of the above issues, particularly the issues
involving the discharge of firearms at fleeing offenders, training, appropriate service
firearms and intermediate weapons. In addition, a Use of Force Review Committee
has been struck, chaired by the Superintendent, Professional Standards. The
proposed mandate of this committee includes reviewing and making
recommendations relative to the discharge of police firearms, training and
equipment, force policies, and other matters directed by the Chief.
All of these studies are bound to have an influence on the Force and the options
available relative to the use of force by police officers.
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C. Gun Law Amendments (Bill C-17)
Bill C-17, An Act to amend the Criminal Code and the Customs Tariff. in consequence
thereof, was passed by the House of Commons in November and -by the Senate in
December, 1991. The law will be implemented in stages over 1992 and 1993. The
Act makes a number of amendments to existing laws surrounding firearms in
Canada, some of which will have a bearing on the administration of the Force.
In particular, new regulations surrounding the . Firearms Acquisition Certificate ~ ··
(F.A.C.) will now require that the certificates normally contain photographs and will . . _
invoke a waiting period. The certificates, which presently take about 40 days to · ·. ·
process, will have to be ready in 28 days. The investigative responsibilities
surrounding the certificates will also be expanded to include two personal references
as well as the applicant himself or herself.
There will also be a firearms amnesty, requested by this Force and other police
organizations, that will start on or about November 1, 1992. An amnesty was held
in 1978, and though it was successful and worthwhile, it required the allocation of
already constrained police resources. There is no doubt that this will also be true
this year. ·
These factors could impact seriously on the Firearms Registration Unit, which
presently processes between 8,000 and 10,000 F.A.C. applications per year. An
expansion of that unit, presently made up of seven members including the supervisor,
may be necessary to handle the increased workload.
D. Court Security (Bill 187)
The provincial law that makes the municipality responsible for security in court
buildings continues to have a financial effect on the Force. Cost-saving measures
are being examined to reduce the impact, including the increased civilianization of
the court security function, as well as making use of police personnel who have
elected to remain on duty between their regular tour and their court appearance.
E. Harassment in the Workplace
The question of harassment in the workplace, long a concern of the Force reflected
in Standing Order 24, has been an area of intense scrutiny in 1991 and early 1992.
There is an increased awareness of the need for professional protocol in working
relationships, and changes in the procedures surrounding complaints of employee
harassment are anticipated.
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The call for positive change relative to workplace harassment across society is being
. taken very seriously within the Force. A new procedure to combat harassment,
along with a formalized complaint process, is expected to help ensure that such .
problems do not arise. The policy has been presented to the Police Services Board
and is in the process of being approved. The procedure is expected to be finalized
by the summer of 1992.
At this early stage, it is. not possible to predict accurately the effect this new process
will have on the resources of the Force.
F. Hate Crime Statistics
In October, 1991, the Police Services Board approved a policy of collecting hate
crime statistics, to be effective on January 1, 1993. This new policy allows the Force
to take a proactive stance relative to hate crime, and clearly shows the Force's
enthusiastic partnership with minority groups in the fight against these damaging
occurrences.
The collection of hate crime statistics by the Force is expected to have two primary
effects. Most significantly, the Force will have more data and information with
which to plan resource allocation and its response to hate crime. Care will have to
be taken, however, in developing a policy regarding the release of these statistics to
ensure that the Force's motives for keeping them are understood, and to try to
ensure that they are not misused. This has been accomplished in the American
context, where hate crime statistics have helped to identify current and potential
problems, assisted the police in responding to the needs of minority communities,
and even helped with recruiting from minority communities. Sociologists,
criminologists, educators and politicians are also in a position to make use of such
data in their studies and their work.
Secondly, the collection of such data will, to some extent, increase the workload of
Records and Information Security. Personnel allocation changes may have to be
made to handle the increase.
G. Proceeds of Crime Legislation (Bill C-61)
Bill C-61, which facilitates the seizure of the proceeds of criminal acts and their
forfeiture to the Crown, became law on January 1, 1989. It has necessitated the
creation of a Proceeds of Crime section at Intelligence Services. Five police officers
at the section deal with enforcement and education issues, and back up other units
in their dealings with the legislation.
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Although much of the legal responsibility for the care of seized assets rests with
other levels of government, implications at the Force level exist in terms of
increased storage and training needs. The need to identify proceeds of crime prior
to arrest results in an increased load for detectives and the need for forensic •
accounting skills. Despite this, there is no provision at present for seized funds to
revert to the Force.
Federal Solicitor-General Doug Lewis has announced a number of pilot projects that -
will involve . the police at the federal, provincial and municipal level relative to this .
legislation. It is not yet possible, however, to know specifically what benefits and
responsibilities will fall on the Force as a result of these projects.
H. Continuing Effect of Earlier Influences
Legislative influences from past years continue to have an effect on the operation
of the Force. Among the most significant of these effects:
• Demands on police time from outside the Force continue to tax our resources.
For example, a pursuit report is required by the Ministry of the Solicitor General
after each pursuit. Monthly reports are also required. This impacts on the
workload of the Force and takes away from patrol time.
• The Freedom of Information and Protection of Privacy Act, 1987, has made
necessary the creation of an active new unit and the frequent opening of police
files. This has resulted in another avenue for the increased scrutiny of the Force.
• The Charter of Rights and Freedoms also continues to have an influence on police
operations. The Askov decision, though its impact is no longer as significant as
it was a year ago, has resulted in a number of new deadlines and policing
procedures. Another Charter decision with perhaps a stronger impact at the
present time, however, is the Stinchcombe decision, which significantly expands
disclosure requirements. For example, the preparation of a duplicate Crown
Envelope will almost certainly be required to satisfy the requirements imposed
by this decision. Negotiations are presently under way with the Ministry of the
Attorney General to agree on a stipend to the Force, intended to compensate for
the expense of preparing such a document.
I. Political Trends
The potential for the separation of the Province of Quebec has created a crisis in
federal politics. If constitutional reform occurs and no separation takes place,
- ,.r.:·-,-,.~ significant changes might be expected in - the division of powers among all levels of
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government. Should the separation occur, the impact on the rest of Canada would
be profound. At the local level, a certain amount of unrest may be anticipated for
which the Force must be prepared. The local effects of separation could. include
civil unrest, necessitating increased police activity, or economic upheaval caused by
what would be to a large extent the disintegration of our country.
This potential for instability is compounded by the fact that two new federal parties,
the Reform Party and the Bloc Quebecois, appear to be gaining influence,
particularly in certain regions. This could affect the nature of the government in
Ottawa with a possible weakening of federal leadership. If the next election results
in significant support being spread across all five parties, there could be a shift
towards more regionalism. This would have a short- and long-term impact on
Metropolitan Toronto, particularly if its role as a centre of finance and commerce
is diminished.
At all levels of the political arena, there has been an increased demand from the
public for government accountability. As the police are a government agency, and
as they represent a significant share of public expenditures, they are very much a
part of the demand for increased accountability.
In an attempt to reduce costs, the Municipality of Metropolitan Toronto is calling
for the centralization of many resources. Such an initiative could involve, among
other things, communication resources and vehicles. Centralization of some
resources would contradict the Beyond 2000 initiative, which calls for a certain
amount of de-centralization of Force initiatives. If Beyond 2000 is to work, Force
members at the local level must have access to and control of the resources needed
to accomplish their goals. Decisions on this issue should be made only after the
implications on the long-range strategy are assessed.
Implications for Policing Services
• Many of the current legislative and political influences on the Metropolitan
Toronto Police Force have led to increased public scrutiny of the Force, making
it more accountable to the public it serves. This has led to a significantly
expanded complaint and professional standards system, and to tighter regulations
and operational parameters. Although the benefits are significant, increased
accountability results in additional paperwork prepared for outside agencies such
as the provincial Special Investigations Unit and the Ministry of the Solicitor
General. The Force is experiencing significantly increased demands in terms of
its administrative functions as well as demands on detective and operational
units. This is particularly problematic during this period of fiscal restraint.
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• The increased scrutiny in the area of use of force has led to significant public
debate about how the police can best protect public safety. It has also raised
concerns about officer safety and response to dangerous situations, particularly
given the increased use of weapons by offenders. A balance must be struck
between public interest and the need for effective police accountability on one
hand, and confidence on the part of police officers that they will be supported ~
when legitimate force is needed, on the other. Current studies into issues
surrounding the use of force may be helpful in this regard, especially as they deal
- with training to de-escalate crisis situations, - and the need . .for intermediate .tools, .:.
and methods. Increasing the options available to officers, as well - as training ·
them to see the options, can only work to improve this complex issue.
• The requirement for tighter financial control and the increased demands of new
legislation will continue to put stresses on the Force. Problems related to the
budget are exacerbated during times of economic crisis. Among the Force
initiatives threatened by the current recession is the highly successful employment
equity program, which may unavoidably lose ground, at least over the next year.
It will be a challenge for the Force to continue to make progress through more
internal means such as promotions and workplace harassment policies.
• Professionalism within the police workplace will be enhanced by the new
procedures, presently in draft form and expected to be implemented before 1993,
aimed at ensuring that all employees are free from harassment.
• A new hate crime statistics policy will help to ensure complete understanding of
the problem by the police and the community at large, which will in turn ensure
that police response is as effective as possible. Problems and patterns previously
hidden may be exposed by this proactive policy on the part of the Board and the
Force, and this may impact upon resources if increased service is necessary.
• A number of unknown factors relative to the federal government and to Quebec
lead to a certain amount of instability at that level. This may have an impact on
the Force over the next few years in terms of resources and service delivery.
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VI. PUBLIC PERCEPTIONS
In order to remain sensitive to changing perceptions of safety and the quality of • ·
life in Metropolitan Toronto, the police force must have access to regular and
reliable sources of public feedback. .Public perceptions of personal safety and
police performance are major indicators of the success in the deployment of •:·
Force resources. Trends in these. indicators can .be useful in establishing Force . . . . -·.
priorities.
Highlights
• Nearly two-thirds of the residents of Metropolitan Toronto felt that crime in their
neighbourhood had increased in the past year.
• Residents of Metro felt at least reasonably safe walking alone in their
neighbourhood or riding on public transit after dark, although women and those
over 55 years of age tended to feel less safe.
• Residents of both genders and all age groups tended to feel safe alone in their
home after dark and that their homes are safe from theft and vandalism.
• Over half of those surveyed reported favourable perceptions of police services in
general and of certain aspects of police service: enforcing laws, responding
promptly to calls, being approachable, and supplying crime information. Fewer
felt that police were doing a good job providing services to ethnic and racial
groups. Favourable perceptions of police service were also found in surveys
conducted in two smaller areas.
• Overall, public perceptions regarding safety and the police remain favourable,
slightly more so in 1991 than in 1990, although 1985 levels, when such surveys
were begun, remain the most favourable.
• The number of public complaints increased about 30% from 1987 to 1991, with
a seeming trend towards increasing complaints about police procedures.
• Deputants at a Police Services Board public forum raised concerns about a
variety of issues including police and community ~ommunications, officer training,
and safety and security of vulnerable groups.
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A. Sources of Public Perceptions
.The Environics Research Group surveys a sample of Metropolitan Toronto residents ..
about two times per year (Metropoll). The 1991 Environmental Scan reported the
results of three previous Metropoll surveys: December 1988, September 1989~-and .
December 1990. Metropoll was repeated again in December 1991, with over 1500 ·
respondents. This section compares the results of these four surveys.
Further, in 1986, the Solicitor General of Canada published the results of the Metro ·
Toronto Community Policing Survey~ Since some of the questions from this survey
are also part of the Metropoll survey, it will be possible to examine the changes in
some perceptions over the period of 1985 to 1991.
Other sources of information about public perceptions of police and policing services
are also included: two recent Gallup polls, a survey of victims in one police division
in September 1991, and an Environics survey of the community i:ri a second police
· · -1division in. October. 1991. These latter two surveys were part of two pilot projects
conducted by the Force, and, along with the Gallup polls, provide comparison for
some of the Metropoll results.
B. Perceptions of Safety
Results of the Metropolls show that most residents of Metropolitan Toronto
continue to feel at least reasonably safe in many situations. Similarly, after six
months of investigation and public consultations, the recent Toronto Crime Inquiry
concluded that Toronto is one of the safest municipalities in North America.
1
In the December 1990 Metropoll, 63% of residents in Metropolitan Toronto
believed that crime had increased in their neighbourhood in the past year. When
this same question was asked in the December 1991 Metropoll, the proportion of
residents feeling this way had increased slightly to 65%.
Over half of those surveyed felt reasonably safe walking alone in their
neighbourhood after dark. While the Metropoll and Community Policing Survey
data do indicate a steady decline in feelings of safety walking alone from 1985 to
1990, the proportion of those surveyed who felt very or reasonably safe did not
change from December 1990 to December 1991 (64%).
1
The Toronto Crime Inquiry was established by City Council in April, 1991, with a mandate to
listen and report on the mood, concerns, and suggestions of the people of Toronto on how to deal with
the escalating increase violent crimes, murders, break-ins and hold-ups, the drug trade, and proliferation
~ ... . :. • ~~ . of drugs . . After 11 public hearings, 7 focus sessions, and 28 business sessions, a report was completed
in October, 1991.
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Less than half of the Metropolitan Toronto residents surveyed in 1988 felt safe
walking alone downtown after dark (46%); this proportion "'decreased to 38% in
1989 and to 37% in 1990. Fewer still felt safe in December of -1991 (34% ).
A similar decrease - from 1988 to 1991 occurred in feelings of safety using public
- · · transit alone at night: -- while 62% of those surveyed .felt reasonably or very safe-· in ·:·
1988, this - decreased to 52% in both 1989 and 1990, and then decreased again to
50% in-1991. · While .the .proportion of those reporting they felt very unsafe alone ,, ... .
at night on public transit decreased slightly from 1990 (13% in 1990; 11 % in· 1991), · ·
there was an increase in the proportion who said that they did not use transit or that -
· they did not use it alone (16% in 1990; 19% in 1991).
Most people surveyed in all four years tended to feel very or reasonably safe alone
at home after dark. There was, in fact, a slight increase in the proportion of those
feeling safe in this situation in 1991 compared to 1990 (92% in 1991; 90% in 1990).
Similarly, most people continue to feel that their home is very or reasonably safe
from theft .or vandalism.
The perceptions of safety in various situations over the years are shown in Figure
6.1.
Perceptions of Safety
Home Alone
ThefWandalism
Downtown Alone
0 20 40 60 80 100
percent responding very or reasonably safe
Source: Environics, Metropoll
Figure 6.1
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Dec'85
Wi1 Dec'88
11Sept'89
~ Dec'90
DDec'91
While not indicated on the Figure, information was also available on the age and
gender of the respondents to the Metropoll surveys. As in December 1990, in the
December 1991 Metropoll it was found that women felt significantly less safe than ..
men when alone after dark on public transit and when walking alone downtown or .· -
in their neighbourhood. This finding mirrored the results of the national Gallup
.. poll published in October 1991: . when asked if there were areas within a mile of ·:.·
their homes that they would not walk, 56% of women repondents answered · 'yes' .
compared to 18% of men.
The proportion of respondents feeling very or reasonably safe when alone at night
· on public transit decreased with increasing age (from about 55% in.the 15.to 19 year .... .
group to 37% in the 55 years and older group): the older the respondent, the less
likely they were to report feeling safe. Respondents 55 years of age and older were
most likely to say that they don't travel alone or don't use public transit.
Both respondents aged 15 to 19 years and respondents 55 years and older were least
likely to feel very or reasonably safe walking alone downtown at night (23% and
24%, respectively). Even for those respondents who were most likely to feel safe in
this situation· (25 to 34 year olds), less than half the respondents felt this way ( 42% ).
In contrast, roughly 60% or more of respondents in all age groups felt safe walking
alone in their neighbourhood after dar. k.
C. Perceptions of Police
Overall, public perception of the police
remains positive, with over two-thirds of
those surveyed in 1991 feeling that
police service is excellent or good.
While this marked a slight increase
from the proportion giving this response
in 1990, it was slightly lower than in
1989 (1989 - 75%, 1990 - 65%, 1991 -
68%) (Figure 6.2).
Once again, this finding mirrored the
national Gallup poll published in
September 1991: 78% of Canadians
approved of the way their local police
forces were performing their duties.
This figure increased to 87 % in
Ontario.
Public Perceptions of Police Service
(pacn respaodi~
60~--------------,
50 .... .. .............. ··· ·· ··· ····· ·· · ····· ···· ··· ···· ······· ····
40 .. .
30
20
10
0
Excellent Good Adequate Poor
i!Sept. 1989 Dec. 1990 Dec. 1991
Figure 6.2
DK
This positive perception was also seen in the Environics survey of the public in 53
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Division: 62% of the respondents said they were very satisfied with the quality of
police services in their area. Most (81 %) of the respondents in this survey also
· reported that, in general, relations between the people in their neighbourhood and
the police were excellent or good.
The positive view of the services provided by police was also echoed in the responses · - ·
of victims who were surveyed in 23 Division. Most of these victims (85%) .had .
,received the help that they expected from the police and most (88%) were very - or.
somewhat satisfied with this help.
According to the
December 1991
Perceptions of Police
Responding Promptly
Serve Ethnic/Racial
Groups
0 20 40 60 80 100
Metropoll, when asked
about particular aspects
of police service, people
were ~-- again .. positive
(Figure 6.3). Over half
of those surveyed thought
the police were doing a
'good' job in enforcing
the laws ( 66% ), in
responding to calls
promptly (53%), in being
approachable and easy to
talk to (71%), and in
supplying crime
prevention information
(58% ). All these
proportions represent
increases from levels
percent respondi rYJ poUce oo a good job
Source: Environics, Metropol
found in 1990, except in Figure 6.3
the proportion believing
police do a 'good' job in
responding to calls promptly, which remained the same.
Dec'85
~Dec'88
11Sept'89
8S!Dec'90
� Dec'91
As seen in previous years, fewer people in December 1991 thought the police were
doing a 'good' job in providing services to a range of ethnic and racial groups ( 46%)
compared to the other services. However, this proportion also increased from that · -
seen in 1990.
Figure 6.3 clearly indicates that perceptions about particular aspects of police service
remain favourable and, for the most part, became increasingly favourable in 1991
.,_• ~ compared to 1990. However, in general, the - 1985 levels remain the most favourable .
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When asked about these same five aspects of police service, the community of 53
· • Division surveyed by Environics during a pilot project generally · gave responses
similar to those seen in the 1991 Metropoll. Slightly more of these respondents
thought the police were doing a 'good' job in ·enforcing the - lawst · responding
promptly, and being approachable, while slightly less felt they were doing a 'good'
job in supplying crime prevention information and providing services .to a range of· _ 1" r
ethnic and · racial groups.
D. Public Complaints
Between 1987 and 1991, the number of complaints from the public regarding the
police fluctuated, but reached the record level of 1,001 in 1991, a 17.2% increase
from 1990 and a 30.8% increase from 1987. A few well-publicized cases in 1991
involving complaints against police officers may have made people more aware of
the opportunity available to lodge such complaints.
The nature of the complaints also changed over the past five years. Three broad
categories of complaint against the police from the public were identified: ( 1)
physical assault by police officers, (2) police officer's misuse of authority or verbal
abuse, and (3) inappropriateness of police procedure (for example, claiming police
did not follow proper arrest procedures, or receiving a traffic ticket when it was felt
unwarranted).
Between 1987 and 1991, the proportion of complaints of physical assault, misuse of
authority or verbal abuse by police officers decreased, while those pertaining to
police procedure increased. Of the 1,001 complaints in 1991, there were about equal
proportions of complaints for each of the above three categories, with police
procedure complaints having a slightly higher proportion. This may indicate a trend
of increasing complaints on the police system and the technicalities of law
enforcement.
E. Public Consolation Presentations
Each year, as a part of the scanning process, the Police Services Board holds open
forums to provide the public with an opportunity to make presentations on the
policing issues they feel are of importance for the coming year.
In January, following presentations to the audience by a few invited speakers, the
Board heard deputations from 17 members of the community.
2
While many of these
2
See Appendix B for a list of the deputants.
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deputations involved police/community linkage issues, other deputants spoke on
issues relating to police recruitment and training, police use of force, and groups
vulnerable to victimization. A number of the deputants commended the Force for
being professional and committed, and for doing a good job in contributing to the
safety Metro Toronto enjoys. Following is a brief outline of some of the points
made.
Police/Community Linkages:
• Ongoing communication between the police and the conununity is important.
• Increased police visibility is necessary in some areas, perhaps through the use of
storefront offices, financed or volunteered by the community for police use.
• Representatives of the Force must be held accountable for statements they make:
there are perceptions of systemic and institutional racism in the Force.
• Police resources don't seem to be deployed to reflect police knowledge of crime
prone areas and peak crime times: the Police Services Board is accountable to
the citizens of Metropolitan Toronto and as such should sometimes consider
making statements through the media to citizens regarding these high crime areas
and times.
• It is important for the police and the community to work together, and the
partnership and positive efforts outlined in Beyond 2000 are vital. The Force's
use of the interpreter service on the 9-1-1 system is an example of the Force's
commitment to this partnership.
• Community groups, institutions, and businesses must co-operate with each other
in crime prevention and community initiatives to a greater extent than at present.
• Efforts aimed at improving relations between the police and ethnic communities/
visible minorities must continue and should be taken further: new Canadians
need to be educated on the role of the police in Canadian society and police
should become more involved in community and school events.
• The Board's ~ommunity-based consultative committees should be re-established
to facilitate dialogue with members of racial minorities. Different cultures have
different perceptions of the causes and resolutions of certain issues and no one
group can adequately articulate the concerns of all groups. The consultative
committees also provided a good forum for addressing many issues of concern,
resulting in beneficial partnerships. Further, the Board should speak with the
actual, elected leaders of communities, not just "self-proclaimed" leaders.
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• Police accountability should be reviewed and increased, to ensure that police
are responsible and liable, and their actions explainable. The police have a
difficult job, often involving many demanding and dangerous challenges; systemic
grievances may be reduced if police are accountable.
• Media sensationalism causes misperceptions among the public, and lenient court ... ,..
penalties for those who have broken the law are demoralizing for the police.
Recruitment and Training:
• Concern was raised for the type and depth of "anti-racist" education for police
officers.
• The Force should approach students to promote policing as a profession, perhaps
targeting minority student groups.
• The Police Seroices Act was criticized for "unreasonable quotas" in relation to
employment equity. The police cannot hire if members of various communities
do not apply, and the media and the public should take some responsibility for
making police work often seem an undesirable career.
• There should be internal reviews of such issues as training, professional
standards, and recruitment practices.
• Concerns were raised about homophobia, A.I.D.S. trammg, and employment
equity on the Force. Police training must address homophobic attitudes.
• Training of police in the area of "woman abuse" should be ongoing and
conducted by external professionals.
Use of Force:
• Concerns were raised regarding use of force issues, the scope of the Board's
authority in developing policies, and shootings by officers in 'fleeing felon'
situations. There should be more training for police officers with regard to the
use of force and the use of non-lethal alternatives to firearms.
• There should be internal reviews of such issues as use of force and the filing of
a report when an officer's gun is drawn.
Vulnerable Groups:
• While not all citizens are homeowners or business people, everyone's safety and
security needs must be addressed, including the homeless, the abused, those
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addicted to drugs or alcohol, and the poor. Police must make an effort to go to
such places as drop-in centres and needle exchanges to form links with these
populations; the police should also work with other community and social
organizations to help these types of people.
• One of the Force's .priorities should be to service vulnerable populations,-·.·
recognizing that different areas will have different needs. Crime prevention
programs have traditionally dealt with the symptoms rather than the causes of
crime. The police, other service agencies, and the community must work together .
to address the roots of crime.
• Concern was raised over the increase in "gay-bashings". While appreciation was
expressed for the efforts made by 52 Division to address this concern, it was
pointed out that "gay-bashing" is not confined to this division and police response
is not as good elsewhere.
• A community pilot program involving a support/information hotline for gays and
lesbians who had been assaulted received over 200 calls. Most of these cases
were not reported to the police because callers had not had confidence that the
police would respond appropriately or they were concerned that their sexual
orientation would become the issue.
• Statistics on hate-motivated crimes should be collected so that the magnitude of
the "gay-bashing" problem can be seen and effective responses developed.
• Last month a community-run hotline dealing with "woman abuse" received more
than 1800 calls. While the positive response from the Board and the Force to
a research report was acknowledged, positive initiatives must continue. Most
women do not call the police when they've been assaulted, and of those who do,
most do not report a positive experience with the police response.
Implications for Policing Services
• Surveys are an important source of information and perceptions on a variety of
issues, and permit contact with people who may not attend public consultations.
The Force must continue to have access to survey information and to conduct
surveys when possible.
• In order to enhance perceptions of safety and police service, and to ensure that
these do not vary widely from reality, it is vital that the Force be involved in a
dialogue with, and the education of, the people of Metropolitan Toronto with
regard to crime occurrences in context and the limitations and capabilities of
the Force.
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VII. URBAN TRENDS
The jurisdiction of the Metropolitan Toronto Police Force encompasses the
largest urban area in Canada. Trends involving urban development, public and
private community services, transportation, recreation, the environment, etc. will
affect the nature and frequency of the police services that are required. The
solutions to urban problems will involve alliances among public, private and
voluntary sectors. Protection of public safety will require co-ordinated efforts in
planning and service delivery. · These efforts may range in focus from
environmental design, to growth patterns in the municipality and service delivery
methods.
Highlights
• · Program budgeting and performance indicators are being developed in response
to the Metropolitan Toronto Strategic Plan.
• Vehicular traffic entering the Metro centre core has decreased while the number
of GO Rail passengers entering Metropolitan Toronto has increased.
• Conventions and tourism have declined, due to recession and high prices.
• There are concerns about the potential for deteriorating quality of life if public
services and commercial activity continue to decline.
• Although private policing, over the last decade, has been considered a high
growth industry, the number of people in Ontario involved as licensed
investigators or security guards has declined in 1991 due to the recession. Private
policing is likely to continue to provide a considerable proportion of protective
services in 1993.
• A compact urban form is being encouraged to limit urban sprawl and increase
the liveability of cities. Conflict between new developments and older
designations for land use may occur, thereby impacting on police resources.
• Ridership on Toronto Transit Commission vehicles continues to decline, with a
risk that the level of service may deteriorate without increased funding from
government sources.
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A. Metropolitan Toronto Strategic Plan
Passed in May 1991, the Metropolitan Toronto Strategic Plan defines the direction
in which the Metropolitan Toronto Government intends to move over the next 20
years. The four primary goals of Vital Economy, Sustainable Urban Development, -
Social Equity, and Accountable Governance set the direction even within this period · - -
of economic recession. The Metropolitan Toronto Police Force, .mentioned ·within •t-,. .
the Social Equity portion of the Strategic Plan, has a commitment towards the
successful advancement of the goals and objectives set forth in this document.
As noted in Section I, the projected population for Metropolitan Toronto in 2011 is
expected to be between 2.3 million and 2. 7 million. Recent demographic analysis
shows a slowing of population growth within Metropolitan Toronto, while the regions
surrounding Metro have experienced a growth in population.
The continuing recession has had an impact on job availability, new construction
,and - urban .. dev.elopment, and the amount of funding available through taxes. It has
increased the proportional demand for welfare funding from the total dollars
available for government initiatives and day to day operations. If Metropolitan
Toronto is to continue to grow, or even sustain itself, strong leadership at the
municipal government level must be maintained. Expansion of the Metropolitan
Toronto Government Strategic Plan will continue as one means of insuring more
efficient and accountable government services, especially during this poor economic
climate and time of budgetary constraints.
Program Budgeting:
To improve the budgetary process and facilitate the Metropolitan Toronto Strategic
Plan, the Metropolitan Toronto Council will be requiring the development of
performance indicators for program budgeting. This policy will have a direct impact
on the development of Goals and Objectives for all Metro agencies, including the
police. Unit strategies will not be measured at the Metro corporate level, but the
Force will be required to give a summation of its progress with regards to Goals and
Objectives. This type of process was started for the budget year 1992 and will be
refined during the development of future budgets. There will be a requirement for
a closer relationship between the budget process and strategy formulation process
not only at the unit level, but at the Force's corporate level as well.
B. Cordon Counts and Public Transit
Cordon counts of vehicle and people movement into and out of Metropolitan
Toronto are performed every two years by the Transportation Division of the Metro
Planning Department. In addition to the Metropolitan Toronto boundary, there is
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the Suburban boundary which follows Highway 401 from the Etobicoke Creek to a
· point east of Kennedy Road and is bordered on the south by Lake Ontario. The
Central boundary is bounded by Bathurst Street on the west, Bayview Avenue on the
east (extended to Lake Ontario) and the C~P.R. tracks south of St. Clair Avenue on
the north.
According to the Metropolitan Toronto Cordon Count · Programme ·on vehicular " ··
movement, between 1987 and 1991 the number of vehicles crossing Metropolitan .
Toronto boundaries increased by 10%. The greatest increase was in the northern
boundaries (17%}, followed by the eastern (11%) and the western (3%). However, · -
it would seem that the past increase in boundary traffic has slowed down,-as was · · . ·.
evident by the slight increase (0.8%) between 1989 and 1991.
Although there has been an increase. in the number of vehicles entering Metro at
the Metropolitan Toronto boundary on a daily basis ( during a.m. & p.m. peak
hours), we have seen a decrease in the number of vehicles crossing the Suburban
and ,.Central .,cor.don .lines. In contrast, there has been a steady increase in the
number of passengers entering Metro Toronto via GO Rail.
Figure 7 .1 shows the relationship between the outgoing and incoming traffic. As
stated, the Suburban and Central cordon counts are decreasing with regard to
incoming traffic. For 1991, there was a decrease in the outgoing cordon counts as
well.
Figure 7.1
NUMBER OF VEHICLE TRIPS
AM & PM PEAK PERIODS CORDON COUNTS
1;a1 1;a; 1;;1
- Central Inbound ~ Suburban Inbound EHB Boundary Inbound
~ Central Outbound ~ Suburban OutbounD Boundary Outbound
t :S0AM - 8:S0AM l 3:S0PM - 9:S0PM
Metro Planning
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While Figure 7.1 shows the number of vehicles crossing the cordons, Figure 7.2
shows the number of people entering and leaving .Metropolitan Toronto during the
a.m. and p.m. peak periods. Since 1976, there has been a steady increase in the
number of people entering Metro Toronto during the rush hour periods,- with a
noticeable increase in the proportion of people utilizing Go Rail to make the trip.
••
0
This upward trend has slowed between 1989 and 1991. The . persons .Jeaving-~ Metropolitan Toronto during the rush hours reflects the growing trend-toward fewer_ ,; •
vehicles crossing the Metro boundary in an outbound direction.
PERSON TRIPS CROSSING METRO BOUNDARY
AM PEAK PERIOD
360
300
250
··200
150
100
60
0
Thouaanda
m,
I
HU
"'''
~II
u
!JII! I
1976 1977 1979 1981 1983 1985 1987 1989 1991
YEAR
EEB AUTO l TAXI INBOUND
- 00 RAIL INBOUND
fZZl TRANSIT INBOUND
-- PERSONS OUTBOUND
...
...
...
...
~
...
8:30AM - 9:30AM - Metro Planning
Figure 7.2
The Toronto Transit Commission (T.T.C.) has been affected by the poor economy
and the declining employment picture. As seen by Figure 7.3, T.T.C. revenue has
suffered an 8.5% decline from 1988 to 1991. While the Metro employment picture
decreased by 3.6% during this period, it should also be noted that part-time
employment realized an increase. The percentage change between 1990-91 shows
a loss of 5.8% and reflects the recession now underway.
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Figure 7.3
METRO EMPLOYMENT & TTC RIDERSHIP
COMPARISON
EMPLOYMENT (Thouaanda) REVENUE(Mllllona)
1200~--------------,
1000
800
800
400
200
480
. 470
460
430
410
380
370
0'--'----L,<..LLL.'---'-----'LLLLA---'--IIL.LLL....._____.___._.,.~~350
1888 1888 1880 1881
YEAR
LJ FULL TIME l:2Z'.J PART TIME __.._ TTC REVENUE
T.T.C. OPERATIONAL PLANNINQ
C. Conventions/Tourism
Metropolitan Toronto continues to attract conventions and tourists. It is estimated
by the Metropolitan Toronto Convention & Visitors Association (MTCV A) that
direct tourist expenditure is $2.224 billion. The number of visits by tourists,
convention delegates and business travellers is estimated to be 14.9 million. There
were 710 conventions held in 1991.
These figures show a decline from a high in 1989 of 975 conventions and 17.2
million visits. Since · 1988 the total number of hotel rooms has increased 21 %
(26,000 to 31,472). Occupancy rate has declined from 73% {18,980 rooms) in 1988
to 58.9% {18,537 rooms) in 1991, but this decline in occupancy partially reflects the
increase in rooms.
Employment within the tourism industry has also been affected by the declines. In
1988, it was estimated that the number of direct person-years of employment related
to Metropolitan Toronto's tourism industry was 113,496, compared to 91,668 in 1991.
This is a reflection of the total declining employment picture within Metro Toronto .. ..
The three main factors responsible for the lack of growth within this vital industry,
according to the Metropolitan Toronto Convention & Visitors Association are as
follows:
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• The recession has had an impact on the amount of disposable cash available to
- , people for travel, as well as on the amount of money available to companies for ·
conventions.
• Metro Toronto is seen as an expensive place to spend tourist dollars. This price
sensitivity will have an impact on potential conventions and tourist visits as _ ...
people are becoming more conscious of their limited spending power. _,., ,, ..
• The impact of the GST has been felt by the tourist industry. The additional taxation impacts on the pricing and furthers the price sensitivity - felt by ~
prospective visitors not only to our city, but to all of Canada.
The Conference Board of Canada believes that potential visitors will have more
disposable cash within the next 12 to 18 months. If this occurs, and if aggressive
advertising to combat the perceived price sensitivity works, the possibility for
• · · increased tourism may exist.
D. Private Policing
According to a Hallcrest Systems Inc. study, in the United States there are nearly
1.5 million people employed in private security, compared to the 600,000 in public
policing. This study further estimates that by the year 2000, 75% of the protection
services within the United States will be done privately. In Canada, in 1986, private
policing represented 93,500 people compared to only 55,555 people in public
policing.
It should be noted that Canada has traditionally had a different philosophy regarding
policing than the United States, but with the influences of free trade and U.S. values
through T.V., print media, etc., this is a trend that could also cross the border
between the two countries.
Although private policing continues to occupy an important place in the protection
of people and property, the recession is having an impact on the numbers of
companies and employees within the occupation.
Within Ontario, private policing experienced an upsurge in the .number of licensed
personnel between 1982 and 1987. As seen in Figure 7.4, this trend slowed down
and a decrease was experienced between 1988 and 1991. This decline may be
attributed to the recession, given that some private security companies have closed.
These statistics only show licensed private security personnel who would be hired
·: out to·a third party and do not reflect those employed by an~ individual company or
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a condominium on their own to provide security on their property.
PRIVATE INVESTIGATOR & SECURITY GUARD
LICENCES
LICENCES ISSUED (Thouaanda)
35....-------------------,
30
26
20
15
10
6
0
1981 1982 1983 1984 1985 1986 1987 1988 1989 1990 1991
YEAR
ONTARIO
Figure 7.4
During the recession, as a cost saving strategy, companies or condominiums which
normally provide security services may decrease or remove private security
altogether. This may be apparent in those condominium developments that were
bought for investment purposes and have absentee landlords who wish to save
money. This declining security presence could impact on the calls for service to the
Force.
Many private policing companies have quickly understood and implemented the use
of technology to increase their ability to perform at peak efficiency. This growth in
the use of technology enables the industry to increase it's surveillance ability while
decreasing the cost of human resources.
In addition, advertising the occupation as more professional than in the past,
together with higher wages, may make the occupation more attractive to people
seeking employment. Private security may increasingly become an employer of
graduates from Law Enforcement courses and as an occupational field will probably
be able to respond quickly when the recessionary impact lessens. Public policing
may not have the opportunity to begin a hiring program as quickly because of a lack
of funding and the time required to re-establish recruiting programs that were
dismantled for funding reasons.
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A trend may be developing within the United States where residents in certain
-· sections of a city provide funds beyond their taxes for police departments to hire
private security to patrol and thus enhance security within that area. This may allow
the redeployment of personnel to other areas, but policies would be required to
ensure that proper policing standards are maintained · that reflect -the entire
- -community. While this trend may be considered positive in· that the public is paying . .-~;·
for increased policing within a select geographical area, it may also be negative . if
the public police become an agency for primarily policing the poor rather · than the .
entire community.
E. Potential for Deterioration of the City
The impact of the recession, as outlined in Section II on Economic Trends, could be
far-reaching. Possible effects of the poor economy and reduced service on the urban
environment are many.
Store closings, boarded-up buildings and fewer services due to reduced schedules in
garbage pickup and street cleaning, etc., may start a process of urban decay. A past
study ('Broken Windows' by James Q. Wilson) found that when an area deteriorated,
there was more evidence of graffiti damage and disorder. There may be a decline
in people using the streets as pedestrians. The recession also influences spending
patterns· . With less spending money, fewer people go out of their homes, which may
result in further closings and still fewer people using the streets for a productive
purpose.
As another result of the poor economy, we could see an increase in people utilizing
the streets for loitering. This may increase the demand for police service if conflict
between businesses and loitering people increases. This type of behaviour is most
likely among young males, especially those who do not have steady employment or
who are not enroled in schools.
At the moment, within Metropolitan Toronto, there is approximately 80 million
square feet of empty industrial space. This, in combination with industries leaving
the area permanently, can also cause a decrease in the use of public space not only
by residents but also by commuters. The lack of commuters impacts on local
businesses such as restaurants and entertainment spots and could further the
deterioration of certain areas.
F. Compact Urban Form
Within the Greater Toronto Area (GTA), there is a political consensus that
greenfield · development can no longer be sustained or allowed. - Continuation of
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urban sprawl creates a great financial burden upon the Province and municipalities,
specifically for development of a support infrastructure. In addition to this cost,
the remaining farm land and ecological features, such as the Niagara Escarpment
and Oak Ridges Moraine, must be protected.
There is now agreement that each municipality within the GTA will encourage the - , ;_
development of a more compact urban form.
As stated earlier, Metropolitan Toronto has not grown as quickly in population as .
the surrounding municipalities in the GTA To -sustain its infrastructure, more
growth must be encouraged, but housing and land prices prohibit the needed growth.
In response, more intense development must be encouraged along with lower
individual house prices ( either sale or rent) and greater use of the transit system.
This may be done by:
• . Main .Streeting: A mix of commercial and residential uses of property along
main streets is encouraged.
• Development of Nodes: These are defined as areas of concentration serving as
focal points for a larger community and providing services or functions not
normally found elsewhere in the community. Services are close to each other
(within walking distance), and the development is a mix of residential and
commercial.
• Corridors: These are linear in nature and run along main or arterial roads.
While past developments split the residential and commercial into separate
entities, the goal is to re-integrate the residential and commercial mix as in the
traditional Main Street.
Within Metropolitan Toronto there is minimal green space left for development.
What we may see in the future is a re-urbanization of existing areas in an attempt
to introduce a more compact urban form. This has led and will lead to areas of
conflict between new developments and older established residential areas and
industries. These conflicts may lead to more vocal or demonstrative action by local
residents and would impact on the services offered by the Neighbourhood Officer.
As well, older industries could be forced to vacate their lands, and this will impact
on local jobs. The now defunct Ataratiri project was to be developed on lands that
had been industrial in the past and were bought out for the Ataratiri project. The
jobs located in this area have not been replaced and the vacant lands affect the tax
base of the city. As of the end of March 1992, at least 21 public works projects were
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reported as stalled, affecting as many as 40,000 construction workers.
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They were
stalled due to government red tape and political 'turf wars'. Projects such as the
Spadina light rail transit line, which was designed to improve core transportation,
have been stalled by local interests and weaknesses in the Environmental ···Act. -·
These conflicts will need to be resolved quickly if urban development is to have a
part in the strengthening of our economy. Recent approvals at the Metro
Government level concerning capital expenditures are being viewed optimistically. by. .-.
the construction trade and may give the local economy the needed boost.
Implications for Policing Services
• The budgetary process outlined in the Metropolitan Toronto Strategic Plan will
mean increased accountability at the Force's unit level for budget and strategy
preparation.
• Program budgeting will mean increased accountability in the measurement of
results of strategies and details of expenditures.
• With the continued increase in traffic volume crossing Metro boundaries due to
the rapid development of surrounding regions, the need for increased levels of
traffic monitoring and enforcement on the outer boundaries will continue to draw
Force resources.
• If certain areas within the city are privately policed, there is the possibility that
citizens living in these areas will become indifferent to the conditions of safety
in other areas of the city.
• There is the possibility of conflict between private and public policing in terms
of jurisdictional responsibilities. Developing and maintaining positive lines of
communication between the private and public policing groups will ensure that
areas of mutual concern are discussed and areas of conflict resolved.
• There is continuing demand for police visibility to ensure that signs of
deterioration or disorder do not materialize. Beyond 2000 is being implemented
with the philosophy of increased police visibility and involvement in
environmental design and use of space.
• The compact urban form, if developed, will impact on the resources now supplied
by established divisions, not only in the downtown areas but the suburban areas
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as well. We could see high population densities near major intersections which
may also impact on traffic patterns.
• Developments will be designed to encourage pedestrian and bicycle modes of
transport, with parking facilities designed to discourage automobile traffic. This
will necessitate increased communication with the community to ensure that new ··
policies are understood and behaviour.changes result. On-street parking may be :,.
a problem unless the public is educated to decrease the use of private vehicles. ·
Increasing use by commuters of GO Rail will only address traffic from outside
Metro.
• A compact urban form will complement the Neighbourhood style of policing
being envisioned, where officers are encouraged to establish working links with
the local citizens. The compact urban form will allow officers to meet many
more people in a smaller and easily patrolled area.
• . :.To ensure .. .an .efficient deployment of resources, our Force will need to take an
interest in future urban design. These developments will have an impact on our
service capabilities and must be addressed prior to new developments being
established.
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VIII. TRAFFIC
The automobile has been a major factor associated with public safety and police
activity. Traffic patterns and trends affect both the demand for and deployment
of police resources. Traffic accidents, in addition to being a problem requiring
police resources, also have an impact on the public's perception of safety. With
the implementation of community policing, concerns over traffic congestion and
pedestrian safety in specific neighborhoods are issues that the Force has to
address in collaboration with the community.
Highlights
• There was a slight decrease in traffic accidents in 1991 compared with 1990, and
a significant decrease in associated casualties.
• There was an increase in accidents in the second half of 1991 compared with the
same period in 1990; this is a possible reversal of the· trend of decline noted
since 1990.
• There was an increase in hit-and-run and pedestrian-crossover accidents.
• A substantial increase was found in 'inattentive' at-fault drivers and pedestrians
injured in accidents.
• There is a need for enhanced co-ordination of Metro's traffic programs with
those of the surrounding regions.
Between 1990 and 1991, traffic accidents decreased by 1.2%. With this slight
decrease in accidents, the number of persons injured dropped 14%. Observed since
1990, a continued reduction in the number of people injured in traffic accidents
was also noted in the 1991 Environmental Scan. It is the impression of officers
within Traffic Services that the decrease might be attributed to a stepping up of the
seat belt enforcement program.
A total of 53,138 accidents occurred in 1991. As in 1990, a majority (76%) of the
accidents resulted in property damage only. As can be seen in Figure 8.1, more
accidents occurred in the second half of the year, particularly the last 3 months.
Compared with 1990, the number of accidents decreased in the first six months, but
increased in the second half of the year. The consistent increase in accidents for all
the last six months of 1991 may be an indication of a reversal in the trend of
accident decline, which started in 1990.
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Number of Traffic Accidents by Month
1990 and 1991
No. of Accidents
6000~------------------.
5000
4000
3000
2000
1000
Figure 8.1
2 3 4 5 6 7 8 9 10 11 12
Month of the Year
-1991 ~ 1990
High toll days in 1991 were Thursday through Saturday (48% of the accidents), while
in 1990 they were Monday, Thursday and Friday (48.1% of the accidents). Friday
continued to be the worst day for accidents: 17.6% of the total accidents occurred
on this day in both years. Sunday continued to have the smallest proportion (9.8%)
of accident occurrences.
A persistent pattern of accident occurrences over the hours of the day has been
noted for 1989, 1990 and 1991 (Figure 8.2). It was characterised by a morning peak
and drop, followed by a slowly rising trend to a higher peak in the later
afternoon/ early evening and then declining again in the morning. This pattern has
an implication for traffic enforcement policy and the deployment of traffic personnel.
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Distribution of Traffic Accidents
by Ho urs of the Day : 1989
1
1990 & 1991
No . of Acci de nts (Thous and s)
6~-----------------------,
5 ·······································································································
4 ................................................ .
3 .................................... .......... .
0 .___.____.____'---''---'---'-----'----L---'---L---'----'-------'-------'-___..____..____.____.____.____.___,____.____.
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 1 5 16 17 18 19 20 21 22 23
Hours of Day
- 1990 -+- 1 991 -4- 1989
Figure 8.2
Compared with 1990, both hit-and-run and pedestrian-crossover accidents increased,
while drinking-driving accidents continued to decrease. A total of 18,711 people
were injured (including 83 killed) in traffic accidents in 1991, representing a 14%
drop from 1990 (Table 8.1). For every 1,000 accidents in 1991, there was an average
of 352.1 persons injured, a drop from the rate of 404.4 persons injured in 1990.
Table 8.1
Number of Accidents and Persons Injured/Killed
Total No. of Accidents
No . of Accidents Causing Casualties
No. of Persons Killed
No . of Persons Injured
Total Casualties
# Injured/Killed Per 1000 Accidents
1990 1991 %Change
53 , 771
14,741
79
21,667
21,746
53,138
12,931
83
18 , 628
18 , 711
404 . 4 352 . 1
- 1.2
-12 . 3
+ 5 . 1
-14.0
-14 . 0
Lack of attention appeared to be a growing problem in traffic accidents. In 1990
and 1991, the number of at-fault drivers and injured pedestrians who were
'inattentive' during the occurrence of the accident increased by 25% and 21 %,
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respectively. This situation may be indicative of a need to strengthen the traffic
education and enforcement programs.
Parking control, the Fair Share program, speeding detection, and monitoring of
heavy trucks continue to be the main enforcement programs undertaken by the
Force. Programs targeting 'hot' spots have also been implemented, such as the
Target Street and Back To School programs. Reduce Impaired Driving Everywhere
(R.1.D.E.) and seat belt enforcement are the core traffic violation prevention
programs. Officers from Community Programs and the Traffic units have also been
responsible for delivering talks regarding traffic safety to students in schools.
In addition to the three-pronged approach of traffic enforcement, prevention, and
safety education, better coordination of enforcement programs between Metropolitan
Toronto and the surrounding regions is the other objective the Force has been
working to achieve. The co-operation of the various forces will help to maximize the
. effect of the various traffic enforcement programs.
Implications for Policing Services
• The increase in accidents for the second half of 1991 compared with 1990 may
be indicative of a reversal in the trend of accident decline. The trend, if it holds,
will place more demands on the resources available for investigation, public
education, and enforcement.
• Given the substantial increases in numbers of 'inattentive' drivers and pedestrians
involved in accidents, as well as increases in hit-and-run and pedestrian-crossover
accidents, there seems to be a need to strengthen enforcement and education
programs.
• The increased need for co-ordination of Metropolitan Toronto's traffic programs
with the surrounding regions will have to be addressed. This may constitute a
further drain on the Force's resources.
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TECHNOLOGY
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: IX. TECHNOLOGY
Communications and information technology are central to the work of many
organizations and are integral to the functioning of the police. Emergi.ng systems
and new technology can affect both the method by which police services are
delivered and the types of services needed. Increasing sophistication in
technology and in the users can increase the efficiency of the justice system.
However, it may also increase the efficiency of those participating in criminal
activities. The changes and increasing complexity will have an impact on
recruitment and training, job design and the expectations of service.
Highlights
• An information-based economy will continue to develop in the private sector,
with a focus on integration of systems.
• There will be increased use of computers at all levels of the private sector,
especially by managers, to increase efficiency.
• The needs of Neighbourhood Officers for the Beyond 2000 vision require a
technology framework based on a decentralized model. 'Metropolis' will be
designed to meet these needs.
• Technology will improve the efficient measurement of achievements.
• More sophisticated technology and information systems must be managed to
increase efficiency and avoid "information overload".
• Mapping systems and geo-coding are required to ensure a more efficient
deployment of resources.
As discussed in the 1991 Environmental Scan, our information-based economy
continues to grow. The tools that are available for use by all levels of management
and the operational units are increasing daily and are being developed for increasing
use by non-technical people.
A recent survey shows that use of personal computers or terminals by Canadian
office workers has risen from 72% in 1989 to 88% in 1992.
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Productivity can
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Modem Needs of the 90's Office. T. Kelly, Office Systems and Technology, March 1992.
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normally be increased in two ways, either through an increased human resource base
or by doing things more efficiently. To do things more efficiently requires a long
term investment in tools and in an information-based industry. This means
integrated computer systems. On the positive side, this will open doors for better
management of resources; but there are also negative implications since it will
increase access to information and resources by individuals involved in criminal
activity. Police forces are strongly information-based and if they are to respond to
the needs of the community, the necessity of an efficient computer system is
apparent. Without the tools, investigators and managers will be unable to respond
to the modern criminal in our society.
Within the private sector, the advantages of an integrated technology are
appreciated, and the value achieved in terms of better management and efficient use
of resources is apparent. The previously mentioned survey also found that top
executive use of personal computers or terminals rose from 50% to 64% between
1989 and 1992.
There is a growing trend within industry to incorporate the experience of senior
personnel into software programs that will assist junior or less experienced staff to
solve problems in an efficient manner. This method 2 .~ ,so ensures that there are
fewer mistakes due to inexperience and gives a support mechanism to learning staff.
As we get more involved in information and database development, these types of
programs will be necessary to guide less computer literate personnel in the
acquisition of the information they require to perform their functions. These
programs will also allow managers to ensure that their staff are using computer
resources more efficiently, without intensive formal computer training.
A study of 900 business and law enforcement agencies conducted in Florida showed
that one in four businesses had been a victim of computer crime.
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It was also noted
that there was a high risk of insider intrusion into their computer files. There is a
perceived lack of training for this problem in public policing, and private policing
will continue to supply investigation services in this area.
Within the Beyond 2000 vision, the Neighbourhood Officers will be responsible for
a wide range of policing duties in a dedicated area defined as a neighbourhood.
Although they will be expected to operate as a well co-ordinated team with other
police and community resources, they will have greater autonomy to make decisions
regarding the policing of the neighbourhood. This will require a productive
integration of information not only with police resources but also community,
government and private sector resources.
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Allcon Interpoints, Winter 1992.
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With an increasingly global community, computer links on a world-wide level will be
necessary if we are to address the multinational nature of crime within society. To
accommodate these linkages, an open system architecture would need to be
developed, considering the multitude of systems that are now in place. These
international links will not only increase our ability to address crime within the city,
but will also expose our officers to a greater education within the law enforcement
field.
To increase the ability of our officers to address the community needs, systems that
allow for one-time entry into databases are required. This ensures that the data is
made quickly available to all concerned, and decreases the impact on our support
resources. These types of systems will require officers to employ computer terminals
within their vehicles to transmit data. Voice mail systems would allow officers not
equipped with a computer to have occurrences and reports quickly entered into the
Force's databases. On-going projects in this area are considered successful to date.
The decision-making process to be utilized must be supported with a well informed,
efficient system of data gathering that has analysis and integrated communications
components at all levels. To ensure that we are capable of supporting the needs of
the neighbourhood officers, efforts are already underway with the installation of new
Computer Aided Dispatch (C.A.D.) and radio systems.
In addition, 'Metropolis', an integrated information system designed to encompass
the overall organizational, technical and procedural approaches to information
systems delivery and operation, is in its infancy. The importance of this undertaking
has been recognized and with financing included in the capital budget, a long-term
commitment to its development is ensured. As it is developed, it is expected to
address the needs of neighbourhood officers and to ensure that neighbourhood
officers are fully integrated into the support systems required to deliver an efficient
and responsive style of policing to the neighbourhoods of Metropolitan Toronto.
Use of mapping and geo-coding for the analysis of trends will be necessary,
especially by the neighbourhood officer and detectives if the efficient deployment
of resources is to occur. Efforts by our Force to date have focused on the use
mapping to a limited degree. This mapping ability, integrated with a true geo-coding
system, will be necessary if we are to advance in resource management.
Other trends:
• The use of computers by decision-making groups will allow more people to
participate and will ensure that the decision-making process is not dominated by
the ideas or solutions of more outspoken participants.
• The public will have more access to information of all types.
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• The integration of communications technology, pagers, and computers into small
packages will not only give executives more immediate access to data, but will
also give those participating in criminal activities the opportunity to have a
portable office that is easily controlled ( eg. can cancel data or records quickly).
• Increased sophistication in simulation and virtual reality will allow more realistic
training for police officers.
• An increase in 'Techno Stress', defined as too much information at one time,
may result. Information must be properly controlled and funnelled in a manner
that is easily studied, without leaving one feeling overwhelmed.
• The goals of any organization cannot be considered successful unless they are
capable of being measured. One role of technology in the future will be to allow
the measurement process to proceed more efficiently without placing too great
a burden on management or the resources of the organization.
Implications for Policing Services
• There may be increasingly more sophisticated criminals at all levels.
Traditionally restricted to white collar work areas, increased use of computers in
the home will generate a new level of expertise outside of the workplace. This
increased sophistication will make it difficult for the public police to investigate,
particularly if an industry does not want public disclosure of loss.
• There will be increased difficulty in preserving data transactions and in detecting
any change or loss of data. Investigation of data trails will require a high degree
of computer literacy.
• Recruits into policing will have an increased expertise in computers and greater
expectations of what can be accomplished through proper integration of
computer systems within the police force. With their more technical interests,
these recruits may have an impact on the priorities developed within the Force
in the future.
• With increased responsibility to be placed on the neighbourhood officer, fast
and efficient access to data will be mandatory to ensure that limited field
resources can address local problems in an efficient manner. The development
of 'Metropolis' will have to be based on decentralization.
• To ensure the most efficient use of the computer systems, a force-wide training
strategy will need to be developed to ensure that all members become computer
literate.
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POLICE SERVICE REQUIREMENTS
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X. POLICE SERVICE REQUIREMENTS
Changes in the nature and scope of police services needed and demanded require
constant adjustment by the Force. These adjustments affect the composition and
organization of the personnel who deliver police service, how they are managed
and what their priorities will be. Since human resources comprise over 90% of
the total Force budget, changes in public requirements most affect this area.
Human resources are the organization's 'life blood' and all external and internal
trends impact, to some degree, on the recruitment, maintenance and development
of these resources.
Highlights
• The number of calls for police service increased slightly in 1991; the number of
calls dispatched to mobile units decreased.
• There were slightly more emergency calls than non-emergency calls, and the
proportion of emergency calls as a part of the total decreased.
• A pilot project on community-based policing showed that the strategy of alternate
responses reduced pending times for low priority calls.
• The ratio of Criminal Code offences per uniform officer is increasing. This is an
indication that there is an increased workload on uniform resources.
• An aging of the uniform members of the Force will lead to greater occupational
health and safety challenges.
• More officers with a wider range of experience will challenge the Force to
provide opportunities which will encourage personal development.
• There will be an increasing number of retirements in 1993 and 1994 involving
officers who are retiring at a younger age and with fewer years of service.
• The hiring freeze in 1992 will challenge the Force's ability to maintain current
employment equity levels for visible minorities, aboriginal people, and women.
A. Response to Calls for Service
Between 1987 and 1991, calls for police service increased 11.2%, from 2.2 million
to 2.4 million. Within that period, a significant increase in calls for service was
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noted in both 1987 and 1989, which had 18% and 10% one year increases,
respectively. The total number of calls went down slightly in 1990, but increased
again, close to the 1989 level, in 1991.
During the past five years, the number of non-emergency calls increased 13.8%,
which was a greater increase than the 9% increase in emergency calls. There were
slightly more emergency calls (54%) than non-emergency calls (46%) in 1991.
However, the proportion of emergency calls is slowly decreasing, while that of non
emergency calls is increasing. The number of calls taken up by the mobile units
( dispatched calls) decreased as a result of alternate response strategies.
Calls for Service : Emergency, Non
Emergency & Total Calls
Millions
3 .---------------------,
2.11 ..................................... ......... .. ... ... .. .. ........ l!,".~· · ······· ······· ···· -t,406- ····· ········· ···••.417••·
1987 1988 1989 1990 1991
- Emergency ~ Non-Emergency Wffi Total
Source: M.T.P.F., RIS Information Centre
Figure 10.1
The total number of calls captured by the current police information system is a
deflated number, as new policing initiatives introduced in some police divisions had
some calls directed to the local station instead of through the central
Communications Bureau. These calls at present have escaped the central recording
system and thus are not reflected in the total.
The method of responding to calls has changed over the past five years. In response
to the growing number of calls, strategies involving alternate modes of response have
been adopted. These include the increased use of divisional resource centres,
telephone advice-giving and report-taking, use of report cars, and the community foot
patrol responding to some of the non-emergency calls. These strategies meant more
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mobile units were made available for deployment. Multiple response alternatives
resulted in a 10.8% drop in calls dispatched in 1991 and an increased proportion of
calls taken up by the resource centre or being dealt with otherwise.
Calls for Service : Modes of Response
MIiiions
1.4 ··· ···················································· ····················· ···················································· ·
1987 1988 1989 1990 1991
122a Resource Centre
- Dispatched
~ Otherwise
Source: M.T.P.F., RIS Informat ion Centre
Figure 10.2
As discussed in the following section, the pilot project on community policing in 53
Division ("Community Partners"), which started in April 1991, has shown that with
the implementation of a new policing strategy and alternate modes of response to
calls for service, the pending time for low priority calls decreased significantly. With
a number of calls responded to by other means, more mobile units were made
available for deployment, thus resulting in the lowering of some pending times.
More effective response strategies are essential in managing a growing demand for
service, particularly during times of budgetary constraint when a commensurate
increase in resources is not forthcoming.
B. 1991 Human Resource Management
Many of the human resource issues cited in last year's Environmental Scan continue
to be challenges for 1992. The issues of budgetary constraint, management
development, and occupational health and safety predominant in 1991 have
continued to be of concern in 1992.
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•:,
Human Resource Development and Mobility:
During 1991, the Force continued to refine the promotional process for the first
and second levels of promotion. New promotion procedures were successfully
implemented. Changes to the process offered candidates an opportunity to review
examination marking and to appeal to a tribunal if they felt the process was not
being fairly administered. Self-assessment forms were revised to reflect even more
the experience, knowledge, and achievements of the candidates.
A new Promotional Procedures Committee was convened to examine the staff
sergeant to inspector promotional processes. A second phase of this committee's
work in 1992 will involve development and succession beyond the inspector rank.
Organizational Development:
The completion of the annual review of senior officer positions will be completed
in April 1992.
Alternate Deployment Strategies:
As mentioned earlier, in April 1991, a pilot project involving the redeployment of
personnel and the development of new strategies to handle low priority calls for
service was implemented in 53 Division, for the period of one year.· The Community
Foot Patrol was expanded and re-named the "Community Patrol". With the
exception of these officers and support • officers, volunteers were sought throughout
the mobile platoons to participate in the Community Patrol. Supervisory staff were
appointed by the Unit Commander. The mandate of the Community Patrol officers
is to respond to low priority or non-emergency calls for service and to generate
community contacts.
Prior to April 1st, and continuing to a lesser extent throughout the project, a public
awareness campaign was undertaken to educate the citizens within the study area of
this new strategy. The public was encouraged to call 53 Division directly for calls
of a non-emergency nature, but reminded that 9-1-1 should be used for any
emergency call. They were advised that police response to low priority calls may not
be immediate but that a more personalized service would be provided.
In the first six months of the program, there was a noticeable decrease from the
same period of last year in the proportion of non-emergency calls for service coming
through the computer-aided dispatch (C.A.D.) system. This decrease in low priority
calls was possibly due to some members of the public now contacting the division
or Community Patrol directly for information or advice in non-emergency situations.
Pending times for those low priority calls that were received by the C.A.D. system
also decreased.
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Beyond 2000 Subcommittees:
In September, 1991, the Command Officers and the Police Services Board endorsed
the Force's first long-term strategic planning initiative, Beyond 2000. An
implementation committee was struck comprising senior management representatives
from across the Force, the chair of the Police Services Board, and the president of
the Police Association.
Subcommittees were formed to fulfil key responsibilities. Force members chosen
for the committees represented a cross-section of rank, functional responsibility, race,
and gender. In 1991 and early 1992, highlights of the work of these Subommittees
included:
• definition of the front-line and supervisory roles to support neighbourhood
policing; ·
• definition of a neighbourhood;
• definition of which calls for service require urgent response and which may be
dealt with through alternate responses;
• production of surveys to receive feedback from Force members and the
community on their views of neighbourhood policing, as well as production of a
survey to determine technological needs to support the neighbourhood officer;
• development of skill profiles for the neighbourhood officer, for use in evaluation
and development;
• development of a video, pamphlets, and other communication tools to update
members of the Force and the public on the progress of the planning effort; and,
• development of financial planning tools to determine the cost of Beyond 2000
implementation alternatives.
September 1992 is the target date for the completion of the plan, and upon
acceptance, implementation phases will begin shortly thereafter.
Quality of Work Life:
In late 1991, two 'quality of work life' workshops were held. Both identified
opportunities for the Force to support 'quality of work life' initiatives. Future
initiatives will depend largely on resource commitments but may include conducting
more research, building on existing programs, integrating 'quality of work life'
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concerns with Beyond 2000, and/ or developing more longer term 'quality of work
life' initiatives.
Occupational Health & Safety:
In April, 1990, the Board approved a management review of occupational health
and safety. A management consultant worked in conjunction with Corporate
Planning staff to conduct this review. The review team, in concert with the Chief
Administrative Officer-Policing and an advisory committee of senior finance and
persolll}el representatives, supported the need to increase the Force's management
commitment to occupational health and safety.
During budget preparations, an interim report entitled, New Management Directions
for Occupational Health and Safety at the Metropolitan Toronto Police Force, was
tabled with the budget subcommittee. This report concluded that new management
directions were required based on the proactive principles of prevention, integration
of health with human resources and other management functions, adoption of
systematic planning and information systems, appropriate use of outside resources,
and addition of specialized professional expertise.
The new Occupational Health and Safety unit will provide leadership and
strengthened services and programs to the Force in areas of safety, industrial
hygiene, health promotion, workers' compensation and claims management. It will
also provide assistance with the Force's management of: mounting provincial
occupational health and safety legislation and related human rights and health
benefits legislation; its multi-million dollar health-related expenditures and
productivity losses; labour relations; employee morale; human resources
development; and, community policing initiatives.
Senior Constable:
During 1991, a committee was formed to determine the efficacy of adding another
level of compensation to the constable rank for those who have completed 10 years
of service, passed promotional exams, and have satisfactory performance and service
records. Currently, 1779 constables have met the criteria. Given the demographic
characteristics of the work force and attrition trends, it is likely that this number will
only increase marginally in 1992 and 1993.
Training and Development:
During 1991 and 1992, the Standing Committee On Training and Education
(S.C.O.T.E.) worked with a consultant to review and make recommendations
concerning the Force's training and development programs. A report containing
recommendations was tabled in March 1992 with the Command Officers and the
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Police Services Board. Overall, the recommendations sought to elevate the
importance and status of training in the human resources acquisition, support,
maintenance, and development processes.
C. 1992-1993 Human Resources Management
As noted earlier, all trends impact to some degree on resource management.
Demographic, social, economic, crime, political, urban, traffic, and technological
trends may all affect the Force's ability to respond to the needs of the community.
Decisions regarding the allocation of Force resources must be based on these trends
to address the immediate and future needs of policing both effectively and
efficiently.
Demographics of the Work Force:
Over the decade from 1982 to 1991, total uniform and civilian strength (actual)
increased by 12% from 6,948 in 1982 to 7,788 in 1991. During this period, uniform
strength increased by 3.5% from 5,472 officers to 5,666 officers, while civilian
strength increased by 43.7% from 1,476 to 2,122 (Figure 10.3).
Uniform/Civilian Strength
1982-1991
Actual Strength (Thousands)
7788
1982 1983 1984 1985 1986 1987 1988 1989 1990 1991
Year
- Uniform ~ Civilian
Figure 10.3
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In the more recent period of 1987 to 1991, the number of police constables
increased by 5.6% from 4,063 to 4,289 (Figure 10.4 ). During the same period,
uniform middle and senior management showed a larger increase of 7.7%, increasing
from 1,278 to 1,377 (Figure 10.5).
0
Figure 10.4
Uniform Conatablea
1987-1991
...
•111 4H�
1N9
Year
-CoNlablH
1990
Crime and Strength Ratios:
....
Uniform Middle and Senior Management
1987-1991
Ao11aal Strength
1eoo...----~-----------,
1400 ······t1te ············• .... ············1ao.···········MN············ '.l!r.! ..... .
1t00 ..
1000 ..
100 ..
too ··
400 ..
too ..
O ..1........=~a.__~=._~~-'--
•1 ...
!Z:::::l aenlor a Co.,.and
Figure 10.5
1"9
V.ar
1"1
The crime to strength ratio, one indicator of the workload of Force resources,
demonstrates that during the 1982 to 1991 period, criminal offences per uniform
member rose from 41 in 1982 to 51 in 1991 (Figure 10.6). This trend is also
indicative of escalating pressures on civilian resources to deal with increased
administrative responsibilities.
Our Force is not unique in this respect. For example, a recent Statistics Canada
report indicated that the number of criminal code offences encountered by Canadian
police officers in 1990 was over five times that of 1962. This accordingly resulted
in a rise in the ratio of offences per officer from 20 to 4 7 over this time period.
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Criminal Code Offences/Strength Ratio
1982 to 1991
CRIMINAL CODE OFFENCE/MEMBER RATIO
1982 1983 1984 1985 1986 1987 1988 1989 1990 1991
YEAR
~ Uniform
Figure 10.6
Uniform Length of Service:
A 1990/1991 comparison of years of service for uniform members demonstrated that
the service level of officers on the Force has increased (Figure 10.7).
The higher levels of service found in the 11-15 year category in 1990 moved to the
16-20 year service category in 1991. Consequently, the length of service has risen
from an average of 14.5 years in 1990 to a present level of 15.4 years. This increase
in average length of service, while on the one hand contributing to a more
experienced work Force, has also created challenges in terms of work satisfaction,
promotional opportunities, physical capabilities and the requirements of work, and
occupational health and safety. Job content, training and development, lateral and
vertical mobility, attrition, and organizational structure are all affected.
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Service of Uniform Police Officers
1990-1992 ComparisQn
No. of Officers
2000,------------ -----------,
1704
1600 ················································ ···························································
0-6 e-10 11-16 'NS-20 21-26 H-30 31-36 35•
Years of Service
fZ::2l 1990(Nov) Wffi 1992(Feb)
Source:lnfo Ce ntre
Figure 10.7
Age of Uniform Work Force:
Examination of the age characteristics of the uniform members of the
demonstrated that the uniform Force population is aging (Figure 10.8).
Figure 10.8
Age of Uniform Police Officers
1990(Nov)-1992(Feb) Comparison
E:3 Age 21·30 year, EZ2l Ao• 31-40 year, !EB Ao• 41-50 rear,
~ Age 61-66 year• ~ Age H·I0 year, D Ao• 11-16 year•
8ourct1: Info Centre
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The average age of the uniform work force in early 1992 was 38.3 years. The trend
of an aging work force will cause increased pressure to evaluate job content in terms
of physical requirements, skills, experience, and knowledge. Police administrators
will be faced with new demands, influencing policy decisions.
Voluntary Separations:
A recent study on attrition indicated that between 1985 and 1990, volunta~
resignation rates increased from 1.05% to 2.35% of the total uniform work force.
Voluntary separations during the years 1989 and 1990 were particularly high,
probably due to the favourable economic conditions which prevailed at that time.
Less favourable economic conditions and limited employment opportunities for
transferable skills will likely lead to lower than average voluntary separation rates
in 1992 and 1993.
Retirement Trends:
The aging uniform work Force and longer service levels have a direct effect on the
retirement trends the Force is likely to experience in 1993 and beyond. A number
of factors will influence retirement trends in the three-year period ahead, including
labour market conditions, pension reform, policing pressures, and the economy.
Those eligible to retire from the uniform work force, based on the earliest
'retirement age plus service' factor, will increase an estimated 34.8% from 1074 in
1991 to 1448 in 1994
2
•
Retirement projections for 1992 to 1994, completed by the Officer Retention
Committee, provide three scenarios (Figure 10.9). The year 1993 provides for a low
of 105 and a high of 196 retirements; 1994 has a higher range of 128 to 236
retirements. The power of this tool as a barometer of retirements is reinforced by
the number of actual retirements in 1991 (112), which was close to the projected
midpoint of the range for that year.
In the recent past, there has been a trend toward earlier retirement ages. Between
1985 and 1990, the 'age + service' factor for retirements declined from 88.1 to 84.3
(Figure 10.10). This decline is likely related to collective bargaining incentives
involving medipak, the labour market for transferable skills for retirees, and
emphasis on other life choices. It is uncertain whether this downward trend will
continue or level off in 1992 and 1993.
1
Retaining Human Capital: The Human Resource Challenge of the Next Decade. Report of the
Officer Retention Committee, 1991.
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Earliest 'age + service factor > 70. This number is equal to 25 years of service for an officer
who began service at 21 years of age.
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# of Officers
Retirement Projections
1991-1994
250.---------------------------..~~
196
200 ··············· ·························································································································· 1
167 r----.+-H
150 ............................................. .
100
50
0
1990 1991 1992
Year
1993 1994
- Low Retirements D Medium Retirements EBB High Retirements
Figure 10.9
Age & Service Retirement Profile
(1985-1990)
Average Age • Service Factor
100 ,---------- -----------------.
89 .1
90 ····· · 111t.-1···· ··· ········ ········ ········ ··············· ···· ···· ··· ·· ······· ··············· ····· ····················· ··· ········· ········· ····
88.6 86 .6 85 . t 84.3
80
70
50
1985 1986 1987 1988 1989 1990
Year
filH1 Aver. Years Service ~ Aver. Retirement Age
Figure 10.10
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Employment Equity:
At the end of 1991, female representation reached 564 or 9.7% and aboriginal and
racial minority representation reached 366 or 6.3%. These results exceeded the
goals established for 1991, which projected a female representation at year end of
550 or 9.6% and aboriginal and racial minority representation of 357 or 6.3%.
When the Force undertook the development of an employment equity program in
1986, female representation stood at 211 or 3.9% while aboriginal and racial
minority representation was 159 or 3.0%.
According to a recent discussion paper issued by the Ontario Ministry of Citizenship,
60% of the labour force is composed of aboriginal peoples, people with disabilities,
racial minorities, and women. However, "[d]espite the fact that these workers make
up such a large part of the labour force, they do not participate equally. They are
often underemployed, earn less, and are se§regated in marginal occupations,
compared to other groups in the labour force." It is further believed that people
from these four groups will make up a majority of those joining the working world
in the next decade.
The Force has continued to develop programs, policies, and procedures in support
of employment equity, and to develop the systems and the data required for filing
its legislated employment equity plan. The first such plan must be submitted to the
Race Relations and Policing Unit of the Ministry of the Solicitor General by May
1, 1992. The establishment of goals, initiatives, and activities for 1992 and 1993 will
be developed in keeping with the Employment Equity Regulations of the Police
Services Act, and will be published in the format required by the Solicitor General.
The Employment Office and the Recruiting Unit both contributed significantly to
outreach recruitment efforts. Steps were taken to expedite the processing of
applications from women, aboriginal peoples, and racial minority members. These
efforts were supported throughout the year by the Citizens Recruitment Advisory
Committee, which consists of volunteers from various communities who help develop,
undertake, and evaluate the Force's recruitment initiatives. Of particular note was
the expansion of various minority and youth outreach programs, including Seniors
Taking Extra Precautions (STEP), Summer Employment Experience (SEED), Ride
along, and Co-operative Education Programs in high schools, colleges and
universities. A total of 183 youth (60% of whom represented employment equity
target groups) participated in these programs.
3
Working Towards Equality, Employment Equity Discussion Paper, Ontario Ministry of Citizenship,
November 1991.
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Given the budgetary restrictions, it is unlikely that any hiring will take place in 1992,
and possibly 1993 as well. While separations from the Force will continue, the trend
in separations noted in 1991 was that female, aboriginal, and racial minority
members were recruited to other police organizations. Under these circumstances,
the Force's representation of female, aboriginal, and racial minority members is
unfortunately likely to decline unless attrition characteristics remain low for these
groups.
The Force has continued to review and update the cross-culture, race relations, and
human rights training program that in 1991 was provided to all new recruits,
approximately 300 Sergeants/Detectives, and 45 civilian supervisors. Nineteen
officers also participated in piloting the new eight-day race relations training
program being developed by the Ministry of the Solicitor General, Race Relations
and Policing Unit.
Further, a committee has been formed to develop a Workplace Harassment policy
as well as the complaints procedure to accompany it, and, as mentioned in Section
I of this document, a Race Relations Implementation Committee, comprised of
community and Force members, has been working on developing the Force's Race
Relations Policy implementation plan.
D. Organizational Design and Development
External Consultation:
The Environmental Scan Committee's external consultation process offered insights
into what other organizations were doing in terms of organizational design and
strategic alliances. Several speakers commented on the need for flatter, more
decentralized organizational structures as the means by which neighbourhood
policing should be delivered. In particular, Mr. Dan McIntyre, Assistant Deputy
Minister to the Ontario Solicitor General, commented that such structures were
conducive to building trust, co-operation, and shared decision-making at the local
level.
Mr. Dale Richmond, the Chief Administrative Officer for Metropolitan Toronto, in
his presentation on 'Managing Change in a Constrained Fiscal Environment',
suggested that the future will require the Metro Corporation pay greater attention
to managing priorities and people, developing new community and institutional
partners, and coping with the environment. He suggested that flexibility and
resource sharing are the keys to organizational alliances and partnerships in the
future.
Mr. Jim Mackay of the Berkeley Consulting Group made a presentation on
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developing partnerships and strategic alliances. He suggested that opportunities to
build partnerships and alliances abound, but there is a need to manage the risks of
over-extension. Every partnership involves a business transaction in which the
resources, know-how, and credibility of the team is brought together in a common
purpose. The challenge for Mr. Mackay was seen to be one of managing the
creating cli~ate.
Mr. Gary Austin of IBM Canada made a presentation on the need for organizational
planning within the private sector and used a large technology company's experience
as his example. He identified recent problems faced by his company and
recommended the following:
• focus on the customer and their needs;
• the need for a vision or desired outcome;
• an organizational transformation to a flatter structure;
• the need for speed and quality;
• the need to consider cost savings; and,
• the need to recognize that people at lower levels are well able to
make decisions.
1993 Organization Planning:
Some of the concepts portrayed during the 1992 external consultation process are
in harmony with last year's implications for a new organization design. These
included the following considerations:
• A new definition of the police organizational design.
• The need to develop and implement alternate response mechanisms for low
priority calls for service.
• New management practices to address changes in decision-making responsibilities
and organizational design.
• New measurements of police effectiveness and performance for both the
organization and individuals.
• A further refinement of the functions requiring sworn police officers.
113
• A re-evaluation of the concept of centralized functions.
• Increased emphasis on staff development.
• Competing ideologies between those holding on to the 'traditional' model of
policing and those advocating community policing.
The development of the Beyond 2000 strategic plan has incorporated a consideration
of all of these implications. In addition, the external consultation process has added
the new component of building strategic alliances and partnerships which are aimed
at the delivery of service at the local neighbourhood level.
Implementation phases of the plan will begin to be introduced in 1993. It is not
expected to be fully implemented until the years beyond 2000. As with any large
scale change, there will likely be a period of unease and adjustment, requiring
management fortitude and resolve to achieve the vision articulated in the plan. It
will be important for some successes to be realized early in the plan to enable it to
gain the acceptance and support it requires. However, some changes may be
profound and attempts to introduce them at once would be impossible given the
implications of building size and location, technology adjustments, and training
requirements.
Implications for Policing Service
• New policies will lead to more individual employee empowerment involving
rights in the workplace.
• With an aging population, care of elderly parents may become more of a concern
for employees in 1993 and beyond.
• Occupational health and safety issues will become more intense.
• Employment equity progress will be hampered due to the hiring freeze.
• Fewer human resources will be available to meet increasing demands in 1992
and 1993.
• Increasing levels of human capital in 1992 and 1993 and the possibility of a new
organizational structure may lead to a review of traditional compensation
practices.
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• Fewer promotional opportunities will be available in 1992 and 1993, due in part
to hiring freeze, reduced attrition in higher ranks, and redeployment. Key
decisions in the future will be when to lift the hiring freeze to ensure that the
Force is not left understaffed.
• Beyond 2000 will result in a new organizational design. A flatter, more
decentralized structure will likely be the outcome. For some members this may
result in a period of career adjustment lasting beyond 1993 and 1994.
• Organizational design and structure will include more considerations of strategic
alliances and partnerships in 1993 and beyond.
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XI. FINANCIAL RESOURCES
Police funding requirements constitute a significant share of the tax burden
financed by the people of Metropolitan Toronto. Increasingly, the taxpayer
requires fiscal accountability and value for money. The challenges and
opportunities presented by the cu"ent fiscal climate constitute a major factor in
the existing environment for delivering police services.
Highlights
• The 1992 budget process was accompanied by an unprecedented amount of
scrutiny. The increased need for accountability will not disappear.
• Basic measurements indicate that the demand for police services has been
increasing faster than real increases in the police budget.
• Provincial household grants for policing have decreased from 12% in 1985 to
8.5% in 1991.
A. Accountability
As highlighted in previous Environmental Scans, politicians and financial managers
are increasingly expected to be more accountable to the public for how money is
spent. The Force must continue to demonstrate the efficiency of its operations and
the effectiveness of its services. This is not a trend that will be relaxed in the near
future, given the growing cost of public services and increasing public tax burden.
During the 1992 budget process, both the municipal politicians and the management
of the Force agreed that the budget level should not in any way jeopardize public
safety and security. There was much discussion as to what precisely that budget
level should be. The politicians, feeling pressures from other departments, as well
as from the tax payer, felt that the requests being made by the Police Services Board
could be cut. Because police service is provided to protect personal safety, there
was a reluctance to set the budget at a level that would require layoffs of police
personnel. Intensive, line by line scrutiny was performed by a team of politicians
and budget analysts with significant cuts being made to the budget presented by the
Board.
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B. Police Funding
As noted in the 1991 Environmental Scan, the trend towards increased local funding
of police services continues. Of the $548.5 million in actual 1991 expenditures, only
$46.4 million, or 8.5 %, was paid for by the Province of Ontario by means of
provincial household grants. The remainder was paid for by the Municipality of
Metropolitan Toronto. Since 1987, the province's absolute contribution to Force
expenditures has remained virtually unchanged. However, the expenditures of the
Force have risen 9.6% annually. Consequently, the cost to Metropolitan Toronto for
police services since 1987 have risen 10.4% per year, or 48.8% overall, from $337.4
million to $502.1 million.
The total municipal tax bill for the property owners of Metropolitan Toronto is
composed of three main elements. Roughly, the Boards of Education account for
50%, the appropriate City or Borough 25% and the Municipality of Metropolitan
Toronto the remaining 25%. For the municipality, the expenditure of the Force
represents abo"ut 40% of the total budget. To the taxpayer, therefore, the cost for
police services represents approximately 10% (.4 x .25) of the total municipal tax
bill.
Other than property taxes, the Municipality has limited sources of revenue. The
recession has reduced the fees collected from businesses and other forms of
municipal revenue, including the Toronto Transit Commission, which is experiencing
reduced ridership. As cost pressures increase, fiscal difficulties arise.
The main cost pressure increase is directly due to the increase in unemployment
caused by the recession. As mentioned in Section II of this document, general
assistance welfare claims are budgeted at $795.5 million for 1992, up 116% since
1990. The dramatic increase in this expenditure, in concert with the reduction in
general municipal revenues, is causing great concern among the financial managers
of the municipality. The direct result of this concern is intense scrutiny of all budget
components.
C. Police Expenditures
Providing effective police services has become an increasingly expensive business.
As mentioned in the section on Legislative Impacts and Political Trends, the
required workload associated with law enforcement has increased in quantity and
complexity.
Between 1987 and 1991, the actual total expenditures for the Force increased by
44.2%, from $380.2 million to $548.5 million, or 9.6% per year. Since 1986, the
consumer price index for Metro Toronto increased by 28.6% or 5.2% per year.
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Effectively, this differential in growth rates implies a real annual increase of 4.4%.
During the period 1987 to 1991, reported criminal code offenses increased at an
annual rate of 5.6%. Also during that period, the number of cars dispatched by
radio increased by 6.4% per year. When these facts are coupled with the increased
workload due to legislative changes and additions, it would appear that the demand
for policing has increased more than the increase in funding.
D. Expense Components
Human resource expenditures are the largest expense item, consuming about 90%
of the police total budget, or $489.9 million in 1991. Between 1987 and 1991, these
costs have grown 45.4% in total, or 9.8% per year. The salary and benefit
components of the cost of human resources have grown by 42%. However, the
special pay component, comprised mostly of overtime pay and the uniform court fee,
has grown by 114.9%, or 21.1 % per year. It now equals 10.7% of basic salaries, up
from 7% in 1987. The main reasons for the increase are the court elect settlement
of 1988 and the Askov decision, which led to an effort to clear the courts of
backlogs, prior to expiration. Improvements in the efficiency of the court scheduling
system may result in the reduction of the uniform court fee.
The other expense components include materials, equipment, and services. Over the
last five years, materials expense has grown 12.6% per year, to $13.6 million in 1991.
Expenses in this category are mostly for gasoline, vehicle parts, office supplies, and
clothing. They have increased faster than inflation because of the increase in fleet
size and the higher than inflationary increases in gasoline taxes. Expense for
equipment has fluctuated from a high of $15.1 million in 1989 to a low of $7.2
million in 1990. The expense for services has increased from $26.9 million in 1989
to $34.6 million in 1991, or by 7.2% per year.
Implications for Policing Services
• The budget process will require difficult choices to be made about how resources
are allocated. The management of the Force must be on constant lookout for
creative ways in which to deliver services.
• The principles in Beyond 2000 are necessary in a financially constrained
environment. Neighbourhood policing requires mutual accountability, with a
service which allocates resources based on priorities mutually arrived at with the
public in specific neighbourhoods.
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• The Force will be required to spend more of its time demonstrating efficiency
and effectiveness to the public. Specifics of the costs and benefits of each of the
provided services will be needed in order to secure funding. Overtime and court
costs, as line items with the greatest growth rate, will continue to be analyzed.
• Increasingly, sophisticated management information will be required to assist in
service analysis and decision-making. The intelligent synthesis of the large
quantity of collected data will be needed to define the efficiency of the services
delivered.
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XII. 1991 YEAR-END ANALYSIS
The year-end report is an evaluation of the various strategies implemented by
Unit Commanders to address community problems and service delivery issues
within their area of command. The unit assessment provides the Executive and
Senior Officers a basic framework within which to evaluate the efficiency and
effectiveness of the operations of Force units, divisions, and bureaux. It may also
provide some foundation from which Districts can begin long range planning.
Highlights
• The year-end report is the final phase of the 1991 two-part strategy formulation
process by Force units. Phase I was the development of the strategies units
planned to undertake in the coming year; phase II was the evaluation at the unit
level of the achievement of those strategies at the end of 1991.
• In late 1990, the Measurement Standards Subcommittee was established and
charged with identifying and establishing valid and reliable methods of measuring
Force goals and objectives.
• A total of 1168 strategies were submitted by 74 Force units as having been
addressed to these Force goals in 1991.
• Almost one-quarter (270 or 23.1 % ) of the strategy evaluations submitted at year
end indicated that the strategies were not implemented. Many, but not all, of
these strategies were not implemented due to budget or resource constraints.
• Strategies involving a variety of external and internal consultations and liaisons
were the most common types of strategies implemented to address the first four
1991 Force Goals. The fifth goal, which involved resource management, was
typically addressed by simple acquisition strategies.
• Training sessions on strategy formulation and measurement were begun in 1991
and will continue through 1993.
• Four divisions, one district headquarters, and one centralized unit participated
in a pilot project overseen by the Measurement Standards Subcommittee from
July to December, 1991, to measure the 1991 Force goal dealing with the safety
and security of vulnerable groups.
• The pilot project successfully collected quantitative ( e.g. number of presentations,
number of training sessions) and qualitative ( e.g. a survey of victims belonging
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to vulnerable groups) data to measure the results of Force strategies addressing
the 1991 Force Goal 1, Objective 2.
• The measurement of this Force objective will continue in 1992 and the
measurement system will be expanded to four additional Force objectives.
A. Background
The year-end report is the final phase of what, in 1991, was a two-part strategy
formulation process by Force units. Phase I was the development of the strategies
units planned to undertake in the coming year; this was done during the preparation
of the 1991 unit budget submissions completed in the fall of 1990. In a document
that had previously been distributed to all units, unit strategies were defined as
"[r]ealistic action plans or programs to achieve local objectives established by the
unit within the framework of the corporate goals and objectives."
1
Phase II was the evaluation at the unit level of the achievement of those strategies
at the end of 1991. These year-end reports from the units are collected as part of
the annual self audit distributed by the Management Audit and Policing Standards
Unit. In the report, unit commanders were asked to refer to the strategies they had
submitted for 1991 to address the Force goals and objectives relevant to their areas
of command. They were then asked about the outcome of the measurement that
had been planned for each strategy and about the obstacles encountered in the
implementation of each strategy.
While year-end achievement reports have been completed by the units for the past
few years, in 1990 concerns were raised about the need for more precise methods
for measuring the results of unit objectives and strategies. In response to these
concerns, the Measurement Standards Subcommittee to the Environmental Scanning
Committee was established and charged with identifying and establishing valid and
reliable methods of measuring Force goals and objectives. It was felt that a
standardized measurement process would help unit commanders to know what
information must be supplied by units so that analysis of the extent to which
corporate goals and objectives are being addressed could be carried out.
Therefore, in 1991, in addition to the year-end reports, a pilot project was
undertaken to test a standardized measurement system for Force Goal 1, Objective
2.
, Introduction to Police Force Planning and the Strategy Fonnulation Process. M.T.P.F. Strategic
Planning, 1990.
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B. Findings: Year-End Reports
The five Force goals for 1991 were as follows:
Goal 1: Enhancing Safety and Security
Goal 2:
Goal 3:
Delivering a Balanced and High Quality Service
Confronting the Drug Problem
Goal 4:
Goal 5:
Co-ordinating Efforts for Traffic Management and Urban Design
Enhancing Resource Management
A total of 1168 strategies were submitted by 74 Force units as having been
addressed to these Force goals in 1991.
2
Field and Traffic units submitted the
greatest proportion of these strategies:
27 Field and Traffic units:
9 Investigative units:
38 Support and Administrative units:
685 (58.6%)
117 (10.0%)
366 (31.4%)
It should be noted that almost one-quarter (270 or 23.1 % ) of the strategy
evaluations submitted at year end indicated that the strategies were not
implemented. Many, but not all, of these strategies were not implemented due to
budget or resource constraints. Beyond these 270 strategies, other strategies were
realized only in part, with the unit working around the obstacles that arose.
For the 1168 strategy evaluations that were received, the reported obstacles to
successful strategy implementation, and the frequency with which they arose, were:
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Insufficient human and/ or material resources
Other demands on resources took priority
Problems stemming from organizational structure
or internal communication
Restrictions due to procedures, time,
or legislation
491 42.0%
270 23.1%
100 8.6%
72 6.2%
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Strategies included in this analysis were those that corresponded to those submitted during the
1991 budget process. It should be noted that some strategies had been submitted at the earlier point
which were not followed up for the year-end report, and some strategies were received with the year
end report that had not been part of the budget process. Both of these types of strategies have been
excluded from the analysis.
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The total number of times the obstacles were reported does not add to 1168 since more than one
obstacle could be noted for any one strategy. Similarly, the proportions indicated do not add to 100%.
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Lack of internal support for strategy
Insufficient training
Courses unavailable
Strategy perceived as inappropriate
Community support lacking
Changes in environmental conditions
Other obstacles
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60
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15
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5.7%
5.1%
5.0%
2.5%
1.2%
1.3%
5.3%
The three sections that follow briefly outline the most common types of strategies
submitted by Field and Traffic, Investigative, and Support and Administrative units,
along with the corresponding types measurements and the various reported outcomes
of the measurements. The outcomes noted do not include those which were vague
or offered no information about the ·proposed measurement.
Field and Traffic Units:
Of the strategies reported by Field and Traffic units, the greatest numbers addressed
Force Goals 1 a: ud 2, followed by Force Goal 5.
Goal 1:
Goal 2:
Goal 3:
Goal 4:
Goal 5:
167 strategies
163 strategies
111 strategies
98 strategies
146 strategies
Similar types of strategies addressed the four public-oriented Force goals (Goals 1,
2, 3, and 4 ). The most frequently reported types of strategies under these goals
included:
• community liaison and consultation;
• consultation and/or exchange of information between Force members;
• liaison/ consultation with social agencies, governments, schools, businesses,
hospitals, media, etc.; and,
• provision of public education programs.
The most commonly reported measurements for these types of strategies and some
of the various outcomes are listed below:
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• Use of internal/ external data/statistics
o The various statistics kept by units focused on specific types of
changes in occurrences, parking tags, arrests, etc ..
• Feedback/response from the community
o Most of the reported feedback or response was positive; however,
there were a few reports of negative feedback or response.
• Number of contacts with the community
o While there were reports of from between 1 and 20 to more than
60 contacts with the community, most of the reports merely stated
that community contacts had taken place with no number given.
• Feedback/meetings/ exchange of information between Force members
o Reported outcomes included both positive and negative feedback
from Force personnel, an unknown number of meetings held, and
information excl-,anged with other Force members or units.
• Contacts with/response from social agencies, governments, schools, businesses,
hospitals, media, etc.
o While most reports stated that contacts had been made without
giving the number, there were reports that noted 1 to 10 contacts
with one or more of the listed organizations.
Many of the strategies which addressed the fifth 1991 Force Goal, Enhancing
Resource Management, were straightforward acquisition strategies: most commonly,
the acquisition of furniture/equipment, human resources, or computer hardware
/software. Correspondingly, many strategies were simply measured by whether or
not the acquisition was made. However, other typical measurements included the
supervision/evaluation of personnel and administrative/investigative/unit efficiency.
Reported outcomes for these two types of measurement usually noted improved
personnel performance and increased unit efficiency.
Investigative Units:
Investigative units focused on the same three 1991 Force goals as the Field and
Traffic units, although the priorities within these goals changed slightly. Most
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strategies addressed Force Goal 5, followed closely by Force Goals 1 and 2.
Goal 1:
Goal 2:
Goal 3:
Goal 4:
Goal 5:
34 strategies
30 strategies
14 strategies
2 strategies
37 strategies
As with the Field and Traffic units, many of the strategies which addressed
Enhancing Resource Management (Goal 5), were straightforward acquisition
strategies: most commonly, the acquisition of furniture/equipment, human
resources, or computer hardware/software. However, these strategies were most
likely to be measured by monitoring equipment or computer usage. Reports using
this measurement noted frequent use of the acquired equipment or computer
hardware or software.
Investigative units also addressed Force Goal 5 with strategies which involved
sending unit members for training or staff development. In most cases, personnel
were reported to have received the training but t~ie number of personnel receiving
training was not given.
Again as with the Field and Traffic units, similar types of strategies were
implemented under the public-oriented Force goals (Goals 1, 2, 3, and 4). The most
frequently reported types of strategies under these four goals included:
• community liaison and consultation;
• consultation and/or exchange of information between Force members; and,
• liaison/ consultation with social agencies, governments, schools, businesses,
hospitals, media, etc ..
The most commonly reported measurements for these types of strategies and some
of the various outcomes are listed below:
• Feedback/response from the community
o The reported feedback or response from the community for the
strategies measured in this way was positive.
• Feedback/meetings/exchange of information between Force members
0
The measurements noted positive feedback from Force personnel,
between 11 and 20 meetings were held between Force personnel
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or, more likely, an unknown number of meetings were held, and
information was exchanged with other Force members or units.
• Contacts with/response from social agencies, governments, schools, businesses,
hospitals, media, etc.
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While most reports stated that contacts had been made without
giving the number, there were reports that noted 1 to 10 contacts
with one or more of the listed organizations.
Support and Administrative Units:
As with the Investigative units, Support and Administrative units gave priority to
Force Goal 5, followed by Goal 2.
Goal 1:
Goal 2:
Goal 3:
Goal 4:
Goal 5:
41 strategies
102 strategies
33 strategies
7 strategies
183 strategies
As with the other types of units, many of the strategies which addressed Enhancing
Resource Management ( Goal 5), were straightforward acquisition strategies: most
commonly, the acquisition of furniture/equipment, human resources, or computer
hardware/ software. They were most likely to be measured by the supervision
/evaluation of personnel or by monitoring administrative/investigative/unit
efficiency. Reported outcomes for these two types of measurements usually noted
improved personnel performance and increased unit efficiency.
Strategies which involved the development and/ or implementation of plans or
policies relating to administrative efficiency, personnel, or service delivery also
addressed Force Goal 5. Typically, reports noted increased unit efficiency, positive
feedback from and information exchanged between Force personnel.
Strategies that sent unit members for training or staff development were also noted
under this goal, and outcomes reported between 1 and 20 Force members received
training, that training was received without giving the number trained, or,
infrequently, that no personnel received training. Improved personnel performance
was also reported.
Again as with other units, similar types of strategies were implemented under the
public-oriented Force goals (Goals 1, 2, 3, and 4). The most frequently reported
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types of strategies under these four goals included:
• consultation and/ or exchange of information between Force members;
• liaison/ consultation with social agencies, governments, schools, businesses,
hospitals, media, etc.; and,
• provision of public education programs.
The most commonly reported measurements for these types of strategies and some
of the various outcomes are listed below:
• Response to/monitor communications, calls for service
o There was reported improvement
communications and calls for service.
in the response to
• Feedback/response from the community
o The reported feedback or response from the community for the
strategies measured in this way was positive.
• Number of contacts with the community
o While there were reports of more than 60 contacts with the
community, as well as reports that merely stated that community
contacts had taken place with no number given.
• Contacts with/response from social agencies, governments, schools, businesses,
hospitals, media, etc.
0
Most reports stated that contacts had been made without giving the
number of contacts.
• Feedback/meetings/exchange of information between Force members
Summary:
o While feedback from Force personnel was mainly positive, there
was a report of negative feedback. Outcomes also included an
unknown number of meetings held and the exchange of information
with other Force members or units.
For all three types of units, strategies involving a variety of external and internal
consultations and liaisons were the most common types of strategies implemented
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to address the first four 1991 Force Goals. Measurements for these goals usually
included community feedback or response, and feedback or response from Force
members. The fifth goal, which involved resource management, was typically
addressed by simple acquisition strategies, although the means of measuring these
strategies varied somewhat with the type of unit.
Future Plans:
While the evaluations of the various strategies implemented by units are improving,
they are, in general, not as precise as necessary for a detailed analysis. This
realized, efforts have been made to address the situation. Training sessions on
strategy formulation and measurement were begun in 1991 and will continue through
1993. As well, the Measurement Standards Subcommittee mentioned in the
Background is mandated to establish valid, reliable, and standard measures for the
corporate goals and objectives. The findings of the Subcommittee's first
measurement pilot project are outlined in the following section.
C. Findings: Pilot Project
Four divisions, one district headquarters, and one centralized unit participated in the
pilot project from July to December, 1991, to measure Goal 1, Objective 2. This
Force objective was:
Address the safety and security needs of individuals most vulnerable to
victimization, including women, children and the elderly, through special
prevention programs, officer training programs, effective response, and refen-al.
Basic quantitative data associated with unit strategies to deliver public education
programs and officer training programs on prevention and vulnerable groups was
captured on a form designed by the Measurement Standards Subcommittee.
Information on police response to victims belonging to vulnerable groups was also
gathered through a telephone survey in one of the divisions.
The main findings of pilot project were as follows:
• During the six months of the project, the six participating units logged 4,267
person hours in crime prevention programs. They attended 1,226 different
occasions, made 60,355 contacts, and distributed 84,435 publications. Each
contact cost, on average, $2.01 in staff time.
4
4
Computed at the first class constable rate.
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, ·, •.
• Prevention programs were categorized into three types: group presentations,
recreational/social activities, and external liaison. Presentations were the most
widely used and generated the greatest number of contacts. Children/youth were
the target group receiving the most attention, although units varied in how they
focused on target groups, with resources generally directed at those vulnerable
groups making up the largest proportions of their populations.
• Training programs on vulnerable groups provided officers and personnel in
related agencies/organizations with opportunities to enhance their ability to
deliver crime prevention strategies. The six units logged 260 training sessions
pertaining to crime and vulnerable groups. These sessions had a total attendance
of 4,313 people.
• A survey contact list was generated of those persons belonging to a "vulnerable
group" who had reported victimization to the police. Of a potential sample of
246, 93 victims were contacted by telephone and 82 contacts resulted in
completed interviews. The majority of these victims reported that the police
officers had spent enough time with them and that they had received the help
they expected. Communication with the police was not a problem, and they
tended to be satisfied with the help given and referral advice given to them by
the police.
• While valuable results were obtained, the survey required considerable time and
well-trained personnel. Further, when the respondents are people who have been
victims of crime, there are potential dangers in some contacts reacting negatively
to a follow-up call.
• After a Divisional Community Relations Officer had conducted a presentation
on streetproofing women against sexual assault, a questionnaire was distributed
to the students and teachers who attended. The audience felt that the officer
was very clear when discussing the topic and 93.1 % said that they received the
information they expected to receive.
The pilot project successfully collected quantitative and qualitative data to measure
the results of Force strategies addressing the 1991 Force goal concerned with the
safety and security of vulnerable groups. Plans have been made to continue the
measurement of this Force objective in 1992, as well as to expand the measurement
system to four additional Force objectives. Data collection instruments have been
designed and distributed to units implementing strategies under these objectives.
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APPENDIX A
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SOURCES OF REFERENCE
REPORTS:
1991 Environmental Scan and 1992 Force Goals and Objectives. (M.T.P.F.)
53 Division Pilot Project: 'Community Partners' Evaluation. Quarterly Reports.
(M.T.P.F.)
Aging: Shifting the Emphasis. Working Paper. Health Services and Promotion
Branch, Health and Welfare Canada, October 1986.
Annual Reports. (M.T.P.F.)
Beyond 2000 ... The Strategic Plan of the Metropolitan Toronto Police. September
1991. (M.T.P.F.)
Budget Reports. (M.T.P.F.)
Building Police-Community Partnerships with Culturally, Racially and Linguistically
Diverse Populations within Metropolitan Toronto. KE. Asbury, Research
Management Consultants, Inc., January 1992.
CMHC Local Housing Market Reports, Toronto Branch.
Comparative Traffic Accident Statistics Reports. (M.T.P.F.)
From Initial Deterrence to Long-term Escalation: Short-Custody Arrest for Poverty
Ghetto Domestic Violence. L.W. Sherman, J.D. Schmidt, D.P. Rogan, P.R.
Gartin, E.G. Cohn, D.J. Collins, A.R. Bacich. Criminology, 29(4), November
1991.
Introduction to Police Force Planning and the Strategy Formulation Process.
(M.T.P.F.)
Making Neighbourhoods Safe. J.Q. Wilson, G.L. Kelling, Atlantic Monthly, February
1989. (Broken Windows study).
Metro In Transition: An Overview of Demographic, Economic and Public Policy
Trends and their Implications for the Social Development Strategy of
Metropolitan Toronto. Canadian Urban Institute, 1991.
Metro Toronto Community Policing Survey. C. Murphy, J. de Verteuil, Ministry
of the Solicitor General (Canada), 1986.
Metropolitan Toronto Key Facts, 1990. Metropolitan Toronto Planning Department,
Research Division.
Metropolitan Toronto Strategic Plan. Municipality of Metropolitan Toronto, 1991.
Metropoll: December 1988, 1990, 1991; August/September 1989. Environics.
Minneapolis Domestic Violence Experiment. L.W. Sherman, R.A Berk. Police
Foundation Reports, 1984.
Modern Needs of the 90's Office. T. Kelly, Office Systems and Technology, March
1992.
Population Projections for Regional Municipalities, Counties and Districts of Ontario
to 2011. Ministry of Treasury and Economics, July 1989.
Quarterly Report on Labour Market Developments in Ontario, Fourth Quarter,
1991. Ontario Ministry of Labour, February 1992.
Race Relations Policy. Metro~,olitan Toronto Police Services Board, November
1990.
Report of the Measurement Standards Subcommittee Working Group, March 1992.
(M.T.P.F.)
Report on Permanent and Indefinite Layoffs in Ontario. Ontario Ministry of
Labour, February 1992.
Retaining Human Capital: The Human Resource Challenge of the Next Decade.
Report of the Officer Retention Committee, 1991. (M.T.P.F.)
Women and Labour Market Policy. M. Gunderson, L. Muszynski, J. Keck, Canadian
Advisory Council on the Status of Women, June 1990.
Working Towards Equity. Employment Equity Discussion Paper. Ontario Ministry
of Citizenship, November 1991.
NEWSPAPERS:
Globe & Mail
Toronto Star
Toronto Sun
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·· LEGISLATION:
Bill.187 (Court Security)
Bill C-17 (An Act to Amend the Criminal Code and the Customs Tariff in
Consequence thereof)
Bill C-61 (Proceeds of Crime Legislation)
Canadian Charter of Rights and Freedoms
Employment Standards Act
Police Services Act
JOURNALS/MAGAZINES:
Allpoints Newsletter - Intercon Security
Business Quarterly
CJ the Americas, Office of International Criminal Justice
Canadian Business Review
Canadian Economic Observer
Carswell Police News
Harvard Business Review
Law and Order
Law Enforcement News
Law Enforcement Technology
Lawyers Weekly
Office Systems and Technology
Planning Review
Report on Business Magazine
The Economist
STATISTICS:
Canadian Centre for Justice Statistics
Ethnocultural Data Office, Ministry of Citizenship
Metropolitan Toronto Community Services Department, Social Services Division
Metropolitan Toronto Planning Department
M.T.P.F. Community Programs
M.T.P.F. Employment Equity Unit
M.T.P.F. Financial Management Unit
M.T.P.F. Records Bureau, Information Centre
Statistics Canada
PERSONAL CONTACTS:
Daily Bread Food Bank
Employment and Immigration Canada, Toronto Regional Economist Office
Metropolitan Toronto Convention & Visitors Association
Metropolitan Toronto Corporate Planning Division, Chief Administrator's Office
Metropolitan Toronto Planning Department
M.T.P.F. Employment Equity Unit
M.T.P.F. Community Programs
M.T.P.f. Financial Management Unit
Metropolitan Toronto Police Services Board External Consultation, April 3rd, 1992
Metropolitan Toronto Police Services Board Public Consultation, January 16th, 1992
Ontario Ministry of Labour, Employment Adjustments Branch
Ontario Provincial Police, Private Investigator and Security Guard Licensing Branch
Province of Ontario Greater Toronto Area Office {GTAO)
Toronto Transit Commission, Operational Planning
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APPENDIX B
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Metropolitan Toronto Police Services Board
Public Forum Meeting (January 16th, 1992)
Following is a list of the people who made presentations to the Police Services
Board at the January 1992 public forum. For those who spoke as representatives of
an agency or organization, the agency or organization is listed.
Ms. Ila Bossons, Metropolitan Toronto Council
Mr. Keith Chen
Dr. Philip Stenning, Centre of Criminology, University of Toronto
Ms. Deany Peters, Regent Park Community Health Centre
Ms. Claudia Mann, Toronto Drop-In Coalition
Dr. Yaqoob Khan, Muslim Community and Information Centre
Mr. Bill Wen, Jr.
Ms. Lois Heitner, Parkdale Community Health Centre
Mr. Keith Hambly, Toronto Mayor's Committee on Community and Race
Relations, Gay and Lesbian Issues Subcommittee
Mr. Abdul Hai Patel
Ms. Connie Boyden, Concerned Citizens for Order, Peace, and Security
Ms. Myra Lefkowitz, The 519 Centre
Mr. Miah Bailey
Professor Anderson
Ms. Avvy Go, Chinese Canadian National Council
Mr. Mike Papadimos
Ms. Cathleen Kneen, Assaulted Women's Helpline
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Participants - External Consultation (April 3rd, 1992)
Mr. Gary Austin
Mr. Clare Lewis
Mr. Grant Lowery
Mr. Dan McIntyre
Mr. Jim Mackay
Mr. Dale Richmond
Mr. Rix Rogers
Dr. Philip Stenning
Ms. Beverley Wybrow
Manager, Government Programs Liaison
I.B.M. Canada
Police Complaints Commissioner
Vice President & General Manager
Community and Youth Services
Y.M.C.A. of Metropolitan Toronto
Assistant Deputy Minister
Corporate Policy and Issues, Management Division
Ontario Ministry of the Solicitor General
Senior Partner
Berkeley Consulting Group
Chief Administrative Officer's Department
Municipality of Metropolitan Toronto
Chief Executive Officer
Institute for the Preventlon of Child Abuse
Centre of Criminology
University of Toronto
Executive Director
Canadian Women's Foundation
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Members of the Environmental Scanning Committee
September 1991 - May 1992
Staff Superintendent Grant Waddell, Executive Officer, Chair of the Committee
Chair Susan Eng, Police Services Board
Ms. Kris Kijewski, Executive Assistant to the Chief of Police
Staff Superintendent David Boothby, Traffic Operations
Staff Superintendent Jean Boyd, Support Operations
Staff Superintendent James Clark, 1 District Headquarters
A/Staff Superintendent Ron Dick, Field Operations
Staff Superintendent Robert Fleming, Administrative Operations
Staff Superintendent Charles Maywood, Detective Operations
Superintendent James Shaw, Personnel Services
Mr. Frank Chen, Director, Finance and Administration
Dr. Leah Lambert, Director, Corporate Planning
Ms. Adrienne McLennan, Director, Public Affairs
Staff Sergeant Lance Naismith, Corporate Planning
Mr. Tim Nigh, Corporate Planning
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Members of Corporate Planning Involved in
the 1992 Environmental Scan
Dr. Leah Lambert, Director
Staff Sergeant Lance Naismith
Sergeant Brent Smerdon
Sergeant Peter Lennox
Mr. Hing Bo Fung, Analyst
Ms. Carrol Whynot, Analyst
Mr. Tim Nigh, Senior Planner
Ms. Karen Burke·
Ms. Carolyn Smith
• Placement Student from Sheridan College.
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Print Shop
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Linked assets
Los Angeles Webster Commission records, 1931-1992
Conceptually similar
PDF
Toronto executive summary, 1992-05-28
PDF
Toronto police services, 1986-1992
PDF
Toronto police force, 1962-1992
PDF
Inglewood Police department documents, 1992-05/1992-08
PDF
Toronto disorderly crowds, 1986-1992
PDF
Toronto metropolitan police force, 1988-02
PDF
Toronto questionnaires, 1992-07-24
PDF
Foothill area after action report, 1992-04-29/1992-05-11
PDF
Toronto public complaints, 1986-1991
PDF
Toronto police organizational chart, 1992-07-20
PDF
Toronto, Los Angeles police department, 1991-01-17
PDF
LAPD, Anti-terrorist division mobilization roster and procedural manual, 1992-04-19/1992-05-16
PDF
Toronto police employment report, 1991-02-27
PDF
Toronto memorandum of settlement, 1986-1992
PDF
Toronto crowd control, 1991-06
PDF
LAPD, Adminstrative vice division mobilization roster and standing emergency plans, 1992-04-19/1992-05-16
PDF
LAPD, Organized crime intelligence division's mobilization roster and unusual occurence plan, 1992-04-19/1992-05-16
PDF
Toronto police annual report, 1990
PDF
LAPD, Narcotics group, mobilization roster and unusual occurrence control plan, 1992-04-19/1992-05-16
PDF
Virginia Beach department of management, 1992-07-01
Description
Environmental scan and force goals and objective, 1992 May 28
Asset Metadata
Core Title
Toronto environmental scan, 1992-05-28
Tag
OAI-PMH Harvest
Format
180 p.
(format),
application/pdf
(imt),
official reports
(aat)
Permanent Link (DOI)
https://doi.org/10.25549/webster-c100-30669
Unique identifier
UC11447337
Identifier
box 16 (box),web-box16-02-04.pdf (filename),folder 2 (folder),webster-c100-30669 (legacy record id)
Legacy Identifier
web-box16-02/web-box16-02-04.pdf
Dmrecord
30669
Format
180 p. (format),application/pdf (imt),official reports (aat)
Tags
Folder test
Inherited Values
Title
Los Angeles Webster Commission records, 1931-1992
Description
Chaired by former federal judge and FBI and CIA Director William H. Webster, the Los Angeles Webster Commission assessed law enforcement's performance in connection with the April, 1992 Los Angeles civil unrest. The collection consists of materials collected and studied by the Commission over the course of its investigation. Materials pertain to both the Los Angeles incident specifically, and civil disturbance, civil unrest control, and policing tactics in general.
Included in the collection are the following: interviews with LAPD officers, law enforcement personnel, government officials, community leaders, and activists; articles, broadcasts, and press releases covering the civil unrest; various tactical and contingency plans created for disasters and emergencies; reports, studies, and manuals about civil unrest control and prevention; literature about community-based policing strategies; emergency plans and procedures developed by other cities; and after-action reports issued once the civil unrest had subsided. Also featured are items related to the internal operations of the LAPD both before and during the civil unrest, including activity reports, meeting agendas and minutes, arrest data, annual reports, curricula and educational materials, and personnel rosters.
See also the finding aid (https://archives.usc.edu/repositories/3/resources/2266).
See also The Los Angeles Riots: The Independent and Webster Commissions Collections (https://scalar.usc.edu/works/the-los-angeles-riots-christopher-and-webster-commissions-collections/index).
Related collections in the USC Digital Library:
? Independent Commission on the Los Angeles Police Department, 1991 (see also the finding aid: https://archives.usc.edu/repositories/3/resources/2251)
? Richard M. Mosk Christopher Commission records, 1988-2011 (see also the finding aid: https://archives.usc.edu/repositories/3/resources/393)
? Kendall O. Price Los Angeles riots records, 1965-1967 (see also the finding aid: https://archives.usc.edu/repositories/3/resources/979)
? Watts riots records, 1965 (see also the finding aid: https://archives.usc.edu/repositories/3/resources/83)
Thanks to generous support from the National Endowment for the Humanities, the USC Libraries are digitizing this collection for online public access.
Coverage Temporal
1931/1992