Horizontal Evaluation of the Canadian Police Arrangement - International Police Peacekeeping and Peace Operations Program (2015-2020)

• Acronyms/Definitions
• Tables and diagrams
• Executive summary
  • Introduction
  • Program profile
  • What we examined
  • What we found
• 1.0 Introduction
  • 1.1 Purpose of the evaluation
  • 1.2 Evaluation scope and context
• 2.0 Evaluation methodology
  • 2.1 Evaluation approach
  • 2.2 Data sources
  • 2.3 Limitations
• 3.0 Program description
  • 3.1 Context
  • 3.2 Program profile
  • 3.3 Resources
• 4.0 Findings
  • 4.1 Achievement of international peace and security objectives
  • 4.2 Maximizing domestic security benefits
  • 4.3 Integration of a GBA+ lens
  • 4.4 Responsive and strategic program delivery
  • 4.5 Horizontal governance and coordination
  • 4.6 Coherence with international partners
• 5.0 Conclusions and recommendations
• 6.0 Management response and action plan
• Appendices
  • A. Interviewee groups
  • B. Overview of mission case studies
  • C. CPA-IPP program logic model
  • D. CPA-IPP program objectives and local mission impacts framework
  • E. Percentage response table
• End notes

Acronyms/Definitions

BINUH

Bureau intégré des Nations Unies en Haïti

CAF

Canadian Armed Forces

CAR

Central African Republic

CBSA

Canada Border Services Agency

CFIAP

Canada's Feminist International Assistance Policy

CNAP

Canada's National Action Plan for the Implementation of United Nations Security Council Resolutions on Women, Peace and Security 2017-2022

CPA

Canadian Police Arrangement

CPMU

Canadian Police Mission Ukraine

CRSV

conflict-related sexual violence

DCAF

Geneva Centre for Security Sector Governance

DDR

Disarmament, Demobilization and Reintegration

DND

Department of National Defence

EAC

Evaluation Advisory Committee

EBP

Employee Benefit Payments

EMP-ABB

École de Maintien de la Paix - Alioune Blondin Beye

EU

European Union

EUAM

European Union Advisory Mission

EUCAP

European Union Capacity Building

EUPOL-COPPS

European Union Police-Coordinating Office for Palestinian Police Support

EWG

Evaluation Working Group

FCAS

fragile and conflict-affected states

CFIAP

Canada's Feminist International Assistance Policy

FTE

full-time equivalent

GAC

Global Affairs Canada

GBA+

Gender-based analysis plus

GoC

Government of Canada

GPSF

Global Peace and Security Fund

IAE

International Assistance Envelope

ICC

International Criminal Court

IPO

International Peace Operations (RCMP)

IPP

International Police Peacekeeping and Peace Operations Program

IPSOT

International Police Support Operations Training

MINUJUSTH

Mission des Nations Unies pour l'appui à la Justice en Haïti

MINUSMA

Mission Multidimensionnelle Intégrée des Nations Unies pour la Stabilisation au Mali

MINUSTAH

Mission des Nations Unies pour la Stabilisation en Haïti

MOU

Memorandum of Understanding

MRAP

Management Response and Action Plan

NGO

non-governmental organization

NPES

National Program Evaluation Services (RCMP)

NPU

National Police Ukraine

POTI

Peace Operations Training Institute

PMEC

Performance Measurement and Evaluation Committee

PNH

Police Nationale d'Haiti

PRMNY

Permanent Mission to the United Nations in New York

PS

Public Safety Canada

PSOP

Peace and Stabilization Operations Program

RCMP

Royal Canadian Mounted Police

RPG

rocket-propelled grenade

SGBV

sexual and gender-based violence

SEA

sexual exploitation and abuse

SOP

standard operating procedures

SPT

specialized police team

SSR

security sector reform

TBS

Treasury Board Secretariat

ULCS

Unité de Lutte contre les Crimes Sexuels (Haïti)

UN

United Nations

Tables and diagrams

Tables

• Table 1: Evaluation questions
• Table 2: Summary of data sources
• Table 3: Limitations and mitigation measures
• Table 4: CPA objectives (CPA-IPP MOU 2016-21)
• Table 5: CPA governance structure
• Table 6: CPA partner roles
• Table 7: IPP program expenditures 2015-16 to 2019-20
• Table 8: Variance between CPA-IPP program approved spending and expenditures 2015-16 to 2019-20
• Table 9: Total IPP program funding by partner departments 2015-16 to 2019-20
• Table 10: Number of -IPP mission, deployments and RCMP CPA-IPP staff 2015-16 to 2019-20
• Table 11: FTEs by type of IPP program deployments 2015-16 to 2019-20
• Table 12: Multilateral missions 2015-16 to 2019-20
• Table 13: Gender-focused pre-deployment training
• Table 14: Best practices in mission

Diagrams

• Diagram 1: Expected outcomes for CPA 2015-16 to 2019-20
• Diagram 2: Types of deployments for IPP program 2015-16 to 2019-20
• Diagram 3: Percentage new deployments by gender by fiscal year 2015-16 to 2019-20

Executive summary

Introduction

This report presents the results of the Horizontal Evaluation of the Canadian Police Arrangement (CPA) and the International Police Peacekeeping and Peace Operations Program (IPP). It has been conducted by the Royal Canadian Mounted Police's (RCMP) National Program Evaluation Services (NPES) in collaboration with Global Affairs Canada (GAC) and Public Safety Canada (PS). "CPA" refers to the broader program partnership between the RCMP, GAC and PS, and "IPP" refers the operational program administered by the RCMP's International Peace Operations (IPO) team.

Program profile

The goal of the CPA is to support Government of Canada (GoC) commitments to build a more secure world through Canadian police participation in international peacekeeping and peace support operations. Requests for support come from multilateral organizations such as the United Nations (UN) or from the governments of other countries (including Haiti, Mali, Ukraine).

Deployed police officers have many roles in mission, including training, mentoring and monitoring, supporting free and fair elections, investigating human rights violations, and responding to humanitarian crises. Specialized teams focus on community policing, management development, sex and gender-based violence (SGBV), and organized crime. The large majority of deployments are actively serving police officers. Civilian law enforcement experts may be deployed as well.

The three CPA partner departments (RCMP, GAC, PS) collaborate to deliver the program. They have integrated but unique roles in program delivery – the RCMP is the lead on operations, GAC is the lead on Canadian foreign policy, and PS leads on domestic security.

What we examined

The objective of the evaluation was to provide a neutral, timely and evidence-based assessment of the performance (effectiveness and efficiency) of the CPA and the IPP program from April 1, 2015 to March 31, 2020. Activities of all partner departments were included.

What we found

Effectiveness - Achievement of expected outcomes

Through participation in multilateral and bilateral peace operations, Canadian police officers are respected for their personal and professional competencies. They promoted sustainable rule of law primarily through building the capacity (e.g., training, mentoring, patrols) of local police services. They leveraged their expertise in community policing and gender diversity to help shift local police attitudes and approaches to better reflect human rights commitments. In some countries where the IPP program has been active, the local police have been slightly more trusted and accepted by the communities they serve. There are opportunities to continue to enhance mission impacts through more long term strategic planning, results measurement, targeted deployments (e.g., leadership roles and specialized teams), and broader criminal justice system engagement.

Through participation in missions, police officers gained professional competencies that are transferrable when they return to their home agency in Canada. There are opportunities to better leverage these new competencies for the benefit of police officers, police organizations, and local communities.

Effectiveness - Integration of a GBA+ lens

Over the last five years through CPA and the IPP program, Canada has demonstrated leadership in prioritizing and valuing the role of women in international police reform. As part of a broader federal government effort, the IPP program has recently contributed to Canada meeting international and domestic commitments related to women, peace and security (WPS). The IPP program proactively recruited and deployed women to peace operations (including in key leadership roles), integrated gender considerations into the RCMP's International Peace Operations work, and advanced a gender focus within the majority of missions. There are opportunities to continue to enhance approaches to recruit women. Since the last evaluation, CPA partners have put additional measures in place and continue to monitor and refine policies and practices to prevent and address any future incidents of sexual exploitation and abuse (SEA).

Efficiency - Program delivery

More bilateral and hazardous missions have led to a need to adapt the current program delivery approach and the staff complement. While the RCMP's IPP program support generally addressed program, mission, and police officer needs, there are opportunities to enhance planning, recruitment, training, procurement, mission deployments (rotations), and reintegration. The 150 target for officer deployments is not reflective of current IPP program engagements, mission environments, or available resources. There is an opportunity to build on the value of increasing the number of CPA civilian engagements.

CPA partner relationships are well established. Opportunities for enhanced domestic coherence include taking a more consistent and organized approach to information sharing and coordination on security sector reform (SSR) within, and among, federal departments. The administration of external communications requires more coordinated and proactive planning. Significant gaps in performance monitoring and reporting persist requiring enhanced data collection, analysis, reporting and leveraging at the program and mission levels.

Efficiency - Coherence with international partners

Canadian police officers actively sought coherence with police reform efforts of other international stakeholders, in particular in missions where there has been a risk of duplication of capacity building efforts. Ongoing proactive collaboration is needed to enhance program efficiency and effectiveness. Working alongside police professionals from other nations has offered best practices about approaches to police peacekeeping in international contexts.

1.0 Introduction

1.1 Purpose of the evaluation

This report presents the results of the Horizontal Evaluation of the Canadian Police Arrangement (CPA) and the International Police Peacekeeping and Peace Operations (IPP) Program, which was led by the Royal Canadian Mounted Police (RCMP) National Program Evaluation Service (NPES) in partnership with Global Affairs Canada (GAC) and Public Safety Canada (PS). "CPA" refers to the broader program partnership between the RCMP, GAC and PS, and "IPP" refers the operational program administered by the RCMP's International Peace Operations (IPO) team.

The program was previously evaluated in 2012 and in 2017. The findings of this evaluation will help to inform the policy renewal process as well as the policy authority for the CPA program, which is scheduled to expire on March 31, 2021.

1.2 Evaluation scope and context

The objectives of the evaluation were to provide a neutral, timely and evidence-based assessment of the performance of the program (effectiveness and efficiency), and provide strategic information to meet senior management needs.

The scope of the evaluation included CPA and IPP program activities undertaken by all three horizontal partner departments from April 1, 2015 to March 31, 2020. Over this five-year period, $228.2 million was approved and $147.5 million was expended. Both the RCMP and GAC received funding for CPA and IPP program activities through the International Assistance Envelope (IAE). PS has no dedicated funding from the IAE for CPA activities.

2.0 Evaluation methodology

2.1 Evaluation approach

The evaluation used a mixed methods approach (qualitative and quantitative). It assessed, interpreted, and summarized existing and new information. The information collected was triangulated to allow the formulation of clear, reliable and relevant findings as well as recommendations. The evaluation considered gender-based analysis plus (GBA+) in its questions, methodology and analysis.

Given the relatively large scope and tight timelines, this horizontal evaluation was calibrated with a focus on ensuring efficient use of time and resources and addressing the most important information needs while meeting accountability requirements.

Since program relevance had been recently well documented in the 2017 evaluation, the evaluation did not examine relevance, but rather was guided by six performance-focused questions (Table 1):

An Evaluation Advisory Committee (EAC), chaired by the Director of NPES, provided advice and guidance to the interdepartmental Evaluation Working Group (EWG) and the NPES project team. The EAC commented on the evaluation framework, preliminary findings, and reports. It provided advice to ensure a clear reflection of the programming, targeting of specific information needs, and the usefulness of recommendations for decision-making and program improvement. Committee members included representatives from program and evaluation teams within partner departments (RCMP, GAC, PS).

2.2 Data sources

The choice of data sources was determined based on their relevance and reliability, data availability and costs. The following sources (Table 2) were used to inform the findings and recommendations:

2.3 Limitations

These practices helped to mitigate the common limitations that occur as part of most program evaluations. The evaluation team considered the limitations of the study and implemented a number of mitigation measures (as outlined in Table 3).

3.0 Program description

3.1 Context

Canada has a long history of international police peacekeeping. It has deployed almost 4,000 police officers to peace missions around the world in over 30 countries since 1989. The Government of Canada (GoC) approved the CPA in 2006 and it was renewed in 2011 and 2016. Since 1995, approximately 50 provincial and municipal police services have participated in the program to complement RCMP deployments.

Requests for Canadian police officers come from organizations such as the United Nations (UN), European Union (EU), or from the governments of other countries. Canadian police personnel deployed abroad assist in building and strengthening law-enforcement capacity in FCAS with deployments to locations around the world, including Ukraine, Mali, Haiti, Iraq, Palestine, and the West Bank. The decision to deploy Canadian police personnel is made via the CPA, a partnership between the RCMP, GAC, and PS.

While the majority of deployments consist of active serving police officers, civilian law enforcement experts may be deployed as well. Personnel have many roles depending on the mission, including training, mentoring and monitoring, investigating human rights violations, and responding to humanitarian crises. They can also work on specialized teams that focus on community policing, management development, sex and gender-based violence (SGBV), and serious and/or organized crime.

3.2 Program profile

The goal of the CPA is to support the Government of Canada's commitments to build a more secure world through Canadian police participation in international peacekeeping and peace support operations, which are critical to longer-term SSR and conflict-prevention efforts. Core immediate and intermediate expected program outcomes are outlined in Diagram 1. See full logic model in Appendix C.

Diagram 1: Expected outcomes for CPA 2015-16 to 2019-20

Diagram 1: Expected outcomes for CPA 2015-16 to 2019-20 - Text version

Canadian Police Arrangement

Immediate outcomes

• Enhanced operational capacity of deployed officers to carry out duties
• Enhanced capacity of law enforcement institutions, investigative bodies, systems, personnel abroad in states where CPA engages and in police contributing countries
• Enhanced global policies related to policing in international peace support operations

Intermediate outcomes

• Enhanced law enforcement effectiveness in Canada
• Improved law enforcement services to affected populations where the CPA engages
• Improved collective action related to police peacekeeping by the international community

The evaluation focused the analysis of program impacts on the nine objectives stated in the CPA Memorandum of Understanding (MOU) 2016-21 (see Table 4) ^{Endnote 1} .

These nine MOU objectives could be readily mapped to the program's immediate and intermediate outcomes in the logic model.

The implementation of the CPA is supported by an interdepartmental governance structure of three committees, all chaired by GAC with representatives from the RCMP, GAC, and PS (see Table 5). As a horizontally managed initiative, all departments are equal participants in decision-making regarding CPA activities.

The respective roles of the partner departments reflect their mandates and expertise (Table 6).

3.3 Resources

The CPA is funded through the Peace and Security Pool of the IAE. RCMP funding has been allocated to the RCMP reference levels. Before 2016, incremental funding for GAC was made available through the Global Peace and Security Fund (GPSF) on a cost-recovery basis. The Peace and Stabilization Operations Program (PSOP) replaced the GPSF in 2016. PS has no dedicated funding from the IAE or PSOP for CPA activities.

Over the five-year evaluation period, a total of $228.2 million was approved and $147.5 million was expended. For all partner departments, annual actual amounts spent ranged between $23.53 million (2017-18) and $33.07 million (2019-20). The annual variance between approved and actual spending ranged from 50% (2017-18) and 80% (2019-20). (See Tables 7 and 8 for details.)

Total funding by partner departments is listed in Table 9. Over the five years, RCMP spent $118.6 million (69%) and GAC spent $28.9 million (51%).

As detailed in Table 10, the number of deployments varied from a low of 58 (2018-19) to a high of 114 in 2016-17. The number of RCMP national headquarters (IPP) staff varied between 43 and 50 full-time equivalents (FTEs). The ratio of deployments to RCMP International Peace Operations staff ranged between 1.3:1 and 2.4:1.

Types of deployments fall into two groupings: operational and ancillary. The number of deployments vary considerably across these groupings – the large majority are operational.

• Operational deployments: longer term and include international peace support operations, international courts and tribunals, as well as bilateral deployments.
• Ancillary deployments: short-term assignments and include short-term training initiatives, rapid response activities, and deployments for the development of international policy, standards and norms.

As detailed in Table 11 and Diagram 2, the number of operational bilateral deployments increased from none (0) in 2015-16 to 38 in 2019-20. Conversely, the number of operational international peace support operation (multilateral) deployments decreased from 95 in 2015-16 to a low of 35 in 2018-19.

Diagram 2: Types of deployments for IPP program 2015-16 to 2019-20

Diagram 2 - Text version

A stacked bar graph illustrating the types of deployments for the IPP program over a five-year period from fiscal years 2015-16 to 2019-20.

In 2015-16, 94.58 deployments were identified as Operational: International peace support operations, 1 deployment was identified as Operational: International courts and tribunals, 0 were identified as Operational: Bilateral deployments, and 0.58 were identified as Ancillary: Short term training initiatives.

In 2016-17, 112 deployments were identified as Operational: International peace support operations, 1 deployment was identified as Operational: International courts and tribunals, 1 was identified as Operational: Bilateral deployments, and 0 were identified as Ancillary: Short term training initiatives.

In 2017-18, 61.1 deployments were identified as Operational: International peace support operations, 1 deployment was identified as Operational: International courts and tribunals, 0.17 were identified as Operational: Bilateral deployments, and 0 were identified as Ancillary: Short term training initiatives.

In 2018-19, 35 deployments were identified as Operational: International peace support operations, 1 deployment was identified as Operational: International courts and tribunals, 22 were identified as Operational: Bilateral deployments, and 0 were identified as Ancillary: Short term training initiatives.

In 2019-20, 51 deployments were identified as Operational: International peace support operations, 1 deployment was identified as Operational: International courts and tribunals, 38 were identified as Operational: Bilateral deployments, and 0.2 were identified as Ancillary: Short term training initiatives.

4.0 Findings

4.1 Achievement of international peace and security objectives

The CPA deployed police officers to numerous multilateral missions led by the UN, EU and other international partners. Roles in these missions varied and included developing and delivering training and presentations, providing patrol support and mentoring, and offering strategic advice. Table 12 highlights elements of recent multilateral missions.

Examples of contributions to multilateral peace operations illustrated through the case studies are as follows:

Haiti

Over the last 16 years, Canadian police officers have contributed to multiple UN missions by providing leadership and support to the Police Nationale d'Haiti (PNH). Recent contributions include the 2018 appointment of a Canadian police officer as the UN Police Commissioner for the Mission des Nations Unies pour l'appui à la Justice en Haïti (MINUJUSTH), and the establishment of a PNH specialized office for SGBV, i.e. Unité de Lutte contre les Crimes Sexuels (ULCS). Since its inception, the SGBV Unit has conducted training courses and seminars; provided mentoring and coordinated workshops; hosted international SGBV-related conferences; and provided safe equipment and infrastructure to the PNH.

Mali

As part of European Union Capacity Building (EUCAP)-Sahel, Canadian police officers provided training, strategic advice and capacity building to local security forces (Malian and other G5 Sahel states).

Ukraine

Through their role in European Union Advisory Mission (EUAM)-Ukraine, Canadian police officers supported local civilian SSR through providing strategic advice and practical support for specific reform measures with the NPU.

Deployed police officers and international partners indicated that Canadians are valued by leaders in multinational missions as key advisors, and their value has been evidenced by the ability to win key roles in some missions. Canadians are respected for their professional and personal competencies including:

• demonstrate honesty and openness
• exhibit integrity and a strong work ethic
• build relationships
• demonstrate skills and training
• seek to engage with host countries to help define what they need and what works best for them
• have strong commitment to human rights with respect for diversity and inclusion
• have specialized knowledge of community policing and domestic violence
• have multilingual capacity

Some IPP program police officers indicated that they, and other deployed colleagues, have advocated for Canadian values and operational standards in host countries. They have campaigned for steps to ensure more secure police patrols including safer and operational UN vehicles, armored escorts, and consistency in the delivery of mandatory Secure and Safe Approaches in Field Environments (SSAFE) training. Deployed IPP program police officers have also suggested Canadians have been underutilized in some multilateral missions and, where possible, opportunities for additional leadership roles could be sought (see Finding 15).

It's good to have Canadians leading. Our [colleague] has proposed a new set of patrol schedules and how to patrol. It's been presented to the regional commander, and they are working to implement. That's our kind of influence - making sure patrols are more secure for everyone.

The literature review indicated that transitional justice consists of judicial and non-judicial measures implemented in order to redress legacies of human rights abuses. Such measures include criminal prosecutions, truth commissions, reparations programs, and various kinds of institutional reforms ^{Endnote 5} .

One CPA deployment was directly linked to transitional justice – a one-year IPP program assignment in 2018-19 to the International Criminal Court (ICC) in The Hague, The Netherlands.

• Through a non-governmental organization (NGO), Justice Rapid Response, a Canadian police officer was selected to take on the role of SGBV investigator for human rights abuses that have taken place in the Central African Republic (CAR).
• The police officer worked with international police partners to conduct investigations, in preparation for court proceedings, of alleged war crimes and crimes against humanity.

Program data indicated that this deployment was a one-time assignment. Interviewees familiar with this assignment suggested that, while the work undertaken was very well received, there was a missed opportunity for a mission succession plan. The CPA could prioritize back filling opportunities to take on – or continue with – such valued international roles.

While the large majority of CPA deployments do not directly address issues specific to transitional justice, some interviewees suggested that in some FCAS, such as Mali, it is hard to look at CPA impacts without considering the link to transitional justice in the rest of Western Africa.

The literature review ^{Endnote 6} , document review and interview data indicated that impunity and corruption are common place in many FCAS. The rule of law is hampered by historical and challenging political dynamics in these countries, as well as the occasional lack of organizational will to amend existing policies ^{Endnote 7 Endnote 8} . Political support from the top – as well as time – are needed for transformational change and sustainability in these FCAS ^{Endnote 9 Endnote 10} .

As highlighted in the case study examples below, reflections from interviewees indicated that fundamentally, despite these challenges, the CPA is helping to re-establish rule of law:

• Canadians bring experience beyond policing, including building relationships with governments, to help set the stage for policy changes.
• CPA efforts have been moderately successful in aiding the establishment of basic law and order through building capacity in local law enforcement agencies, one aspect of rule of law.

Haiti

As mentioned, in 2018 a Canadian police officer was appointed as the UN Police Commissioner for MINUJUSTH in Haiti. In this advisory role, the Commissioner works with local government to reinforce effective policies and planning for police reform in Haiti. Although not originally part of the CPA-IPP program, this was an innovative approach that was used in Haiti, worked well, and could be considered moving forward.

Ukraine

Through working with the NPU to train and mentor Patrol Police officers, and collaborating with other international donors in particular through the Patrol Police Academy, the CPMU has supported building the capacity of local law enforcement agencies.

Document review ^{Endnote 11} and interview data identified challenges across the criminal justice system (police, prisons, judiciary, courts) in countries where the CPA deploys police officers:

• In terms of command and control, there is a need for more capacity building at leadership levels in local police forces, and across the criminal justice system.
• Local police recruitment, promotion and retention policies need to reflect a more transparent and merit-based system.
• Many local police forces lack adequate pay and equipment for officers. Some CIVPOL survey respondents indicated they observed progress in staffing and equipment within local police forces. On the other hand, some interviewees indicated lack adequate pay and equipment was a significant challenge for morale and retention of local officers.
• There is a need for more technical expertise, perhaps through the CPA deployment of civilians, to support capacity within, and police coordination with, the broader criminal justice system.

Each mission has distinct challenges, and CPA and IPP program strategies must adapt to local needs. Interview data indicated that, by modelling a high level of commitment to democratic policing standards, Canadian police officers have supported the re-establishment of local law enforcement institutions. Examples are provided in the case studies described below.

Canada is an active actor in one of the most visible reforms in Ukraine, …this is a message to Ukrainians that they can be reformed. When police officers behave better, respond to crimes better, and establish dialogue of trust they are seen to be protecting the people. This is a strong message to the entire country for which Canada is largely responsible.

Haiti

There have been challenges for the PNH to retain and build on changes introduced through UN missions over the last 16 years. Sustainability will require reforms to the criminal justice system. Canada has supported the re-establishment of the criminal justice institutions in Haiti through advising on action plans, working to address poor conditions in prisons, and supporting vulnerable populations (e.g., child abuse, domestic violence) as they engaged in the system.

Mali

The mission is to build trust with the local Malian government and police, as well as work locally with law enforcement professionals to build capacity and model policing practices in line with international human rights obligations.

Ukraine

Police reforms are needed across the criminal justice system. Officers within EUAM-Ukraine have worked on reform by developing action plans, draft legislation, a comprehensive national security strategy, and various gender-related initiatives.

Without capacity development of prisons, judiciary and courts, the criminal justice chain is incomplete, which undermines efforts to both promote the rule of law and build trust between locals and the state.

Some interviewees indicated that the IPP program's biggest impact has been through teaching and mentoring local police officers, both in the classroom and in the field.

• Courses on a range of topics have been developed and delivered, including (but not limited to) community policing, domestic violence investigation, criminal investigation, critical incident de-escalation, facilitating adult learning, and leadership.
• In some missions, deployed police officers indicated that their role has also been to go on local patrols, allowing for direct mentorship through real time consultation, advice and guidance.

Many CIVPOL survey and NPU post-training survey respondents indicated they agreed that, to some extent, local law enforcement have applied what they have learned or gained from assistance to enhance their policing knowledge and practices.

We have been most effective changing things at the ground level and building the next generation of leaders and managers, that is where we have been the most impactful.

Canadian expertise in community policing and gender diversity has been of particular value:

• Some interviewees and many Ukraine civil society questionnaire respondents indicated that transformational change, in countries where there is government and police corruption, requires changes in attitudes and approaches to policing. They indicated that CPA-IPP program expertise in community policing is a key element of this effort. The increased focus on community policing principles (public service) with the Patrol Police, rather than punishment, has been critical.
• Some interviewees and many NPU leadership questionnaire respondents indicated that Canadians have led by example to promote the role of women in policing through both deploying women in leadership roles and providing opportunities for them to mentor other women through their work with the Patrol Police. Gender-responsive content has been worked into strategic reform plans and training materials (scenarios) for the Patrol Police.

…now it's about how to interact and engage with clients and community, understanding the basics of community policing, go into community and understand their problems. It is communication driven now, not how to use your gun or pepper spray, use their communications 'belt'

As illustrated through the Haiti, Mali and Ukraine case studies below, the nature of police capacity building impacts have varied by mission, and there are opportunities to continue to enhance outcomes with more mission long term strategic planning, results measurement, and targeted deployments.

Haiti

Through training and mentoring police officers in the field, interviewees involved in the mission reported that there has been an increased level of professionalism and improved capacity in handling unrest by the PNH. A particularly impactful and sustainable contribution has been the establishment a SGBV unit (ULCS). Moving forward, opportunities include evolving the current strategic plan Canadian police officers helped to develop, including deployments that focus on areas of infrastructure, curriculum development, training in technical skills, and gender equality.

Mali

Throughout the short duration of this mission, capacity building efforts have been limited due to local challenges with timing (e.g., terrorist attacks, politics) and human resources (e.g., minimal police officers assigned together, officers reassigned to other duties). In addition to mentoring through field patrols, police officers provided training through l'Ecole de Maintien de la Paix - Alioune Blondin Beye (EMP-ABB). Moving forward, opportunities include continuing to work to understand the complex and evolving security environment, and more targeted deployments (e.g., more police officers deployed together, more leadership roles).

Ukraine

There is a strong desire from the NPU to professionalize. The bilateral mission continued to gain momentum during the evaluation period growing from 20 to 45 authorized deployments. Numerous courses and presentations were delivered to Patrol Police officers over the last five years. Training was scenario-based and students demonstrated a good understanding of the material and reported applying this knowledge to their work. Moving forward, opportunities include further assessing local needs, doing longer term strategic planning and results measurement, and expanding the gender adviser role.

While CPA and IPP program activities have supported police reform and capacity building, there is limited evidence to draw a link between these efforts and a direct impact on broader public confidence in host countries. In each of the countries where the CPA has deployed police officers, the local context is still volatile and evolving. The literature review indicated this reality has an impact on public confidence and trust in police services and it may take a generation for meaningful transformational change to take hold. Almost half of interviewees, who were living and working in host countries, indicated that there is still a great deal of public mistrust in police institutions. That said, it was also noted that community policing has been a pillar of police reform, police are now more a part of the community, with deployed Canadian police officers and local police officers building more community relationships.

Local police in Haiti are in a better place than a few years ago which is attributable to Canadian efforts.

As illustrated through the case studies below, in both Haiti and Ukraine, local police officers are now slightly more trusted and accepted.

Haiti

After almost two decades of police capacity building by international partners, interviewees familiar with the local context indicated that Haitian people are now more comfortable with their own police force and more sensitized to the struggles of the PNH. In partnership with civil society organizations, quiet but impactful work has been undertaken by Canadian police officers with respect to supporting the victims of SGBV. The ULCS is a robust and competent specialized unit with the means and understanding to ensure respectful victim care and a professional treatment of SGBV cases in line with international standards. This unit establishes SGBV prevention efforts within the domestic police force and promotes a sustainable approach to SGBV crimes (e.g. concrete changes in how victims are greeted and treated).

Ukraine

Interviewees familiar with the local context indicated that citizens feel that the NPU is overall a better police force than the militia was, but it is still not well trusted. A 2019 national survey in Ukraine found that 50% of respondents did not trust the police. Respondents indicated the following "drawbacks" of the police: incompetence (39%); corruption (37%); reluctance to protect the 'regular person' (31%); weak connection with the public (25%);', and, impunity of police officers (21%) ^{Endnote 12} . Respondents to a civil society questionnaire in Ukraine indicated they have only a slight level of confidence in the police to keep their communities safe, relating that marginalized groups are most vulnerable. They also indicated that younger and newer Patrol Police officers are believed to be better trained and committed for the right reasons.

4.2 Maximizing domestic security benefits

Some interviewees, the majority of CIVPOL survey respondents, and the previous evaluation ^{Endnote 13} , indicated that police officers grow professionally while on mission. Enhanced competencies included:

• Gaining soft skills: problem solving, resourcefulness, flexibility, leadership and team building, supervisory experience, investigative and strategic thinking skills;
• Learning technical knowledge: cyber and organized crime, SGBV, curriculum development and teaching adults, new languages (Creole, Ukrainian); and,
• Working in complex cultural environments: intercultural awareness and sensitivity.

Document review (in particular CPA annual reports) and interview data highlighted that new knowledge and skills can be transferred to policing practice when police officers return to Canada. However, the document review, including the previous evaluation, and interview data indicated that the program does not methodically track or leverage domestic benefits.

Opportunities include:

• A 2016 review of domestic benefits ^{Endnote 14} suggested there would be value in more systematically documenting and sharing individual mission and post-mission experiences.
• A few interviewees suggested that post mission interviews (e.g., 3 months after return) may be an opportunity to better gain feedback from Canadian police services on domestic benefits of deployments to police organizations and local communities.
• Other suggestions include more substantive and routine information sharing (not just ad hoc) such as ongoing discussions with domestic police partners, and communication of domestic benefits to federal government partners.

As well, recent efforts to communicate benefits of mission deployments to domestic police partners for recruitment could be built upon. These efforts included a video highlighting the domestic benefits of Canadian police peacekeeping (2018), and a one-pager information sheet on "Translating mission skills to workplace competencies" (2019).

4.3 Integration of a GBA+ lens

Deployed women to peace operations

Document review ^{Endnote 15} and interview data indicated that the CPA partners have committed to meeting and/or exceeding the UN targets for the number of women in police peacekeeping roles. Performance data indicated that the annual CPA percentage fluctuated (14-48%). Since 2017-18 it has been consistently near or well above the UN rolling targets of 20% (2018), 21% (2019) and 22% (2020).

Diagram 3: Percentage of new deployments by gender by fiscal year 2015-16 to 2019-20

Diagram 3 - Text version

A stacked bar graph illustrating the percentage new deployments by for the IPP program over a five-year period from fiscal years 2015-16 to 2019-20.

In 2015-16, 72% of deployments were men and 28% of deployments were women.

In 2016-17, 52% of deployments were men and 48% of deployments were women.

In 2017-18, 82% of deployments were men and 18% of deployments were women.

In 2018-19, 86% of deployments were men and 14% of deployments were women.

In 2019-20, 76% of deployments were men and 24% of deployments were women.

Canadian women police officers have led by example. The CPA deployed women in key leadership positions and as mission gender advisors, including:

• Contingent Commanders in missions in Haiti, Iraq and Mali
• Senior Police Advisors to the Permanent Mission of Canada to the United Nations New York (PRMNY)
• Expert Trainer for the United Nations Institute for Training and Research (UNITAR)
• Gender Advisors for CPMU (Ukraine) and EUAM-Iraq

Advanced a gender focus within a majority of missions

Advancements have been made since the previous evaluation, which noted that "…there was limited evidence to suggest that gender is strategically taken into consideration in mission planning and implementation." ^{Endnote 16}

A document review of selected CPA reconnaissance reports indicated that GBA+ has been built into the needs assessment in advance of new missions. Host countries often reflect male dominated patriarchal values. Some interviewees and many CIVPOL survey respondents highlighted the following challenges for both deployed IPP program and local women police officers:

• limited to administrative vs frontline or managerial roles
• not trusted in dangerous situations
• overlooked for training or promotions

Document review (including CPA annual reports and strategic plans, Contingent Commander reports), NPU post-training survey, and interview data indicated that the IPP program has worked with their host country counterparts to mitigate these challenges and advanced a gender focus within a majority of missions through:

• women taking on leadership and gender advisor roles within missions (leading by example)
• mentoring women officers from other countries
• encouraging participation of women in all IPP program training courses
• contributing to gender-related policy and training at the UN and in other multilateral fora
• integrating gender and diversity into curriculum
• raising awareness of, and investigating, SGBV

Our efforts are not a western solution. We listen to the host country and their police officers and help them build up. It was the buy in and word of mouth that created a relationship. It has been a hard fought battle… to introduce gender training into all of their training curricula would not have been done without us.

Some missions where activities reflected a gender focus included:

Iraq

The dedicated Gender Advisor, through government outreach and women-only policing courses, promoted the value of women police officers.

West Bank

The CPA police officer occupies the Police Advisor, Family Protection Unit role within the European Union Police-Coordinating Office for Palestinian Police Support (EUPOL COPPS) mission.

ICC

A woman police officer was SGBV investigator with the ICC's CAR investigation.

UNITAR

A woman police officer was seconded to ensure integration of gender considerations in UNITAR training materials/ guidelines.

PRMNY

A Senior Police Advisor has undertaken work to support gender mainstreaming through the UN, including coordinating development of UN SAAT preparation gender initiatives, and contributing to gender-related policy initiatives at the UN.

Gendered roles can hinder local women police officers from doing their job. Examples of IPP program activities that advanced a gender focus to address this issue are illustrated through the case studies below.

Haiti

Canadian police officers embodied a positive representation of women in policing, acting as role models, inspiring others and fostering respect. Canadian police officers worked with counterparts to impress upon them the importance of building greater equality in the domestic police force. For example: Many women in Haiti do not have a drivers' license. Police officers without a driver's license cannot be as effective. IPP program police officers worked to promote accessibility for these types of challenges.

Mali

Canadian women police officers participated meaningfully in mission, including in leadership roles, showing women can do more. In fall 2019, a IPP program woman police officer was the first woman to participate in an overnight stay and patrol in the Mopti region. While the role was relatively dangerous, the presence of a woman on an overnight patrol inspired other women police officers from contributing nations (namely African countries) to participate in these types of initiatives.

Ukraine

Canada offered an inclusive image of police officers and championed change in policing culture. Further, CPMU provided training on domestic violence. All courses had a GBA+ module, scenarios, and language that reflected diversity. The Gender Advisor had a pivotal role in doing local outreach and providing guidance.

Integrated gender considerations into RCMP's International Peace Operations work

A gender lens was reflected in the CPA MOU, pre-deployment training, and recruitment strategy.

The current CPA MOU (2016-21) outlines commitments to support the advancement of Canada's National Action Plan for the Implementation of UN Security Council Resolutions on Women, Peace and Security. The MOU indicated a responsibility for partners to input into annual progress reports on Canada's Action Plan. It stipulates that a role of the RCMP is to maintain the expertise and processes necessary to ensure that IPP program activities are gender-sensitive.

Document review (pre-deployment training syllabus and curriculum) and interview data highlighted that gender-focussed training is required for all recruits, including the types of training indicated in Table 13.

In addition to IPSOT GBA+ instruction, CIVPOL survey respondents indicated they benefited from:

• UN mandatory training/emails about SGBV/sexual exploitation and abuse (SEA) and the Gender Police Toolkit
• Peace Operations Training Institute (POTI) courses focussed on international peacekeeping, including Preventing Violence Against Women and Promoting Gender Equality in Peacekeeping
• attendance at local gender and diversity focussed events in their host countr.

Recruitment opportunities for women

Document review and interview data noted that there is a IPP program communications strategy that targets the recruitment of women, including job bulletins encouraging women to apply, and external feature stories about police peacekeepers who are women.

Recruitment challenges for candidates who are women were also identified by interviewees:

• low ratio (1:5) of officers who are women and men across police services
• some physical conditioning requirements
• concerns about separation from family/children

In 2018-19, in consultation with its 26 police partner agencies, the RCMP launched a survey to identify barriers preventing officers who are women from deploying to peacekeeping operations. Knowledge from this survey was summarized and disseminated. Key barriers were identified in a report, including:

• staffing and resourcing constraints for police services
• language requirements for some missions (need for French)
• need for consideration of opportunities and challenges of shorter deployments
• need for greater outreach and awareness building, and sharing of best practice.

Some interviewees, including IPP program Ottawa-based staff and deployed police officers, suggested related options to mitigate recruitment challenges such as:

• having greater flexibility with deployment duration options
• reassessing language requirements (depending on language needs of the mission)
• reviewing the approach to assessing physical fitness (depending on threats and security requirements in mission)
• expanding domestic police partner networks (noting partners participate on a voluntary basis)
• leveraging IPP officers who are women to share their deployment experiences with potential recruits

The last CPA evaluation noted that from April 2011 to March 2015 there were five reported cases of sexual misconduct (out of approximately 600 deployments). RCMP's IPP staff indicated that one case of sexual exploitation and abuse (SEA) was reported between April 2015 and March 2020 (out of 442 deployments).

The CPA is committed to being transparent and accountable for the actions of deployed police officers. Document review, and interview data from Ottawa-based CPA partners, indicated ways that the CPA has continued to monitor and refine its SEA policies and practices. Examples include:

• Pre-deployment letters of conduct, identifying zero tolerance and repercussions for SEA violations, were signed by all recruits
• Pre-deployment training, specifically on SEA, addressed the zero tolerance policy
• An updated MOU with partner police services, detailing SEA expectations, was developed and implemented
• A potential MOU with the UN and/or updating the UN's Letter of Undertaking is being explored

Document review identified other recent CPA initiatives to prevent and combat any SEA by deployed Canadian police officers:

• CPA partners developed Canada's Strategy and Action Plan to address Sexual Exploitation and Abuse in UN Peace Operations.
• The RCMP, with the Canadian Police Knowledge Network, developed online pre-deployment training modules that detail the zero tolerance police for SEA.

Elsie Initiative for Women in Peace Operations (2017) ^{Endnote 17}

Document review and a few interviewees highlighted Canada's leadership role in the Elsie Initiative - designed to increase the number of, and improve working conditions for, women peacekeepers deployed to UN peace operations. In addition to being consistently near or well above the UN rolling targets for the deployment of police officers (as detailed in Finding #8) who are women, the following CPA activities supported Canada's leadership role in this Initiative:

• delivered PRE-SAAT training courses to prepare candidates in other countries who are women to succeed in testing required to deploy to UN peace operations
• planned to deliver technical assistance and training on women in peacekeeping to police institutions and police officers in Police Contributing Countries (e.g., developing an action plan to determine technical assistance and training for Zambia)
• facilitated information sharing and analysis of the in-mission experience of police peacekeepers who are women
• participated in international conferences and meetings (recently Nigeria, Ukraine, Italy) on the deployment of peacekeepers who are women

Canada's National Action Plan for the implementation of United Nations security council resolutions on women, peace and security 2017-2022 (CNAP) (2017) ^{Endnote 18}

The federal government partners (six departments, one agency) who signed on to this action plan have each developed implementation plans. Document review shows the RCMP has reported annually on its CNAP activities.

As illustrated through numerous examples in sections 4.1 and 4.3 of this report, the CPA and the IPP program made contributions across four priority areas for action:

• strengthened governance and accountability at home and abroad
• enhanced capability to undertake WPS and gender analysis in the design and planning of gender-sensitive programming
• enhanced gender-sensitive elements, including preventing and responding to sexual exploitation and abuse
• continued focus on deploying more women police officers, especially in senior and/or influential positions

Canada's Feminist International Assistance Policy (CFIAP) (2017) ^{Endnote 19}

As illustrated through numerous examples in sections 4.1 and 4.3 of this report, CPA activities are in line with global peace and security objectives of the CFIAP:

• increase participation of women in peacebuildin;
• increase the capacity of police and judicial systems
• train police to respond to SGBV
• improve access to justice for women and girls
• zero-tolerance policy for SEA

4.4 Responsive and strategic program delivery

There are benefits and challenges from participation in both multilateral and bilateral missions.

Multilateral missions deliver strength in numbers and mission infrastructure, while also enabling access to different partners and host nations. They represent a contribution to a larger effort and can deliver a stepping stone or force amplifier for bilateral missions, and overarching Canadian foreign policy priorities such as engagement with UN peacekeeping and the international rules based order. At times Canadian interests and values did not align with colleagues from other contributing countries. CIVPOL survey and interview data suggested that Canadian contributions can be underutilized or disregarded, further diminishing Canada's contribution and potential impact (see Finding #15).

Bilateral missions allow for more control in decision-making and independent use of resources, ensuring that Canadian priorities are reflected. These missions guarantee leadership roles. In the absence of multilateral partners, bilateral missions require more strategic planning and coordination, funding and logistical support (e.g., privileges, immunities, duty of care, infrastructure, etc.), as well as more proactive relationship building with a myriad of local stakeholders.

The nature and size of CPA missions have changed considerably over the last five years. In the past, CPA deployments were predominantly part of large-scale long-term multilateral police peacekeeping missions in Haiti. Following the progressive UN draw-down there over the last three years, CPA missions have shifted to smaller and more focussed deployments. Current missions are more strategic, targeting key roles in training, mentoring, technical assistance, leadership and advice.

For example:

• Since 2014, the Ukraine bilateral mission, now with 45 authorized police officers including a gender advisor, has coordinated directly with other donor countries to develop, deliver and institutionalize police training, as well as initiate engagement with Ukrainian civil society counterparts, in particular with respect to gender and diversity/inclusion issues.
• Some missions involve small short-term ancillary deployments with focused objectives. In spring 2019, the program deployed identification specialists to Ethiopia following the downing of Ethiopian Airlines Flight 302. Mission staff were requested by INTERPOL to assist in identifying passenger remains. The mission lasted seven weeks, ending when death certificates were issued.

CPA mission settings continue to evolve, with some contexts growing more dangerous. In these increasingly non-permissive environments, IPP program police officers have deepened their peacekeeping roles, preventing and responding to more perilous incidents. For example, in Mali, policing patrols can be long range and can require overnight camping. Police officers are asked to recover and disarm firearms and ordinances as part of the Disarmament, Demobilization and Reintegration (DDR) initiative ^{Endnote 20} .

Going forward, some interviewees emphasized the need for new police foreign service directives to support the changing environment and the RCMP's growing leadership roles overseas. Mission staff indicated that they have needed to search for work-arounds to support the new and evolving mission needs and risks. Some items that were highlighted included travel directives, tax relief, and most notably procurement (see Finding 12).

According to CIVPOL survey and interview data, multilateral and bilateral missions experience different, yet critical, procurement challenges.

• In multilateral missions, logistical support from the UN can be lacking and onerous to navigate, with slow response times. Procurement gaps included the ability to acquire office supplies, storage space and safe and functioning vehicles (e.g., armoured vehicles that are mine proof).
• In bilateral missions, procurement challenges can be more complex given the absence of established multilateral mechanisms. Gaps included the ability before and during the mission to acquire safe housing, office space, transportation and business tools.
• There is no direct mechanism to deliver equipment and supplies to IPP program staff abroad. Program staff often depend on other federal partners (e.g., CAF, GAC) to facilitate the transfer of supplies and equipment which can lead to long delays, confiscations and tensions among partners.

CPA partner leadership have been working on longer term international procurement solutions. Canadian embassies have supported CPA missions in the short term. There continue to be procurement issues in bilateral missions and financial authorities have been unclear. Roles and responsibilities for procurement, and other financial support, may need to be revisited across CPA partners.

There is a need to identify and formalize arrangements to address financial challenges that will support evolving mission needs and realities, facilitate efficient processes, alleviate staff pressures, and improve productivity. Opportunities for improvements to address procurement challenges might include:

• Clarify CPA partner procurement and other financial responsibilities.
• Arrange preliminary logistics support and set-up (prior to police officer deployment) that will contribute to later efficiency in mission. These efforts could include pre-planning for essential procurement such as safe housing, transportation, office space and supplies.
• Designate a mission logistics position or team.
• Continue to leverage partners in host countries (including the Canadian embassies).

The existing 150 target for deployed police officers was meaningful when Canada had a long-standing role in multilateral UN missions in Haiti, where the bulk of police officers were deployed to one mission. Interview and document review data suggested that the 150 target is no longer reflective of current CPA engagements. Over the last five years, the number of missions each year ranged between 7 and 10, and the average number of deployed officers ranged from 58 to 114 (see Table 10).

While the scope of this evaluation did not allow for a deeper look at what specific number would be practical, the following variables were identified to help establish a more realistic target:

• Shifting size and nature of missions - The CPA is now deploying fewer police officers but to more places. The program is also moving into bilateral missions which involve more complex staffing and logistical considerations compared to previous participation in solely multilateral missions.
• Evolving mission environment - Haiti was one mission in which "everyone was doing the same thing". Now the focus of missions varies and requires more support and resources in different ways.
• Lack of available resources - Domestic police forces across Canada are struggling to recruit new police officers and maintain required staffing levels. This decrease in the overall availability of police officers diminishes opportunities for IPP program recruitment as well.

Some interviewees suggested that the CPA redirect its attention away from number of deployed officers and focus on impacts to support a more meaningful results story. More useful targets to assess achievement of program success could include the nature of missions, nature of positions, leadership roles for Canada, and impact Canada is making locally.

Previous evaluation findings identified the need for more technical expertise in some missions. As a result, the subsequent CPA MOU 2016-21 made provisions for the engagement of civilian technical expertise. Canada and other donor countries employ civilian technical experts in police peacekeeping missions.

To date, the CPA has engaged a very limited number of civilian experts on short-term placements, including the following case study examples:

Haiti

A psychologist and a judge provided advice and support to local police services and community members.

Ukraine

A cyber expert, a simulator trainer and a curriculum development expert provided guidance to CPMU staff, the Patrol Police Academy, and local police forces.

SSR goes beyond policing and extends across disciplines. Interview, document and CIVPOL survey data note the benefits of civilian expertise, in particular to fill gaps in specialized and professional areas such as human resources, policy, technology, intelligence, corrections, gender, business and communications. Civilian expertise would also support CPA policing efforts by enhancing mission impacts across the criminal justice system (prisons, judiciary, courts). An example from the case studies is as follows:

Haiti

Many interviewees familiar with the mission in Haiti commented on the conditions of the National Penitentiary in Port-au-Prince. Beyond infrastructure and accessibility concerns, respondents highlighted the need for professional guidance to support Haiti's criminal justice system, before, during and after incarceration. Some areas for improvement and support include the judiciary, corrections, and reform/reintegration.

There are operational considerations for the engagement of civilians, including recruitment and domestic staffing shortages, logistical complexities, duty of care and insurance, and security. A few interviewees also noted that civilian experts may not have professional law enforcement experience, and therefore may not elicit the same credibility with the host country and other police officers.

Going forward, civilian engagements may be best suited for specific, but not all, missions (e.g., armed vs unarmed) given safety concerns and training required to work in some FCAS. Short-term civilian engagements, or remote support from the RCMP's International Peace Operations, may also mitigate certain logistics and safety concerns. Further, there may be opportunities to leverage existing mechanisms, such as other federal civilian engagement programs (e.g., GAC, CBSA), to contribute to program efficiency.

Previous evaluation recommendations focused on the need to enhance operational documents to improve program delivery. These recommendations were actioned, in particular through updating SOPs.

The majority of CIVPOL survey respondents indicated that IPP program planning and operational support was generally sufficient to meet their needs. However, they also provided suggestions to enhance the effectiveness and efficiency of program delivery moving forward.

Planning

Document review and interview data showed that there has been a lack of integrated, detailed CPA planning documents and tracking tools for the CPA broadly, and for individual missions specifically. It is not clear if or how the current mix of planning tools are integrated or used to track program efforts.

• Existing program planning documents include the CPA MOU 2016-21, a 12-page strategic direction summary, operational plans for functional areas (training, communications, etc.), ad hoc critical paths, and a draft performance measurement framework (PMF). The current CPA strategic plans (Strategic Direction for the CPA, CPA Strategic Direction Refresh 2019-2020) summarize and update five lines of effort ^{Endnote 21} and priorities within each line. They generally reflect some of the project objectives in the CPA MOU (see Table 4).
• A more integrated and detailed CPA strategic plan might include the following key components: a future-oriented vision statement; a program mission statement; program goals and objectives; a detailed action plan; and, information on how the plan will be communicated, how impacts will be measured, and how often the plan will be reviewed and updated.
• As well, some current and previously deployed interviewees indicated that in advance of standing up a mission, a unified, multi-year mission plan is needed to clearly identify mission objectives, timelines, the roles of police officers, and how mission impacts will be measured (see Finding #5).

Recruitment

The goal of recruitment is to have competent police officers, with recent and relevant experience, placed in positions where they can make a meaningful contribution to a mission. Some interviewees suggested that the IPP program struggles to attract and deploy the best candidates with the right skills, particularly for strategic roles. As a result, the program risks losing credibility in the deployment of police officers who lack essential skills or knowledge, such as the ability to deliver specialized training. As mentioned previously, document review also indicated that there has been a decline in the ability of Canadian police forces to recruit new members, limiting availability of officers for CPA deployments.

Document review, the CIVPOL survey, and interview data highlighted the following considerations for a CPA recruitment plan moving forward:

• focus on the needs and expertise required for each individual mission role (i.e., targeted recruitment, not a one size fits all);
• allow for greater flexibility in rotation durations (details below under mission deployments); and,
• leverage competencies gained in mission to ensure officers' positions post-mission, making a CPA deployment a forward progression in their professional career path.

Pre-deployment training

Currently or previously deployed officers and CIVPOL survey respondents indicated that the 14-day IPSOT effectively prepared candidates for deployment to mission. Training topics included: occupational health and safety; mental health; kits and logistics; finance; security; women, peace and security; international child protection; sex and gender-based violence; international legal framework; cultural anthropology; security sector reform; tactical combat casualty care; and, critical incidents, capture avoidance and survival training.

One challenge with pre deployment training is that the RCMP does not have authority over selected officers before deployment. Other countries have career international police officers, while Canada has rotating deployments of their volunteer officers who have substantive positions within their respective home police forces. These officers are available for a limited time for training in advance of their deployment.

Deployed officers indicated that pre-deployment training could benefit from more mission-specific instruction on local context and cultural awareness, such as mission objectives, roles of other actors in the region and host country, and local values and cultural norms. As well, more opportunities to liaise formally and informally with previously deployed officers before mission were mentioned as being particularly beneficial.

Mission deployments

Currently or previously deployed officers and CIVPOL survey respondents indicated that some deployment practices have led to challenges in missions, including:

• Assignment of role for multilateral mission - Police officers were not always aware of what their role would be in a multilateral mission prior to deployment, or had their assignment changed upon arrival to a less impactful, non-strategic role. Further, the IPP program is unable to guarantee a right fit between a police officer's skills and their position in a multilateral mission since assignments are at the discretion of the UN or EU. It is difficult to prepare for a deployment without a clear understanding of the role once on the ground.
• Overlooked for strategic roles in multilateral mission – IPP program police officers can be overlooked for strategic positions in multilateral missions due to the current firm one-year CPA deployment policy, allowing for a shorter time commitment than other donor countries, which average two to three year deployments. Further, variability in rank equivalencies across donor countries is common in multilateral missions. A few interviewees suggested that some IPP program police officers' lower ranks, regardless of competencies, can underwhelm multilateral mission staff from other countries - creating a level of superiority and indifference that impedes Canadian contributions.
• Mission continuity in bilateral missions - the current approach of having strict one-year rotations can negatively impact mission continuity by interrupting partnerships, planning and program delivery. It is particularly challenging for officers in leadership roles (e.g., Contingent Commander).

Further, professional UN policing leadership posts are not currently included in the scope of the CPA. Including these may permit additional support, both strategic and logistical, and potentially much greater influence over the direction of multilateral deployments.

Currently or previously deployed officers and CIVPOL survey respondents indicated that opportunities to mitigate these challenges might include:

• Leverage officer expertise - When possible, positions in mission should capitalize on existing police officer competencies such as gender and organized crime.
• Specialized teams - The deployment of targeted projects and specialized teams could generate greater program impacts. Similar to the Norwegian approach in Haiti (i.e., SGBV Unit), these efforts would involve a concentrated number of Canadian police officers in one region or area, focussing on a specific issue or objective (see Finding #20).
• Flexible mission durations (shorter/longer) and appropriate mission extensions – Shorter missions might attract recruits who, due to family or other obligations, can not commit to a full year assignment overseas. In support of overall mission momentum, some leadership roles, such as Contingent Commander and Deputy Contingent Commander, could benefit from the option of longer rotations (e.g., two years or more) and accompanied missions (where appropriate). Of note, in Ukraine, other Canadian government projects and contributing nations allow family in mission.
• Increased overlap and staggered mission rotations - To help maintain overall continuity and allow for improved knowledge exchange and information sharing, CIVPOL survey data suggested overlapping or staggering mission start/completion dates, and developing a tracking document or departure report to avoid information gaps between missions (see Finding #20).

Post-deployment (reintegration)

As detailed in Finding #7, knowledge and skills acquired while in mission could be better leveraged to enhance the national program, Canadian police agencies, and communities in Canada. Routine and formalized post deployment debriefing of all repatriated police officers could also help inform continuous improvement of all aspects of the CPA and the IPP program operations listed above.

Responsibilities of RCMP's International Peace Operations desk support personnel include undertaking strategic planning, building domestic and international partnerships, and supporting the mission and deployed police officers directly (logistics, equipment, finances, health – RCMP primarily).

Current and previously deployed police officers provided mixed feedback on the effectiveness and efficiency of recent RCMP desk support to missions. While the majority of CIVPOL survey respondents indicated they received the support they needed, a few interviewees (during specific times and missions) emphasized that the RCMP's International Peace Operations desk support needed to be more timely and proactive.

Intermittent RCMP International Peace Operations' support challenges could be due to fluctuations in staffing levels, growing mission needs, and the level of knowledge and skills of the staff complement at that time. For example:

• Previous evaluation findings suggested that the RCMP staff complement has varied over the years, at times being understaffed for the corresponding number of missions and police officer deployments. This challenge persists. Over the last five years, the ratio of RCMP international peace operations support staff to deployed staff varied between 1.72:1 to 2.40:1. The full 54 RCMP International Peace Operations staff allocation has never been realized (see Table 10: Number of deployments and RCMP staff for IPP program 2015-16 to 2019-20).
• Delays at various stages of deployment may be linked to a limited number of dedicated support staff within partner departments (GAC, PS).
• Support roles can vary based on mission longevity (established vs. newer) and mission type (multilateral vs. bilateral). According to some interviewees, newer and bilateral missions require increased coordination, timely guidance, and proactive logistical support from RCMP International Peace Operations support personnel.
• Document review and interview data indicate that there has been considerable RCMP International Peace Operations staff turnover. A few deployed officers suggested that the level of knowledge and skill of some desk officers have not always matched the operational support needs of some missions.

Going forward, opportunities for improved mission support could include:

• better communication between missions and RCMP International Peace Operations (to encourage informed decision-making); and,
• a reassessment of, and amendment to, staff complements for pertinent partner departments including more staff resources and/or specialized teams (e.g., finance), to support operational needs.

4.5 Horizontal governance and coordination

Internal communication (domestic coherence)

Interview data indicated that relationships among CPA horizontal partners, as well as with domestic partner police agencies and Department of National Defence (DND), are well established both at the strategic (CPA partner leadership and embassies) and tactical levels. Document review (including CPA MOU 2016-21 and SOPs) showed that information sharing structures exist among CPA partners (see Table 5: CPA governance structure) and there is engagement at varying levels through meetings, consultations, and operational report sharing.

Previous evaluation findings indicated that, while there were ongoing efforts among CPA partners to ensure coherence with other federal programming, better coordination among CPA partners and with Canadian missions could enhance synergies in broader areas of security sector reform. This challenge persists and continues to impact priority setting, the ability to oversee day-to-day mission management, and ability to de-conflict across federal SSR efforts.

Governance mechanisms exist but are not being fully implemented. Document reviews and interview data highlighted structural issues impeding domestic coherence, such as:

• divergent partner priorities, mandates and approval procedures;
• unknown or misunderstood partner responsibilities, leading to a perception of inequality among partners;
• uneven information sharing and engagement at some levels (availability and accessibility);
• a "…need to know…" mentality resulting in selective and personality-driven information sharing;
• information shared is not always timely or well analysed (i.e., a "…patchwork with gaps."); and,
• siloed project planning within, and among, partner departments, as well as with other federal departments.

Going forward, CPA internal information sharing could be more transparent and formalized. For example, to improve communication and accountability, in 2019 Public Safety Canada colleagues developed a tracker document to log CPA working group discussions and decisions. There are opportunities, perhaps through tasking a small central secretariat, to more consistently establish and manage better internal information sharing tools and processes.

CPA missions often parallel related Canadian SSR projects, all of which provide complementary efforts, including stabilization through policing (CPA and GAC), military action (CAF) and reconstruction (GAC). For example, in Ukraine there has been a reported disconnect on information sharing about Canadian government funded SSR projects between the CPMU and other GAC project implementing partners. Given the parallel work being undertaken, a few interviewees suggested that a whole of government approach is needed, involving the full implementation and tracking of a "masterplan" to coordinate efforts and generate partner and program efficiencies.

External communication

Document review and interview data reflected that, while awareness about the CPA has improved since its inception, overall program efforts are not well known and can be confused with other efforts (e.g., CAF). Challenges include:

• Planning and coordination given CPA partners' divergent mandates and priorities, resulting in complicated approval procedures, uneven information sharing, difficulties engaging due to availability and accessibility, and unknown or misunderstood partner accountability/responsibility.
• The growing differences and uniqueness of missions can generate additional consultations with external bodies (e.g., communications shop in the Mission Multidimensionnelle Intégrée des Nations Unies pour la Stabilisation au Mali - MINUSMA).

Document review (including social media posts) and interview data identified increased efforts in the last couple of years to promote the program and improve external program awareness. Examples include:

• Public Safety Canada developed a CPA placemat to better engage the media and partners;
• RCMP's communication specialist enhanced the program's social media presence with posts on Twitter, Facebook and Instagram; and,
• a comprehensive and proactive external communications approach is under development to better promote Canada's police peacekeeping efforts.

Further, some interviewees suggested that building stronger relationships with domestic police services, through leveraging current networking and communication mechanisms, could help foster ongoing partner engagement, particularly with regard to recruitment.

Previous evaluation findings identified gaps in performance measurement data collection, analysis and reporting, prompting a recommendation to address these gaps. While work has been undertaken to improve existing tools, including the development of a logic model, PMF and data collection tools, significant gaps remain.

Document review and interview data found little evidence to suggest that the program was consistently collecting, analysing and reporting performance measurement data (other than regular annual reporting), or using it routinely to inform decision-making at the program or mission levels. The following challenges were identified:

• There was no integrated performance monitoring or reporting strategies for the broader program or for individual missions.
• Available program data was incomplete and reflected only program outputs rather than outcomes.
• Some existing data collection tools had not been consistently implemented, and performance information was not always shared within or across program partner departments.
• The availability and quality of current performance data did not meet the information needs of this evaluation, including details on the nature of deployments and deployed officers.

Of note, document review and interview data suggested that the CPA's and IPP program's ability to measure impacts and attribute the relative Canadian police officer contributions is reduced in larger multilateral missions. While interview data provided anecdotal feedback on multilateral mission impacts, there was no documentation on Canadian impacts published by the UN or the EU. Conversely, Canadian contributions are more readily attributable to program impacts in bilateral missions, given the opportunity to lead on performance measurement practices and reporting.

Going forward, there is a need to enhance the CPA and the IPP program performance measurement activities at the program and mission levels. Document reviews and interview data suggested the need to develop integrated performance measurement strategies which prioritize the collection, analysis and reporting of data. Implementation of these strategies would enable the CPA and IPP programs to better leverage best practices and lessons learned to enhance program delivery, and tell a more meaningful results story.

4.6 Coherence with international partners

Some interviewees suggested that each donor country or multilateral organization brings its unique perspective and approach to police peacekeeping in the host country. Interview data indicated that when Canadian police officers worked with the international community, and the host country, they built successful and fruitful relationships with international partners.

The CPMU approach is respectful and they are active in human rights sphere, [they] work … with partners to coordinate efforts, helping to create real skills with police officers, [they] enhance us and we enhance them, …everyone's interests are strengthened.

CIVPOL survey respondents and interview data indicated that, while there were coherence challenges (e.g., duplication of work, lack of clarity of roles, a lack of information sharing), proactive communication with international stakeholders has helped to mitigate or avoid them. CIVPOL survey respondents, deployed police officer interviewees, and NPU leadership questionnaire respondents indicated that IPP program mission staff also developed strong working relationships with the local police organizations.

Examples of coherence with international partners are reflected in the case studies below:

Haiti

There was collaboration on a focused project that enabled a common and coherent approach to capacity-building on SGBV investigations with the establishment of, and support to, the ULCS within the PNH. This collaboration provided an opportunity for Canada to build on work initiated by Norway through contributing their expertise in investigations with children as well as their French language skills.

Mali

Currently or previously deployed officers in Mali and CIVPOL survey respondents indicated that there was good coherence, in particular with other international donors with similar approaches to police reform (e.g., Netherlands, Germany).

Ukraine

There are a number of international donors contributing to police reform and unfortunately some duplication of effort. The NPU has asked multiple donors for the same training. It has taken time for CPMU to build relationships with other international donors. There are opportunities to ensure the CPA and the IPP program are promoting the same learning; for example, with changes in legislation in 2018 there is a need for cohesive domestic violence training. To support greater cohesion in approaches, and manage duplicate requests from the host country, Canada has helped to organize and facilitate senior level meetings among the multiple police reform donors (EUAM, US ICITAP, DCAF, Agriteam) in Ukraine and was instrumental in the development of an electronic tracking tool on training delivery.

Benefits to enhanced networking and good working relationships in mission were highlighted by some CIVPOL survey respondents, including:

• opportunities for participation in multinational working groups and joint initiatives; and,
• the ability to gain the confidence of officials from local police agencies.

International best practice ideas, provided by interviewees (currently or previously deployed officers) and CIVPOL survey respondents (see Table 14), include:

5.0 Conclusions and recommendations

Conclusions

Overall, the evaluation found that the CPA and the IPP program are working toward achieving expected outcomes related to capacity building with local policing organizations. There are some areas for attention to ensure enhanced program effectiveness and efficiency, and strengthened investments through the program.

The evaluation offers the following conclusions:

A. Effectiveness - Achievement of expected outcomes

The CPA and the IPP program promoted sustainable rule of law primarily through building the capacity of local police services to carry out their policing responsibilities. There are opportunities to enhance mission outcomes through more long-term planning, results measurement, and targeted deployments. The many police officer competencies gained in mission could be better leveraged domestically.

B. Effectiveness - Integration of a GBA+ lens

The CPA and the IPP program have contributed to Canada meeting international and domestic commitments related to women, peace and security by more effectively incorporating gender equity and diversity into mission operations and programming.

C. Efficiency - Program delivery

A shift towards more bilateral and hazardous missions has led to a need to update program delivery in areas such as planning, recruitment, training, procurement, deployments (including rotations and civilian engagements), and reintegration. To enhance program governance, there are opportunities to better coordinate internal information sharing and address significant gaps in performance measurement.

D. Efficiency

Coherence with international partners: Canadian police officers sought coherence with, and learned from, police efforts of other international stakeholders.

Recommendations

Based on the findings and conclusions, the evaluation makes three recommendations for senior management attention, all focussed on program operations. Themes reflected in the first two recommendations were highlighted in the last evaluation as well.

Recommendation 1

Be results focussed - The CPA partners (RCMP, GAC, PS) should strengthen the program's performance measurement approach to better capture outcomes and lessons learned at both the program and mission levels. Performance measurement objectives should be identified and subsequent data should be systematically collected, analysed, reported and leveraged for continuous program improvement.

Recommendation 2

Enhance program & mission operations - To enhance both program and mission level operations, given the changing nature of missions, the CPA partners (RCMP, GAC, PS) should consider opportunities to be more strategic and flexible throughout the following activities:

• developing and documenting more integrated and detailed long-term strategic plans;
• reviewing staff complements to better respond to current operational needs;
• doing more targeted recruitment for skills to match mission roles;
• having more mission-specific pre-deployment training;
• considering more civilian engagements and more flexible mission rotations and durations;
• securing more leadership roles and exploring specialized teams in mission;
• identifying more opportunities for criminal justice system engagement;
• enhancing external communication about mission objectives and impacts; and
• documenting and leveraging domestic security benefits (reintegration).

Recommendation 3

Enhance domestic coherence - Leveraging existing coordination mechanisms, the CPA partners (RCMP, GAC, PS) should institute a more effective approach to internal information and resource sharing within each partner department and amongst themselves, as well as with other federal departments, to support de-confliction across federal security sector reform efforts.

6.0 Management response and action plan

Management response

The CPA partners seek to continually improve the program and missions' processes and results. Notably, over the past year or two, there have been many improvements made including: garnering more leadership roles; improving strategic communications; and, improving course content for pre-deployment training. Overall, CPA partners agree with all of the recommendations.

Action plan

Appendices

A. Interviewee groups

The table below provides the distribution of completed interviews by respondent category.

B. Overview of mission case studies

Overview of mission case studies - Text version

Haiti

multilateral with UN (2004-2020) and bilateral (2019-2020)

• Police Nationale d'Haïti (PNH)
• French
• Focus: leadership, investigation, SGBV, community policing

Mali

multilateral with UN and EU (2019-2020) and bilateral (2020)

• Police Nationale du Mali
• French
• Focus: serious and organized crime, community policing, SGBV, counter terrorism

Ukraine

multilateral with EU (2015-2020) and bilateral (2015-2020)

• National Police of Ukraine (NPU)
• English
• Focus: community policing, police safety, investigation, gender and human rights awareness, accountability and ethics

3 case studies

Case study 1

Canadians are well respected, they bring valued knowledge, skills and approaches to capacity building

Case study 2

Corruption and mistrust persist in many host countries, transformational change in this context will take time

Case study 3

Sustainability could be enhanced with better strategic planning and ongoing assessment of mission outcomes

C. CPA-IPP program logic model

CPA Program Logic Model - Text version

Inputs

Financial resources (O&M and capital), personnel and equipment.

Activities

• research, assess, and plan deployments
• recruit, select, train, deploy, and support Canadian police
• provide support and expertise to local police services and law enforcement institutions in fragile and conflict-affected states
• develop international policy/best practices and advance Canadian police peacekeeping policy

Outputs

• canadian police deployed and contributing to missions abroad, incl. deployments to multilateral orgs
• support and expertise (i.e. training/products/sessions, advice, mentoring provided; support for courts/tribunals, disaster responses and investigations supported)
• policies, doctrines, Canadian positions advanced on police peacekeeping

Immediate outcomes

• enhanced operational capacity of deployed officers to carry out duties
• enhanced capacity of law enforcement institutions / investigative bodies / systems /personnel abroad in states where CPA engages and in police contributing countries
• enhanced global policies related to policing in international peace support operations

Intermediate outcomes

• enhanced law enforcement effectiveness in Canada
• improved law enforcement services to affected populations where the CPA engages
• improved collective action related to police peacekeeping by the international community

Ultimate outcome

Reduced threats from crime, instability, and fragility to affected populations where the CPA engages, and to Canada.

D. CPA-IPP program objectives and local mission impacts framework

The goal of the CPA is to advance Canadian foreign policy, international security and development objectives, particularly supporting the Government of Canada's commitments to build a more secure world by making available Canada's valuable policing capabilities and expertise through deployments of police officers and civilian law enforcement experts abroad.

In line with immediate and intermediate outcomes listed in the program logic model, CPA seeks to achieve the following nine objectives:

Immediate outcome (logic model): Enhanced capacity of law enforcement institutions / investigative bodies / systems / personnel abroad in states where CPA-IPP program engages and in police contributing countries

Intermediate outcome (logic model): Improved collective action related to police peacekeeping by the international community

World Stage

1. Provide Canadian police contributions to multilateral peace support operations, particularly those of the United Nations
2. Enhance the capacity of multilateral organizations and police contributing countries to effectively advance the above goals
3. Support international efforts to advance transitional justice in FCAS

Intermediate outcome (logic model): Improved law enforcement services to affected populations where the CPA-IPP program engages

Mission (locally in host-country, see local impacts framework below)

4. Promote comprehensive and sustainable rule of law in FCAS
5. Re-establish effective police and judicial institutions in FCAS
6. Enable local police services in FCAS to carry out their policing responsibilities in accordance with international human rights obligations
7. Support a local environment in FCAS more conducive to the achievement of development objectives

Immediate outcome (logic model): Enhanced operational capacity of deployed officers to carry out duties

Intermediate outcome (logic model): Enhanced law enforcement effectiveness in Canada

8. Seek to maximize the domestic benefits of CPA deployments when possible, including contributing to improved domestic policing capacity and improved security in Canada

Immediate outcome (logic model): Enhanced global policies related to policing in international peace support operations

9. Support the advancement of Canada's Action Plan for the Implementation of UN Security Council Resolutions on Women, Peace and Security in FCAS

Figure 1 - IPP Program - Mission Local Impacts Framework

Figure 1 - Text version

CPA Outcomes - Logic model

Intermediate outcome

Improved law enforcement services to affected populations where CPA engages.

Immediate outcome

Enhanced capacity of law enforcement institutions, investigative bodies, systems, personnel abroad in states where CPA engages and in police contributing countries.

CPA capacity-building activities

• Provide support and expertise to local police services and law enforcement institutions in FCAS
• Assist with the form and reconstruction of police and other law-enforcement institutions
• Provide training to prevent, detect, investigate and prosecute crime - Mentor and monitor
• Provide operational support
• Mentor and monitor
• Advise through specialized teams: community policing, management development, serious and organized crime, forensic identification, counter terrorism/national security, major crimes investigation
• Investigate human rights violations
• Support free and fair elections
• Respond to humanitarian crises

CPA MOU - Mission objectives

1. Promote comprehensive and sustainable rule of law
2. Re-establish effective police and criminal justice institutions
3. Enable local police services to carry out responsibilities, rights, obligations
4. Support a local environment more conducive to achievement of development objectives

Local impacts - Literature review

Impacts on policing

Authority

Police have political and legal authority to enforce internal security (political independence, neutral, protect all citizens)

Accountability/conduct

There are internal and external oversight mechanisms and practices (chain of command, mission, goals, procedures, code of conduct, performance measures, crime statistics) that ensure accountability, and regulate current and future professional conduct in accordance with international standards of human rights

Recruitment

There is a transparent and merit-based recruitment and promotion system. The staffing of the police and criminal justice institutions is reflective of the demographic composition of the broader society

Resourcing

There are adequate staff and equipment to be effective (long term budget)

Coordination

There is coordination with criminal justice system (e.g. courts, prisons)

Local police awareness/knowledge

Local police have greater awareness and knowledge related to professional practice (including use of force, gender and ethnic sensitivity, community policing, management development, serious and organized crime, forensic identification, counter terrorism, major crimes investigation)

Local police attitudes

There is a high level of commitment by local police officers to democratic policing standards, respect for all people (including identity groups reflecting gender and ethnic minorities)

Local police behavior

There is professionalism in the conduct of local police officers when interacting with persons requesting assistance or stopped by the police (due process, procedures)

Impacts on community (all objectives linked)

• Public acceptance of the police as main legitimate source of internal security
• The public has confidence and trust in police services and the broader criminal justice system
• Public involvement in ensuring internal security and solving crime investigations
• Citizens feel safer in communities

E. Percentage response table

The following table outlines how the number of respondent responses are expressed within the document:

Date modified:

2021-09-13