Information for sexual assault survivors

On this page

• What is sexual assault?
• What is consent?
• What are your choices after a sexual assault?
• What will happen when you report the assault to police?
• What can you expect during the court process?
• How can you support a survivor of sexual assault?

Sexual assault has traumatic and long lasting effects on survivors.

Please remember that sexual assault is never your fault. Sexual assault is the fault of the person who commits the crime.

Anyone can be a victim of sexual assault regardless of:

• gender
• sexual orientation
• age
• race
• cultural background

If you report a sexual assault to the RCMP, we will treat you with kindness and respect and investigate your complaint completely. We are here to help and support you.

There's no time limit to report an assault to police. Even if you were assaulted years ago, you can still report it to police. Many survivors do not report right away, and choose to do so later in their lives.

If you choose to report the assault later, you can still bring a support person with you when you make the report.

What is sexual assault?

Sexual assault is an abuse of power and trust.

A sexual assault happens when someone touches another person, sexually, without consent. A person can also use physical force or a position of authority in a sexual assault against another person.

Sexual assault can include unwanted touching, kissing or any other unwanted sexual activity including penetration or attempted penetration of the mouth, vagina or anus.

What is consent?

Sexual consent is an agreement, freely given, to take part in a sexual activity. Both people must agree to sex, every single time, for it to be consensual.

You have the right to withdraw consent at any time during sexual activity.

Even if you've consented to start a sexual act with someone, you have the right to stop it at any time. If you consent to one kind of sexual activity it does not mean that you consent to other sexual activity.

You cannot consent if you are, or feel:

• threatened
• intimidated
• manipulated
• tricked
• unconscious
• asleep

You cannot consent when:

• someone uses their authority or perceived authority
• someone uses physical force or threats
• you are intoxicated to the point that you cannot provide consent
• you have an intellectual disability/mental health problem which prevents you from making an informed decision or fully understand the possible results of sexual activity

The legal age of consent in Canada is 16 years old

However, people under 16 years can have consensual sex with someone close in age:

• 12 to 13 year olds (two-year older age difference)
• 14 to 15 year olds (five-year older age difference)

Individuals under 18 years old cannot consent to sex where:

• The other consenting party is in a position of trust, authority or there is a dependency on that person
• There is an activity of exploitation (e.g., pornography, sex work/prostitution)

What are your choices after a sexual assault?

You can get emergency help

Call 911 or your local emergency services if:

• You are in danger
• You need medical attention
• You would like to speak to police immediately

You can seek out support services

As a survivor of sexual assault, you can choose which services are best for you and when to engage them.

You can contact victim services in your area to receive support. Victim services can also connect you with other support groups and community resources such as:

• sexual assault crisis centres
• psychological services
• other service providers

You can report to the police directly

If you are not in immediate danger and wish to report a sexual assault, you can contact your local police station to make a report. You may choose to make a report for information purposes only.

Reporting a sexual assault can help you seek justice and start the healing process. Survivors who report a sexual assault also contribute to police records, which can help identify repeat offenders.

You can report to the police through a third party

If you chose not to report sexual assault to the police directly, you may be able to report the crime through a third party.

Third party reporting is when someone else reports the crime to police. It allows survivors who do not want to report the crime directly to ensure police receive a report about the crime.

In different provinces, survivors may be able to report the sexual assault to police though a community based victim service program.

You can choose not to report

You can choose not to report sexual assault to the police.

You should still look into seeking medical attention and/or mental health support through local medical services or community agencies.

What will happen when you report the assault to police?

If you choose to report a sexual assault to police, you will be asked to:

• provide a description of the occurrence (what happened: who, what, when, where, etc.)
• provide a statement that may be audio or video recorded
  • The recording can take place in the detachment, or in some cases, in a mutually agreed upon safe location
  • Don't worry if you feel unable to remember every detail
• clarify details through interview questions
• provide the names of any suspects, witnesses, and bystanders
• provide any physical evidence, such as photos of injuries and clothing
• keep in touch with the investigator/detachment
  • contact them if you remember more details or information that might help the investigation

You can expect the investigator to ask questions about the incident to get a better understanding of what happened or to help you remember some details.

Don't worry if you can't provide all this information at the initial interview. Often, trauma can affect our ability to recount incidents in chronological order. You can always follow up with the investigator with any details you remember after the interview.

If you want your report to be investigated, police will:

• gather evidence, such as a Sexual Assault Examination Kit, statements, witness accounts, etc.
• conduct interviews with you, the subject of the complaint, as well as possible witnesses

Tips to help police investigations

Hold on to any items you had with you as they can be evidence. But remember, you can always report a sexual assault even if you are not able to preserve evidence.

If the sexual assault was recent and if possible, avoid:

• washing yourself
• changing your clothes
• brushing your hair

If you can, write down, record, or tell someone you trust all the details of the assault you can remember.

The Sexual Assault Evidence Kit

After a sexual assault, medical professionals use a Sexual Assault Evidence Kit to collect and save biological evidence, such as:

• bodily fluids
• blood
• hair
• skin transfer from the perpetrator

This evidence is collected using swabs, blood samples, DNA samples and photographs. Once collected, it can help convict the offender when the case goes to court. Collecting these samples in a kit is most effective within one week of the assault.

The process for the kit is voluntary and requires your consent. You can stop the process at any time.

Please remember that evidence can still be collected even if you showered, brushed your hair or washed your clothes.

If you decide to proceed with a kit, they are normally done at a hospital or crisis/support centre. You can choose to:

• have a kit done and ask for police involvement ^{Footnote 1}
• have a kit done but request no police involvement
  • many hospitals/support centres can store the kit for a period of time which will give you an option to involve police at a later date

While the evidence collected through a kit may help support elements of the crime, police can investigate even if an examination kit is not used (including if a survivor declines) or used outside the five-day timeframe.

In some hospitals, Sexual Assault Nurse Examiners (nurses who are specially trained in providing care to patients who have experienced a sexual assault) will complete the kit.

Do police always lay charges?

After an investigation, police are not always able to lay charges. This does not mean that the police do not believe you or that the sexual assault did not happen.

In some areas of the country police must bring investigations forward to Crown prosecutors to recommend charges. In other areas, police can consult with Crown prosecutors to discuss the details of cases and offences to obtain their professional opinion on recommending charges. If no charges are laid, it may mean that there is not enough evidence to prove a criminal charge in court. If this happens, the police officer can explain these decisions to you.

The statute of limitations does not apply to sexual assault offences. Unsolved sexual assault cases can always be reopened if more information is received to further the investigation, which can lead to an arrest or charges at a later date.

What can you expect during the court process?

If the investigation leads to criminal charges, police put together a case information package (disclosure package). This package is provided to the Crown Counsel's (prosecutor's) office and shared with Defence Counsel.

The Crown then presents the case in a court setting, in front of a provincial/territorial court judge.

In the courtroom

You should be aware that the courtroom is open to the public. The person who assaulted you, and court personnel such as clerks, will also be in the room. Anyone interviewed during the investigation can be called to testify in court to re-tell their story about the incident. This might include:

• you
• the subject of the complaint
• witnesses
• subject matter experts
• police officers

If you feel that you need support during the court process, victim services in your area can provide this support.

Giving a Victim Impact Statement

As a victim of crime, you have a right to submit a Victim Impact Statement to the court. It is your chance to tell the court the impacts of the crime.

The statement is your description of the emotional, physical and financial harm that the crime has had on you. You are not required to complete a statement but if you do, it is presented during the sentencing hearing. Your statement will not be used in deciding guilt or innocence, but the judge may consider it when sentencing a guilty person(s).

How can you support a survivor of sexual assault?

Persons who have been sexually assaulted need the support of people who love and care about them. They may feel:

• ashamed
• embarrassed
• frightened
• confused
• numb
• powerless
• guilty
• angry/hostile
• alone

It is important not to judge them. Be supportive of the choices they make during the process. It is extremely important that a survivor of sexual assault makes the decisions on what they want to do. This can help them regain a sense of control. Telling them what to do may reinforce a sense of powerlessness that comes from the assault.

Things to keep in mind

• Listening is often the best way to support a victim of sexual assault
• Emphasize that what happened is never their fault, it is the fault of the person who committed the crime
• If you can, provide resources, such as contact information for sexual assault hotlines or rape crisis centres
• Help them seek medical attention
• Support them if they want to report the crime to the police or a third party

Learn more

• The Canadian Victims Bill of Rights
• Who is a victim of crime?
• Information and assistance for victims of crime
• How to make a complaint to the Office of the Federal Ombudsman of Crime
• How to make a complaint under the Canadian Victims Bill of Rights

Le bâton à exploits national

Un bâton à exploits est un symbole sacré unique qui représente la culture traditionnelle et les clans autochtones. Il sert lors de cérémonies et de célébrations, un peu comme le drapeau d'un pays.

Le bâton à exploits national de la GRC a été dévoilé en mars 2018 au Centre d'amitié autochtone Odawa à Ottawa. La cérémonie était dirigée par des aînés des Premières Nations de la Nation algonquine.

Ce bâton à exploits a été créé pour reconnaître et honorer les peuples des Premières Nations de l'île de la Tortue. Cette initiative est une étape importante pour la GRC dans son cheminement vers la réconciliation. Pour les membres des Premières Nations, le bâton à exploits est le premier drapeau sacré de l'île de la Tortue, qui contient de nombreux enseignements différents.

En septembre 2021, lors d'une cérémonie, une autre plume d'aigle ornée de perles orange a été ajoutée au bâton à exploits national par le sergent d'état-major Jeff Poulette, après une consultation auprès d'aînés des Premières Nations. Ce geste visait à reconnaître les séquelles des pensionnats et à rendre hommage aux milliers d'enfants autochtones qui les ont fréquentés. « Alors que la GRC travaille à la réconciliation, je tenais à faire en sorte que les séquelles laissées par les pensionnats soient à jamais représentées sur notre bâton à exploits. »

En octobre 2023, une autre plume d'aigle ornée de perles rouges a été ajoutée pour représenter les femmes, les filles et les personnes 2ELGBTQI+ disparues et assassinées. Cette cérémonie s'est déroulée avec la participation de l'aînée Barbara Dumont-Hill.

Depuis son dévoilement, le bâton a été utilisé à divers événements culturels autochtones et autres événements officiels de la GRC, notamment la cérémonie de passation de commandement pour la commissaire Brenda Lucki et plusieurs commandants divisionnaires, l'ouverture de l'assemblée générale de l'Assemblée des Premières Nations, la journée de jeûne de la campagne Moose Hide et les cérémonies du jour du Souvenir tenues au Monument commémoratif de guerre à Ottawa (Ontario).

RCMP National Eagle Staff

An Eagle Staff is a unique, sacred symbol that represents traditional Indigenous culture and clans. It is used at ceremonies and celebratory functions, much like a nation's flag would be.

The RCMP's national eagle staff was first unveiled in March of 2018 at the Odawa Friendship Centre in Ottawa. The ceremony was led by First Nations Elders of the Algonquin Nation.

This Eagle Staff was created to recognize and honour First Nation people on Turtle Island. This initiative is an important step for the RCMP in our reconciliation journey. For First Nations people the Eagle Staff is the sacred first flag of Turtle Island, that holds many different teachings.

In September 2021, in ceremony and in consultation with First Nation elders an additional eagle feather beaded in orange beads was added to the National Eagle Staff by Staff Sergeant Jeff Poulette. This was done to honour and commemorate the legacy of residential schools and the thousands of Indigenous children who attended them. "As the RCMP works towards reconciliation I wanted to ensure that the legacy of Indian Residential Schools will always be visibly represented by this additional eagle feather on our Eagle Staff".

In October 2023, another eagle feather beaded in red beads was added to represent the missing and murdered women, girls and 2SLGBTQI+ people. This was done in ceremony with Elder Barbara Dumont-Hill.

Since its birthing, the RCMP National Eagle Staff has been used in formal RCMP and Indigenous cultural events. The Eagle Staff was part of the Change of Command Ceremony for past Commissioner Brenda Lucki as well as several division Commanding Officers, the Assembly of First Nations General Assembly's Grand Entry's, Moose Hide Campaign's National Day of Fasting, and at the Remembrance Day ceremonies at the National War Memorial in Ottawa, Ontario.

Stetson

With the possible exception of the Red Serge tunic, no other element of the RCMP uniform has the mystique of the stetson hat. From the earliest days of the North-West Mounted Police on the western Canadian frontier, the stetson cowboy hat was worn unofficially by members of the Force on mounted patrol. Members incurred the cost of purchasing a stetson because it was preferred to the official pith helmet for practical policing. While the official headgear was de rigueur on the parade ground, the stetson's wide brim was better suited to protect the riders from the harsh elements.

By 1904, unofficial practice became enshrined in the Dress Regulations. After years of serious discussions, led at times by Commissioner Perry himself, the stetson, also known as the "Boss of the Plains" was adopted as part of the official uniform of the Mounted Police. The contract to supply the stetson, with its distinctive ''Montana peak" crown, was awarded to Messrs. Christy and Company of London, England.

The stetson now worn by members of the Force is exclusively crafted by the Biltmore Stetson Canada Company in Guelph, Ontario. Each hat is stamped on the inside with the initials "RCMP-GRC" along with a contract date to ensure authenticity.

Le stetson

Le prestige du feutre de la GRC n'a probablement d'égal que celui de la tunique rouge. Depuis les débuts de la Police à cheval du Nord-Ouest, dans l'Ouest canadien, ses membres ont officieusement porté le chapeau de cow-boy « stetson » lors des patrouilles à cheval. Les membres assumaient eux-mêmes le cout du stetson, qu'ils préféraient au casque colonial officiel pour leurs tâches policières. Quoique le casque officiel fut de rigueur sur le terrain de parade, le feutre a larges bords protégeait mieux les cavaliers des éléments.

Dès 1904, cette pratique officieuse a été inscrite dans les règlements régissant la tenue. Après plusieurs années de sérieuses discussions, parfois menées par le commissaire Perry lui-même, le stetson, aussi appelé « Boss of the Plains », a été adopté comme partie intégrante de l'uniforme de la Gendarmerie à cheval. Le contray de ces feutres au renfoncement typique dit « Montana peak » a été confié à MM. Christy et compagnie, de Londres.

Le stetson que portent aujourd'hui les membres de la Gendarmerie est fabriqué exclusivement par la compagnie Biltmore Stetson Canada, de Guelph (Ontario). L'intérieur de chaque feutre porte l'inscription « RCMP-GRC » ainsi qu'une date de contrat afin de garantir son authenticité.

Internal Audit, Evaluation and Review – Internal Audit Performance Results

Internal Audit, Evaluation and Review (IAER) publishes the performance results of its Internal Audit (IA) function, as required by the Directive on Internal Audit. This helps ensure that that the public is aware that heads of government organizations are receiving assurance and that activities are managed in a way that demonstrates responsible stewardship. The Treasury Board of Canada Secretariat's website provides additional information on why we publish key compliance attributes for internal audit.

Last updated: December 31, 2022

Vérification interne, Évaluation et Examen – Résultats de rendement de la vérification interne

La VIEE publie les résultats de rendement de sa fonction de vérification interne (VI), conformément à la Directive sur l'audit interne. Ainsi, le public et les chefs des organisations gouvernementales savent que les activités sont régies d'une façon qui démontre une gestion responsable des ressources. Le site Web du Secrétariat du Conseil du Trésor du Canada fournit des renseignements supplémentaires sur les raisons pour lesquelles nous publions les principaux attributs de conformité de l'audit interne.

Dernière mise à jour : 31 décembre 2022

Horizontal Evaluation of the National Anti-Drug Strategy

RCMP Component Piece

March 15, 2018

Table of contents

1. 1.0 Background and Context
   • 1.1 Program Description
   • 1.2 Purpose and Scope of the Evaluation
   • 1.3 Methodology and Approach
2. 2.0 Findings
   • 2.1 Relevance
   • 2.2 Tracking and Reporting
   • 2.3 Achievement of NADS Intended Outcomes
   • 2.4 NADS Knowledge Exchange Strategy
   • 2.5 RCMP NADS Funding
3. 3.0 Conclusion
4. 4.0 Endnotes and bibliography

Acronyms and abbreviations

CAP

Contract and Aboriginal Policing

CBSA

Canada Border Services Agency

CDS

Canada's Drug Strategy

CPC

Canadian Police College

DRE

Drug Recognition Expert

FPPE

Federal Policing Public Engagement

KES

Knowledge Exchange Strategy

MGO

Marihuana Grow Operation

NADS

National Anti-Drug Strategy

NYIDP

National Youth Intervention and Diversion Program

PDA

Prescription Drug Abuse

PRIME

Police Records Information Management Environnent

PROS

Police Reporting and Occurrence System

RCMP

Royal Canadian Mounted Police

1.0 Background and Context

Canada's Drug Strategy (CDS) was first launched in 1987 to address substance use and abuse through coordinated activities undertaken by a number of departments, agencies, and non-governmental organizations. The strategy was based on four fundamental program components: prevention, treatment, enforcement, and harm reduction. CDS was renewed in 1992, 1997, and 2003. In 2007, the Government of Canada announced new resources and the refocusing of existing programs and initiatives to create a new National Anti-Drug Strategy (NADS). NADS included core federal programming initiated under CDS as well as new initiatives in support of prevention, treatment, and enforcement efforts. Stemming from the 2013 Speech from the Throne, the Government of Canada expanded NADS to address prescription drug abuse (PDA). Following the NADS 2012 Impact Evaluation, the Strategy was further modified to include Knowledge Exchange Strategies (KES) to ensure that the results and information developed from the federal investment are accessible and used by stakeholders and other government departments.

NADS is a horizontal initiative of 13 federal departments and agency partners that is led by the Department of Justice Canada (Justice). Activities are grouped under three main Action Plans: Prevention, Treatment, and Enforcement.^{End note aBibliography 1}

1.1 Program Description

The Royal Canadian Mounted Police (RCMP) received approximately $128.4 million between 2011-12 and 2015-16 to support its contribution to Prevention, Treatment, and Enforcement activities. These activities were primarily delivered through two separate RCMP business lines: Federal Policing and Contract and Aboriginal Policing (CAP).^{End note b}

1.1.1 Federal Policing

The majority of NADS-related funding received by the RCMP was allocated to Federal Policing to support the NADS Prevention and Enforcement Action Plans. Under the Prevention Action Plan, Federal Policing supports various initiatives across Canada aimed at enhancing public awareness of the nature, extent, and consequences of substance use and abuse.^{Bibliography 2} Under the Enforcement Action Plan, NADS funding helps increase the RCMP's capacity to proactively target organized crime involvement in illicit drug production and distribution operations.^{Bibliography 3}

In 2012, when NADS was last evaluated, the RCMP's Drug Awareness and Drug Enforcement units were engaged in prevention and enforcement activities, while the RCMP's Drugs and Organized Crime Awareness Service was primarily responsible for NADS-related prevention activities. In 2013-14, Federal Policing underwent an organizational restructuring which entailed changing the way resources were deployed. In lieu of having staff focused on specific commodities (i.e., drugs), investigative resources under the restructured Federal Policing model, are allocated towards the highest-level threats to the safety and security of Canadians (e.g. organized crime networks involved in illicit drug trafficking). In addition, a new unit that specializes in engagement, called the Federal Policing Public Engagement (FPPE) unit was established.

1.1.2 Contract and Aboriginal Policing

CAP is responsible for providing program support to policing services under contract. This comprises Canada's three territories, eight provinces (except Ontario and Quebec), more than 190 municipalities, 184 Aboriginal communities and three international airports. Under the NADS Treatment Action Plan, CAP was responsible for the National Youth Intervention and Diversion Program (NYIDP). The NYIDP provided front-line RCMP employees with tools and training to consider alternatives to charging youth and to refer at-risk youth to community and treatment programs. Funding for this component sunsetted in March 2012.

Additionally, CAP's National Traffic Services implemented and manages the Drug Recognition Expert (DRE) program which provides training for police officers to identify drug-impaired persons usually focusing on drivers.

1.2 Purpose and Scope of the Evaluation

The 2016 evaluation of NADS led by Justice will assess the performance of funded activities conducted under NADS by the 13 participating departments and agencies from fiscal years 2011-12 to 2015-16. In alignment with its internal horizontal engagement protocols, the RCMP's National Program Evaluation Services was responsible for the collection and analysis of all internal RCMP information. The results of these evaluative activities are presented in this component piece which will serve as the RCMP's contribution to the overall evaluation of NADS.

1.3 Methodology and Approach

The methodology for the RCMP's component piece was developed in alignment with the 2015 NADS Performance Measurement Strategy and the data collection instruments provided by Justice for the 2016 evaluation of NADS. Data collection and research were conducted under the 2009 Treasury Board Secretariat Policy on Evaluation, Directive on Evaluation Function, and Standard on the Evaluation for the Government of Canada, while the component piece has been prepared in accordance with the requirements of the 2016 Policy on Results. Internal and external documentation were reviewed, and evaluators conducted semi-structured interviews with eight RCMP employees directly engaged in NADS-funded activities at the national level as well as three consultations with individuals from corporate services directly involved in supporting NADS activities.

2.0 Findings

2.1 Relevance

Overall, the goal of NADS is to "contribute to safer and healthier communities by helping prevent use, treat dependency and reduce production and distribution of illicit drugs as well as by addressing prescription drug abuse."^{Bibliography 4} A review of key documents highlighted the relevance of NADS to the mandate and strategic priorities of the RCMP. Addressing crime associated with illicit drugs is aligned with the RCMP's mandate and within its roles and responsibilities; particularly the facets of preventing and investigating crime, enforcing laws, and providing vital operational support services to other police and law enforcement agencies within Canada and abroad.^{Bibliography 5} NADS is also aligned with the RCMP's strategic priorities of 'Serious and Organized Crime' and 'Youth' (via outreach and engagement and intervention and diversion).^{Bibliography 6} Six of seven interviewees who were asked about the continued need for the RCMP to work under NADS indicated there was a need. Four interviewees noted that there is a continued need for the partnerships and/or reporting together under NADS, while three interviewees pointed to the need for the formal funding.

This is further supported by executive direction; in the 2016-17 Annual Federal Policing Budget letter to Division Commanding Officers, it was noted that horizontal initiatives including NADS "continue to be an important requirement of the Federal Policing program. Federal Policing remains accountable for delivering and reporting results…"

2.2 Tracking and Reporting

Police-reported drug offences are recorded by RCMP staff in a records management system (called PRIME in British Columbia and PROS in the rest of Canada). These systems "integrate the entire scope of RCMP processes for collecting, managing, sharing and analyzing operational police information." In addition to the intended purpose of supporting policing operations, RCMP data and information is of particular interest to other government departments and international organizations. The RCMP, therefore, is called to produce unique reports on the topic of its drug prevention and enforcement work to address the needs of external audiences. This includes NADS annual reporting for Justice, which publishes an annual report providing an account of the collective performance of the 13 NADS partners^{End note c}.

2.2.1 Reporting Challenges

To support public reporting concerning the activities and outcome of NADS, federal partners developed a NADS Performance Measurement Strategy. Although the RCMP was an active participant in this work, after implementation it became apparent that the indicators established were labour-intensive to collect. Each year, the RCMP was required to complete six different NADS reporting templates including a Performance Indicator Reporting Table for each of the three action plans, and an end-of-year reporting template for each of the three action plans. The roll-up of all partners' templates was then used by Justice Canada to develop the NADS Annual Report.

Consultations concerning NADS reporting activities revealed a number of challenges when working to ensure information provided in the RCMP's NADS templates is timely, valid and consistent. The main challenge reported was that data to support all of the NADS indicators is not easily retrievable from a single, central database. To complete NADS templates, the RCMP relied on data extractions from its PROS/PRIME systems. However, the RCMP's records management systems were designed to capture information in support of police operations and not the performance indicators identified for NADS reporting. To retrieve additional information, RCMP staff from the 14 Divisions across Canada gathered data manually via various tools and spreadsheets.

When specifically reviewing the data gathered to support drug seizure reporting, there were challenges noted concerning how the RCMP was retrieving PROS/PRIME occurrence information and the interpretation of results. For example, a key challenge in reporting on the types of drugs seized is the reliance on using the PROS/PRIME data as the drug classification information entered is speculative on the part of the officer. A more reliable data source may be Health Canada who is responsible for testing and confirming the type of drugs seized in cases that lead to charges being laid. Similarly, studies completed in 2014-15 and 2015-16 by Federal Policing's Situational Awareness Support Unit concerning the RCMP's drug seizures revealed a number of discrepancies in how the number, quantity and value of drug seizures were reported. The studies corrected the reported information for those years; however, an ongoing exercise may be necessary to ensure systems data is validated moving forward.

When reviewing prevention related reporting, evaluators also noted inconsistencies. For example, information on outreach activities varied from the number of presentations given to the number of attendees, to the number of trainers trained. Furthermore, information covered some Divisions but not all, making it impossible to aggregate the actual reach of the RCMP's awareness raising activities across Canada. Moreover, the utility of some of the indicators in the reporting templates were questioned. For example, data on 'the number of awareness presentations' does not, as indicated by one of the key informants, serve as an indicator of the quality or impact of the programs. Captured in isolation, the information does not serve to determine whether and which activities are making a difference in communities. By way of example, in 2012-13, the RCMP gave 3,461 awareness presentations reaching 37,667 youths, 27,686 parents, and 8,612 professionals.^{Bibliography 7} These numbers, if consistently reported year-to-year, could provide an indication of the reach of prevention activities.

Finally, when asked whether NADS reporting could be made more effective and/or efficient, interviewees directly involved in NADS suggested that the templates be revised, indicators made generic, and reduced to focus primarily on RCMP data that can be retrieved from electronic systems.

2.3 Achievement of NADS Intended Outcomes

2.3.1 Prevention Action Plan Results

The intermediate NADS outcome for which the RCMP contributes to for prevention purposes is to enhance capacity among targeted populations to make informed decisions about illicit drug use and PDA to reduce risk-taking behaviours. Through the RCMP's FPPE and the National Aboriginal Policing and Crime Prevention Services Directorate, Federal Policing Services and CAP Services respectively provided community outreach programming to increase awareness, enhance public safety and reduce victimization of Canadians. This was achieved by mobilizing the public in addressing concerns and developing mutual goals. In collaboration with other government partners, the RCMP participated in workshops and discussions on controlled drugs and substances and produced training tools and products relevant to the role of police officers.

Community Outreach for Prevention Purposes

Federal Policing, CAP, and RCMP Divisions developed educational materials intended to increase knowledge about drugs and organized crime as well as raise awareness about the negative impacts of illicit drugs. While interventions were especially aimed at youth, the RCMP also engaged adult leaders and mentors. For example, in 2014-15, the RCMP trained, presented to, or engaged with 5,000 public safety, health care, educational institution employees, non-governmental organizations, and community-based resource people. In addition, the RCMP created the Centre for Youth Crime Prevention as an online hub for youth, educators and police to access crime prevention and victimization tools and resources, including on drugs and substance abuse.^{Bibliography 8}

Given the importance of community-relevant prevention programming, each RCMP Division is encouraged to develop outreach activities and materials that make sense for their jurisdiction. Outreach materials were adapted to community needs and to provide up-to-date drug information as the drug market changed. In addition to materials disseminated, as of 2014-15, there were 14 formal programs that Divisions could use/tailor for their outreach needs. These included the following: Aboriginal Shield, Drug Abuse Resistance Education - DARE, Drugs & Sports, Drug Awareness Officers Training, Drug Endangered Children, Drugs in the Workplace, Kids & Drugs, Racing Against Drugs, Prescription drug abuse-related initiatives, Synthetic Drug Initiative, Community Prevention Education Continuum, a mobile application for drugs and organized crime awareness, organized crime presentations, and counter-gang programs.^{Bibliography 9} Some programs and awareness activities have built-in performance metrics such a pre and post surveys of knowledge.

Community Outreach for Enforcement Purposes

From 2011-12 to 2014-15, Federal Policing engaged in numerous public outreach activities related to Enforcement. The purpose of these efforts was to exchange information, engage in joint efforts, and to identify areas of common concern and jurisdiction. An example is the Synthetic Drug Initiative which brought together partners from public and private sectors to tackle activities related to the importation, exportation, production and distribution of illicit substances of abuse.

The RCMP also facilitated the creation of a new body called the National Council against Marihuana Grow Operations and Clandestine Laboratories that held its first meeting in November 2012. The coalition of community, industry, and government groups share best practices on increasing public awareness about the societal hazards of marihuana grow operations (MGOs) and clandestine drug laboratories, and advocate for a national approach aimed at helping prevent, detect, and deter such criminal acts.

Additionally, a public website that identifies which residences have been subject to a judicial search warrant in relationship to an MGO was developed in 2011. Although no longer active, in its first year, the website received more than 400,000 visits and was referenced by more than 300 separate sources.

2.3.2 Treatment Action Plan Results

As previously noted, the RCMP's involvement in the Treatment Action Plan ended in fiscal year 2011-12. In keeping with the scope of this evaluation, evaluators looked at results achieved in fiscal year 2011-12 by the RCMP's NYIDP. The key objective of this program was to reduce crime and incarceration rates for youth by getting the right youth to the right services at the right time. The rationale for RCMP involvement in this area was based on research that "strict sanctions have little to no effect on young offender recidivism rates and in some cases actually increase recidivism." The model seeks to make full use of community resources to address the underlying causes of crime. It seeks to ensure the strategic use of resources by referring moderate-risk youth to community services so that only high-risk youth are sent into the correctional system.^{Bibliography 10}

In its final year of funding, the RCMP developed and started implementing a screening tool for police officers to be able to assess youth's level of criminality and risk to the community, and began working with provincial and community partners to develop community mobilization protocols to improve interventions with youth. Community mobilization committees were developed to provide opportunities for RCMP employees to become familiar with community programs available to accept referrals, and facilitate the identification and referral of at-risk youth to treatment programs. Specifically, after an RCMP employee completes the risk screening tool to determine whether an at-risk youth would likely benefit from being diverted away from the criminal justice system, with the permission of the guardians, the youth's file is brought to the attention of the community committee. Committee members, typically made up of provincial and local service providers, will then present all potential services and discuss the best possible options for the youth. Official referrals are then made and the RCMP employee would informally follow-up with the youth.

2.3.3 Enforcement Action Plan Results

Training

One of the key inputs into the RCMP's enforcement activities was developing highly-trained RMs. RMs occupying illicit drug enforcement positions need an intrinsic understanding of organized crime in order to move investigations forward, as well as an understanding of chemistry and how to safely enter and dismantle ad hoc clandestine labs. As a result, extensive training is necessary to ensure the integrity of investigations, the health and safety of RMs, and the overall sustainability of the RCMP's illicit drug response capability. As such, anyone who occupies a position on a synthetic team must be trained. Specifically, the Ontario Police College and the Canadian Police College (CPC) offer eleven related courses such as Drug Identification training and Advanced Drug Investigative Techniques.

Similarly, to assess drug-impaired driving, the RCMP provides and certifies DREs. The RCMP also worked closely with the CPC to design training on the risks associated to exposure, handling and hazards associated with chemicals and grow op installations. News alerts and internal webpages were also disseminated to RCMP officers to keep them updated on emerging drugs, such as fentanyl, while providing guidance for safe interventions.

Drug seizures

Information obtained from the Situational Awareness Support Unit indicates that the RCMP's drug-related seizures increased from 2014-15 from 35,178 to 37,194 with cannabis, cocaine, methamphetamine, and anabolic steroids remaining the most frequent types of drugs seized. The estimated street value of seizures also increased from 2014-15 from $152 million to $154 million. Drugs were seized most frequently in Montreal, Toronto, and Hamilton. The Evaluation team did not seek to assess the accuracy and validity of the data provided.

It was noted in annual NADS reporting that partnerships, including federal and municipal partnerships, were a key factor that supported the RCMP's ability to engage in enforcement activities. Specifically, the RCMP worked with municipalities where threats were identified, as well as through the Canadian Integrated Response to Organized Crime, a joint initiative of the Canadian Association of Chiefs of Police and the Criminal Intelligence Service Canada, aimed at developing operational coordination between local, municipal, and federal enforcement agencies.^{Bibliography 11}

Each year the RCMP seeks to measure the number of joint forces operations that it engages in by fiscal year. The RCMP's involvement ranged from 18 to 32 joint forces operations per fiscal year during the reference period. For example, the RCMP worked with the Canada Revenue Agency to leverage revenue strategies to prosecute those involved in drug operations such as tax evasion. The RCMP worked jointly with Canada Border Services Agency (CBSA) to target precursors arriving at tactical points of entry into Canada (Project Catalyst). From 2012-14, in the response to crime groups exploiting the Marihuana Medical Access Regulations, the RCMP supported Health Canada in the drafting of amendments to the Marihuana Medical Access Regulations.^{End note d}

Investigation of major organized crime groups supported by partnerships

Developing the RCMP's intelligence capacity to support enforcement activities was a focus during the time under review. For instance, many of the discovered MGOs were a result of proactive intelligence gathering. Similarly, the RCMP focused on developing its connections with community organizations and the private sector in order to support intelligence gathering activities related to synthetic drugs (e.g., Canadian Association of Chemical Distributors, Canadian Fertilizer Institute, and Chemistry Industry Association of Canada). For instance, an initiative titled Chem Watch was implemented to sensitize the industry on the issues at hand and engage these players in addressing the problems linked to the diversion and the use of their chemicals in the illicit production of synthetic drugs. As a result of these types of engagements, industry partners provided intelligence that supported seizures. In addition, the RCMP established an "alert-bulletin" system for a series of unregulated essential chemicals that has been sought after by organized crime for the production of synthetic drugs. This resulted in many tips which allowed investigators to establish new investigations.

Interception and disruption of major international drug trade investigations

From 2011-15, the RCMP leveraged partnerships with various international organizations (e.g., the G8, United Nations Office on Drugs and Crime, Organization of American States) and individual countries (e.g., India and China) in order to circumvent the illegal diversion of chemicals from those countries into Canada.

The RCMP's International Liaison Officers provided direct assistance and support by working with counterparts in the countries within their areas of responsibility to advance police operations, support intelligence gathering and the sharing of best practices. Furthermore, as a means of fostering relations and encouraging information sharing, the RCMP invested in building capacity in source countries, focusing on synthetic drug operations and chemical diversion programming. The RCMP also welcomed international delegations to Canada to share procedures and investigative methods when dealing with MGOs (e.g., European Union Seminars on Cannabis and Organized Crime in 2011-12). Additionally, RMs engaged with international chemical companies with the goal of developing a mechanism for "real-time" information exchanges on precursor chemical shipments destined for Canada. Finally, the RCMP worked with international partners to support enforcement activities in Canada. For the last several years, the RCMP has participated in INTERPOL's Operation Pangea, which targets online counterfeit and unlicensed medicines. In 2013-14, Operation Pangea VI spanned 100 countries and resulted in the seizure of counterfeit and illicit drugs, with an estimated street value of $36 million USD.^{Bibliography 12}

Drug Recognition Expert Program

Each year, CAP receives NADS funding to support its National Traffic Services to specifically contribute to the RCMP's national strategy to reduce the number of impaired drivers on Canadian roadways.^{Bibliography 13} The strategy focuses on increasing public awareness and organizing enforcement initiatives across Divisions, with special attention paid to the growing concern of drug-impaired driving. During the reference period, the program had 471 DREs across Canada. In 2015 there were 1,889 operational DRE evaluations. Of these 1,889 evaluations there were 1,615 cases that were pursued by DRE investigators for charges and provincial administrative sanctions. Over the time of the evaluation review, the RCMP worked closely with Justice to explore new tools to facilitate the detection and identification of drug-impaired drivers and RCMP continued to update its courses for the DRE program.^{Bibliography 14}

2.4 NADS Knowledge Exchange Strategy

The NADS KES was born out of the findings and recommendations of the 2012 NADS Evaluation. The 2012 evaluation identified challenges in disseminating knowledge, best practices, and research findings to potential users, and recommended that a mechanism for disseminating knowledge between federal partners be established to ensure that the results and information developed from the federal investment are accessible and used by stakeholders and other government departments. Since KES was developed, RCMP representatives have attended three meetings, the most recent being in November 2015.

Interviewees expressed general concern that the challenge in harnessing NADS' KES is the diversity of roles and responsibilities of the 13 partners involved. Instead, interviewees found knowledge exchange through targeted partnerships to be of more value. The RCMP contributed to KES goals through working partnerships with policing agencies, enforcement-relevant partners such as CBSA, academic institutions, non-governmental organizations, and community groups. The RCMP also worked to circulate information more broadly through NADS-related web-content to partners and share educational and awareness materials across Canada as well as with international partners in the United States, United Kingdom, North Africa, the Caribbean, Mexico, Taiwan, and Hong Kong.

2.5 RCMP NADS Funding

Broadly, the RCMP receives on-going funding for its drug-related prevention and enforcement activities from three funding sources: the 2003 CDS, the 2007 Enforcement Action Plan of the National Anti-Drug Strategy, and the 2007 Investments in the Prevention and Treatment Action Plans of the National Anti-Drug Strategy which ended in FY 2011-12.

The RCMP received a total of $3.6 million over five years (2007-08 to 2011-12) from the Treatment Action Plans in order to support CAP's efforts to "enhance the ability of RCMP officers to refer youth with substance abuse problems into assessment and treatment as well as to assist their reintegration into the community." No ongoing funding was allocated for treatment to the RCMP after 2012.

In accordance with the NADS funding commitments, the RCMP planned spending was $25.4 million in annual ongoing funding for public engagement and enforcement activities from 2012-13 to 2014-15; however, this amount decreased to $21.7 million (including $2.8 M for PWGSC) in 2015-16 due to cost containment and efficiency exercises.^{Bibliography 15}

Table 2 below provides actual spending for RCMP NADS activities from 2011-12 to 2015-16. A comparison of spending to planned spending results in a variance of up to $9.0M in a given year. Explanations provided for the variances included funding re-allocation based on re-prioritization, budget pressures and the Deficit Reduction Program.

3.0 Conclusion

Addressing crime associated with illicit drugs is within the mandate and roles and responsibilities of the RCMP. As such, key interviewees emphasized the continued need for the RCMP to work under the NADS framework.

The RCMP collects data and information on drug enforcement and prevention activities, not only to support police operations, but also to address external needs. To support these internal and external reporting needs, the RCMP continues to focus on improving the consistency and accuracy of its data.

The RCMP contributed to the NADS outcomes under all three Action Plans. Under the Prevention Action Plan, the RCMP contributed to knowledge products, resources, and tools to inform, support, and deliver outreach aimed at preventing illicit drug use. Nevertheless, the evaluation revealed that prevention activities, delivered by CAP and Federal Policing, would benefit from improved coordination. Although involvement ended in fiscal year 2011-12, the RCMP contributed to the Treatment Action Plan via the NYIDP. Finally, under the Enforcement Action Plan, the RCMP engaged in numerous activities related to training, drug seizures, investigations of major organized crime groups, the interception and disruption of major international drug trade activities, and the enforcement of impaired drivers.

4.0 End notes and bibliography

Évaluation horizontale de la Stratégie nationale antidrogue

Composant de la GRC

le 15 mars 2018

Table des matières

1. 1.0 Contexte
   • 1.1 Description du programme
   • 1.2 But et portée de l'évaluation
   • 1.3 Méthodologie et démarche
2. 2.0 Constatations
   • 2.1 Pertinence
   • 2.2 Suivi et rapports
   • 2.3 Production des résultats attendus de la SNA
   • 2.4 Stratégie d'échange des connaissances établie relativement à la SNA
   • 2.5 Financement accordé à la GRC au titre de la SNA
3. 3.0 Conclusion
4. 4.0 Notes et bibliographie

Acronyms and abbreviations

ASFC

Agence des services frontaliers du Canada

CCP

Collège canadien de police

ERD

Expert en reconnaissance de drogues

GRC

Gendarmerie royale du Canada

MCPF

Mobilisation des communautés de la Police fédérale

AMO

Abus de médicaments d'ordonnance

SEC

Stratégie d'échange des connaissances

PNIDJ

Programme national d'intervention et de déjudiciarisation à l'intention des jeunes

PRIME

Environnement de gestion de l'information sur les dossiers de police (système)

SCA

Stratégie canadienne antidrogue

SIRP

Système d'incidents et de rapports de police

SNA

Stratégie nationale antidrogue

SPCA

Services de police contractuels et autochtones

1.0 Contexte

La Stratégie canadienne antidrogue (SCA) a été lancée en 1987 pour combattre la consommation et l'abus de substances grâce à des activités coordonnées relevant de divers ministères et organismes tant gouvernementaux que non gouvernementaux. La stratégie comportait quatre volets fondamentaux : la prévention, le traitement, l'application de la loi et la réduction des méfaits. Elle a été renouvelée en 1992, 1997 et 2003. En 2007, le gouvernement du Canada a annoncé l'attribution de nouvelles ressources et la réorientation d'initiatives et de programmes existants pour créer une nouvelle Stratégie nationale antidrogue (SNA). Cette nouvelle stratégie englobe des programmes fédéraux essentiels mis en œuvre dans le cadre de la SCA ainsi que de nouvelles initiatives à l'appui des mesures de prévention, de traitement et d'application de la loi. Le gouvernement du Canada a élargi la portée de la SNA dans la foulée du discours du Trône de 2013 afin d'y intégrer des mesures de lutte contre l'abus de médicaments d'ordonnance (AMO). À la suite de l'évaluation de l'incidence de la SNA effectuée en 2012, la Stratégie a été modifiée pour y incorporer une stratégie d'échange des connaissances des connaissances (SEC) afin de s'assurer que les intervenants concernés et les autres ministères gouvernementaux soient en mesure de consulter et d'utiliser l'information et les résultats générés grâce aux investissements fédéraux.

La SNA est une initiative horizontale qui regroupe 13 ministères fédéraux et organismes partenaires sous la direction du ministère de la Justice Canada. Les activités qui en relèvent s'inscrivent dans trois grands plans d'action portant sur la prévention, le traitement et l'application de la loi.^{Footnote aFootnote 1}

1.1 Description du programme

Entre 2011-2012 et 2015-2016, la Gendarmerie royale du Canada (GRC) a reçu environ 128.4 millions de dollars à l'appui de sa contribution aux activités prévues dans les plans d'action sur la prévention, le traitement et l'application de la loi. La conduite des initiatives liées à ces plans incombait principalement à deux secteurs d'activité de l'organisation, soit la Police fédérale et les Services de police contractuels et autochtones (SPCA).^{Footnote b}

1.1.1 Police fédérale

La majeure partie du financement accordé à la GRC au titre de la SNA a été attribuée à la Police fédérale afin d'appuyer l'exécution des plans d'action sur la prévention et l'application de la loi. Dans le cadre du plan d'action sur la prévention, la Police fédérale soutient diverses initiatives mises en œuvre à l'échelle du pays dans le but de sensibiliser le public à la nature, à l'étendue et aux conséquences liées à la consommation et l'abus de substances.^{Footnote 2}Dans le cadre du plan d'action sur l'application de la loi, le financement lié à la SNA contribue à augmenter la capacité de la GRC à cibler de façon proactive les éléments du crime organisé qui participent à la production et à la distribution de drogues illicites.^{Footnote 3}

En 2012, au moment de la dernière évaluation de la SNA, les groupes de sensibilisation aux drogues et de lutte antidrogue de la GRC menaient des activités liées à la prévention et à l'application de la loi, alors que la responsabilité des initiatives de prévention de la GRC dans le cadre de la SNA incombait principalement au Service de sensibilisation aux drogues et au crime organisé. En 2013-2014, la Police fédérale a fait l'objet d'une restructuration organisationnelle qui visait notamment à repenser la façon de déployer les ressources. Selon le nouveau modèle de la police fédérale, l'affectation des ressources d'enquête est désormais faite en fonction des enjeux qui menacent le plus la sécurité des Canadiens (par exemple, l'implication de réseaux du crime organisé dans le trafic de drogues illicites). La Police fédérale a également créé un service spécialisé dans la collaboration avec le public, soit la Mobilisation des communautés de la Police fédérale (MCPF).

1.1.2 Services de police contractuels et autochtones

Les SPCA fournissent les programmes de soutien aux services de police contractuels. Ces services de la GRC sont offerts dans trois territoires, huit provinces (exception faite de l'Ontario et du Québec), et dans plus de 190 municipalités, 184 collectivités autochtones et trois aéroports internationaux. Dans le cadre du plan d'action de la SNA sur le traitement, les SPCA étaient responsables du Programme national d'intervention et de déjudiciarisation à l'intention des jeunes (PNIDJ). Ce programme prévoyait des outils et de la formation pour aider les employés de première ligne de la GRC à explorer des solutions autres que l'inculpation des jeunes contrevenants et à aiguiller les adolescents à risque vers des programmes communautaires et de traitement. Le financement attribué à cette composante du plan d'action sur le traitement a pris fin en mars 2012.

De plus, les Services nationaux de la circulation des SPCA ont procédé à la mise en œuvre et assumé la gestion du programme des Expert en reconnaissance de drogues (ERD), qui forme les policiers à repérer les personnes ayant les facultés affaiblies par une drogue, particulièrement au volant.

1.2 But et portée de l'évaluation

L'évaluation 2016 de la SNA réalisée sous la direction de Justice Canada porte sur l'efficacité des activités provisionnées qu'ont menées les 13 ministères et organismes impliqués de 2011-2012 à 2015-2016. Conformément à leurs protocoles internes relatifs aux missions d'évaluation horizontales, les Services nationaux d'évaluation des programmes de la GRC devaient assurer la collecte et l'analyse de toute l'information détenue par la GRC à ce sujet. Les résultats des travaux effectués en ce sens sont exposés dans le présent rapport, qui constitue la contribution de la GRC à l'évaluation globale de la SNA.

1.3 Méthodologie et démarche

La méthodologie d'évaluation applicable aux composantes de la SNA qui étaient confiées à la GRC a été élaborée en conformité avec la stratégie de mesure du rendement établie pour la SNA en 2015 et avec les instruments de collecte de données fournis par Justice Canada en vue de l'évaluation 2016 de la SNA. La collecte de données et les recherches ont été effectuées conformément à la Politique sur l'évaluation de 2009 du Secrétariat du Conseil du Trésor, à la Directive sur la fonction d'évaluation et aux Normes d'évaluation pour le gouvernement du Canada, et le rapport d'évaluation a été rédigé conformément aux exigences de la Politique sur les résultats de 2016. Outre l'examen de documents internes et externes, les évaluateurs ont mené des entrevues semi-dirigées auprès de huit employés de la GRC qui participaient de façon directe à des activités nationales provisionnées au titre de la SNA ainsi que trois consultations auprès de représentants des services généraux qui participaient de façon directe au soutien d'activités s'inscrivant dans la SNA.

2.0 Constatations

2.1 Pertinence

La SNA a pour objectif général de contribuer « à l'amélioration de la sécurité et de la santé des collectivités en aidant à prévenir la consommation de drogues illicites, à traiter la dépendance à celles-ci et à réduire la production et la distribution de ces drogues ainsi qu'en luttant contre l'AMO^{Footnote 4}». L'examen de documents clés a permis de constater la pertinence de la SNA par rapport au mandat et aux priorités stratégiques de la GRC. La répression des crimes liés aux drogues illicites s'inscrit dans le mandat de la GRC ainsi que dans ses rôles et responsabilités, particulièrement aux chapitres de la prévention du crime, de la conduite d'enquêtes pénales, de l'exécution des lois et de la prestation de services de soutien opérationnel cruciaux à d'autres services de police et organismes d'application de la loi au Canada et à l'étranger.^{Footnote 5} La SNA est également en harmonie avec les priorités stratégiques de la GRC que sont « les crimes graves et le crime organisé » et « la jeunesse » (la réalisation de cette deuxième priorité étant axée sur la sensibilisation, la mobilisation, l'intervention et la déjudiciarisation).^{Footnote 6}Six des sept personnes interrogées au sujet de l'utilité de poursuivre les travaux de la GRC dans le cadre de la SNA ont reconnu la nécessité de ce faire. Quatre ont mentionné le besoin de continuer à travailler et à rendre des comptes de façon concertée dans le cadre de la SNA et trois ont fait valoir l'importance du financement officiel accordé pour celle-ci.

Ces opinions trouvent appui dans les orientations établies par la direction : la lettre envoyée aux commandants divisionnaires au sujet du budget annuel de la Police fédérale pour 2016-2017 souligne que les initiatives horizontales, dont la SNA, « […] demeurent importantes à la Police fédérale. La Police fédérale demeure responsable de l'obtention de résultats et de la reddition de comptes à cet égard […] ».

2.2 Suivi et rapports

Le personnel de la GRC consigne les infractions liées aux drogues dans deux systèmes de gestion des dossiers, à savoir le système PRIME en Colombie-Britannique et le Système d'incidents et de rapports de police (SIRP) ailleurs au Canada. Ces systèmes intègrent toute la portée des processus de la GRC qui touchent à la collecte, à la gestion, à l'échange et à l'analyse des renseignements policiers opérationnels. Bien que les données et les informations de la GRC soient recueillies dans le but premier d'appuyer les opérations policières, elles revêtent aussi un intérêt particulier pour d'autres ministères gouvernementaux et pour des organismes étrangers. La GRC est donc appelée à produire des rapports spéciaux sur ses activités de prévention et de répression liées aux drogues pour répondre aux besoins de destinataires externes; par exemple, elle prépare chaque année un compte rendu de sa contribution à la SNA pour le ministère de la Justice, qui publie à son tour un rapport annuel faisant état du rendement collectif des 13 partenaires de la SNA^{Footnote c}.

2.2.1 Difficultés liées à la production de rapports

Pour faciliter la production de rapports publics sur les activités menées dans le cadre de la SNA et sur les résultats en découlant, les partenaires fédéraux ont élaboré une stratégie de mesure du rendement lié à la SNA. La GRC a participé activement à cette démarche, mais après la mise en œuvre de la stratégie de mesure du rendement, il est devenu évident que la collecte de données en fonction des indicateurs établis nécessitait beaucoup de travail. Chaque année, la GRC devait remplir six modèles de rapport distincts à l'égard de la SNA, c'est-à-dire un tableau d'indicateurs de rendement et un modèle de rapport de fin d'année pour chacun des trois plans d'action. Le ministère de la Justice faisait ensuite la synthèse des modèles fournis par les partenaires pour produire le rapport annuel sur la SNA.

Les consultations au sujet des activités de rapport visant la SNA ont révélé plusieurs difficultés quant au travail nécessaire pour veiller à ce que l'information fournie dans les modèles de rapport remplis par la GRC soit à jour, valide et cohérente. La plus grande difficulté qui a été signalée tient au fait que les données relatives aux différents indicateurs établis pour la SNA ne peuvent pas facilement être extraites d'un système centralisé. Pour remplir les modèles de rapport sur la SNA, la GRC se fie aux données tirées de PRIME et du SIRP; or, ces systèmes sont conçus pour saisir les données requises à l'appui des opérations policières et non celles qui correspondent aux indicateurs de rendement établis à l'égard de la SNA. L'extraction des données supplémentaires requises doit être effectuée manuellement par des employés dans les 14 divisions de la GRC, à l'aide de divers outils et tableurs.

L'examen des données recueillies pour appuyer les rapports sur les saisies de drogue a révélé des problèmes attribuables au fait que la GRC utilise le SIRP et le système PRIME pour extraire et interpréter les données sur les incidents. Cette façon de procéder peut notamment fausser les rapports sur les types de drogues saisies, puisque les classifications entrées par les policiers relativement aux drogues ne constituent que des hypothèses. Des données recueillies auprès de Santé Canada pourraient être plus fiables, puisqu'il est le ministère chargé de tester et d'identifier les drogues saisies dans les affaires menant au dépôt d'accusations. Des études réalisées par le Groupe de soutien en matière de connaissance de la situation de la Police fédérale en 2014-2015 et en 2015-2016 au sujet des saisies de drogue effectuées par la GRC ont aussi révélé plusieurs irrégularités dans la déclaration du nombre de saisies effectuées, de la valeur de celles-ci et des quantités de drogue en cause. Ces études ont permis de corriger l'information déclarée pour les exercices visés, mais il peut être nécessaire d'assurer une forme de vérification permanente pour valider les données contenues dans les systèmes.

Lorsqu'ils ont examiné les rapports relatifs aux activités de prévention, les évaluateurs ont relevé d'autres incohérences. Par exemple, les données sur les activités de sensibilisation portaient tantôt sur le nombre d'exposés présentés, tantôt sur le nombre de personnes qui y avaient assisté et tantôt sur le nombre d'animateurs formés. De plus, comme ces données n'avaient pas été recueillies pour toutes les divisions, il était impossible de déterminer la portée réelle des activités de sensibilisation de la GRC à l'échelle du pays. L'utilité de certains indicateurs inclus dans les modèles de rapport a également été remise en question. En effet, comme l'a souligné une des personnes interrogées, le nombre d'exposés de sensibilisation présentés ne donne aucune indication de la qualité ou de l'incidence des activités. Les données saisies uniquement de façon ponctuelle ne sont pas très parlantes, elles non plus, car elles ne permettent pas de déterminer si les activités visées changent quelque chose dans les communautés, ni de voir lesquelles donnent ce résultat. À titre d'exemple, la GRC a présenté 3 461 exposés de sensibilisation à 37 667 jeunes, 27 686 parents et 8 612 professionnels en 2012-2013.^{Footnote 7}; si ces données étaient fournies de manière systématique chaque année, elles pourraient donner une indication de la portée des activités de prévention.

Lorsque les évaluateurs ont demandé s'il y aurait moyen d'accroître l'efficacité des activités de rapport relatives à la SNA, les personnes interviewées qui jouent un rôle direct à l'appui de la SNA ont recommandé que les modèles de rapport soient revus, que des indicateurs génériques soient établis et que la collecte soit ramenée principalement aux données de la GRC qui peuvent être extraites de systèmes électroniques.

2.3 Production des résultats attendus de la SNA

2.3.1 Résultats du plan d'action sur la prévention

En matière de prévention, l'objectif à moyen terme auquel la GRC contribue est d'améliorer la capacité des groupes ciblés à prendre des décisions éclairées sur la consommation de drogues illicites et l'AMO afin de réduire les comportements à risque liés à ces pratiques. Grâce à son équipe de la MCPF et à sa Direction générale des Services nationaux de police autochtones et de la prévention du crime, les Services de Police fédérale et les SPCA ont fourni respectivement des programmes de sensibilisation communautaires pour accroître la sensibilisation, améliorer la sécurité publique et réduire le nombre de victimes parmi la population canadienne. Ces programmes ont permis de nouer un dialogue avec le public pour donner suite à aux préoccupations exprimées et pour mettre en place des buts communs. De plus, en collaboration avec d'autres partenaires gouvernementaux, la GRC a participé à des ateliers et à des discussions sur les drogues et autres substances réglementées et a mis au point des outils et des produits de formation axés sur le rôle du policier.

Sensibilisation communautaire dans une perspective de prévention

La police fédérale, les SPCA et les divisions de la GRC ont élaboré des outils de formation visant à accroître les connaissances sur les drogues et le crime organisé ainsi qu'à sensibiliser le public aux méfaits des drogues illicites. La GRC ciblait particulièrement les jeunes dans ses interventions, mais elle a également réussi à joindre des leaders et des mentors adultes. Par exemple, en 2014-2015, elle est entrée en contact (au moyen de formations, d'exposés et d'échanges) avec 5 000 personnes œuvrant dans les milieux de la sécurité publique, des soins de santé, de l'enseignement, des organismes non gouvernementaux et des ressources communautaires. De plus, la GRC a créé le Centre de prévention du crime chez les jeunes, un centre d'information en ligne pour les jeunes, les éducateurs et les agents de police leur permettant d'accéder aux outils et ressources de prévention du crime et de victimisation, y compris le contenu des drogues et la toxicomanie.^{Footnote 8}

Vu l'importance des programmes de prévention axés sur la collectivité, chaque division de la GRC est encouragée à concevoir des activités et des outils de sensibilisation qui seront utiles sur son territoire. Les outils de sensibilisation ont été adaptés aux besoins des collectivités et de façon à fournir des renseignements à jour sur les drogues en fonction de l'évolution du marché. En plus de ces outils, dès 2014-2015, les divisions avaient accès à 14 programmes officiels qu'elles pouvaient utiliser ou adapter selon leurs besoins en matière de sensibilisation. Ces programmes incluaient : le programme Bouclier autochtone, le Programme de sensibilisation aux dangers de la drogue (DARE), le programme « La drogue et le sport », la Formation des agents de sensibilisation aux drogues, le programme Enfants menacés par la drogue, le programme Drogues en milieu de travail, le programme « Les enfants et la drogue », le programme « La course contre la drogue », les initiatives liées à l'AMO, l'Initiative visant les drogues synthétiques, le Continuum d'éducation des communautés en matière de prévention, une application mobile de sensibilisation aux drogues et au crime organisé, des exposés sur le crime organisé et des programmes antigang.^{Footnote 9}Certains programmes et activités de sensibilisation comportent des mesures de rendement intégrées, telles que des contrôles préalables et postérieurs des connaissances.

Sensibilisation communautaire dans une perspective d'application de la

De 2011-2012 à 2014-2015, la Police fédérale a participé à diverses activités de sensibilisation s'inscrivant dans le plan d'action sur l'application de la loi. L'objectif de ces activités était d'échanger des informations, de participer à des interventions concertées et de relever des domaines de compétence et d'intérêt communs. L'une d'entre elles, l'Initiative visant les drogues synthétiques, a réuni des partenaires des secteurs public et privé pour combattre les activités liées à l'importation, à l'exportation, à la production et à la distribution de substances illicites.

La GRC a aussi appuyé la création du Conseil national de la lutte contre les cultures de marihuana et les laboratoires clandestins. Ce nouvel organisme, qui a tenu sa première réunion en novembre 2012, rassemble des groupes communautaires, gouvernementaux et de l'industrie afin qu'ils échangent des pratiques exemplaires pour sensibiliser le public aux dangers sociaux liés aux cultures de marihuana et aux laboratoires clandestins, et qu'ils proposent une approche nationale pour aider à prévenir, à déceler et à décourager ces activités criminelles.

À cela s'ajoute la mise en ligne, en 2011, d'un site Web public fournissant la liste des résidences visées par un mandat de perquisition relatif à une culture de marihuana. Ce site n'existe plus, mais durant la première année suivant son lancement, il a été consulté plus de 400 000 fois et mentionné dans plus de 300 sources distinctes.

2.3.2 Résultats du plan d'action sur le traitement

Comme il a été mentionné précédemment, la participation de la GRC au plan d'action sur le traitement a pris fin en 2011-2012. S'en tenant aux limites établies quant à la portée de la présente évaluation, les évaluateurs se sont penchés sur les résultats du PNIDJ de la GRC pendant cet exercice financier seulement. Ce programme visait principalement à réduire les taux de criminalité et d'incarcération chez les jeunes en les aiguillant vers les bons services au moment opportun, selon leurs besoins particuliers. Sa création par la GRC se fondait sur des recherches ayant démontré que les sanctions sévères n'ont aucune incidence ou presque sur le taux de récidivisme chez les jeunes et que, dans certaines situations, elles ont même pour effet d'augmenter le risque de récidive. Le modèle du PNIDJ vise à tirer pleinement profit des ressources communautaires pour agir sur les causes sous-jacentes de la criminalité. Il assure l'utilisation stratégique des ressources en dirigeant les jeunes qui présentent un risque moyen vers les services communautaires, de sorte que seuls les jeunes à risque élevé se retrouvent dans le milieu correctionnel.^{Footnote 10}

Au cours de la dernière année du financement du programme, la GRC a élaboré et a commencé à mettre en œuvre un outil pour aider les policiers à évaluer le degré d'implication des jeunes dans la criminalité et le niveau de risque qu'ils présentaient pour la communauté, et a fait équipe avec des partenaires provinciaux et communautaires afin d'établir des protocoles de mobilisation communautaire qui permettraient d'améliorer les interventions auprès des jeunes. Des comités de mobilisation communautaire ont été mis sur pied afin de renseigner les employés de la GRC sur les programmes communautaires pouvant recevoir des aiguillages, ainsi que pour repérer les jeunes à risque et les diriger vers des ressources de traitement. Lorsqu'un employé de la GRC a rempli l'outil d'évaluation des risques pour déterminer s'il serait avantageux de proposer des mesures de déjudiciarisation à un jeune, le dossier de celui-ci est présenté au comité communautaire si ses tuteurs y consentent. Le comité, qui regroupe généralement des fournisseurs de services provinciaux et locaux, présente alors tous les services auxquels le jeune pourrait avoir accès et discute des solutions qui lui conviendraient le mieux. Il fait ensuite les aiguillages officiels, et l'employé de la GRC effectue un suivi informel auprès du jeune.

2.3.3 Résultats du plan d'action sur l'application de la loi

Formation

Le développement de compétences spécialisées chez les membres réguliers est l'un des aspects les plus importants des activités de la GRC à l'appui du plan d'action sur l'application de la loi. Les membres réguliers qui occupent des postes dans le domaine de la lutte antidrogue doivent bien comprendre le crime organisé pour faire avancer leurs enquêtes; ils doivent aussi posséder des connaissances en chimie et savoir comment entrer dans un laboratoire clandestin et le démanteler en toute sécurité. Une formation poussée s'impose donc pour assurer l'intégrité des enquêtes, la santé et la sécurité des membres réguliers ainsi que le maintien des capacités d'intervention antidrogue de la GRC. Toute personne occupant un poste au sein d'une équipe de lutte contre les drogues synthétiques doit par conséquent suivre une formation spécialisée. Le Collège de police de l'Ontario et le Collège canadien de police (CCP) offrent onze cours dans ce domaine, notamment sur l'identification des drogues et sur les techniques d'enquête antidrogue avancées.

Dans le même ordre d'idées, la GRC offre une formation de certification en reconnaissance de drogues pour l'évaluation des conducteurs soupçonnés d'avoir les facultés affaiblies. Elle a par ailleurs collaboré étroitement avec le CCP afin de concevoir une formation sur les risques associés aux produits chimiques et aux installations de culture de marihuana. En outre, des bulletins de nouvelles ont été diffusés aux policiers de la GRC et des pages Web internes ont été mises à leur disposition pour les tenir au courant des drogues émergentes comme le fentanyl et pour leur donner des consignes sur la sécurité des interventions.

Saisies de drogue

Selon les données obtenues du Groupe de soutien en matière de connaissance de la situation, le nombre de saisies de drogue effectuées par la GRC a grimpé de 35 178 en 2014 à 37 194 en 2014-2015. Les substances les plus souvent en cause demeuraient le cannabis, la cocaïne, la méthamphétamine et les stéroïdes anabolisants. La valeur de revente approximative des drogues saisies a également augmenté, passant de 152 millions de dollars en 2014 à 154 millions de dollars en 2015. Les saisies ont le plus souvent été effectuées à Montréal, Toronto et Hamilton. L'équipe d'évaluation n'a pas cherché à évaluer l'exactitude et la validité des données fournies.

Il a été souligné dans les rapports annuels sur la SNA que les partenariats, y compris avec des intervenants fédéraux et municipaux, contribuaient de façon essentielle à la capacité de la GRC à mener des activités d'application de la loi. En particulier, la GRC a collaboré avec des municipalités où des menaces avaient été relevées, de même qu'avec la Réponse intégrée canadienne au crime organisé (RICCO), une initiative conjointe de l'Association canadienne des chefs de police et du Service canadien de renseignements criminels, qui vise à accroître la coordination opérationnelle entre les organismes locaux, municipaux et fédéraux d'application de la loi.^{Footnote 11}

Chaque année, la GRC recense les opérations policières conjuguées auxquelles elle a participé. Le nombre de ces opérations a varié de 18 à 32 par exercice au cours de la période de référence. À titre d'exemple, la GRC a collaboré avec l'Agence du revenu du Canada afin d'utiliser des stratégies axées notamment sur la fraude fiscale pour traduire en justice des individus impliqués dans des affaires de drogue. Elle a également fait équipe avec l'Agence des services frontaliers du Canada (ASFC) pour cibler les précurseurs chimiques arrivant à certains postes frontaliers stratégiques (projet Catalyst). Elle a par ailleurs appuyé Santé Canada dans la rédaction de modifications au Règlement sur l'accès à la marihuana à des fins médicales de 2012 à 2014 pour damer le pion aux groupes criminalisés qui en tiraient profit.^{Footnote d}

Partenariats à l'appui d'enquêtes visant d'importants groupes du crime organisé

Au cours de la période visée par l'évaluation, la GRC s'est employée à développer sa capacité de renseignement au soutien de l'application de la loi. Ce sont d'ailleurs des activités proactives de collecte de renseignements qui ont permis de repérer un grand nombre des cultures de marihuana découvertes pendant cette période. La GRC a aussi cherché à renforcer ses liens avec divers organismes communautaires et du secteur privé, notamment l'Association canadienne de distributeurs de produits chimiques, l'Institut canadien des engrais et l'Association canadienne de l'industrie de la chimie, afin de soutenir les activités de collecte de renseignements visant les drogues synthétiques. Par exemple, une initiative baptisée VigiChem a été lancée pour sensibiliser l'industrie aux enjeux actuels et faire participer ses intervenants à la résolution des problèmes liés au détournement et à l'utilisation de produits chimiques en vue de la production illicite de drogues synthétiques. Grâce à des partenariats de ce genre, divers intervenants du secteur privé ont fourni des renseignements qui ont contribué à l'exécution de saisies. La GRC a également mis sur pied un système de bulletins d'alertes sur divers produits chimiques essentiels non réglementés qui sont très recherchés par les organisations criminelles pour la production de drogues synthétiques. Cette mesure a donné lieu à la communication de nombreux renseignements qui ont permis d'ouvrir de nouvelles enquêtes.

Activités d'interception et de perturbation dans le cadre d'importantes enquêtes antidrogue internationales

De 2011-2012 à 2014-2015, la GRC a mis à profit ses partenariats avec divers organismes internationaux (dont le G8, l'Office des Nations Unies contre la drogue et le crime et l'Organisation des États américains) ainsi qu'avec des pays sources (dont l'Inde et la Chine) afin de contrer le détournement illégal de produits chimiques en vue de leur importation au Canada.

Les agents internationaux de liaison de la GRC ont fourni une assistance et un soutien directs en collaborant avec leurs homologues dans les pays où ils sont affectés afin de favoriser la conduite d'opérations policières, la collecte de renseignements et la mise en commun de pratiques exemplaires. De plus, afin de nouer des relations et d'encourager les échanges d'information, la GRC a investi dans le renforcement des capacités dans les pays sources, concentrant notamment ses efforts sur la lutte contre les drogues synthétiques et le détournement de produits chimiques. Elle a également accueilli des délégations étrangères au Canada afin d'échanger sur les procédures et les méthodes d'enquête relatives aux cultures de marihuana (par exemple, dans le cadre de séminaires de l'Union européenne sur le cannabis et le crime organisé en 2011-2012). Des membres réguliers ont par ailleurs pris contact avec des sociétés de produits chimiques à l'étranger afin d'établir un mécanisme d'échange d'information en temps réel sur les envois de précurseurs chimiques destinés au Canada. La GRC a aussi collaboré avec ses partenaires à l'étranger afin de soutenir des activités d'application de la loi au Canada.

Durant les dernières années, elle a participé à l'opération Pangea VI d'INTERPOL, qui ciblait la vente en ligne de médicaments contrefaits et non autorisés. En 2013-2014, cette opération a touché 100 pays et a mené à la saisie de médicaments contrefaits et illégaux dont la valeur de revente approximative s'élevait à 36 millions de dollars US.^{Footnote 12}

Programme des Experts en reconnaissance de drogues

Chaque année, les SPCA reçoivent du financement au titre de la SNA pour soutenir leurs Services nationaux de la circulation, plus précisément la stratégie nationale de la GRC visant à réduire le nombre de conducteurs aux facultés affaiblies sur les routes du Canada.^{Footnote 13}Cette stratégie, axée sur la sensibilisation du public et l'organisation d'initiatives de répression dans toutes les divisions, accorde une attention particulière à la préoccupation grandissante que constitue la conduite avec les facultés affaiblies par la drogue. Au cours de la période de référence, le programme comptait 471 ERD à l'échelle du pays. En 2015, les ERD ont effectué 1 889 évaluations opérationnelles, dont 1 615 ont mené à des démarches en vue du dépôt d'accusations et de l'imposition de sanctions administratives (provinciales). Pendant la période visée par l'évaluation, la GRC a travaillé en étroite collaboration avec le ministère de la Justice afin de trouver de nouveaux outils pour faciliter la détection et l'identification des conducteurs aux facultés affaiblies par la drogue et a continué à mettre à jour les cours donnés dans le cadre du programme des ERD.^{Footnote 14}

2.4 Stratégie d'échange des connaissances établie relativement à la SNA

La SEC liée à la SNA a été élaborée comme suite aux constatations et recommandations issues de l'évaluation de la SNA effectuée en 2012. Cette évaluation a mis en relief les difficultés liées à la transmission du savoir, des pratiques exemplaires et des conclusions de recherche en vue de leur éventuelle utilisation et a donné lieu à la recommandation voulant qu'un mécanisme soit établi pour la diffusion des connaissances entre les partenaires fédéraux afin que les intervenants concernés et les autres ministères gouvernementaux soient en mesure de consulter et d'utiliser l'information et les résultats générés grâce aux investissements fédéraux. Depuis l'élaboration de la SEC, des représentants de la GRC ont assisté à trois réunions, dont la plus récente a eu lieu en novembre 2015.

Les personnes interviewées estimaient généralement que la pluralité des rôles et des responsabilités des 13 partenaires de la SNA compliquait l'application de la SEC. Elles trouvaient plus utile d'assurer la transmission du savoir au moyen de partenariats ciblés. La GRC a contribué à l'atteinte des objectifs de la SEC dans le cadre de partenariats avec des services de police, des organismes d'application de la loi comme l'ASFC, des établissements d'enseignement, des organismes non gouvernementaux et des groupes communautaires. De plus, elle a favorisé une plus large diffusion d'information à ses partenaires au moyen de contenu Web sur la SNA et a partagé des documents d'information et de sensibilisation à l'échelle du Canada ainsi qu'avec des partenaires aux États-Unis, au Royaume-Uni, en Afrique du Nord, dans les Caraïbes, au Mexique, à Taïwan et à Hong Kong.

2.5 Financement accordé à la GRC au titre de la SNA

Dans l'ensemble, le financement permanent accordé à la GRC pour ses activités de prévention et de répression liées aux drogues est venu de trois sources : la SCA de 2003, le plan d'action sur l'application de la loi de 2007 de la SNA et les investissements de 2007 dans les plans d'action sur la prévention et le traitement de la SNA, qui ont pris fin en 2011-2012.

La GRC a reçu au total 3,6 millions de dollars sur cinq ans (de 2007-2008 à 2011-2012) au titre des plans d'action sur traitement afin de soutenir les activités menées par les SPCA pour améliorer la capacité des agents de la GRC à aiguiller les jeunes aux prises avec des problèmes de toxicomanie vers des programmes d'évaluation et de traitement ainsi qu'à les aider à réintégrer la communauté. Aucun financement permanent n'a été accordé à la GRC pour les mesures de prévention et de traitement après 2012.

Conformément aux engagements prévus dans la SNA, les Dépenses prévues a la GRC a été 25,4 millions de dollars pour ses activités de mobilisation du public et d'application de la loi de 2012-2013 à 2014-2015, mais ce montant a été ramené à 21,7 millions de dollars (incluant 2,8 million pour TPSGC) en 2015-2016 à la suite de mesures de compression des coûts et de rationalisation.^{Footnote 15}

Le tableau 2 ci-dessous présente les dépenses réelles engagées pour les activités de la GRC dans le cadre de la SNA de 2011-2012 à 2015-2016. En comparant les engagements de financement initiaux avec les dépenses, on constate que l'écart entre les deux peut aller jusqu'à 9,0 M$ pour une année donnée. Les écarts s'expliquent notamment par la réaffectation de fonds en fonction de nouvelles priorités, les compressions budgétaires et le programme de réduction du déficit.

3.0 Conclusion

La répression de la criminalité associée aux drogues illicites fait partie du mandat de la GRC ainsi que de ses rôles et responsabilités. À cet effet, des intervenants clés parmi les personnes interviewées ont insisté sur le besoin de maintenir le travail de la GRC dans le cadre de la SNA.

La GRC recueille des données et de l'information sur les activités de répression et de prévention liées aux drogues non seulement pour appuyer les opérations policières, mais aussi pour répondre aux besoins d'intervenants externes. Afin de satisfaire aux exigences internes et externes en matière de production de rapports, elle s'emploie continuellement à améliorer la cohérence et l'exactitude de ses données.

La GRC a contribué aux résultats obtenus à l'égard des trois plans d'action de la SNA. Dans le cadre du plan d'action sur la prévention, elle a contribué aux produits, ressources et outils d'information, de soutien et de sensibilisation visant à prévenir la consommation de drogues illicites. L'évaluation a toutefois révélé que les activités de prévention menées par les SPCA et la Police fédérale pourraient être mieux coordonnées. Bien que son rôle officiel dans l'exécution du plan d'action sur le traitement ait pris fin en 2011-2012, la GRC a contribué aux résultats de ce plan d'action par l'intermédiaire de son PNIDJ. Pour ce qui est du plan d'action sur l'application de la loi, la GRC a mené de nombreuses activités liées à la formation, aux saisies de drogue, aux enquêtes visant d'importants groupes du crime organisé, aux mesures d'interception et de perturbation prises dans le cadre d'importantes d'activités d'antidrogue internationales ainsi qu'à la répression de la conduite avec facultés affaiblies.

4.0 Notes et bibliographie

Community Constable Pilot Program Evaluation

Community Constable Pilot Program Evaluation

March 19, 2018

Table of contents

1. 1. Executive Summary
2. 2. Introduction
   • 2.1 Purpose of the Evaluation
   • 2.2 Evaluation Scope
3. 3. Program Description
4. 4. Evaluation Methodology
   • 4.1 Evaluation Approach and Design
   • 4.2 Data Sources
   • 4.3 Methodological Limitations and Mitigation Strategies
5. 5. Findings
   • 5.1 Governance
   • 5.2 Mandate
   • 5.3 Roles and Responsibilities
   • 5.4 Performance Data
6. 6. Conclusions and Recommendations
7. 7. Management Response and Action Plan
   • 7.1 Management Response
   • 7.2 Action Plan for NHQ - NCPS

Acronyms and abbreviations

ACC

Aboriginal Community Constable

CAP

Contract and Aboriginal Policing

CC

Community Constable

Cpl

Corporal

Cst

Constable

GD

General Duty

HRMIS

Human Resources Information System

NCPS

National Crime Prevention Services

NHQ

National Headquarters

PMF

Performance Measurement Framework

PRIME

Police Records Information Management Environment

PROS

Police Reporting and Occurrence System

RCMP

Royal Canadian Mounted Police

RM

Regular Member

1. Executive Summary

The Community Constable (CC) pilot program was one of three new enhanced service delivery models developed by the Royal Canadian Mounted Police (RCMP) to address gaps in policing services. It was launched as the Aboriginal Community Constable (ACC) pilot program in 2009 in an effort to enhance community engagement and community policing. The ACC pilot program was re-branded to the CC pilot program in 2013, to reflect the program's expansion to non-Aboriginal communities.

A CC is an armed, uniformed peace officer, at the rank of Special Constable Member, with local knowledge of the community in which they serve, including its language, culture and geography. CCs are to place an emphasis on crime prevention through community engagement, but have the skills and ability to provide tactical, enforcement and investigational support, if required.

The pilot program became operational in D, F, K, G and V Divisions in 2011 and 2016 in E Division. As of April 2016, there were a total of 20 CCs.

Included in this report are the results of the evaluation of the CC pilot program (the "pilot program"). The evaluation was conducted by the RCMP's National Program Evaluation Services. The evaluation was national in scope and covered a one year period from April 1, 2016 to March 31, 2017. This was the first evaluation since the creation of the pilot program.

What we Examined:

The evaluation assessed the governance structure, the mandate, the roles and responsibilities and the performance data of the CC pilot program. Multiple lines of evidence were analyzed to support the findings and recommendations of the report.

What we Found:

National Crime Prevention Services (NCPS) within Contract and Aboriginal Policing was identified as being responsible for national coordination and leadership of the pilot program; however, no management or oversight documents were found and there was no information on who governed or implemented the pilot program in the divisions or detachments. In the absence of this documentation and taking into consideration interview data, the evaluation determined that the governance structure for the pilot program was not clearly defined.

While a number of documents stated the CC was to focus on crime prevention through community engagement, documents that specifically defined the pilot program's mandate were not found. This finding was consistent with interview data, in which over half of the RCMP interviewees indicated that they did not know or were unsure of the mandate of the pilot program. In the absence of a clearly defined mandate and for the purpose of the evaluation, the mandate of the pilot program was defined as, "focus on crime prevention through community engagement."

During the reference period, CCs participated in more enforcement occurrences than prevention activities but the time dedicated to these activities was not captured; as a result, the evaluation was not able to determine if the CCs focused their time on crime prevention. However, 63% of interviewees involved in the day-to-day delivery of the pilot program were of the opinion that CCs allocated 50% or more of their time to crime prevention. According to the monthly reporting logs, the most common crime prevention activities a CC was involved in were meetings, consultations or community events. It was also concluded that CCs' hours of work (Monday to Friday, 8 a.m. to 8 p.m.), were generally supporting CCs' ability to stay within their mandate.

The CCs' roles and responsibilities were established but it was unclear how effectively these were communicated. In addition, the evaluation found CCs' roles and responsibilities were not clearly understood. According to a CC's work description, in addition to crime prevention activities, a CC could also provide tactical and investigational support but it was unclear if CCs performed duties outside of their roles and responsibilities. It was determined a more in-depth review with consultations would be needed to determine whether or not a CC regularly led enforcement occurrences or assumed a supporting role. According to interview data, almost all CCs stated they were paired with a Regular Member for enforcement occurrences; but it depended on the nature of the occurrence. Almost half of all enforcement occurrences that involved a CC were related to traffic, liquor or causing a disturbance. This finding was consistent with interview data and was within the defined CC roles and responsibilities.

While there was some evidence of performance data collection and reporting, this was not consistent across divisions. There was no evidence that performance data being collected in the monthly reporting logs was used to inform decision-making at National Headquarters.

Overall, community representatives interviewed were satisfied with the pilot program and indicated it positively impacted relationships between the RCMP and the community, it made the RCMP more accessible and it positively impacted the communities' views about police officers and improved communications.

What was Recommended:

Based on the findings of the evaluation, it is recommended the Program:

• Recommendation #1: Establish and communicate a clear governance structure
• Recommendation #2: Establish and communicate a clearly defined mandate
• Recommendation #3: Communicate the roles and responsibilities of a CC
• Recommendation #4: Establish, track and report performance information to help inform decision-making

2. Introduction

2.1 Purpose of the Evaluation

This report presents the results of the evaluation of the Community Constable (CC) pilot program (the "pilot program"), conducted by National Program Evaluation Services of the Royal Canadian Mounted Police (RCMP). The objectives of the evaluation were to assess the governance structure, the mandate, the roles and responsibilities and program performance data of the pilot program. The purpose of the evaluation was to provide senior management with a neutral, timely and evidence-based assessment of the pilot program and to help inform decision-making on its permanency.

2.2 Evaluation Scope

The evaluation covered a one year period between April 1, 2016 and March 31, 2017 and included National Headquarters (NHQ) and Divisions D, F, K, E and G.

The evaluation commenced in April 2017 and concluded on March 19, 2018 with a presentation to the Performance Measurement and Evaluation Committee. The report received the Commissioner's approval on March 26, 2018.

3. Program description

In 2006, national consultations were held with a variety of stakeholders to determine if the RCMP was meeting the needs of the communities it served. These consultations identified gaps in policing services and indicated the need for more flexible service delivery models.

The Aboriginal Community Constable (ACC) pilot program was one of three enhanced service delivery models developed in response. It was launched in 2009 in an effort to enhance community engagement and community policing. The ACC pilot program became operational in 2011 in Divisions D, F, K, G and V. In 2013, it was re-branded as the Community Constable pilot program to reflect the program's expansion to non-Aboriginal communities. E Division joined in 2016.

A CC is an armed, uniformed peace officer, at the rank of Special Constable Member, with local knowledge of the community in which they serve, including its language, culture and geography. They are to place an emphasis on crime prevention through community engagement, but have the skills and ability to provide tactical, enforcement and investigational support, if required.^{Footnote 1},^{Footnote 2}

CCs follow a 21-week Cadet Training Program at Depot, where they receive the same training as Regular Member (RM) cadets, with the exception of three weeks of advanced investigative techniques which only RMs receive. Following Depot, CCs returned to the community they were recruited from, where they remain for the duration of their career. The first troop of seven ACCs graduated from Depot in 2011^{Footnote 3} and were converted to CCs in 2013. In February 2016, 15 CC cadets successfully graduated Depot and as of April 2016, there were a total of 20 CCs.

National Crime Prevention Services (NCPS) within Contract and Aboriginal Policing (CAP), was responsible for national coordination and leadership of the Community Constable pilot program.^{Footnote 4} The pilot program was designed to increase the RCMP's cultural competence and strengthen relationships, visibility, communication and continuity of service within communities.

4. Evaluation Methodology

4.1 Evaluation Approach and Design

A theory-based approach was used for this evaluation. Extensive use of triangulation was undertaken as an analytical method, where multiple lines of evidence helped corroborate findings.

The evaluation focussed on key areas of concern identified by senior management and assessed the extent to which:

• the governance structure was clearly defined and understood
• the pilot program was fulfilling its mandate
• the CC roles and responsibilities were established and understood
• the pilot program performance data was being collected and reported

Qualitative and quantitative information was used to determine findings and recommendations for improvement and to help inform senior management decision-making. The evaluation was conducted in accordance with Treasury Board's Policy on Results (2016).

4.2 Data Sources

The following lines of evidence were used to inform the findings and recommendations.

Document and Literature Review. Internal and external documentation was reviewed and analyzed. Examples of documents include, program documentation, intranet/internet information, news articles, departmental reports, internal performance reporting tools and emails.

Data Analysis. Administrative data was collected and analyzed from the following systems and information sources:

• scheduling data from the Total Expenditures and Asset Management (TEAM) System
• enforcement occurrences from the Police Reporting and Occurrence System (PROS) and Police Records Information Management Environment (PRIME) databases
• crime prevention activities from the monthly reporting logs
• position information from the Human Resources Information System (HRMIS)

Interviews. A total of 51 interviews were conducted with a sample of key program personnel and community representatives to obtain their views on the pilot program and to validate and supplement information gathered by other lines of evidence.

Figure 1: Percentage of Interviewees by Category

For analysis and reporting purposes, interviewees were grouped into the following categories:

• All interviewees (51) – CCs, community representatives, General Duty (GD) Constables (Csts), GD Corporals (Cpls), divisional coordinators, management in the detachments, CAP
• RCMP interviewees (37) - CCs, GD Csts, GD Cpls, divisional coordinators, management in the detachments, CAP
• Interviewees involved in the management and oversight of the pilot program (17) - CAP, divisional coordinators, management in the detachments
• Interviewees involved in the day-to-day delivery of the pilot program (24) – CCs, GD Csts, GD Cpls, supervisors of CCs
• Interviewees involved with monthly reporting logs (22) – CCs, divisional coordinators, CAP, supervisors of CCs

4.3 Methodological Limitations and Mitigation Strategies

Some challenges and limitations were encountered during the conduct of the evaluation. The key limitation was the availability of data. For example, data from the HRMIS could not be used to determine detachments' staffing levels and CCs' reporting structure. Monthly reporting logs could not determine a CC's time allocation for crime prevention activities. In addition, PROS and PRIME databases could not determine time allocation for enforcement occurrences or crime prevention activities.

In order to mitigate these limitations, the evaluation triangulated available data with data obtained through other lines of evidence.

5. Findings

5.1 Governance

In order to determine the extent to which the pilot program's governance structure was defined, it was expected that management and oversight documents such as a Terms of Reference, or policy documents would be available to define accountability, reporting lines for decision-making and the flow of communication. Although the RCMP intranet identified NCPS as the being responsible for the national coordination and leadership of the pilot program, there was no information on who governed or implemented the pilot program in the divisions or detachments.^{Footnote 5} This finding was consistent with the interview data, which indicated that 76% (13/17) of interviewees involved in the management and oversight of the pilot program stated they did not know the structure of the pilot program. In the absence of these documents and considering interview data, the evaluation determined that the governance structure for the pilot program was not clearly defined.

In the absence of a clearly defined governance structure, the evaluation relied on the RCMP contact lists and an internal phone directory to determine that the pilot program was situated in NCPS at NHQ and at the divisional level, it was situated in Crime Prevention/Community Policing /Aboriginal Policing units and detachments that participated in the pilot program.

5.2 Mandate

While a number of documents stated the CC was to focus on crime prevention through community engagement^{Footnote 6}, documents that specifically defined the pilot program's mandate were not found. This finding was consistent with interview data, in which 65% of RCMP interviewees (24/37) indicated that they did not know or were unsure of the mandate of the pilot program.

In the absence of a clearly defined mandate and for the purpose of the evaluation, the mandate of the pilot program was defined as, "focus on crime prevention through community engagement."

In order to determine if CCs were fulfilling the pilot program's mandate, the evaluation attempted to review the number, type and time spent on crime prevention activities compared to enforcement occurrences.

The evaluation was able to determine the number and type of crime prevention activities found in the monthly reporting log^{Footnote 7} and enforcement occurrences found in PROS and PRIME databases; however, the time a CC allocated to these activities was not captured. For example, PROS and PRIME databases are record management systems that do not account for time allocation recording, but rather are limited to recording dates when actions occurred. With regards to the CC monthly reporting log, there was no requirement to capture hours allocated to a particular crime prevention activity. As a result of time not being captured, it was difficult to determine if CCs stayed within their mandate and focused their time on crime prevention activities.

To mitigate this data constraint, the number and type of occurrences/activities were reviewed, as well as the potential impact on staffing levels and hours of work had on a CC's ability to stay within their mandate.

The initial intent of the pilot program was to place CCs in detachments that were fully staffed, to ensure CCs remained within their mandate and focused on crime prevention. In order to determine if staffing levels enabled or limited a CC's ability to conduct crime prevention activities, the monthly vacancy rates for Csts and Cpls in participating detachments were requested. While this level of data was not available, the vacancy rates in the participating divisions was available and was on average 5.3% (D: 4.4%, E: 6.4%, F: 4.4%, G: 0.5%, K: 5.6%). According to RCMP interviewees involved in the day-to-day delivery of the pilot program, 67% (16/24) were of the opinion their detachments were not fully staffed which was consistent with the divisional vacancy rates.

The CCs' hours of work were also reviewed to help determine if regular shift hours enabled or limited their ability to conduct crime prevention activities. During school months, the majority of CCs' regular shifts took place Monday to Friday (88%), from 8:00 a.m. to 8:00 p.m. (83%); which meant they were available during business and school hours to address the community's needs for crime prevention. From this, it was concluded that CCs' hours of work were generally supporting CCs' ability to stay within their mandate.

Crime prevention activities identified by RCMP interviewees involved in the day-to-day delivery of the pilot program were community events (19/24) and school related activities (e.g. presentations, classes, DARE) (14/24). The activities captured in monthly reporting logs were consistent with the interview data, except additional details, such as the name of the association (e.g. Boys and Girls Club, Chamber of Commerce) and the subject (e.g. Fraud) were provided.

When the same interviewees were asked how much time CCs spent on crime prevention activities, such as presentations delivered and community events attended in a given month, 63% (15/24) were of the opinion that CCs allocated 50% or more of their time to crime prevention. Interviewees who provided a response also indicated that E (57%) and G (75%) Divisions were of the opinion that CCs spent less than half of their time on crime prevention activities while D Division (57%) spent more than half of its time on crime prevention activities.

Analysis of PROS and PRIME data found that CCs participated in 7,514 enforcement occurrences during the reference period, compared to 1,103 crime prevention activities.^{Footnote 8}

Table 1: Ratio of Enforcement Occurrences to Crime Prevention Activities a CC Participated in

Data Source: PROS and PRIME databases and monthly reporting logs from April 1, 2016 to March 31, 2017

The number of enforcement occurrences and crime prevention activities varied across divisions. For example, one CC in E Division participated in 43 enforcement occurrences compared to 1,688 in D Division. Although some CCs participated in only a few enforcement occurrences, 60% of CCs (12/20) participated in at least 300 enforcement occurrences each during the reference period.

As the chart below indicates, almost half of all enforcement occurrences (3,555/7,514) during the reference period that involved a CC were related to traffic, liquor or causing a disturbance. This finding was consistent with interview data and was within the defined CC roles and responsibilities.

Chart 1: Most Common Enforcement Occurrences a CC Participated in

With regards to crime prevention, half (546/1,103^{Footnote 9}) of the activities a CC was involved with were participating in meetings, consultations or community events.

Chart 2: Most Common Crime Prevention Activities a CC Participated in

When RCMP interviewees (20/37) were asked to identify challenges that affected a CC's ability to remain within their mandate, the most common reasons cited were:

• The CCs were participating in more enforcement occurrences than they were supposed to (12/20).
• There were insufficient human resources in the detachment (11/20).
• The absence of NHQ oversight (8/20), such as lack of communication of the mandate, roles and responsibilities, planning and monitoring of the pilot program.

All interviewees were asked to express their level of satisfaction with the pilot program. More than half, 61% (31/51) were either very satisfied or satisfied with the pilot program. The most cited reasons were the importance of community engagement and crime prevention.

When exclusively analyzing community representatives' overall satisfaction, (a subset of the interviewees identified above), 64% (9/14) were either satisfied or very satisfied with the program. Of the interviewees who were either unsatisfied or very unsatisfied (5/14), the most common reason cited for their dissatisfaction was the CC was not available or did not stay within their mandate (3/5).

Community Engagement – RCMP's Perspective

When RCMP interviewees involved in the day-to-day delivery of the pilot program were asked about the RCMP's relationship with the community, 67% (16/24) indicated the pilot program had a positive impact on RCMP's relationship with the community, for example, the RCMP was of the opinion the community's trust had increased and that the community felt more supported.

83% (10/12) of supervisors of CCs, GD Csts and GD Cpls interviewed in the detachments indicated the pilot program had positively impacted the ability of the unit/detachment to respond to the community. The most cited example was that the pilot program provides extra support to RMs (8/10).

Community Engagement – Community's Perspective

Community representatives were also asked about the impact the pilot program had on their relationship with the RCMP and 86% (12/14) indicated it had been positively impacted by the pilot program.

Examples of positive impacts:

• The pilot program makes the RCMP more accessible (10/12).
• The pilot program has positively impacted the communities' views about police officers (5/12).
• There has been an improvement in communication because CCs know the language and/or the community (5/12).

5.3 Roles and Responsibilities

In 2008, a Task Bank was developed to provide basic, objective information about their role for a range of uses in the Human Resources Sector. It was updated in 2013, to reflect the expansion and rebranding of the pilot program.

Based on the Task Bank, NCPS developed a work description which outlined the key responsibilities of a CC. Examples of key activities:

• Contribute to the delivery of a culturally competent police service that meets the needs of communities.
• Deliver core policing, community policing, problem solving, crime prevention, traffic support, investigative support and youth crime reduction to communities.
• Assist with investigations by providing investigation support such as: receiving and following up on phone calls, data/information collection and input, exhibit management; updating clients; arresting of individuals, presenting evidence in Court; among others.
• Liaise with community leadership and other stakeholders (public, communities, media, federal, provincial and municipal department, law enforcement agencies and detachments) to establish, maintain and deliver community based policing measures designed to meet local needs.

Communication of Roles and Responsibilities

During the reference period, NCPS shared information such as the CC work description with coordinators in divisional Crime Prevention/Community Policing /Aboriginal Policing units. However, direction regarding distribution of the work description to the detachments was not found. This was consistent with interview data where 70% (30/43) of interviewees stated they did not receive enough communication about the pilot program. About half of these interviewees (21/43) stated they would like to know more about the roles and responsibilities and/or the mandate of the pilot program.

NCPS also delivered a presentation on CC roles and responsibilities to 15 CC cadets during their training at Depot. During the presentation, the work description was distributed to CC cadets. It was unclear whether it was also shared with ACCs that were rebranded in 2013 as one of the CCs interviewed stated he was an ACC not a CC.

Although, 64% (24/37) of RCMP interviewees stated CC roles and responsibilities were not defined; when asked if they could describe the role of a CC, interviewees described activities such as community engagement (30/37) school activities (talks, presentations, programs) (16/37) and supporting/backing up enforcement (15/37), which were activities within the defined CC roles and responsibilities.

When asked whether the roles and responsibilities of CCs were defined and understood by the community, 54% of RCMP interviewees (20/37) stated they were not understood and of these 60% (12/20) were of the opinion that the community did not see, for example, a difference between a CC and an RM. When community representatives (13/14) interviewed were asked if they were aware of a CC in their community, 71% (10/14) stated the CC was visible in community schools, attending meetings and events or delivering community programs.

When asked whether the roles and responsibilities of CCs were defined and understood within the detachment, 46% of RCMP interviewees (17/37) stated they were understood within the detachment or their specific unit. When all interviewees were also asked if they believed there was a difference between a GD Cst and a CC, the majority, 80% (41/51) stated there was a difference. The most common difference identified was that a CC was engaged in community-related activities (21/51), while a GD Cst focused on calls for service (12/51).

According to a CC's work description, in addition to crime prevention activities, a CC could also provide tactical and investigational support.

The evaluation was not able to determine whether CCs went beyond their defined roles and responsibilities by leading an investigation or an enforcement occurrence as there was no specific field or check box in PROS and PRIME databases, for example, to identify if the occurrence a CC participated in required an investigation.

Due to this limitation and the volume of files a CC participated in (7,514), a sample of enforcement occurrences was reviewed but it was determined a more in-depth review with consultations would need to be conducted for a more definitive finding on whether or not a CC regularly led enforcement occurrences or assumed a supporting role.^{Footnote 10}

According to interview data, almost all CCs (11/12) stated they were paired with an RM for enforcement occurrences; but it depended on the nature of the occurrence. Examples of enforcement occurrences some CCs identified as doing alone were serving subpoenas and enforcing the highway traffic act, while carrying out a warrant was identified as an occurrence done with another RM.

5.4 Performance Data

In 2013, a draft pilot program logic model and Performance Measurement Framework (PMF) were developed. The PMF identified the results the pilot program intended to achieve, along with a number of indicators to measure the performance of the program.

To capture crime prevention data such as presentations, programs delivered by a CC and participation at community activities or events, NCPS created a monthly reporting log. Other performance reporting tools identified in the PMF, such as an annual report to NHQ, semi-annual visits/interviews and surveys with divisions, were not implemented. As a result of only implementing one of the identified reporting tools, the majority of data identified in the PMF was not collected.

In March 2016, the monthly reporting log was distributed directly to the coordinators within the divisional Crime Prevention/Aboriginal policing/Community Policing units. No specific instructions regarding data collection and reporting expectations such as an annual or bi-annual roll-up of the data from the monthly reporting log were disseminated.

Based on 20 CCs participating in the pilot program, it was expected that 240 monthly reporting logs would have been submitted during the reference period but only 127 were submitted (53%). D Division had the highest submission rate at 81%, while K Division had the lowest with no monthly reporting logs submitted.

Chart 3: Percentage of Monthly Logs Submitted

Although NCPS periodically reported to senior management on the progress of the pilot program during the reference period, there was no evidence indicating that NCPS monitored data collection and reporting of the monthly reporting logs, or that the information contained in them was used to inform decision-making at NHQ. As a result, the impact of the monthly reporting logs could not be determined.

Of the 22 interviewees involved with monthly reporting logs, half identified strengths and weaknesses. The most cited weakness was that the monthly reporting log only captured the number of activities carried out and not the time it took to complete an activity or the level of effort it required (4/11). This was consistent with the performance data collected from the monthly reporting logs.

6. Conclusions and Recommendations

The RCMP intranet site identified NCPS as being responsible for national coordination and leadership of the pilot program; however, there was no information on who governed or implemented the pilot program in the divisions or detachments. In the absence of this information, combined with interviewees indicating they did not know the structure of the pilot program, the evaluation found the governance structure was not clearly defined or understood.

In absence of a clearly defined mandate and for the purpose of the evaluation, the mandate of the pilot program was defined as, "focus on crime prevention through community engagement". There was evidence that CCs were engaged in crime prevention activities across divisions but due to the lack of data, it was not possible to determine the amount of time allocated to these activities. Nonetheless interviewees were generally of the opinion that 50% or more of a CC's time was spent on crime prevention activities.

As a result of not being able to determine the amount of time CCs allocated to crime prevention activities, the type and frequency of crime prevention and enforcement occurrences were analyzed. Data showed that CCs participated in more enforcement occurrences than prevention activities.

The majority of the community representatives interviewed were satisfied with the pilot program and indicated it had positively impacted relationships between the RCMP and the community. The most common positive impacts attributed to the pilot program were that it made the RCMP more accessible, it positively impacted the communities' views about police officers and it improved communication.

The CCs' roles and responsibilities were established but it was unclear how effectively these had been communicated. The evaluation found that both within the detachments and the community, the roles and responsibilities were not clearly understood. While CCs may engage in some enforcement occurrences, it was unclear if they were performing duties outside their roles and responsibilities; however, the majority of CCs stated they were generally paired with an RM while performing enforcement.

While there was some evidence of performance data collection and reporting, it was not consistent across divisions. Furthermore, the data that was collected in the monthly reporting logs was not used to inform decision-making at NHQ.

Based on the findings of the evaluation, it is recommended the Program:

• Recommendation #1: Establish and communicate a clear governance structure
• Recommendation #2: Establish and communicate a clearly defined mandate
• Recommendation #3: Communicate the roles and responsibilities of a CC
• Recommendation #4: Establish, track and report performance information to help inform decision-making

7. Management Response and Action Plan

7.1 Management Response

CAP accepts the recommendations proposed by National Program Evaluation Services, and will review, establish, and communicate a Community Constable governance structure, mandate, and roles and responsibilities. CAP will also establish track and report performance information to help inform decision-making.

7.2 Action Plan for NHQ - NCPS

Date de modification :

1969-12-31