Where It Began

Missing and Missed

In 2018, on the recommendation of a diverse community-led working group, the Toronto Police Services Board (Board) commissioned The Independent Civilian Review into Missing Person Investigations (The Review) to evaluate how the Toronto Police Service (Service) has conducted and is conducting missing persons investigations, particularly concerning 2SLGBTQI+. and other vulnerable or marginalized communities, and the adequacy of the related Board policies.

The Missing and Missed – Report of the Independent Civilian Review into Missing Person Investigations was released on April 13, 2021. The report culminated almost three years of inquiry and research and resulted in 151 recommendations.

The Service and the Board continue to be committed to implementing all 151 recommendations. The Service is also committed to real partnerships with communities and a public and transparent process.

The Missing and Missed Implementation Team (M.M.I.T.)

Members of the public were invited to apply through news releases, social media platforms, emails to The Review’s Stakeholder list and representatives of 46 community organizations, and outreach by the members of the Service. There were approximately 150 applicants.

The selection process for M.M.I.T. – Community Representatives (Community Representatives) ensured the Community Representatives are from 2SLGBTQI+,  racialized, Indigenous and marginalized communities and/or have expertise in working with or lived experience with gender diversity, homelessness, substance use and/or sex work. M.M.I.T. – Police Representatives (Police Representatives) were appointed to the M.M.I.T. for their expertise and/or function. Two of the Police Representatives represent the O.P.P. Indigenous Policing Bureau.

The M.M.I.T., formed in July 2021, comprises Community Representatives and Police Representatives and is co-led by one Community Representative and one Police Representative.

The M.M.I.T. is dedicated to building success through mutual engagement and respect; the M.M.I.T. operates as a genuine partnership. The level of engagement with our Community Representatives has been and continues to be unprecedented.

Role of the M.M.I.T.

The Role of the M.M.I.T., as indicated in the Terms of Reference, includes:

• co-creating the implementation plan
• consulting on the implementation of the 151 recommendations
• consulting on ad hoc requests from the Office of the Chief, and
• monitoring the effective implementation of the recommendations

It is important to note that in their consulting role, the M.M.I.T. is actively involved in carrying out tasks to complete deliverables. This includes and is not limited to designing and delivering training for Service members, helping to create new business processes, providing language for policies and procedures, and working alongside Service members on many other activities at the task level. The Service will only proceed with significant decisions on implementation if such decisions have been discussed with the Community Representatives.

The Missing and Missed Project Team

The Missing and Missed Project Team (M.M.P.T.) was formed to facilitate implementation of the 151 recommendations. The M.M.P.T., comprised of civilian Service members and police officers, was in place by August 2021.

The Community Co-Chair of the 2SLGBTQI+. Chief’s Consultative Committee participated in the interviews and selection of police officers for the M.M.P.T. Having a non-Service member participate in interviews of police officers was a first for the Service.

Currently, twelve (12) Service members are assigned exclusively to the M.M.P.T.

Implementation

Implementing these 151 recommendations requires completing each of the associated milestones and deliverables, which sometimes involves creating entirely new business processes. Every process is established in partnership with the Community Representatives, and changes are made based on their input. Implementation requires strategic leadership and significant resources.

Community Representatives participate in all implementation stages and approval processes, from the monthly progress updates to the final sign-off of the Missing and Missed Implementation Report for each recommendation.

Foundational Work

As part of the project management process, the starting point for each recommendation was the creation of a scoping document. Each scoping document identifies the following:

• the goals/deliverables that must be completed for the recommendation to be considered/marked implemented

• whether the Board or the Service is accountable for the implementation of each of the recommendations
• who, as the Recommendation Lead, is responsible for completing the goals/deliverables for each recommendation

Recommendation Implementation Status Categories

There are three categories used for classifying a recommendation’s implementation status:

• Not Started: this means that even though much preparatory work has been completed to get a recommendation to the starting point of the implementation process (specifically by assessing the recommendation; establishing goals/deliverables; developing a work plan; and assigning responsibility and accountability for the recommendation), work to complete the goals/deliverables has not yet started. This may include delays due to dependencies on legislation, dependencies on other recommendations, or engagement with the working groups.

• In Progress: this means activities are underway to complete the deliverables or the deliverables have been completed and the Missing and Missed Recommendation Implementation Report is currently going through the approval process.
• Implemented: this means the deliverables for the recommendation have been completed and the Missing and Missed Recommendation Implementation Report has been approved. This may include recommendations where modifications have been made to meet the underlying objectives of the recommendations.

The Missing and Missed Implementation Plan

The M.M.I.T., the Service, and the Board co-created the Missing and Missed Implementation Plan by identifying deliverables, providing input on timelines, and establishing desired outcomes for the long-term impacts of the implementation. The Implementation Plan resulting from this partnership satisfied Missing and Missed Recommendation 147A and is available on the Missing and Missed Implementation webpage.

Working Groups

The Community Representatives identified recommendations for which they are interested in engaging in activities at the task level. As a result, working groups were established to ensure Community Representatives are actively engaged in, and completing tasks supporting, implementation of the identified recommendations.

These working groups provide diverse perspectives and views that guide and inform many aspects of implementation. They are designed to bring together individuals with the relevant knowledge and skills to individually or collectively undertake assigned tasks and activities to achieve each group's objectives. The Working Group Terms of Reference created a shared set of expectations while building in responsibilities and accountabilities for members.

When the working groups first met they:

• provided input on the draft Working Group Terms of Reference
• reviewed the work plan for each of the identified recommendations
• determined what, if any, modifications should be made to the deliverables, milestones, and/or timelines
• began planning for any other action they may feel is necessary to achieve the group’s objectives

Working groups increase the time it takes for implementation because in addition to being responsible for undertaking tasks to complete deliverables, their perspective, suggestions, feedback, etc., are considered throughout implementation. The working groups meet regularly, and their contributions are vital to ensuring implementation of the 151 Missing and Missed Recommendations is achieved in keeping with the spirit and essence of The Review.

Missing and Missed Implementation Webpage and Dashboard

Missing and Missed Implementation (M.M.I.) Webpage

In December 2021, the Missing and Missed Implementation Webpage went live on the Toronto Police website - https://www.tps.ca/chief/chiefs-office/missing-and-missed-implementation/. The M.M.I. webpage serves as a platform for keeping community members informed about the implementation. The M.M.I. Webpage includes the following:

• a project overview and links to the Missing and Missed Report

• a list of Community Representatives with a brief biography, and a list of Police Representatives
• the M.M.I. Dashboard
• email addresses for the Community Representatives, the general email box for the M.M.I.T. (monitored by the M.M.P.T.), and a phone number for the M.M.P.T.
• a Feedback Form for providing feedback to the M.M.I.T. Feedback is anonymous unless the feedback providers choose to identify themselves

Missing and Missed Implementation Dashboard

The Missing and Missed Implementation (M.M.I.) Dashboard also went live in December 2021. The M.M.I. Dashboard is the repository of the final Implementation Documentation. The M.M.I. Dashboard includes but is not limited to the following information:

• The Missing and Missed Recommendation Implementation Reports for recommendations that have been Implemented, including:

  • a list of deliverables with the date that each deliverable was completed
  • a brief description of the work that was undertaken to implement the recommendation
  • a description of the direct cost to complete the recommendation
  • the overall measurable outcomes resulting from the implementation of the recommendation
  • approval signatures required for each recommendation to be considered Implemented (or Not Implemented)
    • the required signatures include the Recommendation Lead, Pillar/Board Lead, and the Community Representative and Police Representative Co-Chairs
    • the approval process holds the Service and the Board accountable for the implementation of the recommendations
• Supporting documents submitted with the Missing and Missed Recommendation Implementation Report
• Links to interactive quarterly progress reports, which are snapshots reflecting the last update in each quarter

Current Status (December 19, 2022)

• 151 recommendations

  • 15 have been Implemented

  • 100 are In Progress

  • 36 have Not Started

Not Started: this means that even though much preparatory work has been completed to get a recommendation to the starting point of the implementation process (specifically by assessing the recommendation; establishing goals/deliverables; developing a work plan; and assigning responsibility and accountability for the recommendation), work to complete the goals/deliverables has not yet started.

Reccommendations that have not yet started are dependent on the following:

2022 in Review

Q1 Highlights

Implementation Documentation Process Established

The Implementation Documentation Process (approval process) for each recommendation includes a review of and discussions with our Community Representatives before any recommendation is marked “Implemented”. Establishing the Implementation Process involved completing new business processes, including but not limited to creating a new form, the TPS 985 – Missing and Missed Recommendation Implementation Report.

This strict process is an integral part of our partnership with our Community Representatives and will ensure transparency in our work and the results we achieve. Compliance with this process will provide clarity in the years to come about what was done; why it was done; and, what the outcomes were.

M.M.I.T. Terms of Reference Approved

Drafting of the M.M.I.T. Terms of Reference began in June 2021, and it went through many iterations before it was approved and adopted in February 2022. This included adopting suggestions and addressing feedback from Judge Epstein, members of The Review’s Community Advisory Group, and the M.M.I.T. – Community Representatives once the M.M.I.T. was formed.

Established Working Groups

Working groups were established to ensure Community Representatives are actively engaged in, and completing tasks supporting, implementation of the recommendations. Working groups are comprised of Community Representatives, Police Representatives, Recommendation Leads for identified recommendations, M.M.P.T. members, and any other individuals assigned by the Working Group Leads or the M.M.I.T. Co-Chairs. The following four (4) working groups were established:

1. Community Relations and Partnerships
2. Strategy, Governance and Working with Government
3. Professional Development and Organizational Design
4. Operational Response, Prevention and Intervention Strategies

Q2 Highlights

Pilot of Response Assessment Application (App) Began

The Missing Persons Response Assessment Application (App) was approved for Pilot in Q1, and training for the App Pilot began in April 2022. Community Representatives assisted in the development and delivery of training at 51 Division. This App is the first of its kind, and its use has attracted significant interest from other police services.

Expansion of Neighbourhood Community Officer Program (N.C.O.P.)

In May 2022, the Neighbourhood Community Officer Program was expanded to an additional 13 City of Toronto Neighbourhoods. These additional neighbourhoods were identified based on social and crime demographics, analytical data, and to ensure we make the best use of available resources to meet community needs. Fifty-two (52) new Neighbourhood Community Officers were added to the N.C.O.P. 

Q3 Highlights

Neighbourhood Community Officer Program (N.C.O.P.) Receives Grant

Since 2014, the Humber College Research Team has used an evidence-based approach to participate in an independent academic evaluation of the N.C.O.P. Using an external research partner to ensure an unbiased and transparent assessment is key to having public trust in any findings. The Service has received funding through a Province of Ontario Community Safety and Policing Grant (C.S.P.) from 2022 thru 2025 to continue the further expansion of the N.C.O.P. Incorporated within the C.S.P. Grant is funding for the continued evaluation of the N.C.O.P. using the Humber College Research Team.

Revised Adequacy Standards Policy Approved by Board

The Board approved the new Adequacy Standards Policy, which includes the new Missing Persons Policy.

Q4 Highlights

Evaluation of Response Assessment Application (App) Pilot Began

Informal feedback has been obtained, and survey questions have been finalized. A User Research Plan was developed for deployment in December 2022.

Missing Persons Unit (M.P.U.) Given Heightened Priority

To support the Service’s overall plan to heighten the priority of missing persons investigations, the name of the Homicide Unit was changed to Homicide and Missing Persons Unit. With ongoing support from our Community Representatives, the M.P.U. established service-wide on-call coverage 24-hours each day, every day. Additionally, the M.P.U. mandate was amended to ensure heightened priority is given to missing persons investigations.

Replicating the Success of the M.M.I.T.

Forging a relationship with our Community Representatives started with ensuring police understanding community needs and community understanding of police missing person processes. This unprecedented partnership has been so successful that an unintended outcome is the effect this will have elsewhere in the province as other police services look to replicate this dynamic with their own community advisory groups. 

Use of Updated Templates for Missing Person News Releases Began

The Service changed the templates Service members use for news releases regarding missing persons. These changes will better protect the missing person’s future privacy while disseminating information necessary for locating them.

Implementation Outcomes

Through both implementation and the implementation process, the Service continues striving to improve community relationships; improve investigative processes; and, build capacity in agencies and organizations to participate in improving missing persons processes. These outcomes will fundamentally change how the Service conducts business and delivers services.

A Peek at 2023

January 2023 D51 C.P.L.C. meeting

Members of the Missing and Missed Project Team will attend the 51 Division Community Police Liaison Committee (C.P.L.C.) meeting on January 11, 2023 to discuss the status of implementation of the Missing and Missed Recommendations.

January 2023 2.S.L.G.B.T.Q.+. C.C.C. meeting

Members of the Missing and Missed Project team will attend the 2.S.L.G.B.T.Q.+. Chief’s Consultative Committee (C.C.C.) meeting in January 2023 to discuss the status of implementation of the Missing and Missed Recommendations.

Missing and Missed Second Anniversary Event

We are in the early stages of planning an event to mark the second anniversary of the release of Missing and Missed – Report of The Independent Civilian Review into Missing Person Investigations. We anticipate providing further information on this event in February 2023.

This Is Where We Are Going

In early 2023, we will share further information on the roadmap to implementation of the remaining Missing and Missed Recommendations.

Community Conversation Circles

Community conversation circles will be planned and held to share information on implementation and to obtain feedback from the broader community to ensure we are implementing with community and not for community.

The Road to Implementation

We are grateful to the M.M.I.T., Service members, and the Board staff who have taken on this challenging and important work.

We are guided by and are committed to meaningful engagement with our Community Representatives. Therefore, we continue implementing the recommendations with and incorporating thoughtful feedback from our Community Representatives.

This partnership and the work we achieve together ensure we improve our relationships with communities, procedures, processes, practices, training, education, professional development, and culture. This is no small task; we feel we are on the right path due to this process. Implementation will take time, and we continue to focus on engaging in meaningful relationship-building; we are committed to getting it right.

Where it Began

Missing and Missed

In 2018, on the recommendation of a diverse community-led working group, the Toronto Police Services Board (Board) commissioned The Independent Civilian Review into Missing Person Investigations (The Review) to evaluate how the Toronto Police Service (Service) has conducted and is conducting missing persons investigations.

The Missing and Missed – Report of the Independent Civilian Review into Missing Person Investigations was released on April 13, 2021. The report culminated almost three years of inquiry and research and resulted in 151 recommendations.

The Service and the Board are committed to implementing all 151 recommendations.

The Missing and Missed Implementation Team (MMIT)

The Missing and Missed Implementation Team (MMIT) formed in July 2021 as required by Missing and Missed Recommendation 146, comprises Community Representatives and Police Representatives and is co-led by one Community Representative and one Police Representative.

The MMIT Community Representatives are actively involved in the implementation of the Missing and Missed Recommendations. The Service will only proceed with significant decisions on implementation if such decisions have been discussed with the Community Representatives.

Recommendation Implementation Status

(As of February 28, 2023)

Of the 151 recommendations:

• 16 have been Implemented [An additional seven (7) recommendations that are listed as In Progress have had all of their Deliverables completed and are in the approval process]
• 115 are In Progress
• 20 have Not Started

Not Started: this means that even though much preparatory work has been completed to get a recommendation to the starting point of the implementation process (specifically by assessing the recommendation; establishing goals/deliverables; developing a work plan; and assigning responsibility and accountability for the recommendation), work to complete the goals/deliverables has not yet started.
 

2023 Quarter 1 (Q1) Highlights

Community Meetings

MMIT Community Representatives, members of the Homicide and Missing Persons Unit, and the Missing and Missed Project Team (MMPT) attended the 51 Division Community Police Liaison Committee (CPLC) meeting and the 2SLGBTQI+. Chief’s Consultative Committee (CCC) meeting in January 2023 to discuss the implementation and the status of the Missing and Missed Recommendations.

Expansion of the Homicide and Missing Persons Unit

The Homicide and Missing Persons Unit, specifically the section dedicated to missing persons investigations, has been expanded and is now comprised of eight (8) Detective Constables, one (1) Detective and one (1) Staff Sergeant. In addition, a permanent civilian Crime Analyst position has also been created and filled.

With the expansion, these members are available from 7:00 am to 10:00 pm with on-call availability during from 10:00 pm to 7:00 am. Investigators are available for deployment twenty-four hours a day, seven days a week (24/7). The Homicide and Missing Persons Unit provides continuous support and guidance for missing persons investigations to investigators city-wide. Missing persons occurrences and calls for service are reviewed by the Homicide and Missing Persons Unit daily.

The Homicide and Missing Persons Unit is part of the Provincial Missing Persons Investigators Working Group which is run by the Ontario Provincial Police, Ontario Centre for Missing Persons and Unidentified Remains (ONCMPUR). The ONCMPUR meets quarterly and discusses notable investigations, case studies, resources, processes/policy, and ways police services can help each other improve missing persons investigations.

Public Information Released About Missing Persons

In early February, the Service issued a news release advising the community and the media about changes to the public information released in relation to missing persons. The changes were made in consultation with the Homicide and Missing Persons Unit and the MMIT, with a goal to better protect the missing person’s privacy in the future, while still disseminating information that is necessary and effective in locating them, including the individual's image.

The Service no longer routinely includes the missing person’s surname and gender in news releases and social media posts. Each situation will be evaluated on an individual basis. This change will help protect the privacy of individuals while also maintaining the integrity of missing persons investigations.

Funding for Governance and Oversight

The Board's budget request for 2023 included an increase, dedicated primarily to the addition of three (3) new full-time employees. Two analyst roles in Governance Quality Assurance and one Advisor role in Indigenous Engagement were added. Increasing the complement in the Board Office will increase it’s Staff’s ability to support the Board in carrying out its governance and oversight duty through improved data collection and analysis, and greater engagement with diverse communities across Toronto.

Major Case Management Training and Education

The Major Case Management (MCM) section, in partnership with the provincial Serial Predator Criminal Investigation Coordinator (SPCIC) held mandatory training sessions geared exclusively to the Service’s Detective Sergeants to address legislative obligations specifically regarding MCM and SPCIC. The SPCIC will be participating in the MCM courses going forward.

A Peek at 2023 Quarter 2 (Q2)
 

Missing and Missed 2nd Anniversary

The Service is hosting a public event to mark the second anniversary of the release of Missing and Missed – Report of The Independent Civilian Review into Missing Person Investigations. This event, titled Missing and Missed: From Report to Action will be held at Toronto City Hall, 100 Queen Street West, in the Rotunda, on April 15, 2023 from 12 p.m. to 3 p.m.

This event will include progress reports on the Missing and Missed Implementation, the plan going forward, and an opportunity for interested parties to speak directly with MMIT Community Representatives and MMIT Police Representatives. Everyone is invited to attend; light refreshments will be served. Click here for information.

Response Assessment Application (App) Testing

The Missing Persons Response Assessment Application (App) was approved for Pilot in 2022 Q1. The Service will release a new update to the Response Assessment App in 2023 Q2 and will continue Service member training and app testing. Officer feedback is pivotal for informing the next iteration of the App.

Community Conversation Circles

Community Conversation Circles will begin late in 2023 Q2 or in Q3.The purpose of the Community Conversation Circles is to engage with various communities in the GTA to present our progress on the 151 recommendations, engage in dialogue to receive feedback on the process and understand nuances, and build relationships through education and conversation. The conversation circles will not be conducted using a formal town hall process but using an Indigenous model of sharing and connecting.

Missing Person Awareness Day

Recommendation 87 calls for the Toronto Police Service to conduct a Missing Person Awareness Day to provide information to the public on missing persons investigations and to highlight and provide valuable insight on community resources and supports. As a result, the Homicide and Missing Persons Unit, in collaboration with Corporate Communications, will be running a campaign to raise awareness regarding missing persons during the month of May.

During this campaign, the Homicide and Missing Persons Unit will take the opportunity to highlight the National Day of Awareness for Missing and Murdered Indigenous Women and Girls and Two-Spirit People (May 5) and International Missing Children’s Day (May 25). The campaign will also highlight some active missing persons cases and provide tips and answers to frequently asked questions. Stay tuned to the Homicide and Missing Persons Unit’s official Instagram account (MissingPersons.TO) for more information.

Missing Persons Investigations

Members of the Homicide and Missing Persons Unit visited approximately six (6) divisions to speak with the platoons to provide additional guidance on Missing Persons investigations and holding question and answer sessions thus far during 2023 Q1. In addition to demonstrating the heightened importance of Missing Persons investigations, these sessions proactively provide members the opportunity to ask questions they may not feel comfortable asking via email.

Beginning in early March, visits are planned to at least two other divisions, including ongoing discussions regarding group homes within the divisions. These visits will continue in 2023 Q2, and Q3 if necessary, until all platoons at all divisions have been visited.

The Work Continues

We are proud of the fruitful partnership with and involvement of our Community Representatives in all implementation stages and approval processes, from the monthly progress updates and the working group meetings, to the final sign-off of each Missing and Missed Recommendation Implementation Report.

We are grateful to the MMIT, Service members, and the Board staff who have taken on this challenging and important work.

We continue to focus on engaging in meaningful relationship-building and engagement with our Community Representatives, while incorporating thoughtful feedback from our Community Representatives as we work to implement the 151 recommendations.