8  Taking Action

Modernizing the TPS will not happen overnight. The projects required to implement our action plan are multi-year and interconnected. Neighbourhood-centric policing, for example, is not a single initiative but rather a complex combination that includes among others, the connected officer, implementing Priority Response, realigning divisional boundaries and relocating police stations, diverting calls to other city departments, and culture change.

Significant work is already underway. Over the past six months, with the advice of the Task Force, the Service has been actively preparing for implementation. We have seen these efforts first hand and are optimistic that this is a new approach, with leadership and commitment that are aligning to the scope of our recommendations. Efforts to date have focused on building new organizational capacity to lead and implement change, as well as conducting analysis and engaging with the City and experts on the scope and phases of work required.

Over the next six months, the Service will be developing more detailed implementation plans and will be reporting quarterly on those through the Board and the Scorecard.

The following summarizes the eight additional recommendations we are making in this final report. It is followed by Taking Action tables that describe the status of work on the recommendations from our interim report.

Additional Recommendations

Recommendation 25

We are recommending that in the next 90 days the Service come forward with a broad, inclusive and ongoing public engagement strategy for modernization.

This strategy should incorporate opportunities for individual residents, make effective use of the existing Community Police Liaison Committees and Chief ’s Consultative Committees, and involve community groups and agencies, youth workers, and youth from different neighbourhoods.

Recommendation 26

We are recommending intensive and meaningful engagement with Service members on implementation as an essential part of modernization, and as an opportunity for the leaders of the Service to demonstrate culture change in action. Members should have the chance to speak candidly, feel their input matters and have opportunities for collaboration on questions of design and implementation. Creating and empowering work teams from across the organization will also be an important part of the process.

Recommendation 27

We are recommending substantive engagement on implementation with the Toronto Police Association and the Senior Officers’ Organization in the months ahead. The process needs to be open in terms of the evidence to inform important collective agreement discussions about more effective scheduling and deployment. These discussions should respect the important role that these two organizations play in representing their respective memberships and the role of the Board and the Service’s senior leadership in representing the public interest.

Recommendation 28

We are recommending four mutually reinforcing actions to establish new pathways of accountability that are peer-to-peer within the Service, between officers and their leaders, and between the Service and the public. These pathways are components of the culture change plan described in Chapter 6 and will result in a significant shift in the accountability culture of the organization.

Recommendation 29

We are recommending that the Board appoint an independent advisor with strong experience in complex change management to provide it with advice and perspective.

Recommendation 30

We are recommending a comprehensive people management and HR strategy for the Service that includes significant changes to:

  • The roles, functions and structure of the Service’s Human Resources unit to enable it to a play a more modern and strategic role.
  • HR policies, processes, analytics and tools that will enable modernization of service-delivery and deployment changes.

Recommendation 31

We are recommending that the Service report on progress quarterly to the Board and share these updates with the public. These reports will be framed by the Strategy Map, encompass all modernization activities and initiatives underway, and include both outcome and process measures.

Recommendation 32

We are recommending an initial Modernization Scorecard. When fully realized, it will be comprehensive, transparent, accessible to all and an example of culture change in action.

As of Dec 31 2016
(to be validated in proof of concept)
1. Connected officers Investment in transitioning from Mobile Workstations in vehicles to smart devices carried by all officers. This will include a full application suite and eNotebook, as well as updating existing applications to a mobile environment and allowing officers to be connected at all times to the most current operational information. The next steps will include research, analysis of best practices, assessing network opportunities, and developing and costing different options, leading to purchase decisions and implementation in 2019. Established governance, identified business needs, engaged vendor. Conduct best practice discovery and systems review, develop business requirements and determine first level of costing. Plan software transition, conduct proof of concept, deploy smart devices (phase 1) and deploy public safety broadband network (phase 2), complete evaluation and quality control. 2019+ (Multiple Phases)
2. Improved capabilities related to data, information, and analysis, including “big data” Toronto Police Service support the new service delivery model with a strengthened capacity to collect, measure, and evaluate data from a wide range of internal and external sources, including an improved capacity to model demand and workload as well as analytics of large complex data sets (“big data”). With this ability, the Service will be better able to deliver evidence-based policing services where they are needed most , in a way that is proportional, appropriate, and more sustainable. Acquired hardware, Privacy Impact Assessment completed, working group established and kicked off, training started and implementation of development environment in progress. Develop applicable governance, continue development of system and data management processes. Develop system functions, engage users and subject matter experts for testing and feedback. Release an initial set of tools with reporting access to the Service. 2018
3. Disbanding TAVIS TAVIS will be disbanded and existing members will be redeployed to other Service Priorities. Officers have been redeployed within the Service, as of January 2017. Completed N/A 2017
4. Risk Assessment for priority response Toronto Police Service develop a risk assessment tool to identify nonemergencies that can be addressed through alternative approaches, including redirection to the mandated city department or other agency Identified preliminary needs and engaged City of Toronto. Establish partnerships and governance, conduct systems review and proof of concept. Conduct workflow analyses, develop training and communications strategies. 2019
5. Alternative reporting and follow-up for non-emergencies

The use of alternative ways for people to report non-emergency situations, i.e. where an immediate officer response is not necessary for personal safety, or to meet an immediate investigative need, including:

  • Enhanced, easy to use, and convenient on-line, digital, and by-phone reporting tools for low-risk incidents with civilian reporting and intake personnel available by appointment at police stations. 
  • The use of civilian members to more efficiently follow up on less serious/nonemergency neighbourhood safety incidents
Identified demand needs, outlined conceptual model, and reviewed best practices, including a model that currently exists in 43 Division. Establish partnerships, establish governance, begin legislative and systems reviews, begin planning for proof of concept. Conduct proof of concept and training, develop communications strategy and begin implementation. 2019
6. Improved public safety response A specialized Public Safety Response Team be formed with a comprehensive mandate that includes extreme event response, public order, search management, and critical infrastructure protection. Identified demand needs, began initial back office processes. Establish governance (including Board and Police Association committee), initiate negotiation process. Complete implementation. 2017
7. More efficient scheduling We are recommending that the shift schedule known as the Compressed Work Week be reviewed. The current approach requires a consistent deployment, regardless of the time of day or demand patterns, which we believe may limit the Service’s ability to deploy resources more flexibly. Changes in this area will require a negotiated change to the collective agreement with the Toronto Police Association. Identified preliminary demand needs, performed preliminary analyses. Establish governance (including Board and Police Association committee), initiate negotiation process. Continued analysis, review and negotiation. Implementation and review of pilot areas where viable. 2019+ (Multiple Phases)
8. More effective deployment in vehicles Using risk and demand analysis, we believe there may be an opportunity to identify situations where unaccompanied officers or response alternatives are more appropriate and will allow for more effective deployment while continuing to ensure officer safety. Changes within the period from 1900 to 0300 will require a negotiated change to the collective agreement with the Toronto Police Association. Identified preliminary demand needs, conducted research for potential response models for use of two-officer cars. Establish governance (including Board and Police Association committee), initiate negotiation process Continued analysis, review and negotiation. Implementation and review of pilot areas where viable 2019+ (Multiple Phases)
9. A risk-based response to special events The Service support special events through a fair and equitable threat and risk assessment. This will focus police resources on events where their presence is necessary for public safety. For designated situations, event organizers will be responsible for their own security measures.
We are recommending a more integrated structure for special events. Divisions currently support local events within their boundaries, while the Public SafetySpecial Events Unit handles large scale major events. This leads to challenges in consistency of approach, risk assessment, and staffing, which will be addressed in the new design.
Identified business needs, conducted preliminary scenario/feasibility analysis. Establish governance, develop tools and approach, design training plans. Test and evaluate training plans and implement. 2018
10. A more efficient retail response Recommendation from Interim Report: Toronto Police Services Board seek the Government of Ontario’s approval to appoint and train selected security guards at major shopping malls as Special Constables. These individuals will be authorized to process and release arrested individuals in designated nonemergency situations. We estimate that through this change, it will be possible to save approximately 5,500 hours of policing services per year, while reducing costs for the private sector. Meetings were held with a number of Toronto’s major shopping mall property management companies. While there was agreement that this program would reduce waiting times, property owners expressed concerns about potential liabilities. As the Service makes the shift from Primary to Priority Response it will be able to implement a more efficient way to respond to these situations without training security staff as Special Constables. See update under “Progress to Date”. See update under “Progress to Date”. See update under “Progress to Date”.
11. Disband the Transit Patrol Unit Disbanding the Transit Patrol Unit. The Unit was originally established to supplement the day-to-day role of Divisions to respond to calls for service related to Toronto Transit Commission vehicles, subways and properties. However, this role is no longer required since the Toronto Transit Commission now has a highly capable Special Constable Program in place, and local Divisions will continue to respond to calls as required. Transit Patrol Unit members will be redeployed to other priorities. Officers have been redeployed within the Service, as of January 2017. Completed. N/A 2017
12. Alternate delivery of the Lifeguard Program Toronto Police Service Lifeguard Program and its $1.1 million budget become the responsibility of the appropriate department of the City of Toronto. This program provides lifeguard services on Toronto beaches while the City of Toronto provides lifeguard services for the rest of the city. For example, City of Toronto personnel provide lifeguard services at the Sunnyside Gus Ryder Outdoor Pool. A few metres away, on Sunnyside Beach, lifeguard services are provided by the Toronto Police Service. Civilian staff currently supporting this program will be redeployed to other priorities. Engaged City of Toronto, issued letter to Mayor’s office, developed preliminary hand over to the City. Identify partnerships, establish governance and initiate data analysis activities. Continued development and implementation of transition plan. 2018
13. Alternate delivery of the School Crossing Guard Program The School Crossing Guard Program, with its $6.8 million budget, become the responsibility of the City of Toronto, or an alternative. Currently, the Toronto Police Service administers the program and sends officers to fill in when crossing guards are unexpectedly absent. In 2015, this resulted in 3,138 hours of officer time away from other needs to which only a police officer can respond. This recommendation will allow members that support the program to be redeployed to other priorities. This change was also recommended as part of the 2011 KPMG City of Toronto Core Services Review. In 2013, the City of London, Ontario implemented a similar approach. Engaged City of Toronto, issued letter to Mayor’s office, developed preliminary work plan. Identify partnerships, establish governance and initiate data analysis activities. Continued development and implementation of transition plan. 2017
14. Using traffic technology enforcement to improve community safety The City of Toronto implement traffic enforcement cameras that are owned and operated by the City of Toronto, in school zones and areas identified as having higher collision rates, as a way of modifying driver behaviour and reducing risks. The Service will provide collision and enforcement related data to inform where the cameras should be located. This recommendation means that our city will use all of the tools it can to provide the right mix of prevention, enforcement, and response. It is also an area of growing need because of the densification of people and vehicles. Presented detailed letter of support to the City of Toronto. Subsequent meetings have determined that data is available to select appropriate camera locations. Formally request plan, and work with City of Toronto for effective implementation where appropriate. Support and execute implementation plan. 2019
15. Overhauling Paid Duty An overhaul of the Paid Duty process. The current process is not well understood and often puts the reputation of the Toronto Police Service at risk. In our final report we will include recommendations for a risk assessment model to ensure that off-duty police officers are only utilized in a paid duty capacity where the skills, authorities, and training of a police officer are necessary. We will also be clear about those situations where private security is the appropriate alternative. Identified needs, conducted preliminary scenarios and feasibility analysis, engaged Mayor’s office for support in amending the Highway Traffic Act. Develop evaluation tools, conduct legislative review, develop a communications strategy and begin implementation. Continued implementation and updates based on legislation. 2019
16. City-wide divisional boundary and facilities realignment Toronto Police Service begin a phased redesign of its Divisional structure and alignment of facilities. The redesign will follow the principle of lifting all boundaries from the city map, and then using demand and workload modelling to draw new boundaries and facility locations that take into account the boundaries of Toronto’s 140 neighbourhoods, and coordinate better with the planning of other city and provincial services. The redesign will draw on the enhanced analytics capacity described earlier, related to demand and workload modelling. The Service will also engage and obtain input and advice from the City Planning department. The details of a new configuration will take time to establish and will require intensive discussion and engagement with the public and Toronto Police Service members. As a first step in the phased realignment, we are recommending the amalgamation of 54 and 55 Divisions. This will involve working with an independent consulting firm to determine the right location for a new station, and to determine the appropriate workload balance and reporting structures. This amalgamation will also include the first phase of a longer term consolidation of criminal investigators into a more flexible and streamlined group. Between now and our final report, we will be exploring similar options for Divisions 12, 13, 33, 41, 52, and 53.
We are also recommending that the Service test the dispatching of priority response through the use of Automated Vehicle Locating, which will allow it to send the closest resource to a call for service.
Identified preliminary demand needs. Business requirements for amalgamation of D54 and D55, identified possible location. Establish partners, conduct indepth analysis, conduct facilities, technology and Human Resources reviews. Develop new facility designs, begin to conduct proof of concept and develop prototype. 2019+ (Multiple Phases)
17. More accessible and transparent information and services

As the Divisional map is redesigned, we are recommending an investment in modern technology to offer the public open access to information and tools that communities can use to improve neighbourhood safety, including:

  • A public safety data portal to encourage the creation and use of open data for public safety in Toronto. The portal is intended to improve the understanding of policing, improve transparency, and enhance confidence.
  • A wider, up-to-date range of means to speak with neighbourhood officers – in person and by phone, but also through video calling, social media, and the Toronto Police Services app. Through their mobile devices, officers will also have access to preliminary translation, in hundreds of languages.
  • Enhancing the Toronto Police Service app so, that when a neighbourhood crime is reported, a mobile connected officer in the area, or in any setting can view the information in real-time.
  • Enhancing real-time data and information about what’s happening in neighbourhoods, including crime trends and more general policing metrics, while respecting privacy requirements.
  • Offering technology that brings communities together to crowdsource and solve safety problems, using their phones, which will allow for improved community intelligence related to incidents like break and enters.
  • Offering technology for communities to anonymously crowdsource and report concerns about officers, which will allow the Service to respond more quickly and transparently.
Evaluated data for release, liaised with Information & Privacy Commissioner regarding release of data and privacy impacts, updated open data web portal. Conduct in-depth analysis, prepare Privacy Impact Assessment, foster additional partnerships, establish relevant governance, continue to update open data web portal. Prepare first data release in collaboration with City of Toronto and other partners, conduct training/workshops and host Open Data competition. 2017+ (Multiple Phases)
18. Moratorium on hiring and promotions A carefully managed moratorium on hiring and promotions between ranks for officers and civilians over the next three years while the Service designs and deploys the new service delivery model. This moratorium will allow the Service to ensure that it has the right type and number of members for the new service delivery model, and the leanest possible management structure. There will be some circumstances where hiring or filling vacant positions may be necessary – for example, to make investments in modernization, achieve other strategic priorities, comply with legislative requirements, or provide adequate supervision. In these situations, the Service will implement a rigorous and transparent assessment process before approval is given, and will continue to report on the number and types of situations where it has been necessary to do so. Processes implemented to effect hiring freeze, communications strategy developed and executed (uniform and civilian members have been informed). Continue monitoring and forecasting, align any new staffing investments with modernization. Monitor 2019
19. Assessing Information Technology requirements Toronto Police Service retain an external expert advisor to review potential efficiencies, alternative service delivery models, and future trends for information technology in policing. The advice will include immediate efficiencies that may be possible through benchmarking, as well as an Information Technology Unit organizational assessment and identification of opportunities for alternative service delivery mechanisms. Conducted Request for Proposal, selected vendor, completed external third party initial report and received recommendations. Review initial report and move forward with more comprehensive review. This will develop a technological maturity road map. Second review to be completed and a full information technology roadmap for the next three to five years to be developed along with an accountability structure. 2017
20. Alternative or shared delivery of Court Services Toronto Police Service fully assess whether alternatives exist that can reduce costs while ensuring that the Toronto Police Service fulfills its court security obligations under the Police Services Act. Request for Information and subsequent scoring completed, legislative review completed. Conduct best practice discovery and systems review, initiate cost modeling/cost benefit analysis, engage required stakeholders. Conduct cost modeling/ cost benefit analysis, conduct Request for Proposal, select service provider, implement transition of services as appropriate. 2019
21. Alternate or shared delivery of Parking Enforcement The Service fully assess whether there are better alternatives to the current Parking Enforcement Unit that will lower operating costs – as has also been recommended by previous reviews. The Parking Enforcement Unit budget is wholly separate from the Toronto Police Service’s annual operating budget. Request for Information and subsequent scoring completed, legislative review completed. Conduct best practice discovery and systems review, initiate cost modeling and analysis. Conduct cost modeling and analysis, conduct Request for Proposal, select service provider, implement transition of services as appropriate. 2019
22. Alternate or shared delivery of background screenings The expanded use of contract agents to conduct background screening as part of the Toronto Police Service’s hiring process. The current approach involves a combination of officers and contract agents. Officers who are currently part of this function would be redeployed to other priorities. Request for Information and subsequent scoring completed. Conduct best practice discovery and systems review, initiate cost modeling. Conduct cost modeling and analysis, conduct Request for Proposal, select service provider, execute transition of services. 2019

23. Investment in


Consultation with the City of Toronto on implementing a 9-1-1 cost recovery fee that would recoup the cost of providing these services to all land and wireless telephone users. The recovery fee would also provide the foundation for future investments in new 9-1-1 technology including allowing the Service to receive text messages, photos, videos, and better location information. Currently, the Toronto Police Service’s Communications Centre is the answering point for police, fire, and paramedic services. The costs to staff, operate and maintain these operations are covered though the Service’s budget. At present 9-1-1 cost recovery fees are in place in eight other provinces. City of Toronto has been engaged and a strategy proposed for an approach to the Province of Ontario. Upon receiving a commitment for legislative change from the Province, establish partners, conduct systems and legislative reviews, conduct proof of concept, establish governance. During and after Provincial legislative change, continue planning, develop communications & training strategies and implement. 2019+ (Multiple Phases)
24. Comprehensive culture change and human resources strategy

A comprehensive approach to culture change that considers all the ways in which culture is embedded in the organization. The culture change starts from within, how the TPS operates and manages as a public service organization. It also involves an external focus in terms of how the TPS services and engages with the public, stakeholders and partners.
The approach focuses on four key strategic fronts:

  • Leadership and decision-making - sustained effort to overcome natural resistance and to keep the organization focused and on track
  • People management and human resources strategies - a comprehensive people management and Human Resources (HR) strategy for the Service
  • Structures and business processes - significant changes to structures and processes across the organization that serve as important levers of cultural change
  • Use of technology and management information - technology and information management initiatives that will both enable and drive culture change (e.g. Connected Officers, Enterprise Business Intelligence, Assessment of IT Services and Open Data for Change)
Conducted review of Human Resources function, enhanced Strategy Management Office to plan, implement and oversee modernization and have integrated human resources leadership into modernization efforts. Receive final review of Human Resources services, restructure Human Resources and Organizational Development structures, develop an overall Human Resources plan, align work on culture and Human Resources. Complete a culture assessment (within first 6 months) and develop an integrated project and change management strategy.


(This is an ongoing strategy that will be updated regularly and its implementation will therefore also be ongoing)



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