RCMP-History-Mod4

MODULE IV

NORTH-WEST MOUNTED POLICE (RCMP): 1945 - 2001

Table of contents

Postwar Reorganization: 1945 - 1950
Reorganization of Air and Marine Services
Expansion of Security Intelligence Operations
Changes in the North
Youth and Police
The RCMP Musical Ride
Expansion in the 1950's
Expansion of the Special Branch
International Activities
Resignation of Commissioner Nicholson
The Campaign Against Organized Crime in the 1960's
The Dorion Inquiry
Combatting Organized Crime
Changes to the Force in the 1960's
The Royal Commission on Security
Auxiliary Constable Program
Development Since 1970
Organized Crime
Airport Security
The McDonald Commission of Inquiry Concerning Certain Activities of the RCMP
Technological Developments
Marine and Air Services
Police Dog Service
Changes in the RCMP
Admission of Women
Changes to the RCMP Uniform
Community Policing
Mission, Vision, Values/Shared Leadership
Regionalization
Alignment
The Four Pillars
District Policing Model
Aboriginal Policing
The RCMP Today - Present Status
Strategic Priorities
Organization of RCMP Services
Federal Policing Services
National Police Services
Peacekeeping Services
Internal Services
Questions for Module IV
Appendix

Postwar Reorganization: 1945-1950

The postwar era was characterized by the improvement of RCMP facilities and the rapid expansion of its resources. The Force continued the wartime use of civil servants for clerical work, and retained the services of the Reserves. Recruiting was resumed, and a more rigorous academic and practical training program was instituted. In particular, the period was marked by the increasing use of technology, most notably in the field of communications.

Reorganization of Air and Marine Services

At the end of the war, the personnel and equipment of the Air and Marine Sections were returned to the Force. The Marine Section was reorganized with the addition of four former minesweepers, four motor launches, and 13 harbour defence patrol ships. In 1947, with 195 members, it was constituted a Division with headquarters in Halifax. The duties of Marine Division included rescue operations, inspection of vessels under the Canada Shipping Act, and enforcement of the Customs and Excise Act and other federal statutes.

The Air Section was reorganized in 1946 with headquarters located at Rockcliffe and detachments established in each of the four western provinces. By 1950, it consisted of seven planes and 20 personnel. The Air Section was responsible for a wide variety of tasks: providing transportation for officers, laboratory experts, police dogs, witnesses, prisoners, and exhibits; carrying out patrols in connection with the enforcement of the Customs and Excise Act; assisting in search and rescue operations; transporting provisions and other cargo to detachments in northern regions; and rendering assistance in the event of civil emergencies such as floods and forest fires

In 1946 the Air Section was reorganized with the purchase of two Beechcraft and an amphibious Grumman Goose.

Expansion of Security Intelligence Operations

In 1945, shortly after the end of the war, the defection of a cipher clerk at the Russian Embassy in Ottawa, Igor Gouzenko, revealed the existence of an elaborate Communist spy ring operating in Canada. During the war, the RCMP had warned the government that the Soviet Union had not abandoned its goal of world domination through espionage and other means, and that certain persons in Canadian government departments were involved. The revelations of Gouzenko ushered in the modern era of Canadian security intelligence operations. Following a lengthy investigation by the Force, a Royal Commission recommended an expansion of its security duties. As a result, the number of persons involved in security intelligence work increased rapidly. In 1946, the Intelligence Section, which had been part of the Criminal Investigation Branch, was organized into Special Branch, a separate and independent branch of the Force. There was also a steady expansion after World War II of RCMP investigative and preventive activities with respect to both foreign intelligence agencies in Canada and various forms of domestic "subversion".

Changes in the North

The population expansion in the north after the war, partly as a result of the resumption of gold mining, brought an increase in the number of criminal cases, and the greater volume of traffic on the Alaska Highway meant that more patrols were needed. Infractions of the Indian Act, largely related to liquor, also increased. In addition, the RCMP was responsible for the registration of all Inuit families entitled to benefits under the Family Allowance Act of 1944, a task made more difficult by the fact that the births of their children had not been registered.

RCMP services in the north were revolutionized by modern means of communication and transportation. In 1946, one of the most northerly radio stations in North America was established at Dundas Harbour, Devon Island. In 1950, the patrol schooner St. Roch sailed from Esquimalt to Halifax via the Panama Canal, becoming the first ship to circumnavigate North America. The same year, Henry Larsen established a record by travelling 17,328 miles by plane, boat, and car to inspect Arctic detachments.

As almost the sole representative of the Canadian Government in the Arctic, the Family Allowance Act of 1944 added a new task to the Mounted Policeman's varied role of postmaster, custom's officer, registrar of vital statistics and the like.

"Youth and Police"

In 1945, the RCMP created "Youth and Police," a community relations program designed to reduce the number of juvenile delinquents and promote good relations between the police and young people. Members of the Force voluntarily participated in the program, which included lectures at schools and churches and involvement in sports and community activities. It became so successful that it attracted attention in the U.S., Australia, and New Zealand.

The RCMP Musical Ride

The first Musical Ride performance was held at the Regina barracks in 1887. Regular public performances began in 1904. At the time, Commissioner Perry realized its value in promoting good public relations. The display of horsemanship, derived from traditional cavalry drill movements and usually accompanied by music, quickly became a popular attraction throughout North America. During the 1920's and 1930's, there were two Musical Rides, one at Regina and one in Ottawa. The Ride's activities were disrupted by the outbreak of war in 1939, but it was revived in 1948, and Commissioner Wood's dream of an all-black equine troop with scarlet-clad riders was realized.

The R.C.M.P. Musical Ride

Expansion in the 1950's

The dramatic population increase in the 1950's, as a result of a rise in the birth rate and the immigration of one-and-a-half million people from war-ravaged Europe, led to an expansion of RCMP services. There was more robbery with violence, more traffic in narcotic drugs, and more passing of fraudulent cheques. In an effort to decrease crime, a booklet entitle Crime in Your Community was published in English and French asking businessmen and homeowners across Canada to cooperate in crime prevention. A second booklet, Beware of Bad Cheques, followed. In 1953, an inspection team was set up to improve efficiency in Divisions and detachments, and an analysis was made of the workload and responsibilities of every member of the Force. It proved beyond doubt that the RCMP was understaffed and that many members were performing duties beyond their ranks. By 1954, the strength of the Force was increased to 4,420 men. The government authorized additional manpower to a total strength of 7,558 in 1960. This included the new category of "civilian member", i.e. those who performed specialized duties but were not peace officers.

Accommodations were also improved by the acquisition and renovation of a large seminary on the outskirts of Ottawa for the national headquarters, and by designing standardized detachment buildings across the country. Headquarters Division was restructured in 1960 into six directorates: Operations and Criminal Investigation; Security and Intelligence; Administration and Organization; Marine Services; Telecommunications; and Services and Supply. Marine Services headquarters was moved from Halifax to Ottawa to provide more centralized control of watercraft on both east and west coasts and inland waters.

There were other noteworthy developments in the 1950's. Communications were improved by the use of more radio-equipped cars and by the installation of two-way radios on patrol boats in the Great Lakes. The system was enlarged when radio-telephone facilities were established at a number of detachments in the far north. In 1958, the communications network of the RCMP was expanded with the installation of a Telex system which provided fast and reliable service from coast to coast. The Crime Detection Laboratories introduced improved techniques, and in 1958, a new laboratory was established at Sackville, New Brunswick. The Identification Branch established a Fraudulent Cheque Section, and began use of the "Soundex" system to expedite the searching of name cards. Radar speed meters and breathalyser units enhanced the gathering of evidence in cases of speeding and impaired driving. In addition, the training of recruits and members received more emphasis than ever before.

Expansion of the Special Branch

In the early 1950's, the RCMP began to recruit civilian members into the Special Branch as Reader Analysts. Their primary duty was to analyze information from the field and to write intelligence reports for government departments. In 1956, the Special Branch was elevated to the Directorate level and became known as the Directorate of Security and Intelligence, or "I" Directorate.

International Activities

During the 1950's, the RCMP became very much involved in international activities. Members of the Force were sent to Europe to interview applicants for immigration to Canada in order to exclude those who were criminally or politically undesirable. In 1951, a visa control office was opened in London, England; a second office was established at Cologne in 1959. Moreover, through an officer and staff in Washington, D.C., the RCMP maintained liaison with the U.S. Bureau of Investigation, Narcotics Bureau, Customs and Immigration Departments, and Secret Service.

Resignation of Commissioner Nicholson

In 1959, during the woodworkers' strike in Newfoundland, Commissioner L.H. Nicholson resigned in protest against the federal government's refusal to allow 50 Mounted Police reinforcements to be sent from other provinces. As the RCMP is not an autonomous organization, federal approval was necessary for the additional manpower, and it was refused on the grounds of disrupting policing elsewhere. Nicholson did not agree, and regarded the government's decision as a breach of faith which prevented the Force from fulfilling its contract with the province.

The Campaign Against Organized Crime in the 1960's

In the postwar period, the RCMP enjoyed considerable success in its efforts to combat organized crime. Between 1941 and 1951, the Force successfully pursued conspiracy charges against illicit distilleries in the Winnipeg area, a syndicate transporting narcotics from Ontario to the west coast, and a group in Toronto distributing 10-dollar Canadian bills counterfeited in Buffalo. However, in 1960, Commissioner Harvison warned of the spread of organized crime throughout the country, noting that Canada had become "an increasingly attractive target" for organized crime syndicates. The principal criminal activities included drug trafficking, fraud, counterfeiting, money laundering, contraband smuggling, and illegal gaming. The RCMP campaign against organized crime began in 1961 with the creation of seven National Crime Intelligence Units from Montreal to Vancouver. Their purpose was to discover the memberships of criminal groups and their characteristic methods of operation.

Drug trafficking posed particular problems for the RCMP. Few of the people involved complained to the police and fewer would provide information. The most successful investigative procedure was for members of the Force to act as undercover agents. In 1962, an RCMP constable posed as a heroin addict in Vancouver, resulting in the conviction of 20 traffickers. The following year, the Mounted Police ended a heroin syndicate in Guelph, Ontario, which was supplying the Toronto and Hamilton areas. However, the number of addicts was rising, and new suppliers always appeared to reap the high profits. The RCMP simply did not have the resources to stop them all.

By the mid-sixties, the use of the so-called "soft" drug marijuana, especially among young people, presented an additional problem for the police. As it was included in the Narcotics Act, they had to enforce the law by arresting users. As a result, they were blamed by many in the press and public when convictions left many youths with criminal records. The use of LSD was also increasing, but because it was not covered in the law, the RCMP could merely report to the Food and Drug Directorate, although it could arrest sellers. The abuse of soft drugs became so prevalent that special drug squads were established in Canada's smaller cities as well as the larger, and other work suffered as a result.

The Dorion Inquiry

In 1964, a scandal erupted which involved prominent politicians and resulted in severe criticism of the Force. U.S. authorities had charged a Quebec resident, Lucien Rivard, with importing narcotics and requested his extradition. He was arrested by the RCMP and held in a Montreal jail. Raymond Denis, executive assistant to the Minister of Citizenship, offered a bribe of $20,000 to Montreal lawyer Pierre Lamontagne to allow bail. An additional $60,000 was to be deposited in the Liberal party coffers. Lamontagne refused the bribe, but did not report it to the RCMP for almost four weeks. The Force immediately began an investigation, but failed to uncover evidence to support Lamontagne's accusation. The file was closed until the question was raised in the House of Commons, and the government in embarrassment appointed a Royal Commission of Inquiry under Frederic Dorion, Chief Justice of the Quebec Supreme Court.

The Dorion Report, issued in June, 1965, concluded that there was sufficient evidence of a criminal offence and rebuked the Mounted Police for mismanaging the investigation and terminating it prematurely. As a result, the RCMP resolved that, in future, cases linking politicians with crime would be investigated in precisely the same manner as all other cases. Commissioner McClellan advised the government that coordinated police action was necessary to prevent the entrenchment of organized crime in Canada, and argued that the U.S. experience showed that the corruption of politicians was a basic requirement for the success of this type of crime.

Combatting Organized Crime

In 1966, the government called a Federal-Provincial Conference to determine national measures that could be taken to combat organized crime. Conference delegates proposed that police forces with organized crime problems establish their own criminal intelligence units and that each province create a repository that would collect, analyze, and disseminate the information gathered by individual police forces. Later in the same year, a second Federal-Provincial Conference focused on financial crimes, especially securities frauds. This led to the creation of a repository of information available to all police and provincial securities commissions, and the establishment of fraud squads in all the major cities to coordinate the investigation of securities crimes throughout Canada and elsewhere if necessary. In 1967, a colour-sensitive wire photo service was added to the RCMP telecommunications network, which was already the largest of its kind in the world. The new service was capable of transmitting documents and fingerprints over a distance of 4,000 miles. In the same year, the National Stolen Auto Bureau was opened at headquarters in Ottawa. It was later linked with the National Crime Centre in Washington, D.C. Thus, by the end of the decade, there was a concerted attack by law enforcement agencies on every aspect of organized crime.

Changes to the Force in the 1960's

A major change in the training of new members occurred in 1966 when recruit equitation was discontinued. In addition, the system of recruit training was modified in 1967-68 to include only six months at Regina, followed by six months of on-the-job training at selected detachments in the provinces. Short training courses were also instituted for Natives to perform police duties under RCMP supervision - a first step toward Native bands sharing in the maintenance of law and order in their own communities. In 1967, the government also raised the salaries of the Mounted Police to a reasonable level (determined by averaging the salaries of a number of leading police forces), and a biennial review two years later assured regular increases, a far cry from earlier years.

The Royal Commission on Security

The scope of Canadian security intelligence activities in the 1960's became increasingly complex. In addition to espionage, "I" Directorate faced challenges of an entirely different and unprecedented order. One of the major new concerns was the investigation of domestic terrorist organizations. In Quebec, members of the Front de Libération du Québec (FLQ) employed assassination, kidnapping, bombing and other acts of terrorism in attempting to achieve their political goal. Other events, such as the debate over the deployment of nuclear weapons on Canadian soil, the escalation of U.S. involvement in the Vietnam war, and the emergence of an aggressive peace movement carried a potential for politically motivated violence, foreign-influenced activities, and subversion. It was necessary to identify potential threats to Canada's security, but in order to fully maintain the democratic way of life of Canadians, it was also necessary to scrupulously protect the right to exercise legitimate political dissent.

These tasks were made all the more complex by the conflicting combination of priorities and responsibilities of security intelligence investigations as compared to police work. In addition, there was relatively little change in governmental arrangements for directing or reviewing this activity. Parliament played no active role in either approving or reviewing security intelligence activities. In 1966, a Royal Commission was appointed to inquire into security procedures and the role of the RCMP. The Commission recognized that the problem of balancing the need for accurate and effective security intelligence with the need to respect democratic rights and freedoms could not be adequately resolved as long as security intelligence responsibilities remained part of the RCMP. In its report, the Commission advocated the replacement of the Security and Intelligence Directorate with a civilian security agency separate from the RCMP. However, the government did not accept the Commission's recommendation, and announced that Canada's security service would remain under the Commissioner of the RCMP but it would become "increasingly separate in structure and civilian in nature".

Auxiliary Constable Program

The Auxiliary Constable Program was introduced by the RCMP in 1963. It is restricted to provinces/territories which have policing contracts with the Force. Approximately 2,400 auxiliary members are presently in the program. Auxiliary members are unpaid volunteers and are authorized to accompany regular members on patrol and to perform certain police functions under supervision, including office duties, special events, property checks, traffic and crowd control, and searches for missing persons. In addition, auxiliaries can be authorized to drive police vehicles and carry firearms.

Developments Since 1970

The period since 1970 has witnessed the expansion of RCMP duties and responsibilities in such important areas as organized crime, drug enforcement, economic crime, VIP security, and airport policing.

Organized Crime

In the RCMP's ongoing campaign against organized crime, two key strategic initiatives have been developed. The Integrated Proceeds of Crime (IPOC) program was established in 1989 and is directed at the seizure of illicit and/or unreported wealth accumulated through criminal activities. In 1994, the Anti-Smuggling Initiative (ASI) was introduced in order to facilitate effective investigation of organized criminal smuggling groups. In recent years, as international political and economic conditions have led to an increase in the number of refugees seeking sanctuary in Canada, organized crime groups involved in more traditional criminal activities have become involved in the smuggling of illegal immigrants for profit. The Immigration and Passport (I&P) program is also involved in the effort to combat organized migrant smuggling.

Airport Security

The RCMP historically provided airport policing and security services at designated airports throughout Canada. However, the service was discontinued in 1997. As a result, the Force was able to enhance its federal law enforcement role at Canada's international airports in such areas as national security, drug enforcement, customs and immigration.

The McDonald Commission of Inquiry Concerning Certain Activities of the RCMP

In the 1970's, with the appointment of the first civilian Director General of the RCMP Security Service, institutional links between the Service and the main body of the RCMP became more flexible, but problems remained due to the different natures of security intelligence work and police work. In 1976, the Security Service was given "National Division" status within the RCMP. As a result, more administrative responsibilities were delegated to the Director General, and field units would report to Security Service headquarters in Ottawa rather than to the heads of RCMP divisions.

In 1977, the McDonald Commission was created in response to numerous allegations that members of the RCMP, and more particularly members of the Security Service, may have been involved in unlawful or improper activities in the performance of their duties. The Commission investigated the two arms of the RCMP, the Criminal Investigation Branch and the Security Service, with regard to practices and activities which were "not authorized or provided for by law". During its investigation, the Commission examined a number of incidents which, in its opinion, constituted improper conduct and which represented what it described as "institutionalized wrongdoings". It found that the RCMP had infiltrated many non-violent public interest organizations, including political parties, and had compiled security intelligence dossiers on tens of thousands of Canadian citizens. Moreover, it had engaged in "dirty tricks" in order to discredit various lawful organizations. In its report, published in 1981, the Commission recommended that Canada establish a civilian security intelligence agency quite separate from the RCMP, and that this new agency should be created by an Act of Parliament which would define its mandate, its basic functions, its powers, the conditions under which those powers could be exercised, and its organizational structure. Moreover, the targets for investigation by the agency were to be strictly defined and limited. While affirming that Canada must have effective security intelligence in order to protect itself, the Commission was uncompromising in its insistence that the rule of law must be observed in all security operations.

As a result of the findings and recommendations of the McDonald Commission, the civilian Canadian Security Intelligence Service (CSIS) was established in 1984 by an Act of Parliament, and the RCMP Security Service was formally disbanded.

Technogical Developments

During the same period, there were a number of innovative developments in the field of information management and information technology. The Informatics Directorate was created in the early 1970's to provide automated data services and manual record services to the RCMP and other police agencies. In collaboration with Informatics, Criminal Intelligence Services Canada (CISC) provides the facilities for the sharing of criminal intelligence information among all Canadian law enforcement agencies. A key component of CISC is the Automated Criminal Intelligence Information System (ACIIS), an updated central database for criminal intelligence on organized crime groups. In 1971, the Identification Branch established a videofile system for the storage and retrieval of fingerprints, one of the first in the world. The prints were recorded on magnetic tape and could be provided within seconds. In 1972, the Canadian Police Information Centre (CPIC) was created. CPIC is a computerized police information system designed to provide police forces throughout Canada with immediate information on crimes and criminals. It was credited with being the most important innovation in combatting crime since the introduction of fingerprinting. The Violent Crime Linkage Analysis System (ViCLAS), a computer system designed to identify and track serial violent crimes and criminals, was established in 1994. As of October, 1999, there were approximately 66,000 cases on the system with over 5,055 linkages having been established thus far.

Marine and Air Services

In 1970, Marine Division was discontinued and various regional divisions assumed operational responsibility for providing marine services within their boundaries. The RCMP now operates five patrol vessels, one on the east coast and four on the west coast. They provide marine transportation and regular patrol service to coastal areas that are inaccessible by land. In addition to patrol vessels, the Force's Inland Water Transport service operates 377 smaller boats at various locations across Canada. IWT vessels are used for general investigations and for enforcement of the Canada Shipping Act, Small Vessel Regulations, Migratory Birds Convention Act, and other federal and provincial statutes.

Air Services provides air support and assistance to operational personnel from coast to coast. This includes northern and regional patrols, transporting personnel, prisoners, and supplies, and carrying out searches. Air Services has 79 pilots who fly over 3,600,000 miles a year.

The first helicopter of the RCMP, acquired in 1972 and posted to Newfoundland for duty.

Police Dog Services

The duties of Police Dog Services have been expanded to include: VIP protection; crowd control, in conjunction with tactical troop; hostage situations; avalanche search and rescue; and police/community relations.

Changes to the RCMP

The problem of insufficient manpower and the strain on the Mounted Police from their constantly increasing responsibilities and long hours of work had long been a matter of concern. Unlike other police forces, the RCMP had no association to put pressure on the government and no means of arbitration. While salaries had been increased to an acceptable level in 1967, a system of compensation for overtime was not introduced until 1972, and it was not until 1974-75 that a 40-hour work week was instituted. However, while the shorter week was a benefit to office workers, it provided no relief to members involved in investigations or manhunts. They continued as always to work as long as necessary.

Admission of Women

One of the most significant developments in the history of the RCMP occurred in 1974 when, a century after its inception, women were admitted as uniformed regular members.

Changes to the RCMP Uniform

In 1990, RCMP Regulations standardized the current Review Order as the Force's "Significant Uniform" for all male and female members. Furthermore, a new regulation authorized the Commissioner to exempt any member from wearing any item of the "Significant Uniform" on the basis of religious beliefs (for example, allowing turbans for Sikh members), and allowing First Nations peoples to wear braids.

Community Policing

In the 1980's, the RCMP struggled to adapt to a changing social environment. Crime rates were rising and there was a greater incidence of recurring crime. Moreover, there was increasing criticism of the Force from the communities it served and a growing sense that responsibility needed to be taken by communities as well as police in addressing problems. With the widespread interest in the concept of community policing among international law enforcement agencies, it was clear that a new policing environment was emerging.

As a result, Commissioner Norman Inkster announced, in 1989, that the Force would adopt community policing as a service delivery model. It was a momentous decision and represented a radical change in the nature of RCMP policing. Historically, the Force had been a para-military organization: hierarchical, command and control driven, and paternalistic. What community policing involved was a fundamental shift from a ‘professional' model of policing, i.e. where police were the experts, to a truly collaborative engagement with communities in addressing problems. Community policing is the application of modern management principles to policing. It involves decentralization, empowerment and decision-making at the service delivery level,client consultation, and mobilization of community resources to supplement the role of the police.

The decision to adopt community policing in 1989 resulted in the following initiatives:

to move from a generic, standardized policing model to a system tailored to the specific requirements of individual communities;
to move from command and control to shared leadership;
to become more reflective of the community itself (i.e. representation, openness to diverse perspectives).

In 1990, detachments throughout the country were instructed to create community consultative committees in preparation for the implementation of community policing. A year later, the Community Contract and Aboriginal Policing Directorate (CCAP) was established. Beyond that, however, there was little understanding of the organizational implications and implementation issues. In 1993, CCAP initiated a community policing project in Burnaby, B.C. (and later in Cole Harbour, N.S. and Dauphin, Manitoba), and launched leadership training across the country.

At the same time, however, it had become evident that the top-down administrative approach was inconsistent with the principles of community policing. In the first place, individual detachments were given no opportunity to discuss the implementation of the new policy. Moreover, the name "Community Policing" suggested that it applied only to the contract provinces, and it was confused with existing programs in community relations, crime prevention and police community initiatives.

In 1994, Project Renewal was established in order to manage the massive budget cuts mandated by the federal government to all government departments as part of Program Review. As a result, the RCMP ultimately lost 2,200 positions and close to $175 million in funds through an across-the-board cut of 10 per cent. Policy was reviewed with the intention of eliminating policies and procedures which prevented employees from working in an empowered environment. This led to a radical reduction in policies and guidelines governing operational decisions, and the establishment of the Independent File Management system which provided new levels of autonomy to individuals carrying out investigations. In addition, the role of headquarters in Ottawa was reviewed, resulting in the number of directorates being reduced by more than half. The intention was to create a leaner, less top-heavy and more flexible organization. Unfortunately, these changes created a legacy of distrust as many people viewed the cuts as the impetus behind community policing. In addition, there was widespread concern over the erosion of traditional values, there were significant disagreements as to the direction in which the Force was heading, and opposition to community policing as a service delivery model was increasing.

Mission, Vision, Values/Shared Leadership

In an attempt to resolve these internal tensions, a series of focus groups on organizational values were held across the country in 1996. Approximately 4,000 employees (representing all categories) participated in the process. However, few external stakeholders or community representatives were involved. The outcome of these consultations was broad agreement on the importance and value of shared leadership. This was reflected in the Mission, Vision, and Values/Shared Leadership Statement which gained wide acceptance as the philosophy of the new RCMP. At the same time, certain issues remained unresolved, not least of which was the view of some individuals that the MVV failed to provide the vision of the RCMP of the future that had been anticipated.

In order to address these issues, a number of steps were taken: the position of Ethics Adviser was created in the fall of 1996 to ensure a proper understanding of the implications of MVV throughout the organization; the adoption of Alternative Dispute Resolution which led to improvements in employee relations and a decrease in grievances, and which has provided the impetus to training in conflict management and relationship building skills; and a series of study tours to expose senior leaders in the RCMP to organizations that had undergone major change and to the leadership issues created by such change.

Regionalization

In 1996, it was also decided to continue decentralization of operational authority and functions by means of a regional management system under the direction of deputy commissioners. Four regions were developed: Pacific, Northwestern, Central, and Atlantic. The objective of the initiative was to remove unnecessary levels of supervision and administration and ensure greater grass-roots involvement in decision-making. In addition, the change was instituted in order to redistribute resources and thus to enhance the delivery of police services. The process of implementation was left to each individual region.

However, the results of regionalization have been decidedly mixed. As with the introduction of community policing in 1989, the regions were provided little in the way of implementation strategy and guidelines. There continues to be a widespread belief that quality and availability of services has suffered as a result of the loss of local control. Moreover, in the view of many people, regionalization failed to streamline the organization but merely added another layer. Finally, as for the intended reallocation of resources to the regions, little has actually materialized. Despite these issues, however, regionalization is generally acknowledged to have been a necessary phase in promoting culture change within the RCMP.

Alignment

By 1998, it was increasingly apparent that there were major problems associated with the RCMP's systems and processes. While significant decentralization had occurred, it was clear that key systems, especially in Human Resources, were inhibiting the process of culture change. In particular, leadership was identified as a critical issue. To resolve the underlying problems, the Alignment Initiative was launched, aimed at aligning systems and structures in order to support true culture change.

The Alignment Initiative has resulted in important, and in some cases fundamental, changes in the operation of the RCMP: the restructuring of Air Services and Forensic Laboratory Services, the adoption of a new Operations Model and the strategic priority on Organized Crime, and the appointment of two new civilian Deputies at headquarters. It has also established a framework for significant structural change in the future, in key systems and processes such as Human Resources, Finance/Corporate, and Information Management and Technology.

The Four Pillars

A key element of the new policing environment is the emphasis on four "pillars":

intelligence;
values;
bridge-building;
accountability.

Pillar I: Intelligence

The emphasis on intelligence is essential in an age of globalization and trans-border criminal activities. The RCMP Intelligence Improvement Plan includes:
- enhancing the accuracy, quality, and consistency of data;
- promoting the value of information sharing;
- increasing the capacity to share information domestically and internationally;
- ongoing performance evaluation;
- developing processes to provide senior management with complete, relevant information for decision making; and
- improving the environmental scanning capacity.

Pillar II: Values

The actions of the RCMP, both as an organization and as individuals, must at all times be based upon integrity, honesty, professionalism, compassion, respect, and accountability. The Values Improvement Plan emphasizes:

making how things are done as important as what is done;
achieving greater balance between individual rights and collective obligations; and
rewarding behaviour that exemplifies the values of the Force and holding accountable those whose behaviour diverges from those values.

Pillar III: Bridge-Building

To achieve its goals as an organization, the RCMP must build bridges with colleagues, partners, other government agencies, and the communities it serves.The Bridge-Building Improvement Plan:

emphasizes the need to continue to involve and become involved with the communities served by the Force;
engages federal and contract partners in planning;
improves communications and cooperation internally and with domestic and international partners;
identifies opportunities with the private sector; and
strengthens relationships with the voluntary sector.

Pillar IV: Accountability

In addition to being accountable for decisions and actions within the organization, the RCMP must answer to the Solicitor General, the Government of Canada, and Parliament. With respect to criminal investigation operations, it is accountable under the Criminal Code of Canada. The Accountability Plan of the Force:

clarifies roles and responsibilities within the organization and with contract partners;
develops citizen-centred reporting of its performance;
develops and implements performance management processes and systems; and
develops clear expectations through performance agreements.

"District Policing" Model

The RCMP continues to explore new approaches to policing. The "district policing" model, a community policing initiative, was developed to better respond to the needs of demographically similar and adjacent communities. It is a streamlined organizational arrangement which groups a number of detachments into a "district" and concentrates administrative functions in one location. Thus, more time is available to engage in operational police work in communities.

Aboriginal Policing

Traditional criminal justice and policing responses are recognized as not meeting all the needs of Aboriginal peoples (First Nations and Inuit). The Aboriginal Policing Branch is responsible for the development of culturally sensitive policing services which are acceptable to Aboriginal peoples, and promotes the recruitment of Aboriginal people into the RCMP. The RCMP delivers police services to Aboriginal peoples through the First Nations Community Policing Service (FNCPS). The RCMP-FNCPS model incorporates the following principles: service levels equivalent to those of non-First Nations communities; compatibility and sensitivity to First Nations culture and beliefs; flexibility to accommodate local variations in policing needs; and a framework which allows for the transition to an independent First Nations-administered police service where this is desired by the community. At the same time, many Aboriginal communities receive RCMP policing services outside the FNCPS program, i.e. they receive services under contract policing agreements between the federal government and the RCMP.

The process of change initiated in 1989 radically transformed the management and delivery of RCMP services throughout the country. Today, the organizational principles on which community policing is based - partnering, collaborative problem-solving, empowerment, and teamwork - are firmly established. The RCMP has implemented community policing across all contract jurisdictions. A key feature of community policing, CAPRA (the RCMP problem-solving model: Clients, Analysis, Partnerships, Results, and Assessment), is integrated throughout the Cadet Training Program. In 1995, the first troop of cadets with community policing/CAPRA training graduated from Depot. In addition, extensive leadership development has been carried out both in the field and at headquarters. In 1996, the Principle Centered Leadership program was introduced, and to date more than 2,000 people have received training. The RCMP today is thus a vastly transformed organization and demonstrably better suited to the new policing environment than the para-military agency of the 1980's.

The RCMP Today

Present Status

The RCMP is Canada's national police service and is responsible for the enforcement of all federal statutes throughout the country. It also acts as the provincial police force in all provinces except Quebec and Ontario, is the territorial police in the Yukon, the Northwest Territories and Nunavut, and serves as the local police force in 199 municipalities. It discharges these responsibilities on the basis of its motto: "Maintiens le Droit."

The RCMP is organized under the authority and responsibilities assigned by the Royal Canadian Mounted Police Act. Under the Act, the duties of the Force include the enforcement of laws, the prevention of crime, and the maintenance of peace, order and security. In addition, Part IV of the Canadian Security Intelligence Service Act gives the RCMP primary responsibility for duties assigned to peace officers in respect of offences constituting a threat to the security of Canada, or where the victim is an Internationally Protected Person. It also performs a large number of duties on behalf of various departments of the federal government and police agencies. The RCMP is an agency within the portfolio of the Ministry of the Solicitor General which in turn is answerable to the Parliament of Canada.

Strategic Priorities

In fulfilling its responsibilities, the RCMP is guided by six strategic priorities:

Protection against organized crime
Policing services to support safe homes and safe communities
Protection from violent crime and youth crime
Alternatives to the traditional criminal justice system
Law enforcement investigative tools and information
Civilian police for international peace support operations

Organization of RCMP Services

The RCMP is organized into five business lines: Federal Policing Services; Contract Policing Services; National Police Services; Peacekeeping Services; and Internal Services. Each is comprised of a number of service lines.

Federal Policing Services provide policing, law enforcement , investigative and protective services to the federal government, its departments and agencies, and to all provinces and territories. Nine service lines or programs fall within this business line:

General Policing:

Economic Crime - The objective of the Economic Crime program is to reduce and prevent white-collar crime. This includes offences relating to bankruptcy, criminal activity within the business and securities community, computer and telecommunications crime, and counterfeiting.
Drug Enforcement - The Drug Enforcement program is not limited solely to enforcement of legislation but also includes the associated crime prevention strategies of drug awareness and education. Drug crimes, including narcotics, restricted drugs, and controlled drugs, account for more than half of federal offences (i.e. violations of federal statutes).
Customs & Excise - This program enforces laws within Canada and along the uncontrolled border governing the smuggling or illegal distribution and/or manufacture of controlled or prohibited goods. The most common contraband or prohibited products smuggled into Canada include tobacco, liquor, jewellery, computer components, pornography, and firearms
Integrated Proceeds of Crime - The IPOC program is directed at the seizure of illicit and/or unreported wealth accumulated through criminal activity.
Immigration and Federal Policing - The principal objective of this program is to combat the smuggling of illegal aliens for profit.
Criminal Intelligence - The objective of this program is the centralization of all criminal information and intelligence which will permit the RCMP to detect and prevent crime having an organized, serious, or national security dimension in Canada, or internationally as it affects Canada.
Protective Operations - This program provides Canadian and foreign dignitaries with protective and security services.
International Liaison - This service line maintains liaison officers in strategic international locations to provide assistance to Canadian and foreign law enforcement agencies, and coordinates the activities related to Interpol.
Contract Policing Services - are provided to the three territories and all provinces (except Quebec and Ontario), to 199 municipalities and, under 170 individual agreements, to First Nations communities. These services follow the community policing approach and include crime prevention, enforcement of laws, maintenance of peace and order, protection of life and property, and emergency responses.

National Police Services provide vital operational support for Canada's criminal justice system. Service lines include:

Informatics - The RCMP's current automated data service systems cover a wide variety of operational applications, including crime scene occurrences, intelligence gathering, criminal cases, investigations, and tactical logistics.
Forensic Laboratory Services - This service conducts scientific analyses of evidence from crime scenes, and presents forensic evidence in courts. It also researches and develops new and advanced forensic methods, such as DNA analysis.
Information and Identification Services - This program contributes through a national information exchange system with Canadian law enforcement agencies on matters such as: criminal records; fingerprints; forensic imaging; gun registration; and missing children.
Canadian Police College - CPC offers advanced police training in matters of organization, administration, personnel management, and specialized investigative techniques to various police agencies.
Criminal Intelligence Services Canada - The facilities and systems of CISC provide for the sharing of criminal intelligence. Its national intelligence priorities include Aboriginal-based, Asian-based, East European and Traditional (Italian-based) Organized Crime, Outlaw Motorcycle Gangs, and the Sexual Victimization of Children. Other significant organized crime issues targeted by CISC include Contraband, comprising the illegal movement of firearms, and Organized Crime in Marine Ports.
Canadian Firearms Registry - Since 1934, the RCMP has maintained a national registry of all restricted firearms in Canada. In 1995, the database contained over 1.25 million certificates. In order to increase control of firearms in Canada, a new CFR was created in the same year. It is anticipated that the database will increase to 8 to 10 million firearms certificates.

Peacekeeping Services - provide civilian police peacekeeping assistance, training , and related international police services to a number of countries experiencing internal conflict. In the past decade, the RCMP has successfully completed more than 20 peacekeeping and peace support operations world-wide and sent over 1,400 officers from different Canadian police forces. Missions where Canadian police personnel have participated since 1989 include: Namibia (1989-1990); Former Yugoslavia (1992-1995); Haiti (1993-2000); South Africa (1994); Rwanda (1995-1996); Bosnia (1996-2000); Central African Republic (1998); Sierra Leone (1998); Guatemala (1996-2000); Western Sahara (1998, 2000); The Hague, the Netherlands (1998); Croatia (1997-1998); Kosovo (2000); East Timor (2000). In 1991, the RCMP established the International Training and Peacekeeping Branch to respond to requests for police training assistance from around the world.

Internal Services - This is an internal service line which consists of finance and supply, public affairs and information, personnel, audit and evaluation, corporate policy and planning, and health services and training.

The RCMP is divided into 15 Divisions, plus headquarters in Ottawa. Each Division is managed by a Commanding Officer and is alphabetically designated. Divisions roughly approximate provincial boundaries with their headquarters located in respective provincial or territorial capitals (except "A", Ottawa; "C", Montreal; and "E", Vancouver).