Evaluation of the Canadian Police College (2021)

• Acronyms
• Executive summary
• What we examined
• What we found
• Introduction
  • Purpose of the evaluation
  • Evaluation scope and context
• Evaluation methodology
  • Evaluation approach
  • Data sources
  • Limitations
• Program description
  • Context
  • Program profile
  • Resources
• Findings
  • Relevant and responsive program design and delivery
  • Achievement of objectives
  • Program coordination and governance
  • Integration of GBA+ and language considerations
  • Program resources and efficiency
• Conclusions and recommendations
• Management response and action plan
  • Management response
  • Action plan
• Appendices
  • A. List of CPC courses
  • B. List of national and provincial committees
  • C. List of current articulated partnerships
• End notes
• References

Acronyms

CBRNE

Chemical, Biological, Radiological, Nuclear and Explosives

CPC

Canadian Police College

ENPQ

École nationale de police du Québec

ETU

Explosives Training Unit

FTE

Full-time equivalent

FY

Fiscal year

GBA+

Gender-based analysis plus

NPES

National Program Evaluation Services

NPS

National Police Services

OPC

Ontario Police College

PDCIP

Professional Development Centre for Indigenous Policing

RCMP

Royal Canadian Mounted Police

SME

Subject Matter Expert

SPAC

Strategic Policing through Action and Character Leadership Development course

TCLI

Technological Crime Learning Institute

TechOps

Technical Operations

Executive summary

The Canadian Police College (CPC) is a learning institution that generates and delivers advanced and specialized training and leadership development to law enforcement officers from all jurisdictions across Canada, as well as international policing partners, in support of a safe and secure nation. The CPC brings police officers together to share best practices, network, and develop mentoring and working relationships, and offers over 50 advanced and specialized courses and workshops in investigative techniques, technological crime, forensic identification, explosives disposal/investigation, leadership development, and professional development for Indigenous policing.

The CPC budget is comprised of annual appropriations and revenue collected from sources such as tuition fees, accommodations, meal plans, food sales, and facility rentals. Traditionally, clients were charged a different fee depending on whether they belonged to a Canadian police organization, other Canadian organization, or organization outside of Canada. As of 2020, CPC has begun a phased approach to a full cost recovery model, with the intent of reaching 100% cost recovery in 2022 ^{Endnote 1}.

What we examined

National Program Evaluation Services conducted an evaluation of the CPC to provide a neutral, timely and evidence-based assessment of the relevance and performance (effectiveness and efficiency) of the CPC. The evaluation was national in scope and covered fiscal years 2015-16 to 2019-20.

What we found

1. The CPC continues to provide advanced and specialized training to fulfill the ongoing needs of the law enforcement community.
2. CPC training increases the knowledge and skills of participants, which enhances the overall capacity of law enforcement.
3. Overall, the CPC's mandate, roles and responsibilities are clearly defined and understood; however, a lack of clearly communicated responsibilities in some areas presents challenges.
4. Challenges associated with governance may inhibit the CPC's effectiveness and efficiency as a learning institution.
5. To some extent, the CPC has incorporated gender-based analysis plus and official languages considerations into program design and delivery.
6. CPC may be unable to meet increased demand for training or develop new courses going forward.
7. CPC infrastructure and resources present a significant challenge to program effectiveness and efficiency.
8. The CPC is currently undertaking several measures in an effort to increase efficiency.

Based on the findings of the evaluation it is recommended that the Deputy Commissioner Specialized Policing Services:

1. examine the governance of the CPC with a view to enhancing effectiveness and efficiency
2. in consultation with key stakeholders, determine an approach for addressing challenges associated with aging infrastructure and the evergreening of equipment
3. establish, track, and report on performance information that adequately measures CPC's expected results and supports decision-making
4. determine and implement an effective and efficient management structure for the Explosives Training Unit

Introduction

Purpose of the evaluation

This report presents the results of the Evaluation of the Canadian Police College (CPC) conducted by the Royal Canadian Mounted Police (RCMP) National Program Evaluation Services (NPES). The objectives of the evaluation were to provide a neutral, timely and evidence-based assessment of the relevance and performance of the program (effectiveness and efficiency).

Evaluation scope and context

This is the first evaluation of the CPC. It covered a five fiscal year (FY) period from 2015-16 to 2019-20. Concurrently, an audit of the CPC's cost-recovery model was conducted by the RCMP's internal audit function. The audit was endorsed by the Departmental Audit Committee (DAC) in January 2021 and will be submitted to the Commissioner for approval, along with the associated Management Action Plan, following the June DAC meeting. The evaluation was national in scope, engaging members of the RCMP and the greater law enforcement community across Canada.

Evaluation methodology

Evaluation approach

The evaluation used a mixed methods approach (qualitative and quantitative) to assess, interpret, and summarize existing and new information. The information collected was triangulated to allow the formulation of clear, reliable, and relevant findings and recommendations.

The evaluation was guided by the following four questions:

• To what extent is there a continued need for the CPC?
• To what extent is the CPC achieving its objectives?
• To what extent is the CPC designed to enable effective program delivery?
• To what extent is the CPC operating in an efficient manner?

Data sources

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

Data Analysis

Administrative and performance data provided by the CPC were analyzed.

Document Review

Internal and external documents such as foundational products, annual reports, policies, planning documents, procedures, and other applicable information were reviewed.

Key Informant Interviews

A total of 22 interviews were completed: 13 with RCMP and CPC staff; 5 with RCMP and CPC executives; and 4 with representatives of other law enforcement training institutions. Interviewees provided their opinions of the CPC and validated other lines of evidence. The number of responses varied for each evaluation question depending on the interviewee's knowledge and expertise.

Table 1: Descriptive scale of interview responses

Descriptor	Meaning
All	Findings reflect the views and opinions of 100% of interviewees
Most	Findings reflect the views and opinions of at least 75% but less than 100% of interviewees
Many	Findings reflect the views and opinions of at least 51% but less than 75% of interviewees
Half	Findings reflect the views and opinions of 50% of interviewees
Some	Findings reflect the views and opinions of at least 25% but less than 50% of interviewees
A few	Findings reflect the views and opinions of at least two respondents but less than 25% of interviewees

Online survey (Participants)

20% of past CPC training participants who received the survey responded regarding their experience with the CPC, specifically related to training design, delivery, and effectiveness.

Online survey (Training coordinators or equivalents)

38% of identified training coordinators or equivalents at Canadian law enforcement agencies completed the survey on their experience with the CPC, specifically the effectiveness of training from a more strategic perspective.

Comparative Analysis

An analysis was conducted using available open source information as well as information provided by École nationale de police du Québec (ENPQ), Holland College, Justice Institute of British Columbia, and Ontario Police College (OPC).

• The comparative analysis observed areas such as course offerings, eligibility/participant profiles, accommodations/facilities, cost/funding, and Gender-based Analysis Plus (GBA+).

Limitations

Limitations of the evaluation were mitigated with a number of measures as follows:

Challenges measuring long-term outcomes and attribution of results

CPC activities that generate intermediate and longer-term outcomes were difficult to measure or attribute to the CPC. To address this challenge, the evaluation took into consideration multiple sources of information, such as perspectives from key stakeholders and survey respondents.

Challenges resulting from the Covid-19 pandemic

Hurdles associated with the "work-from-home" scenario generated challenges in connectivity and access, both technologically and in terms of communication/availability. This resulted in fewer interviews, and the resulting need to place more emphasis on other lines of evidence, particularly the survey. The evaluation team conducted interviews via teleconference, and extended the survey timeframe to allow ample time for completion.

Program description

Context

Established in 1976, the CPC has served law enforcement for over 40 years. The CPC generates and delivers advanced and specialized training and leadership development to law enforcement personnel from all jurisdictions across Canada, as well as international policing partners ^{Endnote 2}. Training is provided at various locations, including the CPC's two primary campuses (located in Ottawa, Ontario and Chilliwack, British Columbia) and onsite at other agencies, both nationally and internationally ^{Endnote 3}. The CPC offers over 50 advanced and specialized courses (Appendix A) and workshops in the following disciplines:

• investigative techniques
• technological crime
• forensic identification
• explosives training
• leadership development
• Indigenous policing

The CPC has recently updated its costing model. Traditionally, participants were charged a different fee depending on whether they belonged to a Canadian police organization, a Canadian non-police organization, or an international organization. Canadian police were charged 50% cost recovery, whereas other Canadian clients and international clients were charged 100% cost recovery. In 2019, a new business model, intended to enable the CPC to address capacity and service relevancy, received the support of the NPS National Advisory Committee and was approved by the Senior Executive Committee of the RCMP. It was decided that the CPC would begin a phased approach to a new cost recovery model, moving incrementally from 50% to 70% in 2020, 90% in 2021, and ending in a full 100% in 2022.

Program profile

The goal of the CPC is to support a safe and secure Canada through capacity building efforts, and by providing leading edge and innovative training services to domestic and international members of law enforcement. Furthermore, the CPC is an institution that brings law enforcement personnel together to share best practices, network, and develop mentoring and working relationships. Core immediate and intermediate expected program outcomes are outlined in Figure 1.

Figure 1 - Expected outcomes for CPC 2015-16 to 2019-20

Figure 1 - Text version

A flow diagram outlining the expected outcomes for the Canadian Police College for the fiscal years 2015-16 to 2019-20.

The expected immediate outcome was Canadian law enforcement, criminal justice communities and international clients have increased knowledge.

The expected intermediate outcome was enhanced law enforcement capacity.

The direction and operation of the CPC is supported by two key oversight bodies, the National Police Service (NPS) National Advisory Committee and the CPC Advisory Board.

Resources

The CPC budget is comprised of annual appropriations and revenue collected from a variety of sources, including tuition fees, accommodations, and facility rentals ^{Endnote 4}. The CPC receives permanent additional funding to deliver training in support of the Government of Canada's Cyber Crime Strategy. The CPC also receives funding through a grant that is used to reimburse transportation expenses for participants from Canadian police services (provincial, regional and municipal only) and international agencies. Table 2 depicts the revenues and expenditures of the CPC over the five-year period (FY 2015-16 to 2019-20).

While salary expenditures increased by 25% from FY 2015-16 to FY 2019-20, as shown in Table 3, staffing levels at the CPC were not available for the full five-year evaluation period. As of 2020, 67 of 103 positions were staffed.

Findings

Relevant and responsive program design and delivery

Client and program profile

The CPC delivers advanced and specialized police training targeting law enforcement personnel entering or already in specialty policing positions. The comparative analysis for this evaluation concluded that while the majority of other Canadian law enforcement training institutions offer advanced training, their focus is primarily on training new police officers. The CPC, on the other hand, does not offer beginner or entry-level courses, and candidates must meet pre-qualifications to ensure they have the required background to take CPC courses.

CPC training builds on and enhances skills gained from introductory and intermediate courses offered elsewhere. For example, participants studying digital forensics will begin with courses offered by industry standard corporations to learn basic tools and how-to training. The CPC then builds on those foundational skills by providing training in a law enforcement and investigative setting.

While some domestic training institutions focus on local/provincial clients ^{Endnote 5}, the CPC serves national and international law enforcement. This mix of policing personnel, both domestic and international ^{Endnote 6}, generates positive networking opportunities and constructive engagement on best practices and lessons learned for students. In some cases, international students use CPC training to complement and/or fill gaps associated with previous training. For example, courses such as explosives and polygraph are more accessible at the CPC for some international students than they are in their home countries.

While there are other Canadian institutions that deliver similar training options as the CPC, in areas such as leadership, forensics, explosives, and polygraph, these courses are not always designed with policing principles in mind and/or do not always meet specific law enforcement standards. For example, the Canadian Armed Forces currently deliver an explosives program; however, this training focuses on military applications rather than law enforcement scenarios. Additionally, there is a privately-owned polygraph school located in Kingston, Ontario, which delivers polygraph training and is also accredited by the American Polygraph Association. The CPC, however, remains the only publically-funded Canadian institution that trains law enforcement, military, and intelligence agencies to become certified polygraph examiners. Furthermore, the CPC maintains a national perspective and focuses on the current needs of Canada's law enforcement community, as opposed to other offerings that focus on municipal and provincial requirements.

Approach to course design and delivery

The Canadian law enforcement community has recognized the CPC's Technological Crime Learning Institute (TCLI) formally and informally as being "uniquely positioned to deliver (…) training to all Canadian law enforcement."

The CPC maintains a uniquely national perspective and designs training that reflects current law enforcement standards and the existing policing environment. CPC courses are comprehensive and include unique elements in terms of delivery and rigour. Courses are hands-on, involving practical, relevant and real-time scenarios. Many survey respondents and some document review data noted that the CPC was the only provider offering certain courses, suggesting that the CPC has a distinct position within Canada's law enforcement training community.

CPC staff members have established a strong network with partners and other training institutions at multiple levels, generating complementary exchanges and arrangements such as collective training ^{Endnote 7}, committee memberships (Appendix B) and conferences. Furthermore, there appears to be some informal consultation across partners in terms of course planning and design. This was demonstrated during the Covid-19 pandemic when partner institutions informally shared ideas, plans and efforts to respond to the unique training environment.

Some CPC courses are linked to university programs in which law enforcement personnel can apply CPC courses towards a post-secondary degree (Appendix C). Conversely, candidates can also qualify for certain CPC courses using credits and equivalencies from recognized institutions.

Efforts to adapt to meet client needs

Interview and document review data indicate that the CPC makes an effort to change and adapt, as necessary, to meet the ongoing educational and training needs of Canada's law enforcement community. For example:

Course reviews

CPC courses are reviewed on a three-year cycle. Courses are revised and updated by instructional designers on the CPC's Academic Standards team when necessary. When a course is up for review, or a new course is being developed, designers work closely with instructors, members of the executive and external stakeholders/clients to determine direction and identify needs and requirements.

Client outreach

A survey is administered to participants at the end of every CPC course. This practice allows students the opportunity to provide an individual overall review/assessment of the course. In 2017, the CPC conducted a survey of participants who attended courses over the previous 3-5 years and engaged a consultant who interviewed 24 police chiefs from across Canada to better understand client training needs. As a result, the CPC developed a new strategic training plan in an effort to modernize in areas such as online tools/training, course revitalization, and work-life balance (i.e., more home time/less time away for candidates). Information acquired through client outreach helps direct the CPC in adjusting and prioritizing course content, materials and offerings.

Prioritization appraisals

The CPC uses a prioritization matrix to rank stakeholders' needs which then guide CPC's prioritization of selected course offerings for the coming year.

Subject Matter Experts (SMEs)

The CPC seeks out SMEs as instructors and speakers to facilitate and deliver modern training, ensuring participants benefit from the most current techniques, theories and tools in that field. The CPC's new Adjunct Faculty Program ^{Endnote 8} is expected to help attract and secure experienced instructors to the CPC going forward.

Guidance and engagement

A few interview respondents noted that the CPC integrates guidance from current legislative requirements and case law into its programming, as well as engages with partner institutions on policies, protocols and emerging themes in an effort to remain current and relevant in all related fields.

The Covid-19 pandemic generated new challenges for the CPC in terms of course delivery. In an effort to meet demand, CPC instructors are travelling to clients to deliver training regionally, and courses are being delivered at a higher frequency (back to back) to help reduce backlog. Increased online and hybrid options are being offered to help support working from home conditions and growing considerations for work-life balance. The CPC has transitioned some traditional in-person training to an on-line environment in areas such as leadership development and cybercrime.

Achievement of objectives

The evaluation found that the CPC is achieving its immediate and intermediate objectives to enhance the knowledge and capacity of law enforcement. However, the CPC has no mechanism in place to measure its performance on an ongoing basis. While the CPC conducts end of course surveys, the data obtained from them is not currently aggregated or used to inform decision-making at the strategic level. The CPC has indicated they are currently working with the Canadian Police Knowledge Network to develop this capacity, and have successfully completed a pilot program. As well, the CPC does not currently conduct any follow up with course alumni to determine how useful the training is once participants return to their employment and, therefore, cannot continuously assess how well they are meeting longer-term objectives.

A survey conducted for the evaluation found that most participants, supervisors, and those responsible for training in client organizations were satisfied with CPC training and that it increased the knowledge and improved the skills of participants, as shown in Table 4. Additionally, most respondents agreed participants were able to apply what they had learned at the CPC, making them more effective and enhancing the capacity of their team. This demonstrates that CPC training benefits not only the participants, but the larger organization as well.

Survey respondents outlined a number of positive attributes of the CPC, including:

• CPC courses are well organized, designed and delivered
• the CPC provides exceptional classroom resources and equipment
• instructors are professional and knowledgeable in their respective subject matter
• participation in CPC training offers vital networking opportunities with police officers from across the country and around the world

The 2017 client survey found similarly positive results regarding CPC training. In that survey, course alumni rate CPC courses at the "highest levels of quality and utility and view the learning as critical to the ongoing success of their organizations," with 91% of the law enforcement officers who had taken CPC courses reporting that they were able to apply the knowledge and skills learned upon returning to their unit.

Program coordination and governance

The mandate of the CPC is to develop police leadership and management competencies, and provide advanced and specialized training in law enforcement to the police community, particularly in the areas of organized and multi-jurisdictional crime.

The evaluation found that the CPC's mandate, roles and responsibilities are clearly outlined and defined throughout multiple official documents. While many interview respondents indicated that the roles and responsibilities of the CPC as an institution are clear, one executive noted that the CPC's role needs to be reinforced regularly with partners and even within the RCMP to distinguish its importance and necessity in the professionalization of Canadian policing.

Some interview respondents noted that roles and responsibilities within the CPC and among CPC employees are not always well communicated. Some responsibilities are not always addressed, and in some cases responsibilities are inherited or assigned indiscriminately. According to interview data, this occurs intermittently within both the corporate and operational areas of the CPC.

Interview and document review data suggests that the Explosives Training Unit is an area of particular concern in terms of unclear roles and responsibilities. In 2014, in an effort to enhance efficiencies (e.g., reduce redundancies in equipment, promote cost-savings, better personnel scheduling, formalize practices), a decision was made to move the ETU offsite to the RCMP's Technical and Protective Operations Facility where it became part of an amalgamated team partnered with Technical Operations (TechOps) Chemical, Biological, Radiological, Nuclear and Explosives (CBRNE) Training. This decision has resulted in significant responsibility and authority-related challenges. For example:

• There is a dual leadership structure since the CPC and TechOps are led by different senior managers
• The CBRNE/ETU's non-linear reporting chain has resulted in misperceptions and divergent decision-making
• The CPC and TechOps have separate budgets, which generates confusion in terms of staffing, salaries, operating costs, revenue, etc
• The training curriculum is generated by the CPC; however, interview data suggests that there is an ongoing need for TechOps courses (e.g., CBRNE, home explosives training) which are not currently being offered by the CPC.

Interview data, along with a 2019 Letter of Intent regarding a suggested co-management of the CBRNE/ETU, confirm that both the CPC and TechOps are aware of these ongoing challenges and that they seek to address the situation collaboratively.

In the 2012 Renewal and Sustainability Initiative, the CPC ranked second out of 15 services in terms of importance as voted by NPS National Advisory Committee members, highlighting the CPC's significance to the review body at the time.

The RCMP is responsible for the National Police Services (NPS), a group of programs and services accessible to all law enforcement and criminal justice officials in Canada ^{Endnote 9}. A review of online sources suggests that approximately 70% of clients that use these services are external to the RCMP. In many instances, the RCMP is the sole provider of these specialized police support services.

A review of NPS documents suggests that, as a centrally administered system of services, NPS can improve communication and coordination of policing among provincial, territorial and municipal jurisdictions, while also producing a national standard for policing support. Whereas some other NPS services provide access to national information databases, information technology and information management systems, the CPC is unique in that its primary role is to provide comprehensive training to the policing and criminal justice communities.

"The majority of people look at the CPC as an RCMP institution. Perception might be that it is an RCMP institution teaching the RCMP way."

As an NPS, the CPC is administered by the RCMP, which may have an impact on its ability to deliver on its vision as a training institution ^{Endnote 10}. For example, some interview respondents noted a level of confusion associated with the CPC's positioning within the RCMP. The CPC serves all of Canada's law enforcement personnel, along with international partners. However, the CPC's affiliation with the RCMP can influence the perception of neutrality and objectivity of the CPC.

All CPC executives noted challenges to program delivery associated with RCMP policies and processes. For example, CPC communications are described as "low risk," often highlighting course openings or recognition of recent graduates. However, these communications are vetted by RCMP National Communication Services, which can take days or weeks in the context of organizational capacity, delaying publication and at times surpassing their relevancy. Further, other RCMP communications could take priority, which may affect the CPC's brand and messaging.

The CPC manages its budget in accordance with RCMP practices and policies. From a financial resources perspective, this may limit the CPC's ability to identify dedicated and sustainable sources of funding, or to move and use available funds without constraint. From a human resources perspective, this may delay the timely hiring of staff/instructors, which can lead to the cancellation or delay of planned CPC course offerings and schedules. Given that the CPC is the sole provider of many courses, law enforcement agencies including the RCMP are dependent on it to develop specialized skills.

According to document review, over the years the CPC has struggled to meet its mandate due to funding pressures and cross-government cost-saving initiatives such as the Government of Canada's Strategic and Operating Review, the Deficit Reduction Action Plan, and the aforementioned 2012 Renewal and Sustainability Initiative. Between FY 2011-12 and 2016-17, the CPC's budget appropriation was (cumulatively) reduced by more than $3.5M. Interview data suggests that even with these cutbacks, delivery expectations for the CPC remained high. Moving towards a full cost-recovery model may mitigate some of these challenges.

Audits conducted by the Office of the Auditor General in 1990, 2000 and 2011 identified the "need to review the mandate of NPS as well as to determine what changes in governance, service delivery, funding and stakeholder engagement would be required to ensure the needs of the law enforcement and criminal justice communities are met, today and in the future". This evaluation did not examine the extent to which changes have been implemented; however, as it relates to the CPC, there may be opportunities to explore other governance models.

"Where the advancement of technology or the evolution of delivery options suggests that a different model may be appropriate, consideration should be given to the possibility of shifting specific programs and services from the National Police Services to other methods of delivery."

As a learning institution that serves clients beyond the RCMP, CPC executives suggest that greater nimbleness could potentially be achieved under a different organizational structure. A comparison to other institutions and a sample of open source information suggest that some domestic police training institutions operate under governance structures independent of local, municipal or federal police services. For example:

• The OPC reports to the Ontario Ministry of the Solicitor General
• The ENPQ is managed by the Province of Quebec
• The College of Policing reports to the Home Office (United Kingdom)
• Federal Law Enforcement Training Centers report to the Department of Homeland Security (United States)

Integration of GBA+ and language considerations

GBA+ considerations

In 2018, the CPC introduced a GBA+ quality assurance review and report as a requirement for each individual course. This process searches for and identifies biases in logistics, content and delivery, and considers geographical fairness for participants.

Document review and interview data suggest that the CPC supports the federal government's commitment to "Diversity is Canada's Strength" through its Professional Development Centre for Indigenous Policing (PDCIP), which offers unique courses focusing on law enforcement officials serving in Indigenous communities. PDCIP courses, exclusive to the CPC, include Indigenous Gangs Reduction Strategies, Integrated Approaches to Interpersonal Violence and Abuse, and Strategic Policing through Action and Character Leadership Development course (SPAC) with an Indigenous lens. According to interview data, every course includes a cultural background and history element, which presents facts rather than assigning blame. For these courses, the CPC instructor travels to Indigenous communities across Canada and brings in local SMEs to build on engagement. The PDCIP Program is not funded by the CPC budget but rather through a special grant from a private foundation. Unfortunately, this unique funding was recently discontinued and the CPC has been exploring new funding sources to support PDCIP offerings going forward.

Official languages efforts

CPC course materials, content and evaluations are available in both official languages. The CPC used to offer more courses in French (e.g., SPAC); however, according to some interview respondents there is a low demand for French courses. Course and interview data indicate that when courses are offered in French, they tend to be cancelled due to low enrollment. A few interview respondents suggested that participants prefer to learn in the language of applicability, i.e., if the real-world tools and technology are in English, then training should reflect that reality.

Where gaps exist, some interview respondents noted CPC efforts to accommodate participants, particularly with regard to French language support, by providing additional French materials, content, translation, and securing additional assistance. For example, in one instance a participant asked to write their course project in French although the course was in English. The participant was able to do so with a francophone reviewer assessing their work. The CPC has surveyed divisions to identify their priorities for French-delivered training, and subsequently used the data to engage the ENPQ to coordinate more French-language courses at the ENPQ campus. While organizational priorities and the Covid-19 pandemic have delayed these efforts, collaboration is expected to help facilitate greater French-language capacity.

The evaluation's comparison exercise revealed that GBA+ - related initiatives are not a requirement, nor are they actively implemented, by the four comparison Canadian training institutions. Only one of these institutions offers both French and English courses. Conversely, the CPC has strived to improve its GBA+ and official languages considerations as they relate to program design and delivery.

While the CPC's GBA+ and official languages efforts appear to exceed those of some other domestic training institutions, going forward, there is room for the CPC to better integrate GBA+ and official languages into courses and CPC culture.

Program resources and efficiency

Since 2016, the CPC has seen the number of its course sessions and the number of participants increase after a sharp decline from 2015, as shown in Figure 2 ^{Endnote 11}. The number of annual participants has increased approximately 12%, and course sessions 11%, since 2016.

Figure 2 - Number of course sessions and students 2015 – 2019

Figure 2 - Text version

A line graph illustrating the number of course sessions conducted at, and students attending, the Canadian Police College from 2015 to 2019.

The horizontal axis represents calendar years from 2015 to 2019.

The primary vertical axis represents the number of students and the secondary vertical axis represents the number of courses.

In 2015, there were 3190 students and 156 course sessions.

In 2016, there were 2502 students and 129 course sessions.

In 2017, there were 2485 students and 130 course sessions.

In 2018, there were 2671 students and 135 course sessions.

In 2019, there were 2794 students and 143 course sessions.

The number of unique courses offered by the CPC on an annual basis has followed a similar trajectory, increasing by 13% since 2016, as shown in Figure 3, and CPC courses have been filled to an average of 91% capacity from 2015 to 2019, with an average of 1.95 vacant seats per session.

Figure 3 - Courses offered by the CPC 2015 – 2019

Figure 3 - Text version

A line graph illustrating the number of unique course offerings at the Canadian Police College from 2015 to 2019.

The horizontal axis represents calendar years from 2015 to 2019.

The vertical axis represents the number of courses offered.

In 2015, there were 57 course offerings.

In 2016, there were 46 course offerings.

In 2017, there were 47 course offerings.

In 2018, there were 51 course offerings.

In 2019, there were 52 course offerings.

While the CPC has generally been able to maintain current levels of program delivery, staff and funds are spread thin. There is a risk the CPC will be unable to continue to deliver relevant and timely training moving forward as it lacks the resources to invest in longer-term initiatives, for example developing new courses, or researching best practices in law enforcement and educational techniques.

The 2017 client survey found that respondents were confident the CPC could continue to provide high quality specialized course content and instructors for existing courses, but were less assured the CPC would be able to update existing courses or develop new courses and programs. Similarly, a review of the CPC's own documentation suggests the CPC is unable to keep pace with the evolving needs of police services [***].

In interviews, while some respondents believe the CPC is meeting client demand, some high-demand courses have waitlists. Program data also suggests the CPC may be unable to meet the growing demand for courses. As shown in Figure 4, waitlists have continued to increase since 2017.

Figure 4 - Number of people on waitlists 2017 - 2019

Figure 4 - Text version

A column bar graph illustrating the number of people on course waitlists per calendar year from 2017 to 2019.

The horizontal axis represents calendar years from 2017 to 2019.

The vertical axis represents the number of people on the waitlists.

In 2017, there were 254 people on waitlists.

In 2018, there were 307 people on waitlists.

In 2019, there were 340 people on waitlists.

The CPC's capacity to meet increasing demand is constrained by funding, staffing and useable physical space. The Covid-19 pandemic has exacerbated the issue. For example, the associated physical distancing protocols limit the number of people allowed in the classroom, decreasing the number of participants and thus adding to the backlog. Additionally, courses are being prioritized over one another due to space availability, generating more delays.

Going forward, the CPC will attempt to mitigate some of the impact of increased demand by transitioning more training to an online format where possible. Online courses, in general, can allow for a much higher participant capacity than in-person training. At the same time, online courses can be run efficiently below capacity as operating costs are often significantly lower. Additionally, the cost to client organizations is lower as they do not have to incur the travel expenses associated with sending their employees to the CPC.

"Participants share best practices and lessons learned and develop mentoring and working relationships with law enforcement officers from many jurisdictions, leading to increased abilities and a better understanding of their work"

As a result of the Covid-19 pandemic, the CPC has placed a greater focus on transitioning courses online, and has seen some early positive results. For example, in 2020 the Digital Technologies for Investigators course moved online with a capacity of 200 participants, with 136 completing it and none on the waitlist. By comparison, in 2019, there was capacity for 140 on-site participants. 133 participants completed the course but 42 remained on waitlists.

A client needs assessment conducted by the CPC noted it is important to strike a balance between online and in-class learning as e-learning is "not as favoured for specialized courses as (an) in-classroom setting." In some cases, hands-on experience with tools and equipment such as for forensics, polygraph and explosives cannot be acquired solely through online learning. Additionally, the CPC is one of the few learning institutions that brings police officers together from across Canada and around the world.

Physical Infrastructure

Interviews, document review and survey data (outlined in Finding #2) identified CPC facilities and infrastructure as major barriers to effective and efficient program delivery. Some interview respondents highlighted aging infrastructure as a barrier to efficiency. Long-term repairs and construction, along with room and building closures, are an inefficient use of space. [***], and the building housing the swimming pool has been closed permanently. [***].

While most respondents to the evaluation survey rated staying on-site vs off-site from a learning experience as important, some were dissatisfied with the accommodations at the CPC. The 2017 client survey found similar concerns with accommodations at the CPC.

Some of the causes of dissatisfaction mentioned by respondents to the evaluation survey included:

• dirty and noisy guest rooms
• shared bathrooms
• outdated and run down facilities may affect the international perception of Canada

A few respondents mentioned they would not attend training at the CPC due to the condition of the accommodations. Although clients can stay off-site at privately run hotels, accommodations are less expensive at the CPC, staying on-site provides networking and collaboration opportunities outside of the classroom and there are times when off site availability is limited. As facilities age, this may impact the ability of CPC to maintain its service delivery. As noted above, the CPC is exploring other opportunities such as online learning and regionally delivered training, which may reduce the level of need for accommodations in the future.

Technological infrastructure and equipment

CPC technological infrastructure is not sufficient to support the ongoing needs of course delivery. Some interview respondents highlighted the lack of, and/or dated, CPC technology and equipment as a barrier to effective and efficient course delivery. [***] The acquisition and maintenance of relevant and functioning equipment often comes down to the availability of capital funding to ensure proper procurement planning, particularly for the more expensive courses such as explosives where a single robot can cost upwards of $300,000.

Resources

Many interview respondents identified resources, specifically fluctuating budgets and low staffing levels, as a barrier to effective program delivery. Courses are being run with fewer instructors and/or coordinators, in some cases necessitating a change in the course approach and level of engagement, including fewer small group activities and less one-on-one support. In 2009-10, the CPC had a total of 113 employees. As of 2019-20, the total number of CPC employees was 67.

Prior to the evaluation period, salary expenditures declined from FY 2011-12 to FY 2016-17. Although salary expenditures increased over the evaluation period, surpassing FY 2011-12 levels in FY 2019-20, given inflation and increases in employee compensation over that period, salary expenditures can still be considered to be below FY 2011-12 levels.

Management/Governance

All CPC executives noted the challenges to program delivery associated with the RCMP's management and governance of the CPC as a barrier to efficiency. RCMP and Treasury Board policies and direction such as for communications, funding and staffing mechanisms do not always allow for the CPC to operate efficiently or effectively as a learning institution serving clients domestically and internationally. These challenges are explained in detail in Finding #4.

The CPC is addressing some of the challenges identified by the evaluation, as well as the 2017 client survey, that are within its span of control. The CPC has developed a strategic plan that outlines some of the initiatives already underway. A few of these initiatives are outlined in Table 6.

It is too early in the implementation of the plan to assess the impact of the initiatives, and the CPC will need to consider the effects of the Covid-19 pandemic when assessing results. A comprehensive performance measurement framework is required to properly assess the impact of the initiatives. The CPC has indicated that developing a performance measurement framework is planned for 2021.

Conclusions and recommendations

The evaluation found that the CPC continues to provide advanced and specialized training to fulfill the ongoing needs of the law enforcement community. The CPC offers unique training that builds on the skills participants have previously acquired. The CPC maintains internal processes and engages the law enforcement community to ensure course content is relevant and up to date.

CPC training increases the knowledge and skills of participants, which enhances the overall capacity of law enforcement. While the CPC lacks the data to assess its ability to achieve its objectives, survey respondents from client organizations were overwhelmingly satisfied with CPC training. Respondents agreed that the CPC enhances their knowledge and skills, and they are able to apply what they have learned, making them more effective employees and augmenting the capacity of their organization.

In general, the CPC's mandate, roles and responsibilities are clearly defined and understood; however, a lack of clearly communicated responsibilities in some areas presents challenges. In particular, the shared responsibility between the CPC and TechOps of the Explosives Training Unit leads to inefficiencies.

Challenges associated with governance of the CPC may inhibit its effectiveness and efficiency as a learning institution. The CPC lacks flexibility in the areas of communications, funding and staffing., As well, there is evidence that other police colleges are managed under alternate structures.

The CPC has made strides to incorporate GBA+ and official languages considerations into program design and delivery. The CPC reviews courses with a GBA+ lens to eliminate biases and ensure fairness for all participants. The CPC also offers unique training for those in policing in Indigenous communities, however, the funding for this program has been discontinued. The CPC does offer some courses in French, but there is not a significant demand. The CPC accommodates French-speaking participants taking courses in English by supporting them with materials or instruction as needed.

The CPC may be unable to meet increased demand for training or develop new courses going forward. The CPC has seen course enrollments increase since 2016, and waitlists for courses grow at the same time. While the CPC can meet the current demand, resources are spread thin, which limits the ability to develop new courses and ensure current courses are kept up to date. The CPC is transitioning courses to an online format where appropriate in order to accommodate more participants.

The physical infrastructure, technological infrastructure and equipment, resources, and governance of the CPC present the greatest challenges to program effectiveness and efficiency. The physical and technological infrastructure and some equipment are dated and insufficient for the needs of the CPC moving forward. Resource constraints and challenges associated with governance limit the CPC's ability to be flexible and adapt to the evolving needs of the law enforcement community.

The CPC has implemented several measures in an effort to increase efficiency; however, it is too early to assess the impact of those initiatives.

Based on the findings of the evaluation, it is recommended that the Deputy Commissioner Specialized Policing Services:

1. examine the governance of the CPC with a view to enhancing effectiveness and efficiency
2. in consultation with key stakeholders, determine an approach for addressing challenges associated with aging infrastructure and the evergreening of equipment
3. establish, track and report on performance information that adequately measures CPC's expected results and supports decision-making
4. determine and implement an effective and efficient management structure for the Explosives Training Unit

Management response and action plan

Management response

Senior officials responsible for the implementation of the initiative reviewed the evaluation and accept the findings and recommendations proposed by IAER. The conclusions of this report will serve as a catalyst to further inform the CPC transformation plan, in alignment with the RCMP NPS legislated requirements, Vision 150 and the evolving specialized, advanced and leadership development needs of the broader domestic and international police community.

Action plan

Appendices

A. List of CPC courses

(https://www.cpc-ccp.gc.ca/index-eng.htm)

Explosives training

• Digital Radiography (DIGRAD)
• Explosives Familiarization Course (EFC)
• Police Explosives Technicians – Forced Entry Instructors (PETFEI)
• Improvised Explosives Devices to Police Explosives Technician - IED Recognition & Reconstruction (PETIED)
• Police Explosives Technicians Validation Course (PETVC)
• Police Explosives Technician Course (PETC)
• Post Blast Scene Technicians (PBLAST)

Forensic identification

• Advanced Friction Ridge Analysis (ARIDGE)
• Basic Bloodstain Pattern Recognition Course (BBPRC)
• Expert Witness, Forensic Identification (EXPFOR)
• Forensic Identification Course (FIC)
• Physical Evidence Comparison Course (PECC)

Investigative techniques

Critical incident

• Crisis Negotiators (NEGOTR)
• Critical Incident Commanders (COMNDR)
• Critical Incident Scribe (SCRIBE)

Drug investigations

• Drug Investigative Techniques Course (DITC)
• Hazardous Environment Recognition Training (HERT)
• Site Safety Supervisor (SSSC)

Investigative

• Financial Investigations Course (FINANC)
• Human Trafficking Investigator's Course (HTIC)
• Major Case Management: Team Commander (MCMTC)
• Major Crime Investigative Techniques Course (MCITC)
• Specialized Vehicle Theft Investigative Techniques Course (SVTITC)

Investigative support

• Drafting Information to Obtain (DITO)
• Court Expert and Testimony (CET)
• Organized Crime Course (OCC)
• Strategic Intelligence Analysis Course (SIAC)
• Tactical Intelligence Analysis Course (TIAC)
• Unsolved and Historical Death Investigations (UHI)
• Violent Crime Linkage Analysis System (VICLAS)
• Violent Offenders Behaviours (VOB)

Indigenous policing

• Indigenous Gang Reduction Strategies (IGRS)
• Integrated Approaches to Interpersonal Violence and Abuse (IAIVA)
• Strategic Policing through Action and Character leadership development course (with an Indigenous lens) (SPAC)

Leadership

• Executive Development in Policing (EDP)
• International Executive Development in Policing (IEDP)
• Strategic Policing through Action and Character leadership development course (SPAC)

Polygraph

• Investigative Phased Interviewing Course (IPIC)
• Polygraph Examiners Course (PEC)

Technological crime learning institute (TCLI)

Digital forensics

• Computer Forensic Examiner (CMPFOR)
• Internet Evidence Analysis (IEAC)
• Network Investigative Techniques (NITC)
• Mobile Device Acquisition and Analysis (MDAA)
• Live Analysis Workshop (LAW)
• Registry Analysis Workshop (RAW)
• Technical Court Expert and Testimony (TCET)

Cyber-crime investigations

• Digital Technologies for Investigators (DTIC)
• Cybercrime Investigators Course (CCIC)
• Using the Internet as an Intelligence Tool (INTINT)
• Advanced Open Source Intelligence Course (AOSINT)

Child exploitation investigations

• Canadian Internet Child Exploitation (CICEC)
• Advanced Internet Child Exploitation (AICE)
• Peer-to-Peer Investigator Course (P2P)

B. List of national and provincial committees

• Canadian Association of Chiefs of Police Policing with Indigenous People
• Canadian Association of Chiefs of Police - Education, Training & Professional Development Sub-Committee
• Canadian Association of Chiefs of Police E-Crimes committee
• Canadian Association of Chiefs of Police Human Resources & Learning committee
• Canadian Association of Police Educators
• Canadian Friction Ridge Working Group
• Canadian Institute for Public Safety Research and Treatment
• Canadian Police Knowledge Network Board of Directors
• Canadian Police Knowledge Network National Advisory Committee
• Canadian Police Knowledge Network National Advisory Committee - competency sub-committee
• Canadian Police Knowledge Network Steering Committee
• Commanding officers' indigenous advisory committee
• Francopol
• Global Policing Leadership program working group
• International Association of Chiefs of Police
• National Integrated Operations Council
• National Police Services National Advisory Committee
• National Police Services National Advisory Cyber Committee
• Ontario Association of Chiefs of Police committee
• Place of Reflection committee
• Policing with Indigenous Persons committee
• RCMP Equity, Diversity and Inclusion committee
• RCMP Executive Network Steering committee
• RCMP Health and Safety Committee
• RCMP NHQ Mentorship Program Committee
• RCMP Policy committee
• Real Property Advisory Committee
• Saskatchewan cultural unit committee

C. List of current articulated partnerships

(https://www.cpc-ccp.gc.ca/registration-inscription/transfer-credits-eng.htm)

• Charles Sturt University (Australia)
• Justice Institute of British Columbia
• Laurentian University
• Nicola Valley Institute of Technology
• Wilfrid Laurier University

References

• Adjunct Faculty Program – Highlights. Canadian Police College.
• Advantage: "A Mission to Help". Date Accessed: February 17, 2021. Date published: March 15, 2015. Web. https://advantagemagazine.ca/2015/motorola/
• Briefing Note to Deputy Commissioner. Information Regarding the Amalgamation of CPC Explosive Training Unit and CBRNE First Responder Training Program. September 29, 2014.
• Canadian Police College. Date Accessed: February 17, 2021. Date modified: February 15, 2021. Web. https://www.cpc-ccp.gc.ca/index-eng.htm
• Canadian Police College Performance Information Profile (PIP).
• Canadian Police College Strategic Plan 2019-2022.
• College of Policing: About Us. Date Accessed: February 17, 2021. Web. https://www.college.police.uk/About/
• École nationale de police du Québec : School Overview. Date Accessed: February 17, 2021. Date modified: November 13, 2020. Web. http://www.enpq.qc.ca/en/the-school/school-overview.html
• Federal Law Enforcement Training Centers: Strategic Plan. Date Accessed: February 17, 2021. Web. https://www.fletc.gov/site-page/strategic-plan
• First Nations Chiefs of Police Association: Training. Date Accessed: February 17, 2021. Web. https://www.fncpa.ca/what-we-do/training/
• Letter of Intent for the Co-Management of the CBRNE/Explosives Training Unit.
• Limestone Technologies Inc.: Backster School of Lie Detection. Date Accessed: February 17, 2021. Web. https://limestonetech.com/backster-lie-detection/
• National Police Services. Date Accessed: February 17, 2021. Date modified: October 22, 2020. Web. https://www.rcmp-grc.gc.ca/sps/nps-snp-eng.htm
• National Police Services: Building a Sustainable Future. Date Accessed: March 17, 2021. Date modified: February 29. 2012. Web. https://www.rcmp-grc.gc.ca/en/national-police-services-building-a-sustainable-future
• National Police Services Charter. December 17, 2020.
• National Police Services Charter Background Document. December 17, 2020.
• National Police Services Cost-Sharing and Recovery Analysis Matrix. July 2020
• National Police Services Sustainability: Historical Timelines 2019. Draft - January 2, 2020
• Ontario Ministry of the Solicitor General: The Ontario Police College. Date Accessed: February 17, 2021. Date modified: January 14, 2021. Web. https://www.mcscs.jus.gov.on.ca/english/police_serv/OPC/OPC_about.html
• Planning for a Successful Strategic Change. Canadian Police College. Chief Superintendent G.D. Ross.
• Proposed Modernized Structure and Sustainable Business Framework for the CPC Technological Crime Learning Institute.
• Proposed Restructure of the CPC's Technological Crime Learning Institute.
• Record of Discussion. National Police Service National Advisory Committee. November 7 - 8 2017.
• Technical Operations/Technical Investigative Services – Canadian Bomb Data Centre, Training.
• Terms of Reference. Combining Training Efforts and Mandate CPC-ETU and CBRNE First Responder Training Unit (Domestic and International). September 12, 2014.

Date modified:

2021-10-13