at the heart of montréal - spvm · lic security approach for montréal, one that will modernize...

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New Service Coverage FrameworkApril 2008

At the heart ofMontréal

TABLE OF CONTENTS

Message from the President of the Commissionde la sécurité publique 3

Message from the director of the SPVM 4

Introduction 5

The service coverage framework review process 6

S E C T I O N 1THE SPVM – CHALLENGES, OBJECTIVESAND FOUNDATIONS 7

1.1. THE SPVM’s CHALLENGES 71.2. OBJECTIVES TO PURSUE 81.3. STRATEGIC ORIENTATIONS 91.4. FOUNDATIONS OF THE SPVM’S ACTIONS 10

1.4.1. Mission 101.4.2. Vision 101.4.3. Values 111.4.4. The Police de quartier 11

1.5. ORGANIZATIONAL STRUCTURE OF THE SPVM 13

S E C T I O N 2THE NEW SERVICE COVERAGE FRAMEWORK 15

2.1. NEIGHBOURHOOD POLICE STATIONS 152.1.1. PDQ structure and operations 152.1.2. The Module d’actions par projet 182.1.3. Patrol and call response groups 202.1.4. PDQ management team 20

2.2. INTEGRATED PUBLIC SECURITY APPROACH 212.2.1. Local units 212.2.2. Regional units 232.2.3. Corporate units 24

2.3. SERVICE ADAPTED TO THE ENVIRONMENT 242.3.1. Redraw the police map 242.3.2. Review regional groupes d’intervention 262.3.3. Overhaul the citizen reception structure 262.3.4. Distribution of personnel to PDQs 27

C O N C L U S I O N 30

APPENDIX I: Resolutions of the Municipal counciland the Agglomeration council 31

APPENDIX II: An overview of the environment 33

APPENDIX III: Lexicon of acronyms for figure 5 36

APPENDIX IV: Service counters – traffic andpublic expectations 36

APPENDIX V: Origin of the 201 additional officersassigned to patrol and problem solving in theneighbourhood stations 37

Production team and acknowledgements 38

LIST OF FIGURES

F i g u r e 1Steps in the service coverageframework review process 6

F i g u r e 2Executive branchesof the SPVM 14

F i g u r e 3Service de police de la Ville deMontréal organigram 16

F i g u r e 4Functional links in the PDQmultidisciplinary teams 18

F i g u r e 5Integrated public securityapproach 22

F i g u r e 6New police map 25

LIST OF TABLES

T a b l e 1Distribution of neighbourhoodofficers in the PDQs of WestRegion 28

T a b l e 2Distribution of neighbourhoodofficers in the PDQs of NorthRegion 28

T a b l e 3Distribution of neighbourhoodofficers in the PDQs of SouthRegion 28

T a b l e 4Distribution of neighbourhoodofficers in the PDQs of EastRegion 29

T a b l e 5Total distribution of neigh-bourhood officers in the PDQs 29

Message from the presidentof the Commission de lasécurité publique

A dynamic organization at the heartof our city

There are times that I am extremely proud to be the presi-dent of the Commission de la sécurité publique and the vice-president of the Comité exécutif de la Ville de Montréal.Presenting the new Service de police de la Ville de Montréal(SPVM) service coverage framework is one of those times.

This reorganization proposal for the SPVM was developedafter extensive consultation with all stakehold-ers, citizens, elected official and employees, andit offers innovation while building on thestrength of our Police de quartier.

I want to thank my colleagues at the Commissionde la sécurité publique for their contributions, aswell as everyone who helped develop this impor-tant document.

I also extend my congratulations to the entireSPVM personnel who are supporting this re-newal, and I want to encourage the public to

support the actions of the police officers so that the Police dequartier can grow to truly reflect our island.

Thank you and congratulations!

Claude DauphinVice president of the Comité exécutif de la Ville de MontréalPresident of the Commission de la sécurité publiqueMayor of the Borough of Lachine

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Project for an island!

It always feels promising when a unifying and forward-thinking project is achieved, buoyed by a consensus amongso many stakeholders in our city.

In Montréal we are very fortunate to be experiencing justsuch a moment right now, thanks to an innovative modelthat constitutes an important step forward in establishingour vision for the future. Our plan goes beyond simplepolice organization. This renewed service coverage frame-work lays the foundation for an integrated pub-lic security approach for Montréal, one that willmodernize and improve our services to the pub-lic and pave the way for increased involvementfrom all our partners. We see it as a teamworkplan that rallies SPVM personnel (civilian, police,crossing guards, parking agents and taxi inspec-tors), elected officials across the island, our part-ners and you, the citizens of Montréal. Together,the members of the SPVM team are stepping intothe future with professionalism and integrity.

Back in January 1997 – over 10 years ago already– the SPVM unveiled our new policing model, thePolice de quartier (neighbourhood policing). Since then wehave never stopped improving on the plan, with a majoroptimization in 2004 and numerous other adjustments twoyears ago.

The most recent stage in its development is the new servicecoverage framework, which began with a number of discus-sion forums that brought together our partners with elect-ed officials, employees and the police executive. The newservice coverage framework is more than a simple structure:it is an approach that we are asking you to help us build,with flexible solutions that can be adapted to suit every sit-uation and community in Greater Montréal.

To reinforce our neighbourhood policing model,the SPVM has been fine-tuning the project forseveral months now.

So please read on to learn more about what weare doing: the plan is very inspiring and it calls onthe cooperation of everyone who loves Montréaland who wants it to continue to be one of thesafest cities in the world.

Remember: this is a professional and personalcommitment we all owe to each other!

In closing, I want to thank everyone who helpeddevelop and launch this great adventure that will definitelymark the history of our Service.

Bravo one and all!

Yvan DelormeDirector

Message from the director of the SPVM

IntroductionSince the Police de quartier (the neighbourhood policingmodel) was introduced 10 years ago, the SPVM has refinedthe model to make it a flexible system that can be adjustedand adapted to changes in the environment, taking in stridethe needs and expectations expressed by the public, theelected officials, other partners and the SPVM personnel.

The operations and effectiveness of the SPVM have beenperiodically assessed, and the evaluations have taken intoconsideration the city’s constantly changing political (munic-ipal organization, ministerial directions, etc.), legal (legisla-tive changes, etc.), economic, social, demographic and crim-inal landscape.

Within this setting, the neighbourhood policing model hasbeen constantly evaluated since its inception to make itstronger and more robust. In 2004, the assessment led to theOptimisation de la Police de quartier (neighbourhood policeoptimization). The most visible result of this process was thecreation of the Services à la communauté (regional servicebureaus), the twinning of certain neighbourhood police sta-tions (postes de quartier or PDQs), and the addition of alieutenant, an investigator and a road safety specialist toeach PDQ to strengthen the teams.

The SPVM took these measures to adjust to the reality of themega-city and will continue to take steps as the situationevolves. For example, over the last few years, the police serv-ice has adjusted to an increase in the demand for services.The SPVM provides security services for local and interna-tional events that involve large crowds: since 2001, the num-ber of large scale events, which take place mostly during thesummer, has increased by 35%. The SPVM also has to mobi-lize more resources to deal with new and growing types ofcrime.

In an era of regular rationalization of public finances and aconstant increase in the workload of police officers for thepast 10 years, the SPVM and everyone who works with andthrough it have managed the situation very well. Between1995 and 2005, SPVM staff increased by only 0.8%, comparedto average increases, over the same period, of 11% for policeservices across Canada and 4.2% for police services acrossQuébec. The SPVM’s efforts in terms of budgetary restraintare also noteworthy: expenses increased by 20%, which is lessthan the Canadian inflation rate1 and less than expenseincreases in the other police services in Quebec (averageincrease of 39.3%2).

Overall, the SPVM is doing good work, and Montréal is asafe city. Nevertheless, the SPVM faces certain challengesassociated with its response capacity and the changing faceof Greater Montréal.

The SPVM must continue to adapt its methods to its chang-ing environment in order to effectively fulfil its mission and,in doing so, help make Montréal “a society where everyonehas a sense of belonging, a city that constantly improves itscitizens’ quality of life while ensuring sustainable develop-ment.”3

The SPVM will actively participate in the success of GreaterMontréal’s new Policy for a Safe and Peaceful LivingEnvironment, which seeks to mobilize and engage theentire community around the issue of public safety. TheSPVM also intends to contribute to the achievement ofImagining • Building Montréal 2025, A World of Creativityand Opportunities, which aims to make Montréal:4

a city of knowledge, creativity and innovation

an avant-garde cultural metropolis

an outstanding place to live

a city with efficient infrastructure

a city open to the world

With these goals, a novel approach is required to give theSPVM the ability to act on the priorities it has adopted. TheSPVM’s principal strength has been its capacity to evolve. Itmust continue to stay at the front of the wave soMontrealers enjoy the best possible services.

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1. Statistics Canada, Consumer price index for Canada, 1988-2007.2. Data from: Statistics Canada, Canadian Centre for Justice Statistics,

Municipal police force administration characteristics - (1986-2007).3. Ville de Montréal, Direction de la planification stratégique, Imagining – Building

Montréal 2025: A World of Creativity and Opportunities, 2005, p. 20.4. Ibid., p. 15.

The service coverageframework review processIn 2005, with the unveiling of the new political frameworkfor Greater Montréal, the SPVM undertook a review of itsservice coverage plan, in order to continue to improve thequality of the services it offers, harmonize more effectivelywith the central services, boroughs and newly combinedcities, maximize the efficiency of its operational units, andeffectively manage its service offer. This process also provid-ed the opportunity for the SPVM to prioritize current andfuture public security issues and define guidelines for theyears to come.

The first step was to undertake in-depth analyses of theSPVM’s external environment and the situation within theorganization. The external assessment identified the needsand expectations of the public, as well as factors necessaryto maintain a peaceful and safe living environment. Theinternal assessment determined whether the currentresources and service offerings were sufficient to meet theidentified needs and expectations. A preliminary analysis ofthese assessments validated the mission adopted by theSPVM in 1995 and allowed the police service to establish anew vision and review its values.

In May 2006, 28 forums were held, with input from SPVMmembers at every level and in every field of activity andtheir key partners. A total of 200 people from the organiza-tion and 85 representatives of key partners (citizens, electedofficials and public, institutional and community partners)were involved. These consultations helped focus in on theissues, establish priorities and, where necessary, suggestguidelines, solutions, strategies or actions, in light of theresults of the prior assessments.

The SPVM executive used the results from the assessmentsand consultations to define its strategic orientations andaction priorities for the coming years. These orientations ledto improved handling of certain issues, but one matterbecame clear: the SPVM’s operational methods were in needof an extensive overhaul.

To amalgamate everyone’s comments, provide feedback andexamine the necessary adjustments, the proposal outlined inthis document was presented in January and February 2007:

to everyone who took part in the forums in Spring 2006to the elected officials in every boroughto the SPVM executiveto the Fraternité des policiers et policières de Montréal(Montréal police brotherhood)to all SPVM personnel, through their unit managers

The solutions chosen (based on the results of the entireprocess) were then presented at a public consultation by theCommission de la sécurité publique (public security commis-sion). After a series of briefs was presented, further adjust-ments were made to the proposal.

Finally, the new SPVM service coverage framework wasapproved by the Montréal municipal council on June 18,2007, and by the Agglomeration Council on June 21, 2007.5The conditions of its implementation are also the subject ofagreements with the Fraternité des policiers et policières deMontréal.

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Figure 1: Steps in the service coverage framework review process

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5. The resolutions adopted by the Councils are presented in Appendix I.

1.1. THE SPVM’S CHALLENGES

The in-depth analysis6 of the SPVM’s operational context,validated through consultation forums, was used to estab-lish the public’s needs with regard to the maintenance of asafe and peaceful living environment.

The issues raised are allclosely related to theachievement of the SPVM’smission and they relate toevery field and componentof the organization’s envi-ronment. By analysingthese issues, we identifiedthe main challenges theSPVM must face now andin the coming years.7

Diversity and community relationsCHALLENGE 1: In light of high immigration, strengthen theSPVM’s links with the community, in order to help all the cit-izens of Greater Montréal live together in harmony.

Criminal environmentCHALLENGE 2: In light of the general decline in crime inMontréal, maintain the reduced crime rate while takingaction against emerging forms of crime and crimes of dis-turbing frequency.

Safety of people with special needs8

CHALLENGE 3: In light of frequent police interventionamong people with special needs, rethink all related policeinterventions from a global, integrated and intersectoralperspective.

Occupation of urban spaceCHALLENGE 4: In light of questions concerning the occupa-tion of urban space and related to issues of marginality andpublic disorder, adopt an integrated city-wide vision for themanagement of public spaces.

Criminal and non-criminal crisis situationsCHALLENGE 5: In light of the increased risk of criminal andnon-criminal crises, constantly update crisis risk prepared-ness programs (terrorism or other) and SPVM response plansto ensure adequate preparation of all response workers.

Road safetyCHALLENGE 6: In light of a deterioration in Montréal’s roadsafety record in recent years and with the help of the newofficers assigned to traffic in January 2006, maintain safetyand tranquillity on the roads through improved road safety.

Safety in public transitCHALLENGE 7: In light of the importance of safety in publictransit, and especially in the metro, maintain a safe publictransit network on the island of Montréal and contribute tothe flow and efficiency of the network services, in order topromote its use.

1THE SPVM – CHALLENGES,OBJECTIVES AND FOUNDATIONS

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6. Reference: SPVM, Section recherche et planification, Direction stratégique, Lasécurité et la qualité de vie à Montréal: constats et tendances, Lecture de l’envi-ronnement externe 2006, Montréal, 2006.

7. Appendix II presents a brief overview of the context in which the SPVM iscarrying out its mission.

8. The segments of the population with special needs are those whose livingconditions make them more likely to become victims of crime, to commit crimesor to find themselves in situations of distress that require police intervention.These situations may or may not involve breaking laws and bylaws. Thesesegments of the population include people who are elderly, mentally chal-lenged, or physically handicapped or who have problems related to psychologi-cal distress or intrafamily situations (youth, children, families).

S E C T I O N

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Organizational and budgetary environmentCHALLENGE 8: In light of massive workforce renewal andchanges in the characteristics of the personnel, rapid IT andcommunications developments, and limited public financesand budgets, propose innovative strategies to compensatefor these situations and improve support for police officers intheir daily work.

While Montréal is in an enviable situation in comparison tomany other large cities in North America, the challengesoutlined above demonstrate that the SPVM must continueto adapt to the changing environment in order to effec-tively contribute to the security and quality of life of thepeople living in Greater Montréal.

1.2. OBJECTIVES TO PURSUE

Through the internal analysis, consultations and forums, wewere able to identify certain obstacles that must be over-come to maximize the SPVM’s response capacity. Identifyingthese obstacles helped define a number of priority objec-tives which, while they did not call into question the neigh-bourhood police model itself, served to guide the proposedchanges.

To achieve the target objectives, the SPVM must pursue itsefforts to develop a modern, flexible and high-performanceorganization focused on results management. Mechanismshave been adopted to enrich processes and methods and,consequently, to reduce the sources of deficiency.

From this perspective, the changes must enable the SPVM toreview its methods, in order to provide the personnel withthe tools they need to achieve ever-more-demandingresults; reduce the management-staff ratio, to maximize thenumber of positions directly involved in service delivery; andachieve productivity gains, particularly through greaterorganizational flexibility and modern, high-performancetechnology tools.

Description of objectives:

Harmonize the SPVM with the municipal structureSince the SPVM is a municipal partner, it must be effectivelyintegrated and take advantage of the strength of its envi-ronment. This is a matter of reviewing the deployment ofservices to further integrate them with the structure of theboroughs and connected cities and creating platforms forexchange between the stakeholders (for examples, at bor-ough committees on public and civil security).

Coordinate support for PDQs locallyPolice services are delivered on a territorial basis. Effortsmust focus on effectively coordinating actions locally andincreasing all units’ accountability for results.

Offer integrated public security servicesIn order to improve its efficiency and promote increased vis-ibility across the territory, the SPVM must develop an inte-grated approach that is complementary to its current serviceoffer. Sharing security responsibilities with partners andamong different SPVM units will improve efficiency andencourage continuity of action. The same is true for theadditional services provided by the new traffic and Metropolice, the use of police cadets and the integration of park-ing agents.

Make PDQs more robust and independentTo be able to take action on local issues and implement the“problem solving” approach, the PDQs must be strongerand more independent. Methods should be reviewed toallow each PDQ to assign more officers to proactive actionand problem solving.

Support front-line workersTo provide support for front-line workers, it is critical thatthe SPVM continue to deploy modern, high-performancetools and rely on technologies that improve organizationalperformance.

Increase organizational and financial capacityTo sustain its development and maintain and increase effi-ciency and service quality, the SPVM must continue to inno-vate. It must not only rely on modern, high-performancetools to organize its work but also increase and consolidatethe public security services it offers to the public.

The SPVM must continue to look at things differently, tobroaden its vision and redefine its roles and responsibilities

in certain areas, asin the case of theMontréal Pierre ElliotTrudeau Internatio-nal Airport. Effortswill focus especiallyon financing activi-ties such as securityat the Port ofMontréal and coun-ter terrorism andanti-street gangactions.

Manage diversity to mobilize the personnel andincrease their status and self-esteemPeople who are valued are engaged in what the organiza-tion has to offer, and that encourages them to commit forthe long term and to invest in temporary projects. The SPVMneeds to offer a work environment that allows every staffmember to feel mobilized, supported, respected and appre-ciated for their own qualities. These conditions are essentialto engage everyone in the success of the organization andto ensure that the behaviour nurtured by this dynamic isreflected in interactions with the public.

1.3. STRATEGIC ORIENTATIONS

The SPVM’s corporate action plan already specificallyincludes several of the concerns raised in the evaluationsand consultations. This action plan revolves around threemajor strategic orientations that will guide the SPVM’sactions in the coming years:

Adapt the service offer to the environment.This orientation focuses on management of urbanspaces, crime, road safety and traffic, partnerships andcommunity relations.

Support the personnel and contribute to their develop-ment in a context of diversity management.This orientation seeks to develop targeted managementcommunications, increase status and self-esteem amongthe personnel, improve the quality of work life, step upprofessional development and identify the next gener-ation of officers and senior SPVM staff.

Increase organizational and financial capacity. Sourcesof financing, work organization and implementation ofthe new service coverage framework are the three com-ponents of this objective.

These orientations echo a number of the SPVM’s challengesand major objectives, but the priorities established for theseorientations cannot all be achieved without a more in-depthreview of the SPVM’s practices and methods.

This review is discussed in Section 2. Above all, it is impor-tant to re-examine the main foundations of the SPVM’sactions and the organizational structure through which theorganization’s activities are coordinated.

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1.4. FOUNDATIONS OF THE SPVM’S ACTIONS

1.4.1. Mission

As the principal agent of public security activities and serv-ices for Greater Montréal under the Police Act, the SPVM isresponsible for controlling crime and maintaining publicorder, as clearly outlined in its mandate. Indeed, the PoliceAct stipulates that the police services and their membershave a duty “to maintain peace, order and public security, toprevent and repress crime and […] offences under the lawand municipal by-laws, and to apprehend offenders.”9

In light of this mandate, the mission embraced by the SPVMin 1995 when it adopted the neighbourhood policing model– which makes the quality of life of Montrealers the focus ofits actions – appears to be as relevant as ever. It allows theSPVM to respond to the needs and expectations ofMontrealers.

In partnership with the institutions, socio-economicorganizations, community groups and citizens of theterritory of Montréal, the SPVM seeks to enhance thecitizens' quality of life by working to reduce crime,increase road safety, improve the public’s sense of secu-rity, and develop a peaceful and safe environment,while upholding the rights and freedoms guaranteedunder the Québec and Canadian charters of rights.

1.4.2. Vision

To complete its mission and guide it into the future, theSPVM adopted a new corporate vision.

The SPVM serves as a model of professionalism andinnovation at the core of Montréal life.

To bring this vision to life, the SPVM relies on theoften-tested professionalism of its entire civilian andpolice staff. The Service de police de la Ville deMontréal dedicated to the service of the citizens it hasa duty to protect and serve, is always ready to meet thechallenges of today and preparing for those of thefuture. With this as its goal, the SPVM strives to be amodel of innovation in police practices, fully living upto its heritage in the spirit of its mission.

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9. Québec, Police Act: RSQ, Chapter P-13.1, Updated to February 15, 2008, Québec,Éditeur officiel du Québec, 2008, section 48.

1.4.3. Values

The SPVM executive and personnel are united around threefundamental values that are rooted in the SPVM's missionand guided by its vision.

RespectRespect means behaving and treating others with con-sideration and dignity and remaining open todifferences.

Respect underscores all our interactions with citizens,partners and the community, and all our relations withemployees, colleagues and superiors. In daily work sit-uations, SPVM employees are as respectful and open toothers as they are to members of their own families.

IntegrityIntegrity is the quality of someone who exercises theirprofession with rectitude, honesty and fairness.

The citizens' trust and respect toward the SPVMdepend on the integrity of all our employees.

CommitmentCommitment means being wholly dedicated to theorganization's mission and taking personal responsibil-ity for all involved roles and duties.

The SPVM personnel set forth to accomplish their task,taking on the issues in the environment and workingtogether to resolve them.

These three values guide the decisions and actions of SPVMmembers in their dealings with citizens and colleagues andin relation to the basic components of the neighbourhoodpolicing model.

1.4.4. The Police de quartier

The analysis of the internal and external environment, theconsultations and the forums held during the review andevaluation process confirmed the relevance of the neigh-bourhood policing model, the validity of its componentsand the solidity of its base. The Police de quartier, its fivecomponents and the adjustments made to date are notbeing called into question. On the contrary, the proposedchanges seek to further strengthen the model.

The Police de quartier is designed to counter security prob-lems that emerge because of limitations in the traditionalintervention model. The neighbourhood model allows thepolice to get closer to the community by using a problemsolving approach, establishing partnerships and developinggreater openness toward the communities.

The Police de quartier also introduced the concepts of senseof security, citizens’ quality of life and road safety to theSPVM mission. This required the personnel to learn newapproaches but also called on them to deal with the growingbut legitimate expectations of the public and elected offi-cials, especially interms of police visi-bility, partnership,community involve-ment and trans-parency.

There are five basiccomponents of theSPVM neighbouhoodpolicing model: pro-blem solving ap-proach, geographicresponsibility, service-based approach, partnership and per-sonnel recognition.

These components should be considered as guidelines. Origi-nally adopted when the neighbourhood policing model wasfirst implemented, they have been enriched by over a decadeof experience. This is how they are defined today with thebenefit of time.

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Problem solving approachThe problem solving approach is a central component of thePolice de quartier. It allows the SPVM to concentrate on mis-demeanours and other recurring incidents of concern to thepolice and the community citizens: these misdemeanoursand incidents are deemed to be a “problem” when theybecome a source of concern because of their recurringnature. Reacting to similar calls on a case-by-case basis con-demns the police to endlessly repeat the same actions.The problem solving approach, on the other hand, identifiesand changes the conditions at the root of the problem.

The approach involves several key elements. Efforts aremade to identify and analyse problems, locally apply lastingsolutions and then evaluate the impact. The citizens of acommunity (residents, business owners, members of govern-ment bodies or local associations, etc.) take part in the prob-lem solving process. Proactive measures are also taken, inconjunction with the reactive measures made in response to

calls and problem consequences. Localproblem management works inde-pendently. The multiple expertise ofthe neighbourhood officers maxi-mizes problem solving, using localresources to their best advantage. Inthe problem solving approach, theactions of local units are supported bythe actions of regional and corporateunits, which share the responsibilityfor action.

In general, the SPVM personnel con-centrate their actions on the four axesof intervention which are integratedwith the problem solving approachand other basic components of theneighbourhood policing model.

These four axes guide police intervention by advocating theharmonization of various actions around each issue. Theaxes are complementary, supporting each other and forming

a coherent whole. They must not be treated separately orconsidered as opposites, as if taking action on one axismeant by definition not taking action on the others.

The four priority axes of intervention

Prevention of crime and misdemeanours encouragesand sustains behaviour that upholds laws and bylawsand facilitates peace and safety for all. The goal is tohelp the public develop the skills to deal with specificproblems or general life situations and to mould andrefine this aspect of the living environment.

Suppression takes action against crime, enforces lawsand bylaws and maintains peace and order. It appliescoercive strategies to control individuals using constric-tive measures.

Communication keeps citizens, partners and SPVMemployees informed. It encourages the relevantexchange of information about security and c7rimecontrol matters, for the purpose of resolving problems,monitoring actions and maintaining trust.

Research analyses the SPVM’s environments in order todeploy the best policing practices. This may involvelocal assessments, crime analysis, evaluation of policeintervention or operations, bibliographic research,examination of the context of various SPVM actions,and so forth.

These are integrated actions that are designed to worktogether. Prevention, suppression, communications andresearch efforts fit together and complement each other aspart of the overall plan, and the various aspects of a singleproblem are handled with a view to finding a coherent andeffective solving.

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Geographic responsibilityThis component of the Police de quartier consists of assign-ing responsibility for the security of a territory to the per-sonnel of the neighbourhood police stations, to give theteam of police officers a sense of belonging to the neigh-bourhood where they work. It allows them to acquire adeeper understanding of the citizens’ needs, the resourcesavailable in the neighbourhood, and its geographic, socialand criminal characteristics. All other SPVM units back upthe PDQ personnel to reinforce this component and deliverservices on a territorial basis.

Service-based approachThe service-based approach is a fundamental characteristicof high-performance public organizations. It focuses onclient satisfaction, anticipating needs and making directcontact with the clients using a personal and understandingattitude. It emphasizes assisting citizens, listening, and fol-lowing up on victims of crime and people who file com-plaints.

PartnershipAt the SPVM, partnership signifies a formal agreementbetween two or more parties who have agreed to worktogether in the pursuit of shared or compatible objectives.Partnership involves sharing power and responsibilities andjoint investment of resources.10 Although the terms areoften interchangeable in everyday parlance, partnership dif-fers from simple cooperation or joint activities in that thelatter are not necessarily governed by formal agreements.For the SPVM, partnership is a means by which the organi-zation seeks to achieve more satisfactory results.

This fourth component is crucial because the SPVM recog-nizes that it cannot solve the problems of crime, disorderand lack of security on its own. As has been demonstratedover the years, partners and the public also have a determin-ing role to play in public security and problem solving.

Personnel recognitionPersonnel recognition is at the heart of the vision and valuesembraced by the SPVM. The organization has confidence inthe members of its police and civilian staff. Initiative isencouraged. Competencies and experience are recognized,appreciated, encouraged and respected.

A human resources management strategy gives concreteexpression to this component. The main objective of thestrategy is to improve the SPVM’s organizational capacity inorder to derive the greatest potential from a staff body witha diversity of values, attitudes and skills within an innovativeand high-per-formance serviceoffer. To this end,priorities centrearound four keyelements: devel-opment andidentification ofthe next genera-tion of officersand senior staff;a motivating, res-pectful and sup-portive work en-vironment; communications; and coaching through change.

1.5. ORGANIZATIONAL STRUCTURE OF THESPVM

The evaluation process for the service coverage frameworkconfirmed the relevance of the SPVM’s current organiza-tional structure, which includes three executive branches –operations, administration and strategic.

In 2005, the SPVM adopted a new, more flexible organiza-tional model, with three executive branches centred onresults and service. Efficient management directs resourcesand processes toward the production of quality deliverables.

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10. Mode de fonctionnement de la Police de quartier, Procédure 160.

Figure 2: Executive branches of the SPVM

The Direction des opérations oversees all operational units.It includes all front-line units (neighbourhood police sta-tions) and support units (regional and special investigationsunits) that are involved in delivering services to the public.

The Direction des opérations is the core of the organization.With 4,740 employees, it encompasses most of the organiza-tion’s staff. It is made up of six separate services. There arefour Services à la communauté (regional services: east,north, south and west), since the island is divided into fourseparate regions, and two other specialized services thatsupport them: the Service des opérations corporatives (cor-porate operations service) and the Service des enquêtes spé-cialisées (special investigations service).

The mandate of the Direction des opérations is to offer basicand specialized services to the public. It is supported by thetwo support directorates, the Direction de l’administrationand the Direction stratégique.

Through its various units, the Direction de l’administrationhelps optimize human resources and financial, material andcomputer management. In this sense, it offers support andoversight to all units in the SPVM. It also advises and pro-vides marketing resources. Finally, it directly supports policeoperations since it is responsible for the Service des commu-nications opérationnelles (operational communications serv-ice: 9-1-1 call centres and call handling).

The Direction stratégique provides guidance as the SPVMadvances toward better practices and innovations. Its mainfunctions are to plan, advise on and oversee issues and prac-tices. It contributes to organizational development andmonitors internal cohesion. This directorate includes theDivision des communications (communications division: cor-porate and media), the Service des affaires juridiques (legalaffairs service) and the Service des stratégies organisation-nelles (organizational strategy service: strategic develop-ment, methods and processes, research and planning, com-munity action strategies).

By promoting horizontal networking, these changes in theorganizational structure have improved the coordinationmechanisms between people in different sectors and unitsof the SPVM. It is expected that this networking will resultin the creation of formal and informal links between unitsthat will harmonize all actions for a more integratedapproach.

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Direction del’administration

Direction

Directionstratégique

Direction desopérations

Reinforcing the SPVM’s capacity to act locally is the centralplatform of the new service coverage framework. This rein-forcement demands improved harmonization with themunicipal structure, the introduction of true territorialresponsibility, integrated public security services, greaterstrength and independence for the neighbourhood stations,and optimal support for front-line workers and other per-sonnel members. Achieving these goals will allow the SPVMto take its place at the heart of Montréal.

With the Police de Quartier, the SPVM got closer to the peo-ple and closer to its local partners, and learned more aboutlocal realities, issues and problems.

The Police de Quartier also allowed the SPVM to embracethe problem solving approach, which seeks lasting solutionsfor certain types of crime, to ensure they do not recur.

Nevertheless, while the structure and operational mode ofthe SPVM definitely put the Service in better touch with thepublic and improved its analysis and understanding of localissues and problems, its options for intervention were stilltoo limited.

The proposed changes are above all a way to enact theapproach and the vision, rather than simple structuralchanges. The modifications will make better use of the per-sonnel, their expertise and their methods.

2.1. NEIGHBOURHOOD POLICE STATIONS

The neighbourhood police stations (postes de quartier orPDQs) have been the cornerstone of SPVM action for over adecade. They offer police services to the local communities24 hours a day, 7 days a week. They are responsible for pub-lic security in their own territory and for ensuring the SPVMmission is carried out at their level. They have to be flexibleenough to adjust to local situations and able to harmonizeas much as possible with existing municipal structures.

Furthermore, to fully assume their responsibilities, the PDQshave to function independently and maintain continuity byproviding integrated public security services.

The introduction of the new service coverage frameworkprovided an opportunity to completely overhaul the PDQs.Their structure and mode of operation have been modifiedin three complementary areas:

Strength. The number of operational officers in thePDQs has been substantially increased.

Independence. Methods have been reviewed to makethe PDQs more independent, increasing their capacityto resolve the problems of the local community.

Integrated service offer. The PDQs have the supportof all other SPVM units, both in their provision ofregular services and in situations where police interven-tion demands resources beyond their individual capa-city. The members of the organization all share the con-cept of working together as a team through the appro-priate cooperation mechanisms.

These changes will increase the PDQs’ capacity to act andoffer adequate services. Additional police resources are anessential condition for the stations to become more inde-pendent and robust. Their mode of operations has also beenreviewed to allow them to more fully embrace their role. Tothis end, each PDQ has established a Module d’actions parprojet (Project-based action module or MAP).

2.1.1. PDQ structure and operations

Under the new service coverage framework, every neigh-bourhood station constitutes a multidisciplinary team cover-ing three complementary areas of responsibility to facilitatecooperation with partners and local stakeholders. It is com-pose of:

A management team

A Module d’actions par projet

(Project-based action module)

Five patrol and call response groups

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2THE NEW SERVICECOVERAGE FRAMEWORK

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S E C T I O N

Figure 3 : Service de police de la Ville de Montréal organigram

It is the responsibility of this multidisciplinary team to pro-vide integrated and effective public security services at thelocal level. To carry out the SPVM mission and serve the pub-lic, each team pursues the following activities:

Patrol, call response and maintenance of peace and order

Road safety and traffic

Crime prevention and community relations

Investigations (in conjunction with the centres d’enquêtes)

Analysis and intelligence

2.1.2. The Module d’actions par projet

The implementation of the problem solving approach washindered by two main obstacles: the dispersal of responsibil-ity and expertise, and the growing complexity of the chal-lenges facing the PDQs.

Problem solving is the responsibility of all patrollers. Underthe neighbourhood police model, the patrollers were giventhe role of generalists who had to demonstrate exemplaryskills in areas as varied as crime prevention, road safety, par-ticipation in community life and youth intervention. It wasdifficult for them to meet these expectations on a daily basis,and this often resulted in less than optimal use of their indi-vidual expertise, disengagement from the goal of problemsolving and a decreased sense of status and self-esteemamong the personnel.

Furthermore, local challenges and problems are increasing incomplexity, demanding police intervention of greater andgreater expertise, in terms of both problem recognition andproblem handling.

In their original configuration, the PDQs did not have theindependence they needed to provide an adequateresponse. Only concentrating expertise in a single entitycould give the PDQs the independence they need to solvelocal problems and establish partnerships. Pooling theirexpertise allows them not only to define the parameters ofpolice action with regard to recurring problems but also to

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CommandantPDQ

Lieutenant

• PIPDQ• Agents-sociocommunautaires• Agent de circulation• Agents de soutien• Cadets policiers• Sergent-détective

Module d'actions par projetGroupe 1

Groupe 2

Groupe 3

Groupe 4

Groupe 5

Superviseur

Agents de quartier (assigned for 1 year)Agents de quartier (drawn from night shift)Agent d'information principal(25% of the task of one neighbourhood officer)

Figure 4: Functional links in the PDQ multidisciplinary teams

gain leverage and mutualsupport by mobilizingexternal partners in anintegrated approach topublic security.

Problem solving is morethan a method: it is anapproach that must beintegrated into the dailyactions of the patrollers.

From this perspective, it requires a “driver” to bring it to life,a structure through which problems are identified, strategiesdesigned, and responses deployed or coordinated.

The Module d’actions par projet in each PDQ brings togetherthese different types of expertise and serves as thespearhead for local problem solving. This module can also takespecific action in terms of traffic and road safety, communityrelations and issues related to youth, children and families.

In terms of benefits for SPVM partners, the MAP facilitatescommunity relations and cooperation, increases and personal-izes direct contact with partners and the public, and providesa more customized response to security needs in the territory.

In other words, the MAP allows each PDQ to deliver value-added services in addition to patrol and call response.

Responsibilities of the MAPThe Module d’actions par projet is an operational team thatworks on a project basis. Projects allow the team to developstrategies and implement intervention plans to achieve last-ing results for identified problems.

The MAP brings together officers with different types ofexpertise to give them a greater collective capacity to act(investigations, intelligence, prevention, suppression, etc.).Combining these different types of expertise allows theMAP to:

Recognize and identify problems

Develop strategies to deal with problems

Establish links with other SPVM units for combinedinterventions

Ensure all players are working together cohesively andcomplementarily

Mobilize partners

Increase direct contact with the public

The MAP supports and is supported by the other PDQ mem-bers. As the MAP members carry out their problem solvingactivities, their daily uniformed presence in the territory andin target zones also helps reinforce police visibility.

The specific responsibilities of the module are as follows:

Information management (collection and sharing ofintelligence, links with analysis teams, research ofbest practices, etc.)

Identification of target locations related to crime, anti-social behaviour or disorder

Implementation of problem solving strategies

Efficiency and effectiveness of patrol plans (foot patrol,presence in target locations and visibility)

Composition of the Module d’actions par projetEach Module d’actions par projet (MAP) is essentiallycomprised of two entities with complementary competencies:

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1. A team of police officers assigned for a one-year period(including a supervisor and an agent d’information principal(or senior information officer) and, depending on the pro-jects, neighbourhood officers drawn from the night shift:

A supervisor (from one of the five call responseteams) – oversees the officers assigned to the MAP.

Neighbourhood problem solving officers – in eachPDQ, at least three officers (of whom one is assignedas agent d’information principal) play this role. Theiractions in the field (patrol, foot patrol, visibility, inter-vention, etc.) are specifically directed toward resolv-ing neighbourhood problems.

Neighbourhood officers drawn from the night shift –these officers may be added to the MAP as needed.Adding these officers reinforces the links with the callresponse groups.

2. PDQ members with specific expertise, supervised by thecommander, who support the projects by matching theiractivities to the project goals:

A sergent-détective (or sergeant detective) who pri-oritizes and monitors investigations in the PDQ, pro-vides coaching on investigative matters and circulatesinformation about the investigations between thePDQ and the centres d’enquête.

Agents sociocommunautaires (community relationsofficers) who deal with various spheres of activity(youth, seniors, schools, communities, etc.). Theirnumber and assignments are determined based onlocal issues. They work in cooperation with theagents de concertation communautaire (communityjoint action officers) from the regional Section inter-vention jeunesse et prevention (youth interventionand prevention section).

An agent de sécurité routière (road safety officer)who analyses local priorities and coordinates thePDQ’s road safety efforts.

Agents de soutien (support officers) whose mainresponsibility is receiving citizens.

A préposé à l’information – Police de quartier (neigh-bourhood information agent or PIPDQ) who managespolice information (centralization, validation, codifi-cation and diffusion).

Police cadets who are used locally to support project-based operations and provide police presence inparks and other public places.

2.1.3. Patrol and call response groups

Five groups of patrollers work on the shifts. Depending onthe size of the groups and local needs, the groups have oneor two supervisors.

Responsibilities of patrol and call response groupsThe specific responsibilities of groups 1 to 5 are:

Call responseFoot patrolEnforcement of the Highway Safety Code and prevai-ling laws and bylawsParticipation in problem solving based on patrol plans

The introduction of the Module d’actions par projet doesnot release the patrollers from their responsibilities relatedto problem solving, foot patrol or enforcement of theHighway Safety Code. On the contrary, the patrol and callresponse groups are in constant communication with theirMAP, and the patrol plan is designed to increase the numberand effectiveness of their problem solving activities.

Composition of patrol and call response groupsThe patrol and call response groups are composed of:

Supervisor(s)Senior officersPermanent officersTemporary officersSolo officers

2.1.4. PDQ management team

The management team supports, guides and manages thePDQ’s activities. It is responsible for public security, withinthe definition of the police mandate, over the entire terri-tory assigned to the PDQ.

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Responsibilities of the management teamThe following specific responsibilities are assumed by thePDQ management team:

Plan, coordinate, organize and control the unit’s opera-tional and administrative activitiesDevelop and implement strategies, programs or opera-tions related to life safetyMonitor solutions to encountered problemsChoose crime-fighting strategiesEvaluate service qualityManage material and financial budgetsDirect impromptu order and operations services andprovide feedback after major eventsRepresent the SPVM at management committees,roundtables, etc.

Composition of the management teamThe management team is comprised of:

Unit chiefLieutenantSecretaryPIPDQ

The PDQ supervisors contribute directly to the team bymanaging the unit.

2.2. INTEGRATED PUBLIC SECURITY APPROACH

The SPVM serves the public in every neighbourhood. All ofits actions are geared toward safeguarding the security ofthe public and ensuring the citizens can enjoy the best pos-sible quality of life. To this end, every effort is made to pro-vide continuity of action in terms of public security.

Figure 4 clearly depicts the integrated public securityapproach. The structure and overall operations of the SPVMallow it to take its place at the heart of Montréal using anintegrated approach based on local action.

At the centre are the elected officials, public, institutional andcommunity partners and the citizens themselves who supportthe SPVM in this approach, notably by participating in roundtables on public and civil security in the boroughs and con-nected cities. The next layer is made up of the SPVM units.

2.2.1. Local units

Locally, the PDQs comprise the front line for activities re-lated to patrol, call response, maintenance of peace andorder, road safety and traffic, crime prevention and commu-nity relations, investigations, analysis and intelligence.

The other SPVM units support the PDQs and help them accom-plish their roles and responsibilities. These units are designedto be accessible, and formal and informal links between them(illustrated in Figure 4 by the dotted lines between the ringsrepresenting the organization’s various levels of action) allowactions to be coordinated and harmonized.

This flexibility in the organiza-tional structure encourages thecreation of temporary ad hocteams that focus the expertise ofdifferent units on shared goals.In other words, it promotes con-tinuity of action through decompartmentalization of theunits, allowing them to establish cooperative links and shareresponsibilities based on a horizontal management methodwhere personnel members work together as part of thesame team.

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So while increasing the strength and independence of thePDQs allows them to fully assume their public securityresponsibilities, they still benefit from the support they needwhen problems or issues surpass their capacity for action,either due to their nature or scale, or because they extendbeyond territorial limits.

For example, the SPVM has undertaken and continues toundertake major changes that allow it to increase the

number of personnel assigned to work directly in the field,to support PDQ personnel in two critical domains:

Road safety. The addition of 133 officers assigned toroad safety and traffic provide the PDQs with theexpertise and capacity to resolve problems locally. Inaddition, the 130 Ville de Montréal parking agents nowcome under SPVM responsibility. These additionalresources also allow for greater coordination of effortsacross the territory.

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Figure 5: Integrated public security approach11

11. A lexicon of acronyms can be found in Appendix III.

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Metro security. The arrival of 132 police officers in theDivision du réseau transport en commun (public transitdivision) provides additional expertise that promotescontinuity of action where local and public transit issuesoverlap.

2.2.2. Regional units

The Services à la communauté units (regional services orSACs) have a dual responsibility. On one hand, they supportthe PDQs in all major fields of activity, based on their specificexpertise: investigations, analysis and tactical intelligence,detention, traffic, and joint action with the community. Onthe other hand, they also work through the PDQ compo-nents and apply the four SPVM axes of intervention.

Regional investigation sectionsThe sections dedicated to investigations in the regions are akey component of the neighbourhood policing model. Morethan ever, the integrated public security approach demandsthat the SPVM be able to rely on robust, independent inves-tigation sections that can fully support the PDQs.

Every region still has three main sections devoted to investi-gation: Enquêtes (investigation), Moralité, alcool, stupéfi-ants (morality, alcohol and narcotics, or MAS) andIntervention jeunesse et prévention (youth intervention andprevention, or SIJP), but changes have been made to theoperations of each of these sections. Furthermore, an ad hocproject team has been added, along with a investigationssupport group and a Bureau d’aide aux victimes (victimassistance office). Finally, a number of initiatives have beenplanned to improve the PDQ patrollers’ interface with theinvestigation sections and to better meet their needs.

The Enquêtes sections have geographic responsibility, likethe PDQs. A group of designated investigators is responsiblefor investigations in each PDQ. This improves interactionswith the PDQs, enhances knowledge of the territory, andallows for better action coordination and improved sharingof responsibility. All investigator groups now handle crimesagainst persons as well as crimes against property. Thisdecompartmentalization (persons, property) leads togreater flexibility and allows investigations to be orientedto suit local priorities in each region, while maintaining geo-graphic responsibility.

The Intervention jeunesse et prévention sections (Modulegang de rue (street gang module) and Module jeunesse etprévention (youth and prevention module)) have alwaysfunctioned under geographic responsibility with the PDQs.Their strength and independence have been enhanced,however. In the street gang modules, the number of officershas been increased and certain officer positions have beenchanged to sergeant detective positions. The youth inter-vention officers, from the Module jeunesse et prévention,work in conjunction with the Module gang de rue. They cantake action outside of the school environment and whenthe victim is an adult. This gives them a bigger, fuller rolethat is more in touch with the current crime landscape.

The Moralité, alcool et stupéfiants sections were alsoalready functioning under geographic responsibility, buttheir tasks have been changed to reflect a multi-roleapproach. The officers in the morality squad can offer sup-port on narcotics issues, and narcotics officers may be calledon in major morality operations. Again, decompartmental-ization improves cohesion between the units and promotesexchange and discussion among the officers.

In addition to these three sections (Enquêtes, SIJP and MAS),each region has an ad hoc project team that works in prob-lem solving mode on major projects that require input fromseveral different units. This multidisciplinary team is com-prised of officers from the centres d’enquêtes and any otherunit (PDQ, Groupe d’intervention) whose support isrequired. Team composition and duration of assignment arebased on the nature of the project.

The ad hoc project teams are supported by the Groupe desupport aux enquêtes (investigation support group), which ismade up of PDQ officers assigned based on operational needsin the region. This group also offers its services (intelligenceshadowing) to the three regional investigation sections.

Finally, to support victims of crime, each region can rely onan officer from the Centre d’aide aux victimes d’actes cri-minels (assistance centre for crime victims or CAVAC). Thisofficer helps the victims and puts them in touch with theavailable help resources, freeing the investigating officersfrom this task.

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Tactical analysisAccess to intelligence and real-time information processingare crucial if police are to act on problems as they emerge.In this respect, the organizational overhaul of tactical analy-sis in the PDQs and SACs will help improve disseminationand transmission of criminal intelligence to the PDQs andstrengthen local problem solving analysis capacity. In eachPDQ, an officer is assigned to be the senior information offi-cer. This officer serves as the conduit between the PDQ andthe regional analysts. The senior information officer pro-vides information to the analysts and receives informationin real time to enhance the patrol plan and direct policeaction based on the problem solving approach.

In addition, the analytical capacity is greatly enhanced bythe implementation of the new Intégration des donnéespolicières (police data integration system or IDP 2). This sys-tem improves the quality of the data, facilitates access foranalysts and processes types of crime that could not former-ly be systematically analysed, making it possible to adaptthe analysis to local situations in the various PDQs.

2.2.3. Corporate unitsThe corporate units also support the regional SACs and PDQs,based on the same principles. These units include the Servicedes opérations corporatives (corporate operations service)and the Service des enquêtes spécialisées (special investiga-tions service or SES), which take charge of investigationswhich require very specific expertise that the regional SACcentres d’enquêtes do not have (sexual assault, for example),which surpass the territorial limits of the SACs (organizedcrime, for example) or which involve the entire SPVM (courtservices, for example).

Finally, some corporate units support the PDQs and all otherSPVM units in every sphere of activity. Such is the case of theDirection de l’administration (human resources, budget,material resources and supplies, information systems andoperational communications) and the Direction stratégique(legal affairs, strategic community action, strategic develop-ment, methods and processes, communications, researchand planning).

2.3. SERVICE ADAPTED TOTHE ENVIRONMENT

As described in the previous section, increased strength andindependence and the introduction of an integratedapproach are the cornerstones of the new service coverageframework. The actual implementation of the neighbour-hood policing model and its components requires the PDQsto be capable of carrying out value-added activities andoffering adapted services. Three paths have been chosen toachieve this end.

Redraw the police map, to give all PDQs the requiredstaff level (critical mass) and, at the same time, improveharmonization with municipal structures and reducethe management-staff ratio.

Review regional intervention groups, to increase thenumber of officers in the PDQs and maximize recourseto the specialties of the intervention groups.

Overhaul the citizen reception structure, to improveaccess to services and assign more personnel to patrol.

2.3.1. Redraw the police map

PDQs with low staff levels have trouble implementing theneighbourhood policing model. They do not have the roomfor manoeuvre required to offer value-added activities. Aset of criteria that closely reflects the neighbourhood polic-ing objectives was used to redraw the police map:

Target PDQs that have trouble delivering the neigh-bourhood policing model

Respect the main political and administrative boun-daries (harmonization with municipal structures is a keyobjective)

Respect recognized “natural” neighbourhoods

Keep territories to a manageable size (avoid mega-stations)

Respect natural boundaries and geographical landmarks

Respect existing PDQ borders (current PDQ can be com-bined but not divided)

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Maintain the stability of the organization (only makechanges that are really necessary)

Assume PDQs can vary in size

Applying these criteria resulted in the combination of thefollowing PDQs:

PDQs 6 and 7 (Saint-Laurent)

PDQs 25 and 26 (Côte-des-Neiges)

PDQs 27 and 28 (Ahuntsic)

PDQs 39 and 40 (Montréal-Nord)

PDQs 43 and 44 (Rosemont)

PDQs 47 and 48 (Mercier)

Redrawing the police map, which is necessary in order toincrease the strength and independence of the PDQs, affectsa total of 12 PDQs. It also provides the opportunity to reviewmethods and integrate a MAP in each PDQ. Finally, itincreases the number of officers in the combined PDQs andreduces the management-staff ratio.

To increase the operational capacity of the PDQs and enablethem to offer services adapted to local needs, the newpolice map is comprised of 33 service points (33 neighbour-hood territories). The following PDQs are combined:

PDQs 6 and 7 (Saint-Laurent)

PDQs 25 and 26 (Côte-des-Neiges)

PDQs 27 and 28 (Ahuntsic)

PDQs 39 and 40 (Montréal-Nord)

PDQs 43 and 44 (Rosemont)

PDQs 47 and 48 (Mercier)

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North East

SouthWest

Figure 6: The new police map

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2.3.2. Review regional groupes d’intervention

The regional groupes d’intervention support the PDQs inthe accomplishment of their mission. Their personnel aredistributed among the regional SACs.

The groupes d’intervention have a dual mission. On onehand, they support the PDQs in their daily activities. On theother hand, they provide specialized services when theService des opérations corporatives (SOC) Section planifica-tion opérationnelle (corporate operations service opera-tional planning section) needs them at the corporate level.

By supporting the PDQs and offering their numerous specialservices (crowd control, terrorism response plan, mobiliza-tion plan, etc.) in a variety of circumstances, the groupesd’intervention play a central security role for the citizens ofGreater Montréal.

Recent data indicated, however, that an overhaul of thestructure and operations of the groupes d’interventioncould greatly improve the use of this resource:

Nearly 80% of their work time was allotted to supportingthe PDQs in their daily activities

The times of day when their services were most neededwere during the day and swing shifts (7:30 AM to11:30 PM)

About 14% of their time (including training time) relatedto their specific fields of expertise

Just under 5% of their work time was allotted to main-taining order and crowd control at events and publicdemonstrations

It was recommended that the proportion of work time thesegroups devote to the specialized interventions they are specif-ically trained for be changed by changing their work scheduleand the way they are distributed across the territory. Underthe new plan, rather than working out of all four regional

administrative units, they only work through three of them.The North and East regions are combined. Their work sched-ules are designed to better reflect operational needs and theservice offer.

To increase the strength of the PDQs, 66 positions (officers,sergeants and consultants) from the regional groupesd’intervention have been transferred to the PDQs.

2.3.3. Overhaul the citizen reception structure12

For a number of minor crimes (theft from vehicles or misde-meanours, for example), the citizens of Greater Montréalare invited to go to the police station to file a report or havea police officer do so. Every year, about 60,000 incidentreports are filed in this way.

A number of factors led to an overhaul of this method toincrease organizational efficiency and the accessibility of theservices to the public. In particular, with the recent prolifer-ation of means of communications, the very idea that peo-ple have to physically go to the station to file a report issomething of an anachronism, particularly since, as the pop-ulation ages, people are becoming less and less mobile.

The SPVM plans to improve this aspect of its service qualityby offering more ways to report events and by increasingthe hours during which reports can be filed. There will befour ways for citizens to report non-urgent events: byphone, online, at PDQ counters and at mobile counters.

Filing reports by phoneA centre de rédaction de rapports d’événements (inci-dent report filing centre or CRRÉ) will be open sevendays a week from 8 AM to 10 PM. A number of otherpolice forces (Toronto and Ottawa, for example) alsooffer this service and find it quite effective.

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12. See Appendix IV for details concerning traffic at service counters andpublic expectations in this regard.

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Filing reports onlineThere are a number of secure technologies that canreplace personal report filing, and these are in increas-ingly common use among the public. Some police serv-ices (such as Vancouver) allow citizens to file theirreports online. At the SPVM, this service will be offeredbeginning in the first quarter of 2009. Citizens will beable to file reports on line at any time.

Filing reports at the counterThose who prefer to go to their PDQ to file an incidentreport will still be able to do so. To this end, each of the33 PDQs will offer counter service. In 31 PDQs, counterservice will be open every day from 9 AM to 7 PM.Because of their particular nature, the two main down-town PDQs (PDQ 20 and PDQ 21) will remain open at alltimes.

Filing reports at the mobile counterAt festive events (neighbourhood celebrations, festi-vals, sports and cultural events, etc.) or in target sectors,reports may be filed on site, at a specially designatedand identified SPVM vehicle. In addition to increasingpolice presence in certain target areas, the mobilecounter offers additional local service to the citizens,not only making it easier for people to report minorcrimes but also facilitating the communication of pre-vention and security advice to the public.

Since client service is the main interface with the organiza-tion for many citizens, improving it provides added valueand helps create a modern structure that better meets thepublic’s needs.

The new counter reception structure (along with a modifiedwork schedule for officers assigned to this task in the PDQs)reduces the officer time spent on this task on a daily basisand also increases the PDQs’ ability to fulfil their variousroles and responsibilities (e.g., increased patrol time).13

Overall, these changes will help the SPVM considerablyincrease global access to its services.

To increase the operational capacity of the PDQs and allowthem to offer services adapted to the public needs:

The service counter at 31 PDQs will be open daily from9 AM to 7 PM, and the counters at PDQs 20 and 21downtown will be open 24 hours a day

A centre de rédaction de rapports d’événements (inci-dent report filing centre or CRRÉ) will be created

A mobile counter unit will be deployed

An online report filing service will be launch

2.3.4. Distribution of personnel to PDQs

The changes in the police map, the groupes d’interventionand the reception structure will allow the SPVM to increasethe number of officers directly assigned to patrol and prob-lem solving in the neighbourhoods by 201.14 Tables 1 to 5illustrate how these increases will be distributed among thePDQs of the four regions in the territory of GreaterMontréal.

To ensure fair distribution to the various PDQs, we used thedistribution method that was used to divide neighbourhoodofficers among the PDQs when the neighbourhood policingmodel was adopted (and revised during optimization in 2004).

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13. The modifications in the reception structure significantly improve efficiency in the PDQs (again of 112 officers). These gains are related to the closing of counters at the PDQs com-bined during optimization in 2004 and in the current overhaul of the service coverageframework, as well as to changes in reception counter opening hours and work schedules.

14. Appendix V shows where these 201 officers come from.

Considering the efficiency gains resulting from the amalga-mation of the 12 PDQs and the modifications in the groupesd’intervention, each PDQ will gain, on average, six officerswho will be available for patrol, call response and problemsolving.

These direct additions to operational resources in the PDQswill increase their strength and independence, two keyobjectives in the implementation of value-added activities.They will also allow each PDQ to create a Module d’actionspar projet which will play a key role in the implementationof problem solving strategies. Finally, the introduction ofmechanisms to offer integrated public security services (par-ticularly through the changes made in the centres d’en-quêtes and in tactical analysis) will greatly strengthen thePDQs’ capacity to act.

Table 1: Distribution of neighbourhood officers in PDQs

in the Région Ouest (West region)

PDQ No. of Final Personnel Efficiency Netauthorized number increase increase increaseofficers of officers (no. of (no. of (no. ofNov. 2006 officers) officers) officers)

1 39 43 4 2 + 6

3 61 61 0 4 + 4

4 38 42 4 2 + 6

5 62 64 2 2 + 4

6-7 94 94 0 7 + 7

8 45 47 2 2 + 4

9* 37 28 - 9 2 - 7

11* 62 69 7 2 + 9

13 64 69 5 4 + 9

25-26 101 103 2 7 + 9

Total 603 620 17 34 51


in Région Nord (North Region)


10 46 49 3 2 + 5

24 39 41 2 4 + 6

27-28 76 76 0 7 + 7

30 58 61 3 4 + 7

31 53 59 6 4 + 10

33 37 39 2 2 + 4

35 62 62 0 4 + 4

37 49 53 4 2 + 6

38 74 79 5 4 + 9

43-44 78 82 4 7 + 11

Total 572 601 29 40 69

Table 3: Distribution of neighbourhood officers in PDQs in

Région Sud (South Region)


12 48 50 2 2 + 4

15 83 85 2 4 + 6

16 69 69 0 4 + 4

20 82 86 4 0 + 4

21 105 109 4 0 + 4

22 60 62 2 2 + 4

Total 447 461 14 12 26

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* Only PDQ 9 lost officers. This is because 7 officers were transferred to PDQ 11.At night, however, to provide optimal service, PDQs 9 and 11 share patrol andcall response duties.

Table 4: Distribution of neighbourhood officers in PDQs in

Région Est (East Region)


23 68 70 2 2 + 4

39-40 90 90 0 7 + 7

42 65 67 2 4 + 6

45 43 48 5 2 + 7

46 39 42 3 2 + 5

47-48 80 84 4 7 + 11

49 49 56 7 2 + 9

Total 434 457 23 26 49



West 603 620 17 34 + 51

North 572 601 29 40 + 69

South 447 461 14 12 + 26

East 434 457 23 26 + 49

Total distribution 2056 2139 83 112 + 195

CRRÉ15 0 0 6 0 +6

Total 2056 2139 89 112 +201

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15. Centre de rédaction de rapports d’événements.

This portrait of the SPVM and the adaptation of its servicesto the emerging situation in Greater Montréal demonstratesthe SPVM’s desire to be at the heart of Montréal. The pro-posed changes reflect the needs and expectations of thepublic, as well as the situations that affect the maintenanceof a safe and peaceful living environment.

This desire is not new. Despite a substantial increase in thedemands on its services over the last decade, the expansionof its scope of activity since the introduction of the neigh-bourhood policing model, and budgetary constraints, theSPVM has continued to improve its service offer and meetthe needs and expectations of the public. The SPVM helpsmake Montréal a safe and peaceful city where people feelprotected.

The changing society and increasingly complex situationsthe SPVM is facing nevertheless indicate a need for an over-haul of the neighbourhood policing model, which is still thecornerstone of SPVM actions, in order to increase thestrength and independence of the neighbourhood stationsand reinforce the integrated public security offer over theterritory. These changes will give the PDQs the means theyneed to act and fully actualize the neighbourhood policingmodel.

Redesigning the PDQs will pave the way for coordinatedand strategic intervention to resolve existing problems. ThePDQs remain anchored in their neighbourhoods, but theirservice offer is more in tune with the boroughs and con-nected cities, and they benefit from more neighbourhoodofficers devoted to proactive action and problem solving.Effective and reassuring police visibility in an integratedapproach is also improved. There is more emphasis on andopportunity for direct and regular contact with the citizensof Greater Montréal.

By focusing the organizational review process on resultsmanagement, the SPVM is continuing to enhance its meth-ods, processes and means of responding to public securityneeds. From this point of view, the SPVM’s new service cov-erage framework is a clear step toward developing an inte-grated security model for the territory of Montréal. The har-monization of actions and operational modes around ashared vision will allow the police service to manage the dif-ferent aspects of the city’s security issues and lend coherencyto the interventions of all its security partners. By taking thisstep, the SPVM is preparing today to meet the challengesthat are bound to arise in the constantly changing face ofMontréal tomorrow.

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C O N C L U S I O N

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APPENDIX I: Resolutions of the municipal council and the agglomeration council

Appendix II: An overview of theenvironment

Public security and quality of life are influenced by manyfactors: the prosperity of the country, living conditions, thesocio-economic gap between segments of the population,the quality of the physical environment, the presence andquality of social policies and programs, crime and publicsense of security, to name a few. The interaction of thesefactors determines how people feel about their security andabout their quality of life.

Montréal enjoys a situation that is enviable in comparison tomany other major cities in North America: the cost of livingis especially low, the quality of the environment (air quality)is better than in other big North American cities, access toservices (health, education, etc.) is relatively easy, and thelevel of crimes against persons is considered to be low.Indeed 90% of Montrealers consider their city to be safe,and three of every four Montrealers believe the police aredoing a good job. We can congratulate ourselves on this sit-uation.

But some problems persist and others are emerging, andspecial attention must be paid when these problems affectpublic security or quality of life. Montrealers are aware ofthis and they express it: they expect the SPVM to clampdown on violence and ensure that the city does not succumbto the control of organized criminal groups.

This is an overview of the environment in which theSPVM operates.16

Diversity and community relationsThe arrival of new immigrants who come from the four cor-ners of the earth and who practise increasingly diverse reli-gions is a source of cultural wealth for Montréal. But learn-ing to live together is not always easy. Although the popu-lation of Québec as a whole and Montréal in particular isincreasing dependent on immigration for growth, threecomplex and highly emotionally charged issues result: inter-cultural conflict, hate crimes and racial profiling.

Challenge 1: In light of high immigration, strengthen theSPVM’s links with the community, in order to help all the cit-izens of Greater Montréal live together in harmony.

Criminal environmentWhile crime, overall, has been dropping for the last 15 years,with a reduction of 13% since 2000 and 38% since 1991, cer-tain situations are still troublesome, and some types ofcrime attract a lot of attention.

The presence of organized crime in the territory is worrisome.In Montréal, there are three types of criminal organizations:

Street gangs (which we hear a lot about)Motorcycle gangsEthnic gangs

The narcotics market is the main occupation of most ofthese organized crime groups, and organizations of almostevery origin are involved. Although narcotics are the mainline of business, fraud is also a common activity for organ-ized crime groups.

Technological developments have a significant impact oncrime. Debit card cloning, credit card fraud and identitytheft are some recent examples. Wireless technologyincreases the opportunity for bank hacking, identity theftand access to private information. Defrauders have ex-panded their scope of activity and the number of potentialvictims has risen.

Montréal has also experienced a major increase in sexualassaults. The number of sexual assaults has risen 43% in thelast 10 years. Since 2002, the SPVM has also paid specialattention to the sexual exploitation of children for mone-tary gain, because of the gravity of these crimes and theirrecurrent nature.

It is important to note that for all these crimes, the investi-gatory work is growing ever more complex due to theincrease in demands from the legal system related to disclo-sure of evidence. The same is true for the indictment ofmembers of organized crime groups, which leads to mega-trials (because of complex evidence or trials with multipledefendants and exceptionally long procedures).

Challenge 2: In light of the general decline in crime inMontréal, maintain the reduced crime rate while takingaction against emerging forms of crime and crimes of dis-turbing frequency.

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16 . SPVM, Section recherche et planification, Direction stratégique, La sécuritéet la qualité de vie à Montréal: constats et tendances, Lecture de l’environ-nement externe 2006, Montréal, 2006.

Safety of people with special needsSome people live in conditions that make them more likelyto become victims of crime, to commit crimes, or to findthemselves in situations of distress that require police inter-vention, whether or not the situations involve the infractionof laws or bylaws.

People with special needs are often dealing with complexproblems for which there are no simple solutions. This callsfor greater continuity in the actions and decisions of policeofficers assigned to certain tasks. Decompartmentalizationof the various sectors of the organization is required. It isincreasingly important to build and maintain partnershipsand to cooperate with external partners from different sec-tors (health, justice, education, etc.).

Among those likely to become victims of crime, seniors andpeople with mental disabilities or physical handicaps areespecially vulnerable, particularly if they live alone and donot have a wide support network to protect them from thedangers in their environment.

These segments of the public also include people sufferingfrom psychological distress who may find themselves in situ-ations requiring police intervention (psychotic crises, suicideattempts, problems related to alcohol dependency, legaland illegal drugs, gambling, etc.).

Finally there are people involved in or affected by intrafam-ily violence. Collectively known as JEF (for jeunesse/enfance/famille or youth/childhood/family), some of thesepeople are victims, others are perpetrators of deviantbehaviour, and yet others are both.

These problems lead to problematic situations often linkedto physical or psychological violence as well as crimes ofvarying gravity (e.g., domestic violence, abuse and neglectof children, child witnesses, runaways and juvenile delin-quents).

In terms of youth, the main concerns of workers in many sec-tors are delinquency, recruitment into street gangs, sexualexploitation for monetary gain and psychological distressleading to running away or suicide.

Challenge 3: In light of frequent police intervention amongpeople with special needs, rethink all related police interven-tions from a global, integrated and intersectoral perspective.

Occupation of urban spaceThe presence of certain people in public places is sometimesdeemed “disruptive” and unwelcome. This leads to difficultsituations, including the violation of municipal bylaws andlaws. At present, there are several opposing interventionideologies. One view embraces the need to understand andtake care of these people. Another wants to prevent abuseand defend people’s right to live on the margins of societalnorms. Yet another seeks to condemn disruptive behaviour.The urbanization and gentrification of some neighbour-hoods add to the tensions between these ideologies.

Challenge 4: In light of questions concerning the occupationof urban space and related to issues of marginality and pub-lic disorder, adopt an integrated city-wide vision for themanagement of public spaces.

Criminal and non-criminal crisis situationsCriminal and non-criminal crisis situations include majorevents that demand wide-scale intervention carried outsimultaneously by several strategic partners. The capacity torapidly mobilize trained and equipped teams is critical forthe successful handling of crisis situations. This also allowsplans to be put in place to protect police personnel and thegeneral public.

Criminal crisis situations include terrorist actions and crimesagainst persons during public demonstrations. Non-criminalcrisis situations include crises related to pandemics (bird flu,SARS, etc.), climate change (ice storms, heat waves, floods,etc.) and public demonstrations requiring crowd control.

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Challenge 5: In light of the increased risk of criminal andnon-criminal crises, constantly update crisis risk prepared-ness programs (terrorism or other) and SPVM response plansto ensure adequate preparation of all response workers.

Road safetyIn Montréal, between 1999 and 2004, there was a 25%increase in collisions leading to injury or death. In 2004, 32pedestrians, on average, were struck by cars every week.And according to a survey in January 2006, 73% ofMontrealers feel there is traffic-related danger in theirneighbourhood. Only 10% feel that traffic flows smoothlyor very smoothly at rush hour, and 60% feel that driversnever or almost never respect speed limits.

Challenge 6: In light of a deterioration in Montréal’s roadsafety record in recent years and with the help of the newofficers assigned to traffic in January 2006, maintain safetyand tranquillity on the roads through improved road safety.

Safety in public transitThe metro’s vulnerability to security problems is related to thefact that a great number of people are crowded togetherinside it and, like elsewhere, these people indulge in antiso-cial behaviour, crimes against persons (e.g., pick-pocketing)and other criminal infractions (e.g., sale of drugs, taxing, etc.).

If the city is to promote the use of its public transit network,security within the network must be in step with the peaceand security policies in effect all across the island ofMontréal. The SPVM will enforce security in the metrothrough its Division du réseau transport en commun (publictransit division).

Increased use of public transit allows for improved trafficflow, a greener environment and fewer accidents.

Challenge 7: In light of the importance of safety in publictransit, and especially in the metro, maintain a safe publictransit network on the island of Montréal and contribute tothe flow and efficiency of the network services, in order topromote its use.

Organizational and budgetary environmentThe entire labour market in Québec is experiencing a mas-sive renewal, because the emerging workforce is less numer-ous than the baby boomer cohort and because their workvalues are different from the generation who are now retir-ing. There has also been a major change in employee char-acteristics (cultural diversity, age, etc.).

With the rapid developments in technology, the SPVM’stechnological tools have to be constantly upgraded toensure their reliability, security, efficiency (performance)and interoperability.

For the past few years, the public services have had to func-tion under rationalization measures in their operational andcapital asset budgets. With major changes in municipal gov-ernance, the SPVM is dealing with ever-stricter budget con-straints that demand constant adjustments.

Challenge 8: In light of massive renewal of the workforceand changes in employee characteristics, rapid IT and com-munications developments, and limited public finances andbudgets, propose innovative strategies to compensate forthese situations and improve support for police officers intheir daily work.

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Appendix III: Lexicon of acronyms for Figure 5

Local:PIPDQ: neighbourhood information agent

Regional units:SIJP: youth intervention and prevention section comprised

of a street gang module and a youth intervention andprevention module

MAS: morality, alcohol and narcotics

Corporate unit:ADS: parking agentsDTA: call processing divisionGTI: tactical groupDRTC: public transit divisionDSRC: road safety and traffic divisionSSAC: community action strategies sectionSSID: data security and integration section

APPENDIX IV: Service counters – traffic andpublic expectations

Traffic at service counters

An evaluation of traffic at all SPVM service counters, fromAugust to November 2004, revealed the following highlights:

80% of citizen reports are filed on weekdays83% of citizen reports are filed between 9 AM and 7 PM79% of citizens requesting information do so between8:30 AM and 7 PM, and 82% on weekdays

In other words, most citizens who come to the PDQ servicecounters do so during the week, between 8:30 AM and 7 PM,even though there is no other way to file an incident reportfor a minor crime.

Expectations of the public

In November 2006, 400 citizens of Greater Montréal were sur-veyed about their needs and expectations with regard tocounter service in the PDQs. They were all residents of PDQ ter-ritories that had been combined in the optimization process orin territories due to be combined in the current service cover-age framework overhaul.

In the weeks preceding the survey, half of the respondents hadfiled a report at the service counter in a previously combinedterritory or a territory destined for combination. The otherswere simply residents of these territories.

The survey tested the proposed changes, and the resultsdemonstrate the viability of those changes.

Here are the highlights of the survey:

Only 27% of the citizens would go to the PDQ servicecounter to file a report if there were an option to do soby phone or online

60% of the citizens would prefer to file their report byphone, and 11% would choose the internet

More than half (55%) of the people whose neighbour-hood or location is currently served by two servicepoints where they could report an incident felt that asingle service point would be sufficient

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• This percentage rose to 80% if there was anoption to file the report by phone or online

For filing an incident report, 72% found that openinghours of 9 AM to 6 PM, Monday to Friday, were rea-sonable

• This percentage rose to 87% if there was anoption to file the report by phone or online

Nearly all of the respondents who had filed an inci-dent report at a PDQ in the weeks preceding the sur-vey were very satisfied with their experience (qualityof reception: 95%, courtesy: 95%, ease of filing thereport: 94%). Despite this satisfaction:

• 72% would agree to reduce the number of servicepoints in their neighbourhood or location if therewas an option to file the report by phone oronline (56% without this option)

• 81% would find it reasonable if the service pointswere open from 9 AM to 6 PM if there was also anoption to file the report by phone or online (68%without this option)

APPENDIX V: Origin of the 201 additionalofficers assigned to patroland problem solving in theneighbourhood stations

Staff increases in the PDQs = 89 officers

Modified positions:

66 officer positions transferred to regional interven-tion units

7 lieutenant positions in combined PDQs changed toofficer positions

6 sergeant coach positions in the operational coachingsection changed to officer positions

4 analyst positions in the regions changed to neigh-bourhood officer positions

4 intelligence officer positions in the regions changedto neighbourhood officer positions

2 supervisor positions in the DTA changed to officerpositions

Efficiency increases in the PDQs = 112 officers

Officer positions in the PDQs that will be assigned topatrol and problem solving:

6 traffic officers from the combined PDQs

106 officers from the overhaul of the citizen receptionstructure in the PDQs:

• 20 officers from the 10 service counters still openin the PDQs combined during optimization in2004 (they need 2 officers per counter)

• 24 officers from the service counters in the12 PDQs combined during the current servicecoverage framework overhaul (4 officers percounter x 6 counters)

• 62 officers from the change in service counterhours in the 31 PDQs as planned in the currentservice coverage overhaul

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PRODUCTION TEAM AND ACKNOWLEDGEMENTS

Isabelle Billette, conseillère en planification, Section recherche et planificationGilbert Cordeau, conseiller en planification, Section recherche et planification

Operational committeeJean-François Pelletier, inspecteur-chef, chef de section, Section développement stratégiqueJohanne Carrière, sergent conseillerKhanh Du Dinh, sergent conseillerDaniel Farias, sergent conseillerMarco Levasseur, sergent conseillerDanièle Sauvageau, sergent conseiller

Louis-Georges Allaire, conseiller en planificationYves Gendron, sergent conseillerNathalie Letendre, agent conseillerGuy Ouellet, lieutenant-détective

Scientific committeeSection recherche et planification, under the supervision of Michelle Côté, chef de section

ContributionsNumerous members of the three SPVM directorates contributed to this process and helped make this major project a suc-cess. Over 300 people were consulted, at different times, for their expertise. In particular, they took part in internal andexternal evaluations, forums, ad hoc committees (investigation, analysis, intervention groups, etc.) and studied variousaspects of the new service coverage framework (implications, feasibility, etc.). The Direction du SPVM wants to thank them.Without their contributions, this project would not have been possible.

Under the direction ofDenis Desroches, assistant-directeur, Direction stratégiqueYves Charette, directeur adjoint, Direction stratégique

SecretaryChantale Laplante, secrétaire, Section développement stratégique

Graphic coordinationNorman Hogue, Division des communications

PhotosJoseph Passaseo, Division des communications

CopyeditingFrançoise Labelle

TranslationWendi Petersen, C.Tr.

Graphic design and printingCentre de communications visuelles, Ville de Montréal, 07.15.158-0 (04-2008)

ISBN: 978-2-922389-14-2

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At the heart ofMontréal

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