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REPORT RAPPORT |
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REPORT RAPPORT |
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DATE:
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28 July 2014 |
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TO/DEST:
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Executive Director, Ottawa Police Services Board |
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FROM/EXP:
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Chief of Police, Ottawa Police Service |
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SUBJECT/OBJET:
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SERVICE INITIATIVE: UPDATE AND REQUEST FOR DELEGATED AUTHORITY
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RECOMMENDATIONS
That the Ottawa Police Services Board:
1. Receive this update on the Service Initiative.
2. Delegate authority to the Chief of Police to extend the contractual commitment to KPMG in the amount of $250,000.
BACKGROUND
There is a growing recognition that the policing environment across Canada is becoming increasingly complex. Police services everywhere are seeing higher expectations from citizens for service and value, while faced with increasing pressure from changing demographics, budgets, growth, and demands for service. The Ottawa Police Service (OPS) is not immune to these challenges and at the Board’s direction, has been working to position itself to meet those challenges. The Service Initiative (SI) program is the key strategy that OPS has adopted to develop the necessary culture changes in the organization and changes within its business model to meet those challenges.
SI has developed a transformational process to assist the OPS in finding efficiencies and savings that are consistent with the expectations of the 2014 and 2015 budgets, as well as meeting expectations contained in the 2013-2015 Business Plan. The vision of the program is to enhance community safety and value through service. The initiative is about focusing on policing responsibilities, developing a sustainable policing model and looking for ways to continuously improve or enhance service delivery.
By evaluating the way we do business through the lens of the SI Program, there are four outcomes the OPS is seeking to achieve:
1) Improved service
2) Money and/or person hour efficiencies
3) Enhanced partnerships
4) Cost recovery or revenue opportunities.
To carry out the vision of the SI Program, the following five strategies have been designed to form the basis of all activities carried out:
1) Ensuring the right people, in the right place, at the right time, with the right skills, are in place to make our community safer.
2) Maximizing partnerships, whether community-based or professional.
3) Ensuring OPS activities provide value for money to our community that can be measured through performance.
4) Using organizational and operational problem solving to deliver the best service possible to the community.
5) Employing evidence based decision-making to make certain the OPS is providing the best service to our community.
DISCUSSION
At the time of the last report to the Board in June of 2013, the organization was in Phase 1 of the SI program. It was determined that OPS did not have the in-house expertise or resources to guide and develop this change program and that outside assistance was necessary. In February 2013, KPMG was identified through a competitive process to supply services to support the change initiatives and they have been actively engaged with the SI Program since that time. KPMG has direct experience in successfully working in policing environments and that experience has been important in identifying opportunities here.
Phase 1 consisted of a current state review with the program team working in collaboration with KPMG to complete thorough research, including extensive internal consultations to determine the current state and identify opportunities. The review informed decisions to be made on the specific areas that would be the focus of the SI Program.
In phase 2, it was determined that the program would move forward with seven organizational projects, each one being led by an OPS Superintendent with oversight by the Deputy Chiefs and Director General. Each of the seven projects was identified based on evidence collected through the consultation process and summarized in a current state review report. A summary of findings was subsequently developed through a number of scoping sessions that took place over a period of six months with the project teams. Project charters were developed to set the direction for a future state that is aligned with the four outcomes and five strategies identified previously.
Each one of these projects is set to deliver a variety of savings, meeting our desired outcomes of cost recovery, money (true savings) or person hour efficiencies, enhanced partnerships and improved service. The true scope of those savings are in their infancy but will be more defined as the program moves through planning processes and execution in phase 4.
The breakdown of the projects is as follows.
Demand Management
The Demand Management Project is led by Superintendent Scott Nystedt as the Project Sponsor with Executive Champion Deputy Chief Ed Keeley. During the current state review it was determined that non-traditional functions are drawing resources away from core priorities and strategies.
The majority of calls for service are non-emergencies and the current default response is to send an officer. Analysis determined that there is a lack of clarity for detecting or addressing high-frequency callers and underlying issues in a systematic way.
At the forefront of the project’s initiatives is the creation of a control system with authority to receive, evaluate, and dispatch calls for service on a service-wide scale. To address high frequency calls, the project team is looking to develop an automated mechanism that detects and flags high frequency callers so that steps can be taken to address them in the most appropriate and timely fashion. Additionally, efforts will be made to make more effective use of collaborative partnerships to reduce demand and improve service to the public such as the problem address agreement reached with other services and service provides like the City of Ottawa.
A problem address is a location with ongoing disorderly, dangerous and/or threatening activities, such as a drug house, gang hang out, or a place with ongoing public disturbances like disorderly conduct, noise, excessive or dangerous litter and out of control parties, all of which have a significant negative impact on neighbouring residents. A collective approach between OPS and its partners will be used to address the underlying issues at residences designated under the approach.
Deployment Model
The Deployment Model Project is led by Superintendent Uday Jaswal as the Project Sponsor with Executive Champion Deputy Chief Keeley. The current state review determined that the organizational structure and chain of command presented some challenges to the fluid deployment of front-line resources. For example, front-line support units that can be dispatched such as Neighbourhood Officers (NHO), Emergency Operations Directorate Officers (EOD), or School Resource Officers (SRO), are not always readily available to meet demand. Current scheduling could be optimized to better match demands for service and a more widespread use of business intelligence could be used to drive operational decisions. Proactive policing activities are being performed by officers however the organizational tools in place to support this activity could be enhanced.
The goal of this project is the alignment of all front-line sections to enable optimal performance. The project team will examine options for a command and control structure that will result in a more dynamic and fluid deployment of resources. Anticipated outcomes of the project include clearly defined front-line resources and shift schedules aligned with demands for service, resulting in more effective response protocols and increased accountability.
Investigative Model
The Investigative Model Project is led by Superintendent Don Sweet as the Project Sponsor with Executive Champion Deputy Chief Jill Skinner. During the current state review it was found that investigative resources and efforts are operating at full capacity. High caseloads have the potential to negatively affect file management and file quality. An improvement of standards and performance measures would be important in gauging efficiency and effectiveness of investigative processes.
In 2010, the OPS partnered with Dr. Linda Duxbury from Carleton University’s Sprott School of Business to examine role overload and work life balance for members assigned to the Criminal Investigations Directorate. The report, titled, “The Etiology and Reduction of Role Overload in the Investigative Services Group of the Ottawa Police Service” provided recommendations and invaluable insight into pressures that police officers are facing and it informed many of the key outcomes of the CID Enhancement Project. Key outcomes were reported to the Board in January 2012.
Over the next three years, the OPS and five other police services from across Canada will be working with Dr. Duxbury to examine the impact of the changing policing landscape on how police services are funded, structured and managed so as to remain viable and relevant to the communities they serve. The project is titled, “Sustainable Policing in Canada: Developing an Action Oriented Framework for Managing Change”. The OPS welcomes this unique opportunity to participate in this ground breaking, transformational change management research.
The project will continue to build on previous work like the Duxbury study by examining resources that are focused on cases that meet established solvability criteria. The project is exploring a structure that supports all investigative resources with improved prioritization processes, reduced workflow backlogs and developing flexibility in case management to serve victims better.
The project team is also looking to streamline file management to meet or exceed established investigative performance standards. Anticipated outcomes include faster handling of cases, improved file quality and higher clearance rates. The project is tasked with improving cooperation and collaboration between investigative sections while developing a process that has the right people assigned to each investigation (Patrol, District or CID) with a focus on high solvability cases or those with high social impact.
Multi Agency Group (MAG)
The MAG Project is led by Superintendent Ty Cameron as Project Sponsor with Executive Champion Deputy Chief Ed Keeley. The current state review determined that increased collaboration with partner agencies would have beneficial results to front line service. The OPS is seen as a reliable public agency that will respond 24/7 to issues where other mandated agencies may not or cannot provide the same level of service. Many of the issues that the OPS respond to would benefit from a multi-agency approach.
To address these issues the project is examining a model of enhanced community partnerships designed to improve information sharing and collaboration. The project team is working toward improved management of police and community resources that will reduce duplication of effort and shift the focus to victims and offenders not just the investigation of offences. A key element of the project efforts is an investment in aligning efforts with the City of Ottawa and other stakeholder groups through the Community Development Framework.
Court Process
The Court Process Project is led by Superintendent Mike Flanagan as Project Sponsor with Executive Champion Deputy Chief Jill Skinner. During the current state review it was identified that workflow processes are being duplicated, often creating backlogs. It was also determined that the OPS can better leverage partner resources to realize cost savings. There was also recognition that the OPS is fulfilling some responsibilities that belong with other agencies.
Court file quality occupies a great deal of staff time and there are a number of potential efficiencies that have been identified including disclosure, file preparation and court overtime. Court attendance, court overtime and administrative functions related to the preparation and service of court documents have potential for improvement. In addition, it was found that enhancements can be made to areas involving prisoner management, for example; video conferencing and monitoring processes.
The project is looking to reduce risk through improved care, control and movement of prisoners, or alternatively, increasing utilization of internal resources, technology and partnerships to reduce movement and ultimately the risks associated with prisoner management. To date, the project has already realized time and person hour savings through specific refinements to prisoner transport, file management and court attendance.
Evidence Based Decision Making (EBDM)
The Evidence Based Decision Making (EBDM) project is led by Superintendent Terry Cheslock as Project Sponsor with Executive Champion Director General Debra Frazer. During the current state review it was found that the OPS has the opportunity to use evidence to a greater extent to focus resources on concentrated areas and offenders. Data is not analyzed and utilized to the greatest extent possible and it is not clear how systematically intelligence information is used to drive operational decisions. Technology and training are needed to support evidence based policing and deployment needs to be effectively rolled out and implemented to realize full benefits.
The EBDM Project goal is to provide all members of the OPS with the ability to access tools and processes necessary to make timely, accurate and informed decisions related to the business of policing. The focus will be to make information available to ensure that the right resources are aligned with demands for service that ensures value for money while improving the safety and security of the community.
Solutions include developing an information and technology roadmap with consideration for interim and future operations supported by a framework defining accountability, roles and responsibilities for quality assurance and processes.
Performance Management Framework (PMF)
The Performance Management Framework Project is led by Superintendent Dan Delaney as Project Sponsor with Executive Champion Director General Debra Frazer. During the current state review it was determined that the OPS has an inconsistent understanding and use of performance measurement and management across the OPS. Strategic objectives and performance measures within the organization are not effectively linked or aligned and we have a lack of outcome-focused performance measures. There is a need for a centralized performance management framework as member time and productivity is not monitored or measured effectively.
The project will position a performance management framework that aligns organizational and operational objectives to outcomes. The project team will introduce a simple and user friendly performance management process that will lead to improved accountability, transparency and optimum performance at all levels. This framework will lead to improved service to the public as a result of systems in place that embed accountability at all level and will assist in guiding, supervising, and supporting members.
SI Plan
In early April 2014, the SI Program launched Phase 3. During this phase, the project sponsors put together strong teams with internal subject matter experts. These teams include project and change management expertise that will guide the organization through project planning, as well as execution to close out.
Phase 3 consisted of taking the high level work plans (desired future state) developed in the initiation phase and expanding on the detail and activities. The project teams are actively engaged at all levels in the organization. The projects are at different stages and this is being managed and coordinated through a program management function. All projects have touch points with other strategic projects within the OPS, such as the Workplace Improvement Plan and Information Management Project. As mentioned above, all projects are proceeding with firm alignment to the OPS Business Plan, directorate operational plans and a focus on compliance with Provincial Adequacy Standards. Integration activities and validation of the gaps or opportunities continues to take place as the program moves into Phase 4 – design and implementation.
Cost Recovery or Revenue Opportunities
While the seven core organizational projects are the main focus of the SI plan, the program has also worked to encourage internal members to bring forward other ideas to improve service and deliver efficiencies. This emulates change management efforts in other organizations including the City of Ottawa. This effort has been supported through internal communications and dialogue. Many members who are aware of the goals of SI Program are now looking for savings, efficiencies and ways to improve service in their area(s) of responsibility. In addition to the savings from these early initiatives, the rationale and thought behind them is very exciting for the organization.
Some examples of the early savings being referred to include the cost recovery opportunity from our Level 5 traffic escorts. Although it is in its early stages, the project has already realized cost recovery of $65,000 to date. Another initiative resulted in an Ottawa Police K9 and VIA Rail partnership that identified $20,000 in savings per year. These are examples of the types of cost recovery opportunities for OPS that will continue to be explored.
In addition to the above, project teams and members from all over the organization have identified efficiencies, produced business cases and ultimately realized thousands of dollars in savings for the organization. These projects include the following:
· Full funding for all OPS secondment positions, $235,993
· Change Network Data Service at CPC's to VOIP, $33,600
· Greenbank energy savings, $59,000
· Change ottawapolice.ca content management system and hosting, $40,000
· Change to Use of Force Requalification Timeframe, $16,300
· Print/Photocopier solution, $65,000.
Position Reinvestment and Efficiencies in Staffing
The OPS committed to a position of absorbing growth and not increasing sworn or civilian complement over the past three budget cycles despite increasing pressures. The organization is striving to identify improvements, efficiencies and new or alternative ways of doing business to create opportunities for reinvestment in service. Absorbing growth necessitated the development of several strategies requiring staff movement from one area to another to address changing demand, or in response to pressures arising from increasing complexity of services being offered.
One approach that has been adopted was to create greater flexibility with staffing when organizational design changes take place. The intention is to enable management to move quickly with staffing changes as opposed to waiting for attrition, by reserving positions that can be reallocated at later dates. This area of endeavour resulted in reserving 1 staff sergeant position, 2 inspector positions and 1 superintendent position for future consideration. In addition, seven constable and civilian positions were identified for reallocation.
The practice of absorbing growth and reinvesting efficiencies demonstrates our commitment to having the right people, in the right place at the right time with the right skills at the right price. This aspect of the program has resulted in the elimination of positions in our Alarm Unit, Firearms Unit, Front Desk Services, Air Services Unit, Traffic Escort and Switchboard. Some examples of how those reallocations were made include a pilot position being reinvested in our Imaging Services Unit, an alarm coordinator position being reinvested in finance as a financial analyst, a staff sergeant position in Quality Assurance being civilianized, an Intelligence sergeant position being civilianized and two civilian positions within our Firearms Section being reinvested, one in the Guns and Gangs Unit and another in a Project Manager position to provide strategic support to the organization. In April 2014, OPS changed hours of operation at Front Desk Services resulting in the reallocation of three constables who could assist staffing with our new Collision Reporting Centres.
Enhanced Partnerships
A permanent partnership established between the OPS CBRNE team and the RCMP resulted in savings of $60,000.
A unique partnership with the Ottawa Hospital and the Mental Health Unit has resulted in a psychiatrist being deployed with police. It has resulted in a reduction of on call police time and hospital staff time.
Improved Service
Other initiatives speak to enhanced service to the public such as the Elder Abuse Section working in close partnership with the Victim Crisis Unit to ensure the right person, with the right skills is responding to complaints in a timely matter, or a new OPS/RCMP partnership that reduces central traffic calls for service by 10%.
The above efficiencies and cost recovery initiatives totals over $500,000 to date. These types of savings will be ongoing while the organization works through the larger savings that will be realized from the seven SI Program related projects.
OTHER SERVICE INITIATIVE RELATED PROJECTS
In addition to the seven projects explained within this document, the SI Program continues to include reporting on the success of three other projects: Collision Reporting Centres; Online Reporting, and; Online Background Checks.
Online Reporting
The online reporting project allows for enhanced customer service in reporting crime. As of May 2014, Ottawa residents can report specific types of crimes online at ottawapolice.ca. This tool allows reports to be taken for theft or lost property under $5000, traffic complaints, mischief or damage to property under $5000, theft from vehicles under $5000, and lost licence plates.
Collision Reporting Centres
The OPS is introducing three Collision Reporting Centres (CRCs). The CRCs, in addition to reducing unnecessary wait times for motorists, report processing time and traffic congestion are also intended to reduce costs and provide revenue through improved cost recovery on the distribution of collision reports.
The Huntmar CRC launch is continuing to apply the new processes tested successfully in the soft launch. This means that motorists attending that CRC will have damages photographed and their statement will be scanned directly into the report. The CRC at 474 Elgin Street will be launched on October 28, 2014 and it is anticipated that 10th Line will be operational by December 2014.
Online Background Checks
The Service is currently developing a project to allow requests for police background checks to be filed and approved online. Preliminary work to develop a business solution is underway. The OPS processes 55,000 background checks every year. The project is designed to improve customer service and delivery times for people waiting for the checks. Potential efficiencies related to the internal processing have also been identified.
Next steps
Discussion and workshops are scheduled to facilitate integration activities and address interdependencies between projects. A number of “quick wins" have been identified (work that is low effort, low risk, and can be delivered by end of 2014) with a goal of reaching the efficiency targets set for the 2015 budget cycle.
The development of the future Service Delivery Model design is a priority and will be built into the program's integrated schedule. Program and project management will continue to be aligned with business planning processes.
As we move into Phase 4 of the SI Program, resource planning and next phase requirements are underway (conceptual design and detailed design). The SI program is evaluating resource requirements for design and business architecture activities.
KPMG has been critical in establishing member engagement and creating a foundation for sustainable organizational and cultural change within the OPS. Organizational change management and creating a culture of change is a journey of understanding that challenges every level of an organization. The case for change in the OPS was cultivated through an extensive stakeholder engagement plan developed in conference with KPMG. The strategies that have been brought to the table as a result of their access and insights into leading practices and thought leadership internationally have resulted in clarification of the scope of priorities and desired outcomes for the organization. Two key outcomes from the relationship have been a current state report that served as the catalyst for the development of strategies and the celebration of a number of quick wins from opportunities that are elaborated on previously in this report.
KPMG has also assisted in the development and prioritization of projects including scope analysis and detailed project charters. This work has resulted in the development of a number of business cases presently being assessed for implementation. Ongoing investigation and evaluation of opportunities is a critical, ongoing challenge function being performed by the senior management team with the assistance of KPMG’s experience.
The program’s change management plan has created an environment of acceptance and understanding of roles, responsibilities and potential outcomes for members who feel empowered to effect transformational change. KPMG has been instrumental in developing the change management tools and deliverables that are positioning the organization to achieve its innovative goals. Although changes to the policing model have been incremental to date, staff have demonstrated that they understand and embrace the need for continuous improvement and change.
This is a crucial time for the Service Initiative Program and the OPS. The strong collaborative efforts between the SI Program team and KPMG have brought the OPS to an important milestone in its journey and a significant amount of work has been invested by all to reach this point. As the OPS moves into phase 4, detailed planning, design and implementation, there is recognition that continued support from KPMG is important to ensure the desired outcomes of the SI Program are realized.
Subject to Board approval to provide the Chief with delegated authority, KPMG will be sharing their expertise with transformational programs, by providing their advice in the following five areas:
1. Targeted Design and Implementation Support (vision end state, development of design principles)
2. Business Architecture Support (Alignment and consistency in methodology incorporating Lean principles and techniques)
3. Change Management with Executive and Board engagement
4. Program Assessment & Challenge
5. Program Sponsor & Program Lead Support.
CONSULTATION
SI Program consultation with the Board began with the development of the 2013 – 2015 Business Plan and will continue with the development of the Board’s 2016 – 2018 plan. Since the June 2013 update the SI Program has created an extensive stakeholder engagement plan that has included two meetings and progress reports to the Board’s Finance and Audit Committee.
FINANCIAL STATEMENT
The budget for the SI Program as identified in the 2014 Budget process is attributed to account 126111. All activities undertaken within the SI program in 2014 are within the allocated budget.
The SI program has adequate funds within the 2014 budget to cover the services required of KPMG. The recommendation contained in this report addresses the fact that contracting of these services is about to exceed the $500,000 limit within the Chief’s signing authority. The OPS is seeking an increase in delegated authority for the amount of $250,000 to assist the program as it moves into phase 4.
CONCLUSION
The OPS is recognized as a trusted leader in policing and we want to continue to build on our reputation as an organization that embraces continuous improvement and modernization.
The SI program represents an all encompassing review of the OPS and how it delivers services to the residents of Ottawa. It will assist in refocusing the OPS’s ability to meet its policing responsibilities and enhance service to the public.
Any successful large-scale change program has a number of common elements that are critical to success. KPMG’s experience and knowledge of change management in policing organizations contributes to the invaluable advice and guidance they are able to provide to the OPS. Their continued involvement is integral to the success of the program.
I look forward to providing the Board with quarterly reports on the progress of SI program.
(Original signed by)
Charles Bordeleau
Chief of Police
Responsible for report: Supt. Terry Cheslock
