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SUMMARY: ROUNDTABLE ON THE POTENTIAL USE OF BODY WORN CAMERAS IN

NUNAVUT

Chair: The Hon. Dennis Patterson, Senator for Nunavut

Date: June 19, 2020

Participants
The Hon. Dan Vandal, Minister of Northern Affairs, Government of Canada
The Hon. Jeannie Ehaloak, Minister of Justice, Government of Nunavut
The Hon. Vern White, Senator for Ontario, former Chief Supt. of V Division
The Hon. Gwen Boniface, Senator for Ontario, former Commissioner of the Ontario
Provincial Police
The Hon. Beverley Busson, Senator for British Columbia, former Commissioner of the RCMP
Mumilaaq Qaqqaq, Member of Parliament, Nunavut
David Qamanik, MLA, Tununiq
John Main, MLA, Arviat North-Whale Cove, Chair of the Regular Members’ Committee
Aluki Kotierk, President, Nunavut Tunngavik Incorporated
Kenny Bell, Mayor, City of Iqaluit and President, Nunavut Association of Municipalities
Liza Ningiuk, QIA representative, Inuit Social and Cultural Development Committee
Guy Enuapik, KivIA representative, Inuit Social and Cultural Development Committee
Bob Aknavigak, KIA representative, Inuit Social and Cultural Development Committee
Chief Supt. Amanda Jones, RCMP, Commander, V Division (Nunavut)
Captain Maxime Mercier, East Division, Kativik Regional Police Force
Stephen Mansell, Deputy Minister of Justice, Government of Nunavut
David Rochette, Regional Director General, Nunavut, CIRNAC
Madeleine Redfern, President, Nuvujaq
Jessica Young, Director of Policy and Planning, Nunavut Department of Justice
Hagar Idlout Sudlovenick, Director for Social and Cultural Policy, QIA
Qovik Netser, Director for Social and Cultural Policy, KivIA
Julia Ogina, Director for Social and Cultural Policy, KIA
June Shappa, Executive Assisstant to the President, NTI
Cpl Shaun Vickery, RCMP, National HQ
David Farquharson , RCMP, National HQ
Insp Adam MacIntosh, RCMP, OfZicer in Charge of Support Services, V Division (Nunavut)
Supt. Peter Kirchberger - OfZicer in Charge of Criminal Operations, V Division (Nunavut)
Tina DeCouto, Director of Social and Cultural Development, NTI
Heather MacDonald, RCMP, Procurement
Christine Lamarche, RCMP Procurement
Jason Sohm, RCMP
Sorab Ruba, Director General for Contract and Indigenous Policing
Supt. Guylaine Monfette, Director, Operations Systems Services Centre, Contract and
Indigenous Policing
Claudine Santos, Director of Parliamentary Affairs, OfZice of Sen. Patterson
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Background
In response to recent fatalities involving Nunavummiut and the RCMP, as well as in
response to renewed calls for Body Worn Camera Systems to be employed by ofZicers,
Senator Patterson has convened a roundtable, scheduled for June 15, 2020, with various
stakeholders. While the RCMP is contracted by the Government of Nunavut for policing
services, the RCMP falls within the purview of the federal government. As a federal
Parliamentarian, it is the Senator’s intention to use the information gathered from
participants to inform his position and any future lobby efforts regarding the potential use
of Body Worn Video (BWV) cameras by the RCMP in Nunavut.

A Discussion Paper was sent to invited participants May 29, 2020 (Appendix A).

The Discussion Paper posed 5 questions, which were used to guide the discussion during
the Roundtable. The Roundtable took place on Zoom; participants were invited to
participate in English or Inuktitut, with translation provided. While comments made were
not for attribution, in the interest of transparency, a summary document was generated. It
will not only inform the public of the outcomes arising from this important conversation
but also will serve as a point of reference for future discussions and action plans. This
document was shared with participants prior to its release to ensure accuracy.

Summary of Discussions
Participants were encouraged to prepare answers, recommendations, and observations
related to the questions below to help guide the discussions. Please note that these
questions were meant to facilitate open-ended discussions and not to bind any party to any
course of action. Discussions were also not limited to these questions, they were only
meant as a starting point.

1. What are the potential bene0its and challenges that could arise from the use of BWVS in
Nunavut?

Challenges:

Throughout the conversation, challenges surrounding costs, technological barriers, and

concerns around citizen privacy were raised. There were also questions raised regarding
the types of interventions that would be recorded and how those policies be decided upon.

BeneZits:

Despite several challenges being identiZied, participants were, overall, in agreement that the
use of Body Worn Video Systems in the territory would be an important Zirst step to
rebuilding trust between the RCMP and Nunavummiut, particularly Inuit residents.
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Reference was made to a report by the Queensland Police Service (Australia), which lists
several beneZits including a signiZicant reduction in internal reviews and court challenges. It
was suggested that these savings be factored into the conversation on costs so that a net
beneZit can be calculated. More information on this report can be accessed here:
https://www.police.qld.gov.au/initiatives/body-worn-cameras

Video evidence, it was also argued, is important. The type of data captured by BWV
cameras provides valuable and objective evidence that, it was also noted, would help to
engender trust in the RCMP. Recent events have demonstrated a disconnect between
ofZicial RCMP statements and the video or oral accounts of residents throughout Canada.
This conZlicting account has led to growing mistrust between Nunavummiut and the RCMP.
As such, BWV cameras are important to proceed with.

It was stressed that any decisions or policies should include the input of and reZlect cultural
consideration for Inuit.

Case Study 1
• In January, 2020, the Kativik Regional Police Force deployed 6 BWV cameras in
Kuujuuaq, Nunavik.
• Rolled out in a phased approach:
o Phase 1: Kuujuuaq only; Zilming certain interventions of domestic violence
and impaired driving
o Phase 2: Filming of all instances of violence and impaired driving; expansion
of program to 2 other communities
o Phase 3: Deployment of BWV cameras to all communities
• Challenges included: internet speed and cost of hardware
• Met with mayors, the Kativik Regional Government and Makivik and have received
no negative comments; there has not been a marked difference in the number or
type of interventions; there has been a reduction in the use of force incidents.
• Axon body cameras are currently in use and connected with “evidence doc”, a system
that makes the management and maintenance of data easier to manage. The system
employs auto-tagging for court purposes and the system automatically deletes Ziles
based on the type of intervention (non-criminal are purged quickly, while criminal
evidence is kept for upwards of 20 years).
• The hardest part of video management is blurring faces for privacy reasons.

Case Study 2
• Iqaluit has implemented BWV cameras for four by-law ofZicers and signed a 5-year
lease agreement on the hardware.
• Since the implementation of the cameras, by-law ofZicers have reported less violence
directed toward them and believe that the cameras have served to protect by-law
ofZicers from potentially dangerous or violent encounters with residents.

2. Regarding potential technological barriers to implementation:

a. Are there speci0ic considerations that pose barriers to the use of BWVS in Nunavut?
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b. What technological advancements have been made in the Arctic that could be
applied to these barriers? (e.g. polar cameras track bears and sea ice 0low 24/7 for
multiple months and in inclement weather – can this be adapted for other
applications?)

Technological challenges remain with bandwidth limitations, in particular, being raised.

The example was given of a half hour video taking approximately an hour to upload to the
server. It should be noted that one of the participants provided a potential technological
solution that would see the use of “community clouds” to allow for local storage and access.
This highlighted the need for a collaborative effort between the RCMP and industry to
identify technological advances that may address some or all of the technological concerns
raised. Representatives from the RCMP stressed that their organizations is at the beginning
stages of researching innovative solutions to these known issues.

3. Would the use of BWVS alone be enough to address any issues of mistrust between
Nunavummiut and police?

Trust was a word frequently used throughout the conversation. There was clear consensus
that the use of BWVS would only be the Zirst step in improving the trust relationship
between RCMP and Inuit.

Improved oversight, transparency and accountability were listed as key goals and areas of
focus for the improvement of the relationship between Nunavummiut and the RCMP. The
Government of Nunavut reiterated its commitment to establishing civilian oversight as well
as noted the importance of policies to be transparent and accountable.

Nunavut Tunngavik Inc. and members of the Inuit Social and Cultural Development
Committee pointed out the importance of acknowledging that systemic racism does exist
and that the living history between Inuit and members of the RCMP must be taken into
account.

Several participants drew attention to the need for training to include cultural sensitivity
and historical awareness, as well as Indigenous language training as integral to the
improvement of relations.

It was noted that the RCMP recognize this need as well and that two-week cultural training,
which includes a language and historical component, is being implemented with partners
such as Pirurvik and Pauktuutit.

While this additional training is welcome, participants were clear that this is decidedly not
enough.

There is a notable difference between providing limited training to non-Inuit and

incorporating Inuit into the force. Suggestions for providing more space for Inuit
involvement included the reestablishment of the Special Constable Program to ensure the
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involvement of people intimately knowledgeable of the communities they serve; the

recruitment of more Inuit ofZicers and Inuktitut speakers; the implementation of a trauma-
informed approach to the work of RCMP ofZicers; and the potential creation of an
ombudsman or cultural liaison position(s). These recommendations were focused on the
need to bridge the gap between non-Inuit RCMP ofZicers and the deeply entrenched values
and principles of Inuit communities.

While there is a willingness to work together to improve communications and relations

between communities and RCMP ofZicers, participants expressed a persisting resentment
over the perception of RCMP as authorities that are willing and able to use force and
intimidation against community members. As one participant stated,
We talk about how we can Zix our lives and I think it is really important that that
concept be used when we are thinking about how we look at community members
in our community and how they react with RCMP because, as Inuit, we can’t be
walking around our communities thinking that we are viewed as criminals and we
can’t be walking around looking at the RCMP thinking that they are out to get us and
that they are in an authoritative intimidating position.

The improvement of relations was described by one participant as a “two-way street” but
there was emphasis on the need for the RCMP to make more concerted efforts. It was also
agreed to by participants that recent events have emphasized that there is a lot of work yet
to be done by the RCMP to regain the trust of Nunavummiut.

“Police are the community and the community are the police,” stated one participant.
“There needs to be a bond and trust.”

4. Costs have often been cited as a major consideration when discussing the implementation
of BWVS. What role does the federal government have to play in funding a potential pilot
program? What role does the GN have?

“You can’t put a cost on lives” was a common sentiment expressed by many participants. It
was generally agreed that it was a small price to pay when weighed against the practicality
and potential beneZits of implementing BWVS in Nunavut.

A commonly cited barrier to the adoption and deployment of BWVS in Canada to date have
included the high costs associated with such a program. These costs include, not only the
physical hardware (including the cameras themselves) but the training required,
maintaining and storing of data, and the associated annual licenses required.

The Kativik Regional Police, operating in Nunavik, have similar challenges and conditions
under which they operate. Their projections are that implementation of BWVS in all 14
Nunavik communities would cost $100,000 in up-front hardware costs, and an annual cost
of $20,000-25,000 per annum for the licensing of system software used to store and
manage data.
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Representatives of the Government of Nunavut revealed that, using cost data from other
jurisdictions, a limited pilot project that saw the deployment of BWVS in one or a handful of
communities could be manageable under existing policing budgets, but that the cost of
territory-wide deployment and implementation would require funding from the federal
government. The Premier at a First Ministers’ meeting clearly stated that BWV cameras are
a goal of the Government of Nunavut, but that federal Zinancial support is required.

5. Would you envision a pilot project look at of0icers wearing BWVS in a single community or
throughout all of Nunavut?

Several participants pointed to the need to deploy BWVS in all 25 communities of Nunavut,
as opposed to limited deployment and implementation to only major hubs. There were
concerns that starting with a pilot project in a smaller number of communities would
create delays for a territory-wide roll out. It was also suggested that a phased model,
similar to that employed by the Kativik Regional Police Force may be an appropriate
approach to the implementation of BWVS throughout Nunavut.

Given recent statements by the Prime Minister and the Commissioner of the RCMP
asserting their support for the implementation of BWVS, one participant posited that
Nunavut – with the variety of unique challenges it faces – could serve as an appropriate
pilot project for all of Canada.

V Division is rather widespread, and one participant cautioned the need to be mindful of
logistics and questions that must Zirst be addressed when considering the territory-wide
deployment of BWVS. Participants were reminded that V-Division operates differently from
other jurisdictions and those differences need to be taken into account.
• How will we coordinate the training of all ofZicers across the territory?
• How long does the data take to fully upload?
• As most ofZicers in Nunavut work 24 hours, will we need two cameras per ofZicer so
that one can be worn while the other recharges/uploads its data?
• How will we account for learning curves?

When discussing potential timelines, federal procurement requirements were Zlagged as an

impediment to the swift implementation of BWVS. While the process could be sped up in
certain aspects, it was communicated that the previous reports by the RCMP on BWVS and
the previous Request For Proposal, issued on September 5, 2014 would only be of limited
use. While those reports would help establish the scope of work and the address technical
requirements for the physical cameras, data storage and management solutions were
identiZied as the major outstanding component. The RCMP could not commit to a timeline,
but underlined that the Prime Minister and Commissioner Brenda Lucki have clearly made
the implementation of BWVS a priority for the RCMP.
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Next Steps
There is the need to further examine the questions that have arisen regarding the
implementation of BWVS in Nunavut. Outstanding questions regarding training,
procurement, and technical solutions for data storage and management must be addressed.
Policies regarding the use of BWVS must be created with Inuit input and political support
for the implementation and Zinancing of this project, at the federal and territorial level must
be secured.

There was general willingness to reconvene at a later date and assess the progress on each
of these objectives.
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APPENDIX A
Discussion Paper:
BODY WORN CAMERA SYSTEM FOR RCMP OFFICERS IN NUNAVUT

In response to recent fatalities involving Nunavummiut and the RCMP, as well as in

response to renewed calls for Body Worn Camera Systems to be employed by ofZicers,
Senator Patterson has convened a roundtable, scheduled for June 15, 2020, with various
stakeholders. While the RCMP is contracted by the Government of Nunavut for policing
services, the RCMP falls within the purview of the federal government. As a federal
Parliamentarian, it is the Senator’s intention to use the information gathered from
participants to inform his position and any future lobby efforts regarding the potential use
of Body Worn Video (BWV) cameras by the RCMP in Nunavut.

The following document provides background information and poses several questions to
help facilitate discussion at the roundtable.

This background paper is intended to clearly set out terms of reference for an exchange of
view on a current topic of interest to the stakeholders – the possible deployment of BWV
cameras by RCMP in Nunavut. This will be the focus of the conversation. The suggested
questions/topics for discussion at the end of this forum should allow for a broad discussion
of all aspects related to this speciZic issue, including storage and technical matters.
Consequently, there will be no discussion of speciZic policing incidents.

Logistical details about the event are included in the accompanying invitation.

Overview:

The RCMP website describes the “Body Worn Camera System” as such:
Body Worn Video (BWV) cameras are used by law enforcement agencies to capture
audio/video recordings of incidents and interactions with general public, witnesses
and/or suspects as they occur to aid in investigations and gathering of evidence.
BWV is designed to add value to evidence gathered during an investigation and
should not be relied on as the sole source for evidence.

The BWV System (BWVS) is a small camera that is either attached to a police
ofZicer's uniform, sunglasses or worn as a headset. The camera records audio and
captures video of the ofZicer's interaction with the public. Digital information
recorded provides a record of events from an ofZicer's perspective as they conduct
their daily duties.

The BWVS is intended to overtly capture an accurate, unbiased and reliable audio/
video account of incidents involving uniformed RCMP members. The intention is to
enhance transparency and accountability if questions/concerns/accusations arise
after an incident, and to provide evidence for prosecution should an incident
constitute a crime…
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Police are making use of a relatively new technology to hold both police ofZicers, and
members of the public we interact with, accountable for any actions taken. Body
worn video provides increased transparency and accountability for everyone, while
also providing a Zirst-person view of what a police ofZicer encounters, in dynamic
and high stress situations. Projects such as this one are designed to assess and
determine the added value for new policing tools. As a modern police force, the
RCMP constantly researches and assesses new technologies, to continue to meet its
mandate to protect Canadians. The objective remains to provide our ofZicers with
tools that allow them to meet the challenges of modern policing in a constantly
changing environment.

https://www.rcmp-grc.gc.ca/en/body-worn-video

In 2010 and 2013, the RCMP conducted two-different pilot projects to evaluate the
potential use of BWVS. Following this, they ordered a full-scale review of the feasibility of
BWVS for all ofZicers. The Zinal report, completed in December, 2015 by the National
Criminal Operations division of the RCMP, identiZied three potential outcomes: A) Status
quo – no implementation of BWV; B) Force-wide implementation; and C) Limited
permanent implementation in a division. After reviewing the literature, conducting several
limited pilots to gather data, and interfacing with international policing units, the report
weighed factors such as cost, privacy, storage and legal considerations when formulating
their Zinal recommendation. In the end, the report recommended Option C as “the most
viable solution” moving forward.

https://www.scribd.com/document/350849795/RCMP-BMC-Final-Report#from_embed

On September 5, 2014, the RCMP put out a Request for Proposal (RFP) to Zind potential
suppliers for BWV cameras. Among other speciZication requirements, the RFP called for “a
minimum recording battery life of 5 hours”, 16 GB of memory with the unit, and the ability
of the unit to survive extreme cold. A July 15, 2019 National Post article, entitled “ As use of
bodycams becomes common in U.S., most Canadian police forces — including RCMP —
resistant” reported that, “The requirements matched, almost perfectly, a device made by
Axon, the same company that sells the Taser. Axon’s body-worn camera boasted even longer
battery life and storage.”

Despite Axon’s ability to meet the RFP’s technical speciZications, and the recommendation
of the RCMP’s own feasibility report, the RCMP announced in 2016 that the use of BWVS by
its ofZicers would be postponed indeZinitely. The National Post article includes this
statement from the RCMP:
“To be clear, the RCMP is not refusing to equip our ofZicers,” the spokesperson said in
response to follow-up questions, citing privacy, storage, weather conditions, and cost
as reasons for not moving forward with the program. “The RCMP needs to have
conZidence in the product and ensure that any choice of technology justiZies the
investment.”
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https://nationalpost.com/news/as-use-of-bodycams-becomes-common-in-u-s-most-
canadian-police-forces-including-rcmp-resistant

Currently in Canada, the Calgary and Edmonton police services have both adopted BWVS
for its ofZicers, while the Toronto Police Force has begun its own pilot project in 2020, with
the intent to outZit all its ofZicers. In 2019, British Columbia established standards for BWV
cameras, but the province’s police forces feel the costs associated are prohibitive.

Police-related Deaths in Nunavut

A November 5, 2018 report in the Toronto Star (attached) found that police-related deaths
in Nunavut are nine-times higher in Nunavut compared to Ontario.

On May 18, 2020, in reponse to two police-related deaths in Kinngait (Feb. 26, 2020) and
Clyde River (May 5, 2020), Nunavut News published the article, “Senator, MP support MLA’s
call for RCMP body cameras.”

Senator Patterson’s full statement was as follows:

The RCMP have an important role to play in protecting the people of Nunavut, but I
do believe that there has been an erosion in the trust between the RCMP and
Nunavummiut that is making it difZicult for them to continue to fulZill their duty to
serve and protect. I agree with proponents of this initiative that body cameras are
an important step in repairing the relationship between police and citizens. I don’t
think that the accountability, transparency, and peace of mind that will be afforded
by these measures should be dismissed due to potential technical difZiculties in
implementing the program. The fact of the matter is, other jurisdictions within
Canada currently use body cameras and I am sure that there are several technology
Zirms that can offer solutions for any challenges that may be unique to the North.

The article quoted RCMP V Division commanding ofZicer Chief Supt. Amanda Jones as
saying, in a March interview on the subject of BWV cameras, ““I will never say never, but
right now it’s the capacity to hold all that information (that’s a barrier).”

https://nnsl.com/nunavut-news/senator-mp-support-mlas-call-for-rcmp-body-cameras/

On May 20, 2020 Tununiq MLA David Qamaniq asked for assistance and support from
Senator Patterson and MP Qaqqaq regarding a pilot project in Nunavut.

On May 26, 2020, News North published a follow-up article entitled, “Former RCMP
commander endorses body cameras.” In an interview with Senator Vern White – a former
RCMP ofZicer in Nunavut from 1984-2003 and former commanding ofZicer from 2001-2003
– noted that there is an issue with archiving “excessive amounts” of footage,
“But that shouldn’t get in the way of good policy or good procedures… the fact that
it’s too expensive is not something that should be weighed by the public or by you as
a reporter as to whether or not it should happen. That’s (the RCMP’s) job to have
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that discussion,” he said. “At the end of the day, I absolutely agree with body-worn
video. I think it’s a positive thing for ofZicers. I think it’s positive for the public.”

Senator White, during his subsequent tenure as Chief of the Ottawa Police Service (just
prior to his appointment to the Senate) helped to negotiate and sign the agreement to have
OPS ofZicers investigate RCMP actions where fatalities occur.

The Government of Nunavut’s Department of Justice’s statement on the issue reads,

The department has been working with the RCMP V division to examine the
feasibility of body-worn video (body cameras) in Nunavut. Implementing the use of
body cameras in Nunavut will be a considerable project which will require
operational, technical, and Zinancial analysis. While we are unable to provide a
timeline for this initiative, work is underway.

https://nunavutnews.com/nunavut-news/former-rcmp-commander-endorses-body-
cameras/?mc_cid=4aaZbb9a18&mc_eid=6e145131ac