Policing Canada's Century: A History of Canadian Association of Chiefs of Police 9781487578480

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Policing Canada' s Century

Policing Canada's Century:

A History of the Canadian Association of Chiefs of Police GREG MARQUIS

University of Toronto Press Toronto Buffalo London

©University of Toronto Press Incorporated 1993 Toronto Buffalo London An Osgoode Society edition of

Policing Canada's Century

has been published simultaneously. Printed in Canada Reprinted in 2018 ISBN o-8o20-5020-4

ISBN 978-1-4875-7916-6 (paper)

(§

Printed on acid-free paper

Canadian Cataloguing in Publication Data

Marquis, Greg Policing Canada's century: a history of the Canadian Association of Chiefs of Police Includes index. ISBN o-8o20-5020-4 1. Canadian Association of Chiefs of Police History. 2 . Police chiefs - Canada - History. I. Title.

HV8157.M3 1993

363.2'o6'071

Contents

Foreword THE CANADIAN ASSOCIATION OF CHIEFS OF POLICE

vii

Foreword THE OSGOODE SOCIETY

ix

Acknowledgments

xi

List of Abbreviations

xiii

Introduction

3

1

Policing in Nineteenth-Century Canada

12

2

The Origins and Early Years of the Chief Constables' Association of Canada

54

3 The War Years 4 The Interwar Years (Part

I)

5 The Interwar Years (Part II)

127

vi Contents

6 From World War to Cold War

195

7 The Canadian Association of Chiefs of Police

229

8 The 1960s

271

9 The 1970s and Beyond

315

Postscript

378

Appendix: Officers of the CCAC/CACP

399

Notes

403

Index

441

Foreword THE CANADIAN ASSOCIATION OF CHIEFS OF POLICE

In August 1987, the Board of Trustees of the Canadian Association of Chiefs of Police (CACP) Research Foundation approved a proposal to have a history written of the association. This proposal had been received from Greg Marquis, Department of History, Queen's University, Kingston, Ontario. Pursuant to the Board of Trustees' approval, terms of reference for the history were subsequently approved, and the CACP Research Foundation committed the sum of $5,000 to cover the cost of research and related costs to prepare the history. Prior to this commitment, there existed no documentation that in any way systematically recorded the development of the CACP as a national association. An earlier attempt, in the mid197os, to have a history of the CACP researched and written by a historian/ consultant met with a number of problems and had to be abandoned. Nevertheless, a number of long-time CACP members who were particularly active in the association continued to express an interest in such a project. Consequently, when Greg Marquis made his proposal, it was welcomed and approved. Greg Marquis, PhD in history, Queen's University, has proved to be an excellent choice to research and write the history of the CACP. His MA thesis, 'The Police Force in Saint John, New Brunswick, 186o-1890' (1982), together with his contribution to a book on the history of Charlottetown, PEI, entitled 'Enforcing the Law: The Charlottetown Police Force' (1988), as well as other writings in the domain of criminal justice, attest to his

viii

Foreword

competence as a historian. Greg Marquis applied himself diligently to the task and, with the assistance of CACP staff and various police forces across Canada, was able to thoroughly research and write this history of the CACP.

The CACP is particularly pleased that the University of Toronto Press agreed to publish this work. Those reviewing the manuscript noted that the document went beyond simply recording the history of the CACP as an institution, focusing, as well, on the concerns and preoccupations of Canada's police chiefs through the years. Thus it comes close to being a history of policing in Canada. Consequently, the title, Policing Canada's Century: A History of the Canadian Association of Chiefs of Police, was readily agreed to and adopted. In 1992, the Board of Trustees of the CACP Research Foundation gave their approval to a co-publication arrangement with The Osgoode Society, which regards this work highly and will be making it available, as part of the Society's Legal History series, to its members across Canada. In their view, it will serve to contribute to a better understanding on the part of Canada's lawyers of the historic role of the CACP, the police, and policing in Canada. This book is a pleasure to read. It traces, chronologically and thematically, the role of the CACP as a substitute for a 'national' policy-making institution for municipal (and, to a lesser extent, provincial) police forces, which has never existed in Canada. At the same time, important facets of the role of the Royal Canadian Mounted Police and its predecessors are discussed in considerable detail. I highly recommend this publication to all CACP members, and to anyone who has an interest, professional or otherwise, in the history and development of the CACP and policing in Canada. Alain St-Germain Director, Montreal Urban Community Police Service President, Canadian Association of Chiefs of Police

Foreword THE OSGOODE SOCIETY

The purpose of The Osgoode Society is to encourage research and writing in the history of Canadian law. The Society, which was incorporated in 1979 and is registered as a charity, was founded at the initiative of the Honourable R. Roy McMurtry, former attorney general for Ontario, and officials of the Law Society of Upper Canada. Its efforts to stimulate the study of legal history in Canada include a research support program, a graduate-student research assistance program, and work in the fields of oral history and legal archives. The Society publishes (at the rate of about one a year) volumes of interest to the Society's members that contribute to legal-historical scholarship in Canada, including studies of the courts, the judiciary, and the legal profession; biographies; collections of documents; studies in criminology and penology; accounts of great trials; and works in the social and economic history of the law. Current directors of The Osgoode Society are Jane Banfield, Marion Boyd, Brian Bucknall, Archie Campbell, J. Douglas Ewart, Martin Friedland, John Honsberger, Kenneth Jarvis, Allen Linden, Colin McKinnon, Roy McMurtry, Brendan O'Brien, Peter Oliver, Allan Rock, James Spence, and Richard Tinsley. The annual report and information about membership may be obtained by writing to: The Osgoode Society, Osgoode Hall, 130 Queen Street West, Toronto, Ontario, Canada, M5H 2.N6. Members receive the annual volumes published by the Society. The directors of The Osgoode Society are pleased to be cooperating with the Canadian Association of Chiefs of Police in the publication of

x Foreword

Policing Canada's Century: A History of the Canadian Association of Chiefs of Police. This work was commissioned by the CACP, and Professor Marquis's research has been supported by that organization. The resulting publication is significant in several respects. For The Osgoode Society, it is a departure into a relatively new and rapidly developing field of study. Canadian historians have generally ignored their police history. The Canadian Association of Chiefs of Police is an important but little known organization whose development is a crucial part of the history of Canadian policing. Its history, as Professor Marquis amply demonstrates, is rich in personalities, controversies, and issues; and its story offers vital insights into the social and intellectual history of policing in twentieth-century Canada. The perspective adopted in Professor Marquis's book is from the top down, tracing the concerns of senior police officials, their relationships with all levels of government and their efforts to understand, and at times to shape, public opinion as it touched upon issues of policy. In writing the history of the Canadian Association of Chiefs of Police, Professor Marquis takes a broad view and by throwing much light on numerous policing issues lays the indispensable groundwork for future studies of policing in Canada. R. Roy McMurtry

President

Peter N. Oliver Editor-in-Chief

Acknowledgments

This project would not have been possible without the support of Don Cassidy, former executive director of the Canadian Association of Chiefs of Police; Fred Schultz, the current executive director; and the CACP board of directors. Research assistant Kim Louagie, who worked with me in the summer of 1989, and CACP secretariat staff Jacqueline Matthews and Laurie Timmins merit special thanks. At the Royal Canadian Mounted Police Headquarters, I was assisted by staff historian Dr William Behean, Staff Sergeant Keith Deline of Identification Services, and photo librarian Scott McDougall. A number of police departments assisted with historical material. Henry J. Marquis, QC, and A. Wilber Macleod of Saint John, New Brunswick, provided insights into criminal law. Carolyn Smith of the Mount Allison University history department explained the mysteries of WordPerfect and assisted immeasurably in the preparation of the manuscript. I would like to thank the two anonymous readers who reviewed the manuscript for University of Toronto Press. From one of them I borrowed the title, Policing Canada's Century. And, finally, the support of the Osgoode Society is particularly appreciated, as were the comments of Dr Peter Oliver, editor-in-chief of the society's historicalpublications series. Greg Marquis

Abbreviations

ACPPQ

AM ARP BCPP C

CACP

CAD CAR

CCA CCAC CCAO

CD CIB

CID CISC CLEU

CMA CM/ CNR CPA CPIC CPB

Association des Chefs de Police et Pompiers de la Province de Quebec amplitude modulation air-raid protection British Columbia Provincial Police CCAC/CACP, Convention Proceedings Canadian Association of Chiefs of Police computer-assisted dispatch Canadian Annual Review Canadian Corrections Association Chief Constables' Association of Canada Chief Constables' Association of Ontario civil defence Criminal Investigation Branch Criminal Investigation Department Criminal Intelligence Service of Canada Co-ordinated Law Enforcement Unit Canadian Manufacturers' Association Canadian Municipal Journal Canadian National Railways Canadian Police Association Canadian Police Information Centre Canadian Police Bulletin

xiv Abbreviations CPC

CPR CSIS

ewe CYB

DBS DPR

FBI FLQ

FM GTR HBC IACP INTERPOL

1ww

JDC JP LAC LEAA LRC LSD

MACP MCCA MO

Unit

MTPA MUC NACP NCIC NGO NJC NRC NWMP OACP

occ OPP ORC PAO PCIC PCIS POLIS

Canadian Police Chief Canadian Pacific Railway Canadian Security and Intelligence Service Canadian Welfare Council Canada Year Book Dominion Bureau of Statistics Dominion Police Records Federal Bureau of Investigation Front du Liberation du Quebec frequency modulation Grand Trunk Railway Hudson's Bay Company International Association of Chiefs of Police International Criminal Police Commission Industrial Workers of the World Juvenile Delinquency Committee justice of the peace Law Amendments Committee Law Enforcement Assistance Administration Law Reform Commission Lysergic acid diethylamide Maritime Association of Chiefs of Police Maritime Chief Constables' Association Modus Operandi Unit (RCMP) Metropolitan Toronto Police Association Montreal Urban Community National Association of Chiefs of Police National Crime Information Centre non-governmental organization National Joint Committee National Research Council North-West Mounted Police Ontario Association of Chiefs of Police Organized Crime Committee Ontario Provinical Police Operational Research Committee Police Association of Ontario Prevention of Crime in Industry Committee Prevention of Crime in Industry Secretariat Police Information and Statistics Committee

Abbreviations xv QPC

RCAF RCMP RIC RNWMP SQ

UCR WUL

Quebec Police Commission Royal Canadian Air Force Royal Canadian Mounted Police Royal Irish Constabulary Royal North-West Mounted Police Sftrete du Quebec Uniform Crime Reporting Workers' Unity League

Chief Constables' Association of Canada, Toronto, 1905 (courtesy London Police Department)

Dominion Police force, 1909. A.P. Sherwood is in the centre (courtesy RCMP - GRC/11292-2)

Turn-of-the-century Vancouver police (courtesy City of Vancouver Archives)

Chief William R. Whatley, Hamilton, Ont., CCAC president, 1920-1 (courtesy Mark Whatley and Ruth Whatley)

Vancouver mounted policeman (courtesy City of Vancouver Archives)

Left Chief George R. Rideout, Moncton, N.B., CCAC president, 1917-18 (courtesy Moncton Police Force) Right Chief A.G. Shute, Edmonton, Alta., CCAC president 1931-3 (courtesy Edmonton Police Museum and Archive)

Alfred E. Cuddy, Toronto Police, 1882-1915; Calgary Police, 1915-19; Commissioner, Alberta Provincial Police, 1919-22; Ontario Provincial Police, 1922-33; CCAC president, 1915-16 (courtesy Calgary Police Service)

Chief W.T.T. Williams, London, Ont., CCAC president, 1913-14 (courtesy London Police Force)

Left Inspector Edward Foster, RCMP (courtesy RCMP - GRC/1558)

Right Chief Alexander M. Ross, Ottawa, Ont., CCAC president, 1924-5 (courtesy Ottawa Police Force)

Chief Christopher H. Newton, Winnipeg, Man., CCAC president, 1923-4 (courtesy Winnipeg Police Department)

Chief Martin

J. Bruton, Regina, Sask., CCAC president, 1919-20 (courtesy Regina Police Department)

Left Commissioner T.W.S. Parsons, British Columbia Provincial Police, 193