Police-reported Indigenous and Racialized Identity Data Through the Uniform Crime Reporting Survey: Progress Update and Next Steps

Executive summary

In response to increasing demands for better disaggregated data to help shed light on individuals' diverse experiences, Statistics Canada and the Canadian Association of Chiefs of Police have committed to collaborating on an initiative to collect data on the Indigenous and racialized identity of all victims and accused persons through the Uniform Crime Reporting (UCR) Survey. The current article provides an update on the status and next steps of this initiative—the Police-reported Indigenous and Racialized Identity Data (PIRID) project.

On September 1, 2022, Statistics Canada published the interim Report and Draft Recommendations: Police-Reported Indigenous and Racialized Identity Statistics via the Uniform Crime Reporting Survey (hereafter referred to as "the September report"). This report was a culmination of feedback received through engagements with various partners as part of the initial step toward the collection of police-reported data on the Indigenous and racialized identity of all victims and accused persons through the UCR Survey. The September report included reassurances, guiding principles and recommendations to inform the next steps of the initiative. There were six recommendations developed as part of the first phase; expanded to 12 throughout Phase II, which are informing the work currently underway related to the PIRID project. These recommendations can be found in Appendix A below.

Following the release of the September report, Phase II of the project began with the goal of operationalizing the recommendations outlined in Phase I and developing a process roadmap for interpreting the draft recommendations from this report into concrete data collection and analysis methods and plans. Similar to Phase I, Statistics Canada conducted a second phase of engagements with various partners with diverse perspectives to obtain their feedback on the recommendations and assess any concerns or considerations related to the operationalization. The "What we have done" section below outlines the efforts undertaken related to operationalizing the initiative during Phase II, and the beginning of implementation during Phase III.

Background

On July 15, 2020, a joint announcement was made by Statistics Canada and the Canadian Association of Chiefs of Police (CACP) committing to working collaboratively on the collection of Indigenous and racialized identity data of all accused and victims of criminal incidents through the Uniform Crime Reporting (UCR) Survey. The announcement was in response to increasing demands for better disaggregated data that would speak to the disparate treatment and overrepresentation of Indigenous and racialized persons in the Canadian criminal justice system. A lack of national-level data has made it difficult to assess the extent of these issues accurately and to develop effective solutions (David & Mitchell, 2021; Millar & Owusu-Bempah, 2011; Samuels-Wortley, 2021; Truth and Reconciliation Commission of Canada, 2015; Wortley, 1999).

Although UCR Survey data are limited to criminal incidents, the collection of data on the Indigenous and racialized identity of all accused and victims of crime may prove critical in understanding and addressing disparities in the criminal justice system (David & Mitchell, 2021; Millar & Owusu-Bempah, 2011). As a first point of entry into the criminal justice system, UCR Survey data may also allow for further analyses of Indigenous and racialized groups' experiences with other aspects of the criminal justice system, through the linkage of policing, courts and corrections data.

Using a multi-phased approach, Statistics Canada has begun working toward the goal of enabling the collection of these data by police services. The remainder of this document will discuss the completed  phases of the initiative, the current status of the initiative and next steps. The chart below shows the major deliverables and timelines of the initiative.

Following the joint announcement in 2020, Statistics Canada consulted internally and with its key partners on how best to approach the initiative to collect Indigenous and racialized identity data of victims and accused persons through the UCR Survey. In Phase I of the initiative, Statistics Canada embarked on an engagement process to seek feedback from diverse perspectives, including Indigenous and racialized group organizations, police services, academics, and other parties of interest at the national, provincial or territorial, municipal, and local government levels. Next, Statistics Canada distributed to over 500 identified stakeholders a written engagement document with a discussion guide to seek feedback and input. The agency also held virtual roundtables between July 2021 and February 2022. These engagements led to Statistics Canada publishing a draft report and recommendations in September 2022 to guide the next phases of the initiative. The activities undertaken since the September report are briefly outlined below. For more details on Phase I of the initiative, please see the full September report.

In Phase II of the initiative (see "What we have done"), the focus was to develop a process roadmap for translating the draft recommendations from the September report into concrete data collection and analysis methods and plans. Similar to Phase I, Statistics Canada conducted a second phase of engagements with various partners with diverse perspectives, including community organizations, academics, police services, police associations and other parties of interest at the national, provincial or territorial, municipal, and local government levels to obtain their feedback on the recommendations and assess any concerns or considerations related to operationalization. The "What we have done" section below outlines the efforts undertaken related to operationalizing the initiative during this phase.

Following the completion of Phase II, the focus of the initiative will be shifted to Phase III (implementation). In the "Where we are headed" section, the goals of this phase are briefly outlined.

To stay up to date on this initiative, please visit Statistics Canada's Crime and Justice Statistics.

What we have done

Following the release of the draft report and recommendations in September 2022, the second phase of the project began with the goal of operationalizing the recommendations outlined in the first phase. The focus of Phase II (operationalization) was to conduct a second round of engagements to seek further input, address any additional concerns, and develop a process roadmap for translating the draft recommendations into concrete data collection and analysis methods and plans.

Stakeholder engagement

During Phase II, Statistics Canada held debriefs with partners, stakeholders and other interested parties on the results of Phase I, seeking their feedback and reactions.

Additionally, Statistics Canada conducted a second phase of engagements with various partners with diverse perspectives, including community organizations, academics, police services, police associations and other parties of interest at the national, provincial or territorial, municipal, and local government levels. While seeking feedback on all of the recommendations and planned next steps, these engagements primarily focused on how to operationalize recommendations 1 and 2:

More specifically, these engagements sought input on

• operational needs, concerns and issues
• guidelines on how to best collect Indigenous and racialized information
• guidelines on when it is appropriate to collect Indigenous and racialized information
• ways to develop the standards and guidelines
• provincial legislation and privacy acts that may affect Indigenous and racialized identity data collection
• the use of data after collection.

Statistics Canada will continue to work with its partners toward the collective goal of providing jurisdictions with guidelines and standards for data collection and analysis, while also acknowledging that jurisdictional nuances and contexts must be considered when adopting a data collection approach. For example, Statistics Canada will work with the policing community and propose variables for the collection of officer perception data with an option to roll up detailed Indigenous and racialized identity categories that will align with existing jurisdictional standards to ensure consistency in reporting.

Launch of the Canadian Association of Chiefs of Police Special Purpose Committee

To action this recommendation, Statistics Canada and the CACP collaborated to establish the CACP Special Purpose Committee to guide the next steps of the initiative, particularly as they relate to operationalizing the September recommendations and producing guidelines (Operational Guidelines) for police services to implement data collection. Endorsed by the CACP Board of Directors, the special purpose committee (SPC) consists of over 40 members from across different police services of different sizes, and from different regions, and other policing and non-policing CACP representatives. The work of the SPC was supported by five working groups established to bring together experts from across the participating police services and CACP committees. Working group participants had a range of experience and expertise, including front line policing, policing for Indigenous and racialized communities, outreach and engagement, records management systems or technical expertise, standards development, training, research and analysis and working on equity, diversity and inclusion initiatives.

In particular, each of the five working groups addressed a specific aspect of the Operational Guidelines:

• Community Engagement
• Legislative and Regulatory;
• Education and Awareness
• Data Standards; and
• Data Analysis and Dissemination.

Note: The Data Analysis and Dissemination working group was also tasked with developing recommendations and suggestions for the Analytical Framework.

The committee is intended to provide assessments and decisions to develop guidelines for technical and operational changes and implementation, Records Management System (RMS) changes, training, communications, and community engagement. The CACP Special Purpose Committee also has been a key support in the development of guidelines and best practices for the analysis, presentation, interpretation and dissemination of the data. They aided in developing methods for identifying appropriate benchmarks and approaches for properly contextualizing the results of analysis, in order to align with Recommendation 5 from the September report.

Training Development

Police training is a critical aspect of implementing the enhancements to the UCR Survey. The Education and Awareness Working Group under the CACP Special Purpose Committee, has developed introductory training (hosted on Articulate360) for police services, with emphasis on the purposes of the data collection, as well as how and when the data should be collected.

Three Foundational Reports

Statistics Canada will be publishing three foundational reports throughout Spring/Summer 2025. These reports are: A What we Heard Report on the results of the Phase 2 engagements by StatCan: Planned release date: May 26th, 2025), an Analytical framework promoting the ethical and responsible use, analysis and dissemination of the data (Planned release date: July 16th, 2025); and the Operational guidelines for supporting police services in implementing data collection and reporting through the UCR (Planned release date: July 16th, 2025).

Other activities

In addition to the Phase II engagements and launch of the CACP Special Purpose Committee, other activities completed during this phase include the following:

• UCR system updates at Statistics Canada
  This included technical changes to develop a new version of the UCR Survey (UCR 2.5) that was released in February 2024.^{Footnote 1}
• Continued debriefs and collaboration
  Statistics Canada continues to provide updates to and engage partners. This includes presentations at various conferences and to working groups and various police services boards, as well as ad hoc presentation requests. Further, to align this national initiative with existing jurisdictional priorities, Statistics Canada is communicating and coordinating with various police services and other partners to ensure they can meet both national and jurisdictional or provincial priorities.

Where we are headed

As Phase II of the initiative draws to a close -- with the publication of the three foundational documents  (What We Heard Report, Analytical Framework, and Operational Guidelines) in Summer of 2025, Statistics Canada has now begun work on Phase III. In brief, Phase III (implementation) includes the following established goals:

• support of continued training for police, beginning with the introductory training through the Articulate 360 platform prepared by the Education and Awareness Working Group under the SPC; and
• planning and launch of PIRID (UCR 2.5) pilot projects with first adopters.

More information on pilot Implementation of PIRID Data Collection through the UCR

In the coming months, Statistics Canada aims to lead the implementation of a multi-site pilot project on collecting Police-Reported Indigenous and Racialized Identity Data (PIRID) for accused persons and victims involved in criminal incidents, through the Uniform Crime Reporting (UCR). This pilot project will serve as a springboard for the national rollout of PIRID data collection. By gathering valuable data, taking stock of lessons learned, and refining data collection procedures for both officer perception and self-identification methods, the pilot will help optimize the different components of the PIRID framework and pave the way for scaling the initiative up to the national level.

Additional details on plans and activities related to upcoming phases of the initiative will be shared at a later date.

For information and to remain up to date on the progress of this initiative, please visit Crime and Justice Statistics.

Conclusion

Statistics Canada recognizes that communities across Canada are diverse, and that the collection of police-reported identity information must consider the specific characteristics, existing relationships and contexts of the policing organizations and the communities they serve.

From a national standpoint, this initiative aims to develop evergreen national standards and guidelines for data collection and analysis that build on expertise, established frameworks, lessons learned and best practices. The agency looks forward to continuing to work with police, communities and other parties of interest to enable data collection and analysis of police-reported identity information and finding a balance that results in sound and meaningful data to help shed light on the experiences of Indigenous and racialized communities with police and the criminal justice system.

References

David, J.D., & Mitchell, M. (2021). Contacts with the Police and the Over-representation of Indigenous Peoples in the Canadian Criminal Justice System. Canadian Journal of Criminology and Criminal Justice, 63(2), 23-45.

Millar, P., & Owusu-Bempah, A. (2011). Whitewashing Criminal Justice in Canada: Preventing Research through Data Suppression. Canadian Journal of Law and Society, 26(3), 653-661.

Samuels-Wortley, K. (2021). To Serve and Protect Whom? Using Composite Counter-Storytelling to Explore Black and Indigenous Youth Experiences and Perceptions of the Police in Canada. Crime & Delinquency, 67(8), 1137-1164.

Truth and Reconciliation Commission of Canada. (2015). Calls to Action.

Wortley, S. (1999). A Northern Taboo: Research on Race, Crime, and Criminal Justice in Canada. Canadian Journal of Criminology, 41(2), 261-274.

Appendix A: Recommendations

Based on the feedback received throughout the engagement for the PIRID initiative, the following final recommendations were developed to support the implementation of a national data collection strategy.

Recommendation 1

The collection of information on the Indigenous and racialized identity of accused persons and victims of crimes through the Uniform Crime Reporting Survey should be conducted through both the "officer perception" method and the "self-identification" method.

Recommendation 2

The collection of information on the Indigenous and racialized identity of accused persons and victims of crimes through the Uniform Crime Reporting Survey should be conducted using Statistics Canada's standardized population group categories for both the "self-identification" method and the "officer perception" method.

Recommendation 3

The Canadian Association of Chiefs of Police should work together with Statistics Canada and other parties of interest to establish national collection standards and guidelines that will integrate with police procedures, processes and workflow.

Recommendation 4

Any training delivered by Statistics Canada, or the police community, should emphasize the importance of the data collection initiative and the benefits for the Canadian population, policy makers and the police.

Recommendation 5

In developing or delivering any additional training related to the collection of Indigenous and racialized identity data, police services should consider including components related to systemic racism, the purposes of collecting these data, power differentials, the importance of informed consent without reprisal when collecting self-identification data, cultural competency, sensitivity training, and ongoing training and evaluation to address evolving needs and best practices.

Recommendation 6

Police services should consider how the voices of local community members can be incorporated in the development and implementation of a data collection initiative and related training through meaningful engagement and collaboration throughout the entire process, from initial planning to implementation and evaluation. Community advisory boards or working groups can provide ongoing input and guidance.

Recommendation 7

The analysis and use of information on the Indigenous and racialized identity of accused persons and victims of crimes should be done in a manner that reflects the realities experienced by Indigenous and racialized communities through the inclusion of context (e.g., colonialism, ongoing systemic barriers, the social determinants of health and inequities for Indigenous and racialized peoples, etc.) in all publications and related dissemination products.

Recommendation 8

To ensure consistency, the standards developed in the context of this initiative should be considered for future data collection within the justice and community safety sectors.

Recommendation 9

Police services should develop plans for implementing the standards and guidelines co-developed by Statistics Canada and the Canadian Association of Chiefs of Police in their data collection initiatives or processes, considering their local contexts and the need for flexibility and adaptability. Leveraging technology and data analytics can improve data collection and analysis.

Recommendation 10

The Canadian Association of Chiefs of Police should develop mechanisms that discourage police services from using any part of the self-identification data collection process as a performance metric and recommend systems of reassurance for police service members and the communities they serve. Performance metrics should focus on outcomes and impact, rather than on the quantity of data collected. Consideration should be given to developing a code of ethics for the collection and use of Indigenous and racialized identity data.

Recommendation 11

Statistics Canada should develop guardrails to ensure the responsible use of Indigenous and racialized identity data collected through the Uniform Crime Reporting Survey. Transparency, accountability and a data governance framework should be prioritized to oversee the collection, storage and use of these data.

Recommendation 12

Police services should consider expanding the collection of Indigenous and racialized identity information for specific types of police incidents beyond criminal incidents, such as traffic stops, use of force incidents and calls for service, and for other involved persons, such as persons of interest and subjects of various interactions, to provide a more comprehensive picture of policing interactions.