Integrated Assessment of Regular Member Recruitment

Final Report

June 2020

Table of contents

1. Executive summary
2. Introduction
   • Background
   • Scope and Methodology
   • Statement of Conformance
3. Findings
   • Effectiveness: Performance
   • Effectiveness: Suitability
   • Efficiency and Economy
   • Conclusion
4. Recommendations
5. Management Response and Action Plan
   • Management Response
   • Action Plan
6. Appendix A – Major Changes to RM Recruitment
7. Appendix B – RM Recruitment Process Map
8. Acronyms and abbreviations

Executive summary

Regular Member (RM) Recruitment is essential to the achievement of the RCMP's strategic outcome of a safe and secure Canada. It is intended to respond to RM vacancy rates, which have been increasing in recent years due to a rise in attrition and a higher demand for RMs from contract policing partners. In order to address vacancy rates, over the last three fiscal years the number of troops trained at Depot increased from 34 to 40 troops per year. In the midst of ramp-up efforts, however, the RCMP has faced a number of recruiting challenges.

Given the importance of RM Recruitment to the RCMP's ability to carry out its mandate, a joint project involving Internal Audit, Evaluation and Review's (IAER) evaluation, internal audit and data analytics functions was undertaken to examine RM Recruitment governance, performance measurement mechanisms, policies, tools, processes, and costs.

The purpose of the integrated assessment was to examine the effectiveness of the recruitment process and the costing models for recruitment. It was national in scope, and examined the continuum of recruitment activities from initially attracting applicants to troop loading them to Depot from fiscal year 2016-17 to 2018-19.

The following overall findings were identified:

• The manner in which RM Recruitment is organized and delivered does not adequately ensure the achievement of its goals and objectives. Specifically, RM Recruitment is not guided by an evidence-based strategy, clear mandate and objectives, and a defined governance structure. In addition, the RM Recruitment process is not timely and efficient and is not supported by quality data that enables the effective management of applications.
• The absence of clear suitability criteria limits RM Recruitment's ability to effectively target a sufficient number of suitable applicants. Without these, it is difficult to ensure that proactive recruitment, marketing and advertising activities are effective. In addition, with increased demands for police officers and in the absence of clearly defined suitability criteria, RM recruitment focuses on the quantity of applicants with less focus on the quality of applicants.
• A costing model for RM Recruitment has been developed. While RM Recruitment is not permanently resourced to meet the 40 troop per year requirement, annual gaps are absorbed and supported at the organizational level.

The management response and action plan (MRAP) developed in response to this report demonstrates the commitment from senior management to address the assessment's findings and recommendations. IAER will monitor the implementation of the MRAP and undertake a follow-up assessment, if warranted.

Introduction

Background

Regular Member (RM) Recruitment is essential to the RCMP's ability to meet its service delivery commitments under the provincial, territorial and municipal police service agreements, and to maintain federal policing capacity. It contributes to the achievement of the RCMP's strategic outcome of a safe and secure Canada through the delivery of trained and operational RCMP Regular Members. RM Recruitment activities fall under the Force Generation program in the RCMP's Program Inventory.

RM Recruitment encompasses a continuum of activities from attracting potential applicants to loading troops to Depot. Its administration is undertaken nationally and in divisions, as follows:

National level:

• Human Resources: The National Recruiting Program (NRP) is the policy center and manages the National Recruiting Health Team, and the National Recruitment Processing Centre (NRPC) processes applications and determines applicant suitability.
• Specialized Policing Services (SPS): Truth and Verification Services (TVS) administers the Pre-Employment Polygraph (PEP), and the Departmental Security Branch (DSB) processes applicant security clearances.
• The Strategic Policy and Planning Directorate (SPPD): National Communication Services (NCS) develops marketing approaches and paid advertising campaigns.

Divisional level:

• Divisional proactive recruiters are responsible for promoting careers with the RCMP and administering the RCMP Police Aptitude Test (RPAT).
• Divisional Health Services is responsible for processing medical and psychological screening requirements.
  

Factors in Canada's social and demographic context (e.g., the inversion of the population pyramid, low unemployment rates, etc.), as well as characteristics of jobs in the law enforcement sector (e.g., long hours, shift work, risk of harm, etc.) pose recruitment challenges for all police forces across the country. For example, according to Statistics Canada, six provinces reported a net loss between the number of police officers hired and the number of officers that left police services in 2017.^{Footnote 1}

Attrition has also been a challenge for the RCMP in recent years. Between 2013-14 and 2017-18, for example, attrition rates increased by 11% from 761 to 848 RMs. This attrition is impacting the ability to meet the increasing demand for RMs. Between 2016-17 and 2018-19, the demand for RMs increased by 8%, from 18,462^{Footnote 2} to 20,013^{Footnote 3}. While demand for RMs has gone up, the number of applicants applying to the RCMP has decreased. Data analysis conducted during the assessment showed that, between 2016-17 and 2018-19, the number of applicants decreased by 33%, from 12,296 to 8,222. Further compounding matters was a decrease in the number of cadets graduating from Depot. Between 2016-17 and 2017-18, the rate of graduation fell by 3%, from 87% to 84%. The main reason stated by cadets for not completing training was that they determined they no longer wanted to pursue a career in policing.^{Footnote 4}

In 2016, to address increasing vacancy rates, the RCMP's Senior Executive Committee (SEC) approved an increase to the number of troops loaded to Depot per year from 34 to 40^{Footnote 5} . RM Recruitment receives approximately $17M/year in A-base funding, with additional amounts funded through temporary program integrity funding; however, as illustrated in Table 1, with the increase in troops loaded to Depot the costs associated with recruitment have increased. The actual cost of RM Recruitment in 2018-19 was $26.7M.

Scope and methodology

The Commissioner-approved 2018-23 Risk-based Audit and Evaluation Plan, included an integrated assessment of RM recruiting. A unique approach involving IAER's internal audit, evaluation, and data analytics functions was used to provide an assessment of RM recruitment and identify the areas of highest risk that should be addressed by management. The integrated assessment approach leveraged key elements of each IAER function, to identify whether effective controls are in place, assess if RM recruitment requirements are met, as well as measure the extent to which the RM recruitment process is effective.

The objectives of the integrated assessment were to assess the effectiveness of the recruitment process and the costing models for recruitment by examining the following areas:

• Effectiveness (Performance) – The extent to which RM Recruitment is organized and delivered so that goals and objectives can be achieved.
• Effectiveness (Suitability) – The extent to which RM Recruitment activities result in the selection of suitable candidates to meet the needs of the RCMP.
• Efficiency and Economy – Assessment of resource utilization in relation to production of outputs and progress towards expected outcomes.

The integrated assessment was national in scope, and covered fiscal years 2016-17 to 2018-19. It focused on the continuum of recruitment activities from initially attracting applicants to troop loading to Depot.

The assessment team engaged with a wide range of key stakeholders at NHQ and the Divisions (including site visits to E, F, H and Depot Divisions), and gathered and analyzed evidence from a variety of sources to determine the findings and recommendations. The following lines of evidence were used:

• Document Review: Relevant internal and external documentation was reviewed, including foundational documents, performance-related reports, previous assessments, management reviews, business cases/plans, operational documentation, policies, and other applicable information.
• Data Analysis: Available financial, administrative, operational and statistical data was analyzed from the following systems and information sources: Human Resources Management Information System (HRMIS); Total Expenditures Asset Management (TEAM) system; Public Service Resourcing System (PSRS), where online applications are submitted; Cognos reporting database; and, the Depot Attrition/HRMIS Cadet Enrollment database.
• Interviews: 91 interviews were conducted with RCMP employees, including senior management and personnel involved in RM Recruitment at NHQ and in Divisions (B, E, F, G, H, J, K, O, Depot).
• Focus Groups: Three focus groups were conducted with a total of 30 cadets of different diversity groups who had recently completed the RM recruitment process.
• File Testing: A random sample of 38 successful recruitment applications (processed in Cognos) were tested including: four processed by the NRPC in Ottawa, and 34 processed by the NRPC team in Regina.

A number of limitations affected the breadth and depth of analysis that could be performed. For example, the ability to conduct analysis on the entire applicant population was limited because there was no single, national data source that could provide reliable data. RM Recruitment data has been collected in several corporate systems (HRMIS, Cognos, Applicant Tracking System (ATS), PSRS, Depot database), with each system housing a different portion of applicant data. Data fields in each system were different and often could not be merged. In addition, applicant data for different equity variables (e.g., gender, diversity group) was self-reported and had a high non-response rate from applicants.^{Footnote 9} Without complete and reliable data, extensive Gender-Based Analysis + (GBA+) could not be performed during the assessment. Furthermore, the testing sample was limited to two years (2016-17 to 2017-18) of the scope period due to a change in system from Cognos to the ATS in August 2018. As none of the applications processed in ATS had been completed at the time of testing they could not be included in the sample.

Statement of conformance

The audit components of the integrated assessment were conducted in conformance with the Institute of Internal Auditor's International Professional Practices Framework and the Treasury Board of Canada Directive on Internal Audit, as supported by the results of the quality assurance and improvement program. The evaluation components of this project have been conducted in compliance with the Policy on Results and related Standard on Evaluation.

Findings

Effectiveness: Performance

The assessment's overall conclusion regarding performance is that the manner in which RM Recruitment is organized and delivered does not adequately ensure the achievement of its goals and objectives. The assessment found that the recruitment process is not guided by an evidence-based strategy, nor does it have a clear mandate and objectives, or a defined governance structure. Furthermore, there are opportunities to improve the timeliness and efficiency of the recruitment process, as well as the integrity of data required to manage the status of applications.

RM Recruitment involves several national and divisional units (e.g., NRP, NRPC, Proactive Recruitment, Health Services, TVS, Security). NRP is the national policy centre for RM Recruitment and the governing policy instrument is the RCMP's Administration Manual Chapter 23 (AM Ch.23).

The assessment found that AM Ch.23 is outdated and does not clearly define the RM Recruitment mandate or governance. Last revised in 2015, AM Ch. 23 includes references to organizational units that no longer exist and activities that are no longer performed. Although AM Ch. 23 summarizes the RM Recruitment process, applicant requirements and activities, it does not clearly define the mandate or outline the roles and responsibilities of each of the units involved in the recruitment process. In addition, the policy does not address the function of proactive recruiters. These observations were confirmed by interviewees involved in the recruitment process, who indicated they do not have defined roles and responsibilities, and that the RM Recruitment mandate is not clearly defined.

While various aspects of RM Recruitment were frequent agenda items at SEC and Senior Management Team meetings that took place during the period covered by this assessment, evidence suggests that RM Recruitment discussions took place in an ad hoc manner. The assessment found no evidence that RM Recruitment is managed through dedicated decision-making bodies or formalized working-level fora across national and divisional units. Furthermore, interviewees involved with the recruitment process indicated there are opportunities to improve discussions and coordination across business lines.

In the absence of a clearly defined mandate, roles, responsibilities, and governance structure, there is a risk that RM Recruitment results will not be achieved.

The assessment found no evidence to suggest that RM Recruitment is guided by a national strategy. NRP interviewees noted that the unit has three objectives: (1) to reduce processing times; (2) to fill 40 troops per year; and (3) to increase diversity among hired applicants (i.e., representation among women, Indigenous persons, and visible minorities). However, these objectives are not formally documented or consistently understood by interviewees involved in the recruiting process. Although RM Recruitment documents reviewed as part of this assessment, such as the Force Generation Costing Project and NRP Multi-Year Plans, frame recruitment activities and costs, they do not identify clear objectives and a strategy to achieve them. Interviewees involved in the recruitment process confirmed that they are not aware of a recruitment strategy.

Without a national strategy that is aligned to organizational priorities and outlines how objectives will be met, there is a risk that RM Recruitment will not achieve intended results. For example, the RCMP's 2013 Gender and Respect Action Plan (GRAP) set diversity targets of 30%, 20% and 10% for female, visible minority, and Indigenous peoples representation in the RM workforce by 2025. During the assessment period, the number of self-identified visible minority (18%) and Indigenous (4%) applicants remained fairly stable, while the number of female applicants declined from 2,167 (18%) in 2016-17 to 1,409 (17%) in 2018-19. This data indicated that RM Recruitment was not effective in supporting the realization of RM workforce diversity objectives.

Additionally, some units involved in the recruiting process reported the need for a national strategy to help guide their work. For example, NCS indicated that without an RM Recruitment strategy that includes clear targets supported by evidence, it is difficult to develop marketing and advertising products that effectively target desired markets.

As part of the RCMP's 2018 Departmental Results Framework, a Performance Information Profile (PIP) was developed for Force Generation, which falls under the Contract and Indigenous Policing (C&IP) Core Responsibility. This PIP includes intended results—"enhance the recruitment approach" and "increase recruitment levels"—and performance indicators for RM Recruitment. However, these results are not well-defined or clearly aligned to C&IP's intended result of "providing agile, effective and efficient contract policing services".

The assessment found evidence that operational and administrative data pertaining to RM Recruitment, such as applicant information and processing times, is being collected. This was confirmed by interviewees, who indicated that recruitment data is being collected through Cognos and ATS. However, during the period covered by this assessment, the PIP had not yet been implemented, and therefore, the PIP indicators were not available nor tested for utility to program managers. Without an implemented PIP to inform data collection, the available data was not being used to measure intended results or determine the overall success of RM Recruitment. As such, valid, reliable, and useful performance information was not available for managing and assessing the efficiency and effectiveness of the program as a whole.

RM Recruitment is constantly evolving to respond to applicants' realities, and to pressures to increase the number of applicants. Thirty major changes have been made to RM Recruitment over the past ten years, including changes to the program structure, the recruitment process, application requirements, and assessment tools (See Appendix A for a detailed list). The assessment examined 15 of the most significant changes. While the NRP reported that seven of these changes were based on research, and that 15 included consultation, there was no evidence to substantiate the research and consultations that directly supported these changes. In addition, NRP reported that ten of the 15 changes did not have a monitoring mechanism in place.

Although not included in the scope, the assessment team was informed that benchmarking against other police forces had taken place in the past. However, there was no evidence that this benchmarking was used to directly inform decision-making or support changes.

Overall, the assessment found that, while RM Recruitment had been undergoing a high pace of change, many changes were not sufficiently evidence-based and often led to unintended consequences. Examples include the following:

• Conditional troop offers: In 2013 a decision was made to institute conditional troop offers to alleviate delays associated with security clearances and meet troop loading targets by allowing cadets to begin training before being granted their security clearance. This decision was reversed in 2016 due to several factors. For example, some cadets who were given conditional troop offers were eventually denied a security clearance and sent home partway through training. In addition to the financial losses and disruptions resulting from these expulsions, concerns were raised that the knowledge acquired by these individuals on police tactics and procedure could be misused.
• RM Selection Interview: To save time and costs, in 2016 the face-to-face RM Selection Interview (RMSI) – a behavioural/situational interview – was removed from the recruitment process. The removal of the RMSI resulted in a gap in assessing an applicant's behavioural and situational acuity. To address this gap, a new right-fit telephone interview was introduced in 2018. Interviewees indicated that while this was a positive step, there was an overall need to expand behavioural-based assessment tools.
• RCMP Police Aptitude Test: The RPAT is a general mental ability test designed to determine an applicant's potential aptitude for police work. An exemption for the RPAT was introduced for university and college graduates in 2015-16; however, the assessment found evidence that suggests these exemptions may warrant further examination. For example, testing found that one of the 38 applicants in the sample failed the RPAT multiple times but was accepted after obtaining a college degree. In addition, interviewees indicated that aptitude testing should be conducted for all applicants.

Changes to RM Recruitment should be evidence-based, assessed to measure results, and take into account cost implications. When process changes are not evidence-based and measured, there is a risk that unintended impacts may not be identified and addressed.

In 2016, the Commissioner set a six-month average processing-time target for recruitment. NRP later revised this target to 12 months. According to RM Recruitment documents, neither of these targets were achieved during the period covered by this assessment.

As part of the assessment, a sample of 38 applicant files were tested to determine average processing times. This analysis confirmed that the six to twelve-month target for processing applications was not being met. The analysis showed that the average processing time, from the date an application is submitted to the date an applicant is troop loaded, was 17 months. In the test sample of 38 files^{Footnote 10} , four files took over two years to process, 11 files took between 18 and 24 months, and 17 files took between 12 and 18 months. Only five were processed in under 12 months.

In addition, processing times for French applications were significantly longer than for English applications. The five French applications included in the sample took an average of 24 months to process, compared to 16 months for the 33 English applications.

The assessment team analyzed the application process to identify reasons for delays. This analysis led to the development of the process map found at Appendix B. An analysis of the process map and RM Recruitment's operating context, resulted in the identification of several inefficiencies, including:

• The process has 15 major steps and over 100 sub-steps. These were performed by eight units across three business lines and all divisions. Most steps were sequential but their initiation depended on the recruitment analysts at NRPC moving the application forward to the next unit. This resulted in wait times between steps, during which no work was being done on applicant files.
• Efficiency is hindered by the high number of employees across the country who are involved in the processing of applications. This includes a large number of contractors responsible for field investigations, PEP examinations, health assessments, and security clearances, who are only available to work a limited number of days per year.
• Units involved in the recruitment process have separate reporting structures and competing priorities. For example, Health Services, DSB and TVS are responsible for other services in addition to RM Recruitment.
• Due to the length of the recruitment process, there is ongoing duplication of effort in certain steps. For example, selection package information is validated several times due to expired documents and/or changes to the applicant's personal information.
• Forms are not easy to complete (for example, many are paper-based or need to be printed, signed and scanned), leading to significant delays at the beginning of the recruitment process. Testing showed that it took an average of 63 days to obtain a complete selection package from applicants.
• Recruitment analysts were using three different corporate systems to record decisions and processing dates. This significantly increased complexity as no one system provided an overall view of the application continuum. At the time of the assessment, a new system (ATS) was being implemented in an effort to consolidate recruitment information.

A February 2019 NRP presentation to senior management reported an 11-month processing target post-ATS^{Footnote 11}. However, there was no evidence indicating how this target would be met, or whether it was reasonable/feasible.

Given the complexity and length of the recruitment process, there is a risk that applicants may withdraw from the process to pursue other career opportunities. Streamlining the process to remove obsolete steps or reduce duplication would help make the recruitment process more efficient, which would in turn assist the RCMP to be more competitive with other police forces.

The RCMP AM Ch. 23 states that applicants should be contacted once per month. This responsibility rests with recruitment analysts at NRPC, who used a "30-day contact" software program to document and track contact with applicants.

File testing showed that compliance with this policy was low. Among the 38 files in the testing sample, 30 were non-compliant, three were compliant, and there was no documentation on file for the remaining five files. Focus group participants reported receiving insufficient and inconsistent communication throughout the recruitment process. Specifically, eight of the ten participants reported being contacted less than once per month.

Focus group participants reported that information about how to prepare for Depot was significantly lacking. All participants indicated that they had to consult alternative information sources (e.g., friends, RMs, Internet) because the information provided by the RCMP was insufficient. This was supported by the document review and file testing, which showed that the Applicant Orientation Package (AOP) was not distributed consistently to all successful applicants. File testing indicated that of the 38 file sample, 19 applicants had received the package, one did not, and there was insufficient documentation to make this determination for the remaining 18 applicants. Additionally, while the AOP provided detailed information, some of this information, such as what to bring to Depot, was outdated.

Given the complexity and length of the recruitment process, if applicants are not kept informed of their application status there is a risk that they may withdraw from the process. The implementation of the ATS may help mitigate this risk, since the system prompts recruitment analysts to contact applicants every 30 days and sends an automated message to applicants every time they move from one major step in the process to another.

Complete and reliable data is required to provide information on the status of applications at any given point in time in order to manage and resolve issues. During the scope period of the assessment, modernization efforts resulted in the implementation of several new systems. Applicant information was kept in paper files (supported by HRMIS) until 2015, in Cognos between 2016 and 2018, and in ATS as of August 2018. While these efforts enhanced the collection of data, they also had a negative impact on data integrity, as legacy data was not moved from one system to the other, resulting in completed application data residing in three separate systems. The fields within the various systems did not capture the same information, preventing the conduct of analysis over time. In addition, data was often contradictory within and between systems (e.g., gender and education data pertaining to the same applicant was at times different in HRMIS and Cognos).

The assessment found that key information, such as information on backlogs and reasons for withdrawal, was not captured in corporate systems. Some information was kept on personal drives, spreadsheets, or in email repositories (e.g., reasons for delays, re-assignment of files) rather than in corporate systems. As a result, it was difficult to assess reasons for delays in, and withdrawals from, the process.

ATS is expected to consolidate recruitment information in one corporate system. This system, however, does not identify reasons for delays. Overall, the assessment team found that ATS does not provide the information necessary to identify and resolve process issues. In order to improve timeliness and resolve issues, complete and reliable data is required.

In summary, the assessment determined that there are opportunities to strengthen RM Recruitment governance, including developing a strategy, articulating clear objectives, and defining responsibilities and accountabilities. There is also an opportunity to review the RM Recruitment process to streamline and optimize it. This could include consideration of alternative delivery models.

Effectiveness: Suitability

The assessment's overall conclusion regarding the selection of suitable applicants is that the absence of clear suitability criteria limits RM Recruitment's ability to effectively target a sufficient number of suitable applicants through marketing, advertising and proactive recruitment. While RM Recruitment should balance the quantity and quality of applicants, the current focus is mainly on quantity. Without clearly defining the type of applicant the RCMP requires, it is difficult to ensure that marketing, advertising and proactive recruitment activities are effective in attracting suitable applicants.

The ability to assess whether applicants have the qualities and attributes required to be an RM has a direct impact on the quality and professionalism of the RCMP. The assessment found that suitability attributes as described in AM CH. 23.10 are not well defined. The policy identifies desirable attributes as "high moral character, a high degree of personal integrity, sound judgment, intelligent decision-making, maturity, common sense, and life experiences". The policy does not include definitions of each attribute or descriptions of what constitutes acceptable behaviour. While AM Ch.23.10 contains a list of immediate disqualifiers, such as convictions of criminal offenses, and essential qualifications such as age and minimum education, it does not define any asset qualifications (e.g., work, volunteer and/or community experience, asset education, knowledge of foreign languages, etc.) to be considered.

Evidence showed that, beyond the policy, there are limited tools to assist in the assessment of suitability. Suitability analysts use a one-page diagram^{Footnote 12} as a guide to assess the significance of applicant information obtained through the Regular Member Applicant Questionnaire (RMAQ), PEP, and Field Investigation in order to determine whether applicants possess the desired qualities and attributes to become RMs. The matrix, however, provides limited guidance and is referred to in the policy as a general benchmarking, rather than a decision-making, tool.

In the absence of clear guidance documents and tools, suitability analysts are required to apply a high degree of judgment in their assessment of suitability. File testing of 38 successful applicants was conducted to determine how suitability attributes were assessed. Testing showed 18 files had one or more suitability flags (see Table 4), but that none of these had documented mitigation strategies despite requirements to do so in AM Ch. 23.10. All 18 of the applicants whose files contained suitability flags were hired. In addition, of the 38 applicants, four had failed the RPAT multiple times, two had failed other police force application processes, and one was previously rejected by the RCMP five times.

The assessment also found that suitability assessments might not have been carried out consistently over time. Data also indicates that, while the number of troops loaded to Depot has increased over the past three years, the number of applicants to the RCMP has decreased. Over the same period the percentage of rejected applicants decreased, suggesting that suitability requirements may have been relaxed (See Table 6). This finding is supported by interviewees, who pointed out that suitability criteria are open to interpretation, and as such a narrow focus on filling troops may encourage a more lax interpretation of the criteria.

As suggested by this evidence, if suitability attributes are not clearly defined and consistently applied, there is a risk that unsuitable applicants will be troop loaded. Clearly defining essential and asset qualifications required of applicants including, but not limited to, work experience, volunteer experience, asset education, knowledge of foreign languages, and community experience would be helpful to determine suitability and benchmark applicants against each other to assess the most suitable. There is an opportunity to better define suitability attributes to ensure that applicants who are best suited to be a police officer are troop loaded to Depot.

Proactive recruiters are a key part of RM Recruitment as they are an applicant's first contact with the RCMP. Proactive recruiters, all of whom are RMs, represent a key part of RM Recruitment, as they are responsible for reaching out to and attracting potential applicants. They attend job fairs, school/university events, sporting events, community centre events, etc. to promote careers within the RCMP. During the assessment, there were a total of 52 proactive recruiters working across divisions. Of these, 40 worked on RM Recruitment full-time, while the remaining 12 had additional responsibilities, such as administering the field coaching program.

Overall, there was no evidence of national guidance for proactive recruiters that outlined clear objectives, defined target markets, the types of events to attend, strategies to attract suitable applicants, and measures of success. While NRP provided proactive recruiters with annual recruitment targets by division, proactive recruiters reported that these targets focused on the volume of applicants rather than their suitability.

In addition, responses by proactive recruiters to a questionnaire administered by the assessment team indicated that most divisions had not developed a formal recruitment strategy or plan. As such, proactive recruiters determined their own schedule of events, often based on events attended in previous years. In addition, proactive recruiters had no common tools to guide their work. They reported having limited training and reliance on learning on the job. National materials, such as presentations, posters, etc. are available; however, the material is outdated and Divisions are responsible to pay for all other promotional materials.

Proactive recruiters prepared quarterly reports to NRP outlining recruitment activities attended and the number of events held. Proactive recruiters in K, D, O and J Divisions reported to their Commanding Officer (CO) the list of events attended, and outlined how they achieved their targets. There was no evidence, however, that these reports were assessed for effectiveness or that feedback was provided.

Given the absence of a national RM Recruitment strategy and the lack of clarity in suitability criteria, it was not possible to specifically assess whether recent advertising campaigns resulted in an increase in suitable applicants.

In the absence of clearly defined suitability criteria, RM Recruitment does not have an advertising strategy targeted at suitable applicants, or a permanent advertising budget. Despite this, evidence showed that paid advertising coincided with an increase in applications. For example, in 2016-17 and 2017-18 there were paid advertising campaigns consisting of television, internet and magazine advertising, at a cost of $1.4M and 1.6M respectively. Directly following these campaigns there was an increase in the number of applications submitted. In contrast, there were no paid advertising campaigns in 2018-19 due to funding constraints, which coincided with a decrease in the number of applications.

The assessment also found that, in the absence of a permanent advertising budget, decisions about RM Recruitment advertising funding were often made late in the fiscal year. Given that recruitment campaigns could only be launched once funding decisions were made, they often ran for short periods at the end of the fiscal year (e.g., two to three months), which limited their effectiveness.

In summary, the assessment found that proactive recruitment activities and advertising campaigns were not guided by clearly defined target markets, and clear direction had not been provided to proactive recruiters. For example, proactive recruiters did not receive training on the most effective ways to recruit or clear guidance on the type of applicant they should be targeting in their recruitment efforts. As the type of applicant the RCMP wishes to attract and hire was not clearly defined during the period covered by this report, the assessment could not determine if advertising, marketing and proactive recruitment activities were effective in attracting applicants that meet the needs of the RCMP.

Efficiency and economy

The assessment's overall conclusion regarding resources is that RM Recruitment is not permanently resourced to meet the 40 troop per year requirement. While a costing model for RM Recruitment has been developed which allows for the estimation of costs, the assessment found that a permanent source of funds dedicated to recruitment has not been established. This may impact RM Recruitment's ability to meet its objectives.

In 2016, the RCMP established the Force Generation Costing Project to support a request for additional funding to compensate for the increased troop load to 40 troops per year. This project included the development of a costing model, in consultation with contract partners. The model allowed RM Recruitment to aggregate recruitment-related costs, and was used to analyze actual and forecasted costs.

The Force Generation costing model developed in consultation with contract partners and negotiated through the Contract Management Committee provided a challenge function to reduce the risk of inaccuracy. The costing model has been used since its development to estimate the annual funding requirements based on the required troop load. The NRP Multi-Year Plan is used to report to contract partners. The assessment was informed that the Force Generation Costing Model is expected to be updated.

The assessment team analyzed select recruitment-related financial data from TEAM to validate recruitment program costs. This included a detailed analysis of advertising cost data to validate reported expenditures as accurate. In addition, expenditures from cost centers N1744 (Suitability Team) and N1735 (Processing Centre, NHQ medical team, and applicant medical costs) were reviewed in TEAM for fiscal years 2017-18 and 2018-19 and were found to be consistent with the costs reported by the program.

A-base funding for RM Recruitment has remained steady at $17M for the past three years, while actual costs have increased by 13% from $23.7M in 2016-17 to $26.7M in 2018-19. When the decision was made by SEC to increase troop loading to 40 troops per year, the intent was to seek additional funding. However, the RCMP has not been able to secure additional permanent funding, and relies on program integrity funding and reallocating funds internally (See Table 7). The reliance on integrity funding, which is confirmed during the year, may impact spending for RM Recruitment.

As part of the Force Generation Costing Project in 2016, it was identified that $32.9M (including 554 FTE resources) would be needed to load 40 troops per year. Annually, RM Recruitment forecasts spending as part of the budget process. The assessment noted that there was a gap between the annual forecasted and actual costs for RM Recruitment. For example, in 2018-19, the forecasted costs were $31.2M and actual costs were $26.7M. The gap was $4.5M, which was primarily due to staffing delays, as reported in the NRP Multi-Year Plan.^{Footnote 18} Similarly, in 2016-17 and 2017-18, the gap was due to staffing delays, as well as the elimination of hearing and vision exam costs, and a building retro-fitting not being completed. Furthermore, the assessment noted that there were gaps between total funding (A-Base and Program Integrity funding) and actual costs for the past three fiscal years. These gaps were absorbed and supported at the organizational level.

The assessment also found that staffing constraints have impacted employee productivity and morale. Interviewees confirmed that the lack of permanent resources had impeded the development and implementation of key strategic documents such as an RM Recruitment strategy, and a proactive marketing strategy.

The assessment determined that RM Recruitment has experienced significant changes to the process and organizational structure since the costing model was established in 2016. The assessment also identified areas to enhance the effectiveness and timeliness of the recruitment process. There is an opportunity for RM Recruitment to identify the activities that need to be undertaken to improve the recruitment process; determine the level of permanent funding required for these activities; and subsequently update the costing model to reflect these changes.

Conclusion

The assessment found that the manner in which RM Recruitment is organized and delivered does not adequately ensure the achievement of its goals and objectives. Specifically, RM Recruitment is not guided by an evidence-based strategy, clear mandate and objectives, and a defined governance structure. In addition, the RM Recruitment process is not timely and efficient and is not supported by quality data that enables the effective management of applications.

The assessment also found that the absence of clear suitability criteria limits RM Recruitment's ability to effectively target a sufficient number of suitable applicants. Without these, it is difficult to ensure that proactive recruitment, marketing and advertising activities are effective. In addition, in the absence of clearly defined suitability criteria, RM recruitment focuses on the quantity of applicants with less focus on the quality of applicants.

Finally, the assessment found that RM Recruitment is not permanently resourced to meet the 40 troop per year requirement.

Recommendations

Based on the results of this integrated assessment, IAER recommends that the CHRO, in consultation with the appropriate stakeholders, lead the implementation of the following:

1. Strengthen the RM Recruitment governance structure to clarify roles, responsibilities and accountabilities, and improve communication. Governance should be supported by an updated recruitment policy.
2. Develop and implement a comprehensive national RM Recruitment strategy that incorporates GBA+ and includes clear goals and objectives, as well as monitoring and reporting mechanisms. This should include proactive recruitment, marketing and advertising.
3. Review and implement the Force Generation Performance Information Profile to enable ongoing measurement and monitoring of results and support evidence-based decision-making.
4. Review the RM Recruitment process to identify opportunities to increase timeliness and efficiency. This could include consideration of alternate delivery models.
5. Ensure the data contained in the various systems related to RM Recruitment is consistent and reliable.
6. Define the attributes of suitable applicants and provide tools to ensure that suitability assessments are conducted consistently.
7. Develop tools, training and materials to guide proactive recruitment to ensure that efforts are aligned and targeted to attract a sufficient number of suitable applicants.

Management response and action plan

Management response

Senior officials responsible for the Regular Member National Recruiting Program reviewed the Integrated Assessment and accept the findings and recommendations proposed by Internal Audit, Evaluation and Review. These recommendations will serve as a catalyst to modernize the current program and help in achieving the RCMP's strategic outcome of a safe and secure Canada, through the delivery of trained and operational RCMP Regular Members.

Action plan

Appendix A – Major changes to RM recruitment

The 15 major changes examined by the assessment team are highlighted in bold.

Changes to the organizational and program structure:

• 2004: Establishment of the lateral entry program
• 2006: Establishment of the NRP as a policy centre
• 2012: Establishment of the NRPC in Regina
• 2013: Establishment of the Experienced Police Officer Program
• 2014: Establishment of the Final Application Status Tracking (FAST) team
• 2014: Establishment of appeals process
• 2015: Establishment of the Aboriginal Applicant Mentorship Program
• 2016: Opportunity for applicants from E, K, F and D Divisions to select their home province for their first posting
• 2016: Decision to increase troops to 40 per year
• 2017: Establishment of the Business Intelligence Unit
• 2017: Pilot to centralize medical assessments at NHQ
• 2017: Transfer of the Aboriginal Applicant Mentorship Program to National Aboriginal Policing Services (in C&IP)
• 2018: Pilot of the Enhanced Training of Francophone Troop.^{Footnote 19}

Changes to the process:

• 2013: Granting of conditional troop offers
• 2016: Electronic intake of applications and forms
• 2016: Implementation of Cognos
• 2016: Removal of conditional offers
• 2018: Implementation of ATS
• 2018: Decision to start the security clearance stage once medical has been completed
• 2018: Acceptance of "Significant Reactions" during the PEP
• 2019: Pilot to send unilingual French applicants for a 13 week intensive English language training prior to going to Depot
• 2019: Pilot to implement Eye Detect technology as a way to supplement the PEP

Changes to application requirements:

• 2013: Removal of mandatory requirement for applicants to attend a career presentation
• 2015: Requirement for applicants to complete hearing and vision exam before applying
• 2016: Acceptance of applicants who are permanent residents of Canada

Changes to the assessment tools:

• 2015: Requirement for applicants to pass PARE before applying
• 2015: Exemption of RPAT for applicants with university degrees
• 2016: Exemption of RPAT for applicants with a college diploma
• 2016: Removal of PARE requirement before applying
• 2016: Removal of RMSI (face-to-face interview)
• 2018: Establishment of the Right-Fit interview

Appendix B - RM recruitment process map

Acronyms and abbreviations

AM CH.23

RCMP Administration Manual, Chapter 23

AOP

Applicant Orientation Package

ATS

Applicant Tracking System

CO

Commanding Officer

C&IP

Contract and Indigenous Policing

DA

Data Analytics

DSB

Departmental Security Branch

DSS

Departmental Security Section

FTE

Full-Time Equivalents

GBA+

Gender-Based Analysis +

GRAP

Gender and Respect Action Plan

HRMIS

Human Resources Management Information System

IA

Internal Audit

IAER

Internal Audit, Evaluation and Review

NCS

National Communication Services

NHQ

National Headquarters

NPES

National Program Evaluation Services

NRP

National Recruiting Program

NRPC

National Recruitment Processing Center

OBCF

Operating Budget Carry Forward

PEP

Pre-Employment Polygraph

PIP

Performance Information Profile

PSRS

Public Service Resourcing System

RM

Regular Member

RMAQ

Regular Member Applicant Questionnaire

RMSI

Regular Member Selection Interview

RPAT

RCMP Police Aptitude Test

SEC

Senior Executive Committee

SPPD

Strategic Policy and Planning Directorate

SPS

Specialized Policing Services

TEAM

Total Expenditures Asset Management

TVS

Truth and Verification Services

Date modified:

2020-09-28