street checks

Justice Tulloch Recommends Police Abolish Random Carding

Written on Behalf of Affleck & Barrison LLP

A new report entitled “Report of the Independent Street Checks Review“, completed by Ontario Appeal Court Judge Michael Tulloch, calls for a complete ban on “carding” by police throughout Ontario.

The report, which was commissioned by the previous Liberal government, came about following consultations with more than 2,200 individuals including representatives from 34 Ontario police services. The report specifically advocates for the widespread ban on carding. Carding has been shown to disproportionately target individuals of colour, including black and indigenous people.


Carding can be described as a street check where police randomly stop an individual to ask for identifying information in an effort to keep it in a police database.

This practice is considered unacceptable as the police do not have the authority to randomly or arbitrarily stop individuals and ask them to produce ID.

The practice of carding began in Toronto in 1957 when street checks were aimed at obtaining information on persons of interest to help detectives. Toronto police were given “Suspect Cards” to document and forward information regarding persons of interest to detectives. By 2015, this practice was formally called “Community Engagements”, and involved random stops of citizens and the collection of personal information, including physical appearance, address, and contact information. As time passed, investigative street checks expanded and police were given more discretion to stop people, including those who were not acting suspiciously. These street checks became a measure of police officer performance and they were incentivized to meet required quotas, with the bar for suspicious behaviour becoming lower and lower, and eventually dropped entirely.


In 2016, the Liberal government implemented Ontario Regulation 58/16 under Ontario’s Police Services Act , which became effective January 1, 2017, to regulate carding.

Regulation 58/16 was aimed at stopping arbitrary carding practices by police officers, especially those based on race, and to clarify the rules surrounding street checks. Race is prohibited as constituting any part of a police officer’s cause for trying to collect an individual’s identifying information.

According to the Regulation, police officers were to inform those individuals randomly stopped that their participation is voluntary. It was also specified that officers were required to provide a receipt of the interaction.

Regrettably, Regulation 58/16 has been described as confusing and convoluted and often results in police officers avoiding street checks entirely to avoid accusations of racism for misinterpreting the regulation.

According to Justice Tulloch:

The improper practice of random carding led to the Regulation. The Regulation led many police officers to not conduct any street checks, whether improper or not. The lack of any street checks at all might have encouraged some types of crime to increase. 

The Regulation as it is drafted is a confusing and somewhat convoluted document to read. It was perceived by most stakeholders through my consultations – police and community members alike – as being too complicated and hard to follow. They felt it was written for lawyers, not police officers or community members. They wanted it to be simplified. Even lawyers who I have consulted with agree.


Following his extensive review, Justice Tulloch has concluded that police should not engage in carding or performing random street checks based on race alone or stopping people in order to fill a quota.

 According to Justice Tulloch,

There is little to no evidence that a random, unfocused collection of identifying information has benefits that outweigh the social cost of the practice. … Given the social cost involved with a practice that has not definitely been shown to widely reduce or solve crime, it is recommended that the practice of randomly stopping individuals to gather their identifying information for the creation of a database for intelligence purposes be discontinued.

Justice Tulloch did acknowledge that street checks are useful in cases where there are suspicious circumstances, or when police need to identify the identity of a missing person or crime victim.

Justice Tulloch, in his report, provided 104 recommendations on how to improve Regulation 58/16. He has recommended that the government take a harder line on street checks, that definitions such as “identifying information” and “suspicious circumstances” be tightened up, and that protections during vehicle stops be broadened. He has also suggested better police training in order for officers to understand the difference between legitimate street checks and illegitimate carding.  Justice Tulloch also recommended standardized data collection of police interactions and more local hiring.

It is uncertain, at this time, whether any of these recommendations will be implemented by the current Ontario Conservative government.

In response to Justice Tulloch’s report, Community Safety and Correctional Services Minister Sylvia Jones stated:

We continue to review and assess the recommendations made by Justice Tulloch. His report will inform our work, as we fix the Liberal’s broken police legislation. Our new police legislation will reflect a simple principle: racism and discrimination have no place in policing. You can count on us to ensure that our legislation enables police to protect the law-abiding people of Ontario.

We will continue to follow any developments regarding Justice Tulloch’s report as they become available, and will provide updates in this blog.

In the meantime, to speak with an experienced criminal defence lawyer about any charges laid against you or your legal rights, please contact Affleck & Barrison LLP online or at 905-404-1947. We offer a free consultation and are available to help you 24 hours a day, 7 days a week.


Ontario’s New Carding Policy: What the New Rules Mean for You

Written on Behalf of Affleck & Barrison LLP

After significant public outcry, Ontario has banned the practice of carding, also known as “street checks”. As of January 1, 2017, police in Ontario must follow new rules about when and how they can ask people to identify themselves, in certain circumstances.

New Rules for Identification

A new regulation prohibits police officers from collecting identifying information “arbitrarily” (i.e- based on a person’s race or a person’s presence in a high crime neighbourhood or area, among other factors).

The Minister of Community Safety and Correctional Services has stated that the regulation was drafted following consultations with the public on how to improve confidence and trust in the police:

These new rules protect the rights of people who are not under investigation while also laying the foundation for more positive, trusting and respectful relationships between police and the public

When Do the New Rules Apply?

The new rules will apply if an officer asks you to identify yourself while the officer is:

  • Investigating suspicious activities
  • Gathering intelligence
  • Looking into general criminal activity in a community.

This will not apply if the officer is:

  • Talking to you during a traffic stop
  • Arresting or detaining you
  • Executing a warrant
  • Investigating a specific crime

What Does This Mean for People Who Are Stopped by Police?

Now, if an officer asks you for ID in a situation where the rules apply (see above), the officer must:

  • Have a reason for asking for your ID
  • The reason cannot be:
    1. Based on race
    2. Arbitrary (i.e- have no meaning)
    3. That you are in a high-crime area
    4. Because you walked away or refused to answer a question
  • Tell you why they want your identification
  • Tell you that you can refuse to provide your identification
  • Offer you a receipt (even if you refuse to share information)
  • The receipt must include:
    • The officer’s name
    • The officer’s badge number
    • Information about how to contact the Office of the Independent Police Review Director (OIPRD), which is responsible for handling complaints about the police in Ontario
    • Information on who to contact in order to access the personal information that the police has on file about you
  • Keep a detailed record of their interaction with you (even if you refuse to share information)

Exceptions to the Rule

There are some limited exceptions to the new rules. If following the rules negatively effects an investigation, threatens public safety, or forces officers to reveal confidential information, police officers may not have to:

  • Tell you why they are asking for your identification (i.e.- if the officer is speaking to you because they have received a tip from a confidential informant)
  • Tell you that you have a right to refuse to give you identification (i.e.- if the officer suspects that a passenger in your vehicle might be a victim of human trafficking)
  • Provide you with a receipt (i.e.- if the officer receives an urgent call requiring their attention and must quickly end their interaction with you).

In any such instance where the new rules are not followed, the officer must record their reasons for not following the rules.

We will continue to follow developments with the new rules and what they will mean in practice for those interacting with the police and will update our readers as necessary.

In the meantime, if you have questions about your rights, or interactions with the police, or if you have been arrested or charged with an offense, schedule a free consultation with one of our knowledgeable and experienced Oshawa lawyers. We have 24-hour phone service for your convenience. contact our office online or at 905-404-1947.