Employee Assistance Programs
Consultation Report
Royal Canadian Mounted Police
External Review Committee
Chairman
Honourable René J. Marin, O.M.M., Q.C., LL.D.
Vice-Chairman
F. Jennifer Lynch, Q.C.
Members
Joanne McLeod, C.M., Q.C.
William Millar
Mary Saunders, Q.C.
The Committee is publishing a series of discussion
papers to elicit public comments to assist the Committee in the formulation of
recommendations pursuant to the Royal Canadian Mounted Police Act (1986). The views
expressed in this paper are not necessarily the views of the Committee.
Comments are invited; they should be addressed to:
Simon Coakeley
Executive Director
RCMP External Review Committee
Postal Box 1159
Station 'B'
Ottawa, Ontario
K1P 5R2
FAX: (613) 990-8969
Other publications
Discussion paper 1
Suspensions - A Balanced View
Suspensions - Consultation Report
Discussion paper 2
Relocation - A Painful Process?
Relocation - Consultation Report
Discussion paper 3
Medical Discharge - A Police Perspective
Medical Discharge - Consultation Report
Discussion paper 4
Post-Complaint Management - The Impact of Complaint Procedures on Police Discipline
Discussion paper 5
Employee Assistance Programs - Philosophy, theory and practice
Discussion paper 6
Disciplinary Dismissal - A Police Perspective
FOREWORD
The fifth discussion paper published by the RCMP
External Review Committee entitled "Employee Assistance Programs - Philosophy, theory
and practice" was distributed for consultation in October 1990 to several federal and
provincial government agencies, federal, provincial and municipal police forces and
selected Canadian corporations.
The Committee thanks the many respondents who took
time to comment both on the issues raised in the discussion paper and on their varied
experiences with employee assistance programs. Their substantive and informative comments
were extremely valuable to the Committee. As previously, all comments published in this
report remain anonymous.
In the Committee's continuing research program, work
is currently underway on four discussion papers on off-duty conduct, principles of
sanctioning, special events and the evolution of police management.
Simon Coakeley
Executive Director
RCMP External Review Committee
EMPLOYEE ASSISTANCE PROGRAMS
CONSULTATION REPORT
1. Consultation
(a) Method and Objective
In preparing the report on its fifth research topic, Employee
Assistance Programs - Philosophy, theory and practice, the External Review Committee
has continued to use an approach consisting of two phases.
The first phase consists of the preparation of a
study by a consultant, following which the Research Directorate of the Committee produces
a discussion paper dealing with issues raised by the consultant.
The second phase of the process is a report on the
views, ideas and impressions of a predetermined readership on the contents of the
discussion paper. In order to preserve confidentiality, the sources of quotations remain
anonymous. The role of the Research Directorate of the Committee in these consultations is
to gather feedback on the form and content of the discussion paper and to complete its
comparative analysis of the issues discussed. As well, it may be presented with models or
options other than those presented in the discussion paper.
To gather the material for this consultation report,
the Committee consulted the Deputy Attorneys General and Deputy Solicitors General of the
provinces and territories, the Commissioner of the RCMP and the National Executive of the
RCMP's divisional staff relations representatives. A large number of police forces, as
well as a representative number of members of the Canadian Association of Chiefs of Police
and the Canadian Police Association, were also consulted. In the federal sector, the
Committee also sought the views of the Public Service Commission, the Department of
National Defence and the Department of the Solicitor General. Selected Canadian
corporations were also canvassed for their views or comments. In all, 165 individuals and
organizations, representing both employers and employees, were provided a copy of the
discussion paper for consultation purposes.
As with other reports, the Committee did not limit
its consultation solely to police organizations as this would have limited the variety of
responses and ideas. It was important to get feedback from all types of organizations to
broaden the views explored in the paper.
(b) Response Rate
In publishing its series of research papers, the
Committee is attempting to stimulate discussion, not to take a position on the issue.
Because of this, when research is conducted on a problem touching many police forces, the
material will not meet the objectives of all forces at all times. As a result of this, the
rate of responses varies considerably from paper to paper, as does the amount of detail in
the replies.
The response rate in this consultation process was
very high. By January 1991 there had been 42 respondents out of the 165 to whom the
discussion paper was sent. This overwhelming response rate can only indicate a very high
interest level in employee assistance programs as well as a commitment to programs of this
nature.
While the responses varied considerably in the amount
of detail provided, many had substantive comments to make on the subject. As well, the
sources of the comments covered a wide range. Responses were received from the RCMP,
provincial police forces, municipal police forces, provincial government officials, as
well as senior officials in federal departments. The senior levels of many of those
replying indicates that there is support for employee assistance programs from the top
down.
Response figures were as follows:
| Organization |
Percentage of Respondents |
Government |
|
|
Federal
Provincial
Municipal |
19%
11.9%
2.4% |
Police
|
|
Commissions
Forces
Members' Associations |
2.4%
61.9%
0.0% |
Private sector |
2.4% |
(c) General Comments
The comments received during the consultation process
are a great source of information not only to the Committee but to police forces as well.
Both the Committee and the police community benefit
from the views of others on the issues. It is valuable to share in the views of other
police forces, as well as those from government departments or the private sector.
The Committee received a large number of general
comments on the paper. Many of those who wrote referred to the overall quality of the
discussion paper.
I found the Committee's report to be a very professional and well written
document which represented the E.A.P. movement and of course Police Community E.A.P. in a
positive educational manner.
-------------------------------
It is immediately apparent from this paper that an immense amount of work
has been accomplished by your committee, and I offer you my congratulations.
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The Discussion Paper is a comprehensive and well researched document....
The document provides a solid foundation on which to build.
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It is a highly comprehensive document that very interestingly presents
the problems surrounding employee assistance programs (EAP).
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I would like to emphasize that I fully agree with the findings of the
report which suggest a need to take a more preventive approach; the fact that certain
organizations are more likely than others to create and perpetuate problems necessarily
implies that EAPs must be provocative, and that, very often, a person can be treated only
light of the work environment.
-------------------------------
I found it to be very informative in an easy to read
format.
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I found it well written, comprehensive and easily
understandable.
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I commend the Committee's report for its thought provoking content and
thoroughness.
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The report is an excellent overview of Employee Assistance Programs and I
agree with the findings.
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As usual, I am impressed with the objective and wide-ranging approach
given the topic.
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We consulted this report with great interest.
A large number of the general comments made reference to
the interest generated by the paper and the information the reader gained from it.
Your paper gives me a much better understanding of the role of such a
program.
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I must say, first of all, that this Discussion Paper provides a very
comprehensive overview of Employee Assistance Programs. It is well researched and contains
a lot of valuable information....
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... a comprehensive document which addresses the critical issues of
commitment, confidentiality, professional resources, training, accessibility by family
members and evaluations. They also noted that the picture painted of these programs, the
obstacles to their implementation, their limits and advantages to organizations is
realistic.
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Your report ... was most enlightening and addresses many of the concerns
found throughout today's policing services.
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The paper provides a useful background on employee assistance programs
which will no doubt be of particular interest to those who are involved in police
management issues.
In addition to being invited to offer views on the
discussion paper, those consulted were invited to comment on employee assistance programs
in their organizations and the Committee received extremely useful information from many
respondents based on their experiences.
Overall our experience with the E.A.P. has been favourable. In many
instances, the program has helped members through major crises or personal problems. As
such, a number of employees have been able to remain as productive workers, where
otherwise they would have become marginal performers. This is significant in a union
environment, since the dismissal of problem employees is difficult, if not impossible.
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It is our belief that the E.A.P. has had a positive effect on staff
health issues.
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I strongly endorse the use of E.A.P.'s in police organizations as our
experience has shown that these programs are not only cost effective financially but in
human terms as well.
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... many managers have underlined the positive impact of the EAP. They
have noted that the program was of real benefit to people with problems and enabled them
to perform effectively at work. Unions and employee associations encourage their members
to use the EAP and actively promote the program.
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The credibility and image of our program has improved over several years,
and we are pleased that these services are now used on a regular basis. It provides a
positive effect for many of our members and also contributes to the overall esprit de
corps of our employees.
One respondent recommended the creation within
organizations of a separate program tailored for senior executives.
... very few managers make use of these programs even if contracted out
for a number of reasons including a concern of perception, confidentiality, fear of
meeting an employee on his/her way out of counselling etc The problems of stress,
alcoholism, burn out, family/career issues, career changes, among others, certainly affect
these managers and the employees they supervise and consequently have an impact on the
entire organization ... recommend that the discussion paper addresses this specific issue
and examines options to overcome the situation. One possibility may be having an EAP
tailored specifically to the senior executives and their needs.
The Committee was pleased to receive these practical
views on the value of employee assistance programs within the police community, and in
government departments; it is particularly encouraging that so many police forces see
great value in having such programs in their forces. Sincere praise is due to police
forces which have committed themselves to assistance programs for their employees.
Respondents expressed interest and appreciation for
the opportunity to receive the Committee's research paper on employee assistance programs
and to participate in the consultation process and most continue to be interested in
taking part in any future studies and in remaining on the Committee's mailing list.
2. Commentary on Content
Respondents recognized the value of the paper as a
guide providing useful information for those in the process of establishing employee
assistance programs within their organizations or those who wish to evaluate existing
programs.
... your Committee's fifth discussion paper is an excellent document and
could serve as a guide to any agency endeavouring to implement such a program.
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Your research on the models, approach and scope, as well as the
limitations and challenges, of the employee assistance programs is very realistic in the
Canadian Context. Companies considering the establishment of such a program can most
certainly draw inspiration from your work. Congratulations on a job well done!
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Your discussion paper will become a valuable tool to assist us in
developing an employee assistance program and I look forward to receiving your
consultation report based on your analysis of views you receive from the police community.
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In my view, any organization researching the feasibility of an E.A.P.
would find the paper of great assistance.
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We have forwarded ft to our E.A.P. co-ordinator as a reference booklet.
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The information provided by your discussion paper will prove useful in
evaluating our programs.
(a) Models for EAP
A number of respondents commented specifically on the
chapter dealing with models for employee assistance programs. Some commented generally on
the value of this chapter.
In particular, the section on "Models for E.A.P." was very
interesting. These guidelines would have been most helpful when our program was being
developed.
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This research is very thorough and highlights some very important facts
about assistance programs. The inventory of the various approaches and models used makes
ft possible to compare our experience with that of other organizations.
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... an objective and realistic paper. They were very pleased to see the
neutral position taken by the writer with regard to the comparison of the different
programs found within the international E.A.P. Community.
Others had more specific comments on the ideas in the
chapter, based on their own experiences. Most deal with adaptations made to the basic
models to suit their own organization's own particular needs.
We agree with your ideas in Chapter Three concerning various dimensions
of EAP models. Our Employee Assistance Program is a broadbrush program that provides
assessment and immediate short term counselling by provincial government employees,
followed by referral and follow-up .... As your Paper suggests in Section 3.1, we often
have to adapt our Program to suit the special circumstances of clients, such as
geographical location.
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We agree with your contention in 3.6 that ft is possible for Labour
Unions to effectively administer an EAP, either directly or through co-operation with
management. We feel that, without full-time co-operation between labour and management, it
would be much more difficult to implement and administer an effective program.
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Since all models of the E.A.P. are governed by the same rules and
confidentiality, we are not of the opinion that one model can deal more effectively with
the issues than another.
On the subject of the individuality of employee
assistance programs within organization, there was also useful information on the
specifics of how elements within certain programs differed from the common elements
described in the paper.
With respect to comments made on page 14 of the discussion paper,
moreover they tend to concentrate on medical referrals and on alcohol related problems,
referring to in-house services. We do not agree with this opinion in light of our
experience.... Our organization indicates less than 10% alcohol problems.
Such examples reinforce the importance of tailoring
employee assistance programs to the organizations for which they are being designed, not
simply adopting and applying one of the models described in the paper.
(b) Implementing, Maintaining and Evaluating an EAP
In relation to the chapter on implementing,
maintaining and evaluating an EAP, there were a number on comments on specific elements of
the text. Most related the ideas in the text to experience within their own programs.
The drawbacks, as identified within the paper, are well founded,
particularly with regard to the company not being experienced with the workplace.
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The other problem I would like to identity is the short term counselling
provided by most contracted service providers. I have found ft necessary to build in a
contingency within the Budget to provide for intense professional counselling, when
required....
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Missing from your list of key ingredients in Section 4.5.1 on page 21 is
any direct mention of adequate resources, unless this is presupposed in the
"support" demanded of top management and Union and/or unless it is implied in
"insurance involvement".
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In reference to "Teamwork" as stated in section 4.5.1, the
existence of an active joint EAP (labour/management) committee would be the best way to
ensure that this teamwork existed.
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We do agree that EAP's are cost-effective (section 4.6). In large
organizations, however, ft is difficult to acquire data to convincingly back this up, as
you touch on in 4.6.1.
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Some may take exception to the last sentence in 4.6.3. It can be argued
that EAP's are here to stay, given the basic soundness of the concept. The fact that they
have been increasing steadily in North America and elsewhere over the past 25 years ...
testifies to this.
We hope that such comments will provide those
considering the establishment of an employee assistance program with additional issues to
keep in mind when tailoring a program to suit their organizations' needs.
(c) Job-Based Programs in the Police Force
There were a few comments on specific elements
relating to the chapter on job-based programs in the police force. One comment dealt
simply with the terminology used, but others suggested important elements which should be
included in employee assistance programs for police forces.
On page 29, paragraph 3, the term "policemen" is used. It is
our practice to have both male and female officers as peer counsellors, therefore, you may
wish to alter that terminology.
Secondly, with respect to page 31, item #3, psychological testing, in our
view, would be most beneficial during transitional periods in a police officer's career.
Such periods should include but not be limited to promotions, transfers or changes in
assignments which demand substantially different roles.
(d) Problems with EAPs
In addition to deciding the elements to include in an
employee assistance program, it is also important to decide how active a role that program
should be allowed to play within the organization. As these following comments indicate,
this is an element that will vary with the nature of the organization.
... para 6.1 sets out contemporary EAP problems and alludes to treatment
rather than cause, and a reactive and not a proactive focus. This ties in with a comment
made at para 2.3.2 that EAP activities are now moving towards a preventive strategy. This
gives me some personal difficulty.... While the referral role of EAP is one I can support,
I would be reluctant to see EAP referral agents being in my office as advocates....
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The discussion paper summarizes very well the state of the Employee
Assistance Program (EAP) industry in the workplace. It recognizes some of the difficulties
in agreeing on the best EAP for a particular industry.
3. Additional Material on Subject
One respondent recommended the following additional
literature on the subject:
- "Women in Canadian Urban Policing: why are they
Leaving?" (1989), Belinda M. Crawford and Dr. C. Stark-Adamec, University of Regina;
- "Predictors of Attrition Among Officers in Canadian
Urban Police Forces" (1989), Belinda Crawford and Dr. C. Stark-Adamec, University of
Regina;
- "Stress and Police Work", a report prepared in 1978
for the Ontario Provincial Police Association by Peat Marwick and Partners.
Another respondent mentioned gaining greater
information relating to Canadian police experience with employee assistance programs by
looking at the following:
- RCMP - Member Assistance Program;
- Metropolitan Toronto Police Force
- Employee Assistance Program,
- Critical Incident Stress (C.I.S.): Response Team;
- Ontario Provincial Police - Employee Assistance Program;
- Windsor Police - Peer Counselling Program;
- Ontario Law Enforcement - Stress Association.
4. Conclusion
The following comment received by the Committee
echoes one of the important messages in the discussion paper:
... we fully support the position the EAPs lead to a double-winning
position: furthering organizational effectiveness and enhancing employees' well-being
without being a panacea.
This and other comments provided to the Committee both
reinforce and amplify the views put forward in the discussion paper, and provide equally
useful information for the readership.
Comments received indicate that there is great
interest in and general support for employee assistance programs within the police
community and in government departments. They indicated that there is a huge variance in
the degree to which police forces across the country have established employee assistance
programs within them. For those who are just now embarking on such programs, it is hoped
that the discussion paper and consultation report will assist them in that endeavour.
Respondents generally reinforced the view expressed
in the discussion paper that employee assistance programs should be tailored to suit the
organization within which it is being established, and that careful attention should be
paid to the unique characteristics of that organization.
To reinforce this, we have seen that the elements
causing problems to organizations establishing employee assistance programs have varied as
greatly as the organizations themselves: ensuring adequate resources, problems with
short-term counselling by contracted service providers, difficulty in acquiring data to
convincingly back up cost-effectiveness.
As well, we have seen the same variety in the mention
of elements seen to be of key importance in establishing an employee assistance program:
teamwork between labour and management, the establishment of a separate program for senior
managers and adaptability of the program to suit special circumstances for clients.
While respondents see that there are problems and
complications in the establishment of employee assistance programs, none seem to doubt the
value of such programs. Those with established programs in their organizations are now
seeing the positive results of their efforts, while in some cases acceptance of the
programs by employees took a considerable length of time.
While some respondents spoke of interest in
establishing employee assistance programs, others spoke of how the image of their programs
has improved over the years and of evaluating existing employee assistance programs. This
is an important element in ensuring that the needs of the organization and the employees
continue to be met. An important aspect of this is the continuing support of both
management and labour, as has been pointed out by a number of respondents.
Conclusions which can be reached on the basis of the
respondents' views are the following:
- There is general agreement on the value of employee assistance programs, both for
furthering organizational effectiveness and for enhancing employees' well-being.
- There are still many questions and issues which remain to be sorted out by organizations
establishing programs for their employees; however, it is generally agreed that the
benefits outweigh the problems and obstacles.
- It is important for organizations to look at the available models of employee assistance
programs to assess the services available within each model, then to make a decision on
which segments of these models will suit their own specific needs and those of their
employees.
- Ongoing evaluation and adjustment are important to ensuring continued effectiveness and
continued support by both management and labour.
This consultation process based on the discussion
paper on employee assistance programs has been designed to promote the discussion and
communication of views on this important human resource management issue within the police
community.