UWPD External Review Findings and Recommendations · UWPD External Review – Findings and...

EXTERNAL REVIEW OF THE

UNIVERSITY OF WASHINGTON POLICE DEPARTMENT

FINDINGS AND RECOMMENDATIONS

REPORT

April 30, 2019

Change Integration Consulting, LLC

UWPDExternalReview–FindingsandRecommendations 1

EXTERNALREVIEWOFTHE

UNIVERSITYOFWASHINGTONPOLICEDEPARTMENTFINDINGSANDRECOMMENDATIONSREPORT

I. IntroductionOnSeptember13,2018,agroupofUniversityofWashington(UWortheUniversity)PoliceDepartment(UWPDortheDepartment)SergeantsandaLieutenantsubmittedalettertotheUWBoardofRegentsoutliningtheirconcernsaboutUWPDleadership.1Toaddresstheissuesraised,UniversityPresidentAnaMariCauceandDenzilSuite,VicePresidentforStudentLife,determinedthatanindependentthirdpartyshouldconductanassessmentoftheDepartment,reviewingthefollowingfiveareas:

• Efficacyofleadership• Organizationalstructure• Resourceallocation• Employeerecruitment,selection,andretentionprocesses• Overallculture

TheUniversityretainedareviewteam(theteam)withdeepandbroadexperienceinlaw;policemanagement,systems,policy,training,operations,laborrelations,andcommunityrelations;stateandlocalgovernmentmanagement;publicsectorsystemreform;andorganizationalassessmentandchange,leadership,andexecutivecoaching,toconductthereview.2TobetterunderstandUWPDpolicies,processes,andstructure,andtoassesstheorganizationalhealthofUWPD,thereviewteamgatheredinformationthroughreviewofdocuments,interviewsconductedwith68currentandformeremployeesofallranks,aswellasexternalstakeholders,andadepartment-widecultureandleadershipsurvey,towhich90%ofUWPDemployeesresponded.Byidentifyingmajorthemesacrossmultipledatasources,theteamsoughttodiscernwaystheDepartmentisfunctioningwellandwherethereappeartobeperformancechallenges.ThedocumentsreviewedbytheteamincludedtheletterofconcernssubmittedtotheBoardofRegents;ChiefVinson’smemoranduminresponse;sampleInternalAffairsinvestigationsmemoranda,trainingrecords,budgetrecords;UWPD’swebsite;twoUWPDstrategicplans;UWPDorganizationalstudiesandemployeesurveysconductedin2001,2003,and2007;uniongrievancesandcomplaintsinvolvingUWPDreviewedbythePublicEmploymentRelationsCommission;

1SixcurrentPatrolSergeants,oneformerPatrolSergeant,andoneLieutenantsignedtheletter,allmembersoftheWashingtonFederationofStateEmployees(WFSE)BargainingUnit.2Thereviewteamconsistedof:KathrynOlsonandJeffPetee(ChangeIntegrationConsulting,LLC),2Thereviewteamconsistedof:KathrynOlsonandJeffPetee(ChangeIntegrationConsulting,LLC),JudgeAnneLevinson(ret.),andChiefDeputyJimPugel(ret.).


commissionedandnon-commissionedjobpostings;materialsfromChiefVinson’sbackgroundpriortohistenureasUWPDChief;UWPD’smostrecentCALEAassessment;humanresourcesinformation;andotherwrittenmaterials,someofwhicharespecificallyreferredtobelow.Totheextentallowed,interviewswereconductedconfidentially,toencourageintervieweestobecandidandallayfearsofsomethatparticipationcouldresultinrepercussions.Theteamreachedoutbroadlytoencourageemployeesofallrankstobeinterviewed,andtoaskthemtoletothersknowtheycouldcontacttheteamdirectlytoscheduleaninterview.Asnotedabove,thisledtotheteaminterviewing68individuals,manymorethanoriginallyanticipated.Meetingwithnearlyeverypersonwhosoughtanintervieworwassuggestedassomeonewithrelevantinformationallowedtheteamtobeinclusiveandthoroughinitsreview.Inordertomaintainconfidentiality,theteamdoesnotdetailallofthespecificincidentsandcommentssupportingthefindingsinthisreport,butinsteadhighlightstheconsistentthemesthatemerged.Theteamusedallofthedetailprovidedtoittoidentifyconsistentexperiencesandperspectivespriortoreachinganyconclusionsabouttheissuesunderreview,andinadditiontopreparingthiswrittenreportsharedadditionalpersonnel-relatedinformationverballywithUWadministrators.ThoseinterviewedincludedcurrentandformeremployeesatalllevelsofUWPD–executiveleadership,seniormanagement,commissionedandciviliansupervisorystaff,officers,detectives,analysts,communications,dispatch,supportstaff,securityguards,andothers.CommunitystakeholderinterviewswereheldwithadministratorswhohadthemostcontactwithUWPD,studentleaders,andregionallawenforcementpartners.Interviewstypicallylastedaboutonehour,wereheldinpersonandbyphone,andincludedafewsmallgroupmeetings.Thecultureandleadershippracticessurveyincluded64questionstohelpmeasureemployees’personalengagementwiththeirjobs,workclimate,executiveleadershipandsupervisorypractices,communicationintheDepartment,selectionandretentionprocesses,andtraining.Thesurveyalsorequestedthatrespondentsidentifywhichof8categoriesbestfitthejobroletherespondentfillsatUWPD.3Spacewasprovidedforanyonewhowantedtoofferadditionalcomments,whetherornotthepersonhadbeeninterviewed.Thedepartment-widesurveywassentto81fulltimeUWPDcommissionedandnon-commissionedemployees.Approximatelyhalf(40)oftherespondentsaddedacomment,rangingfromasinglesentencetolengthystatementsrelatedtoissuesraisedinthesurvey.The90%responserate,veryhighforsurveysofthiskind,providedsignificantquantitativedatatoverifyandhelpputintocontextthequalitativeinputfromtheinterviewsaboutUWPDcultureandleadershipstrengthsandchallenges.

3Thejobcategorieslistedinthesurveywere:ExecutiveLeadership;SeniorManagement;SergeantsorCivilianSupervisor/Lead;Officer–Patrol;Officer–Investigations,Training,Outreach,Other;Communications/Dispatcher;SecurityGuard;AnalystorSpecialist;orOther.


Theteamwasimpressedwiththeinterest,openness,andcommitmentoftimebysomanytotheUWPDreviewprocess.Thewillingnessofabroadcross-sectionofindividualstosharepersonalexperiencesandobservationsprovidedinvaluableassistanceinconductingthereview.Aftertheteamcompleteditsreview,itsfindingsandrecommendationsweresharedwithUWadministrators.WhenthedecisionwasmadethatJohnVinsonwouldberesigninghispositionasUWPDChief,UWPresidentCauceandVicePresidentSuitethenaskedthatthereviewteamalsorecommendwhattheUniversityshouldconsiderinitssearchforanewleaderatUWPDandhighlightanyareastowhichtheincomingChiefshouldbeattentive.Theteamaddedthoserecommendations,andfinalizedandtransmittedthisreporttoUWonApril30,2019.II. TheWorkofUWPDCampuspolicedepartmentshaveresponsibilitiesandchallengessimilartothoseoflawenforcementatthelocal,state,andfederallevels.Whatevertheirjurisdiction,policechiefs“mustsuccessfullymeetthedemandsofcommunitymembers,politicians,organizationalmembers,unions,policeassociations,specialinterestgroups,andtheirownexecutivestaffmembers.”4Butuniversitypolicingisalsouniqueinanumberofways,suchasitsroleinsupportingotheraspectsofstudentlife,managementoflargeandsometimescontroversialeventsoncampus,andcompliancewiththeCleryAct.5Campuspolicealsomustaddressparentalfearsandconcernsfortheirchildrenattendingcollege,achallengenottypicalforotherlawenforcementagencies.Inaddition,inacollegeenvironment,thecommunityofstudentschangesalmostentirelyeveryfouryears,creatingbothopportunitiesanddemandsforcampuspolice.Inmeetingtheirlawenforcementresponsibilities,campuspoliceexecutivesworkonsometimescomplexmattersrelatingtofiscal,legal,andtechnologicalissues;diversecommunitiesandstaff;organizationalstructureandoperation;and,humanresourcesconsiderations.6Asnotedonitswebsite,“TheUWPDhastheexclusiveresponsibilitytoactuponlaw-enforcementmattersandperformpolicefunctionsfortheSeattlecampusoftheUniversityofWashington.Officersinvestigateallcrimesandenforcefederal,stateandlocallawsaswellasWashingtonAdministrativeCode(WAC)ruleswithintheUniversityofWashington’sjurisdiction.”7UWPDservesstudents,staff,facultyand

4Rainguet,FredW.andDodge,Mary.TheProblemsofPoliceChiefs:AnExaminationoftheIssuesinTenureandTurnover,PoliceQuarterly(September2001),Vol.4No.3,268-288.5TheCleryActisafederallawrequiringthatcollegesanduniversitiesparticipatinginfederalfinancialaidprogramsmaintainandreportcampuscrimestatisticsandsecurityinformation.https://studentaid.ed.gov/sa/about/data-center/school/clery-act-reports6Theseandotherleadershipcompetenciesarediscussedin:Vinson,JohnNathaniel.LeadershipCompetencyNeedsofU.S.CampusLawEnforcementAdministrators,Dissertations(2004),1147.http://scholarworks.wmich.edu/dissertations/11477http://police.uw.edu/aboutus/divisions/


otherpeopleoncampus,alongwithensuringthatUniversitypropertyiskeptsecure.Inadditiontoenforcinglawsandinvestigatingcrimes,UWPDprovidesotherpublicsafetyservicessuchastrafficandparkingenforcement,emergencymanagement,victimsupport,andcrimepreventioneducation.Thejobofapoliceexecutiveisdemanding.TheInternationalAssociationofChiefsofPoliceestimatesthatthetenureforlargemetropolitanpolicechiefsis2.5years,giventhedepthandbreadthofdemandsonpoliceexecutives.8Typicalreasonspoliceexecutivesdepartinclude“health,frustration,weariness,politicalpressures,andnewjobopportunities.”9Whileitisnotcleariftheaveragetenureofcampuspolicechiefsmatchesthatofmajorcitypoliceexecutives,theyfacesimilarcomplexities,challenges,andopportunities.Whilehighturnoveramongpolicechiefscanleadtoorganizationaldisruption,someturnovercanbepositive,creating“anopportunityfororganizationalgrowthandimprovement.”10III. UWPDChiefJohnVinsonDr.JohnVinsonbecameUWPD’sseventhChiefinFebruary,2009.11ThiswasChiefVinson’sfirstappointmentasadepartmentalchief.Hepreviouslyworkedfouryears(threeasUndersheriff)withtheIsabellaCountySheriff’sDepartmentinMt.Pleasant,Michigan.HealsohadservedwiththeCentralMichiganUniversity(CMU)campuspoliceandintwoDetroitsuburbs,BattleCreekandRoyalOakTownship.ChiefVinsonholdsaMastersandaPh.D.inPublicAdministrationandgraduatedfromtheFBINationalAcademy.12ChiefVinsonreportstoDr.DenzilSuite,UWVicePresidentforStudentLife,andhiscurrenttitleisAssistantVice-PresidentforStudentLife/ChiefofPolice.HeisanadjunctfacultymemberteachingleadershipandmanagementcoursesintheMaster’sofPublicAdministrationProgramforCentralMichiganUniversity,isontheadjunctfacultyforSeattleUniversity,andhasinstructedcoursesatWesternMichiganUniversity,KirtlandCommunityCollege,andMontcalmCommunityCollege.Heisregularlyinvitedtospeakandprovidetrainingonpolicing,leadership,anddiversityissuesacrosstheU.S.andinternationally.ChiefVinsonisPresident-ElectfortheInternationalAssociationforCampusLawEnforcementAdministrators(IACLEA)andalsohasprofessionalaffiliationswiththeInternationalAssociationofChiefsofPolice,theNationalAssociationofBlackLawEnforcementExecutives,theWashingtonAssociationofSheriffsandPoliceChiefs,andtheKingCountyPoliceChiefs&SheriffAssociation.138RainguetandDodge,supra,at268.9Id.at284.10Id.at270.11ForinformationconcerningUWPD’shistoryandotherswhohaveservedasChief,see:http://police.uw.edu/aboutus/history/12ChiefVinsonreceivedhisMSAfromCentralMichiganUniversityandaPh.D.fromWesternMichiganUniversity.13Forfurtherbiographicaldetail,see:http://police.uw.edu/aboutus/divisions/chief


WhenhestartedwithUWPD,ChiefVinsonwasgiventhemandateto:• TransformUWPDintoahighlyvisible,stateoftheartcampuslaw

enforcementagency;• Developbroaderandmoresustainedoutreachtothecampuscommunity;• Developclearexpectationsforstaffandrelatedaccountabilitymetrics;and• Developoutcomemeasuresfortheoverallworkofthepolicedepartment.14

AstheChiefestablishedandimplementedastrategytoaddressthesegoals,hesoonrecognizedanumberofimpediments,includingproblemsofcommunication,morale,trust,andrespectwithintheDepartmentthatalsohadbeenidentifiedina2007UWPDclimatereviewreport.15TherewasasensethatsomestaffmembersviewedVinsonassecondchoicetotheinternalcandidatewhowaspassedover,andfeltthreatenedbyaChiefwhodidnotriseupthroughtheUWPDranksandwhodecidedtobringinothersfromtheoutside.DetailsaboutChiefVinsonhavingbeeninvestigatedforanincidentin1994wherechargeswerenotpursuedwerediscoveredandpublicizedbysomeUWPDemployees,causingChiefVinsonfrustration,ashebelievedthefactsandissuesinvolvedweremisconstrued.Then-VicePresidentofStudentLife,EricGodfrey,addressedalettertoallUWPDemployeesassuringthemtheUniversitywasawareofthe15-yearoldchargesatthetimeofChiefVinson’shireandwassatisfiedtheUniversityhadmadetherightchoiceinselectinghimforChief.Nonetheless,concernsaboutthechargesremainedandwereraisedasrecentlyasduringthisreview.Fromthetimehewashiredthroughthepresent,theChiefhasalsofacedclaimsofraceandgenderbias,laborstrife,andotherissuesofemployeerelations.Despitethesechallenges,ChiefVinsonmadesignificantprogressonthemandatehewasgivenwhenfirsthired.IndividualsinterviewedbytheteamnotedmanystrongpointstheChiefbroughttothejobthathelpedhimmovetheorganizationforward.Someintervieweesmadecommentsalongthelinesof,“ChiefVinsonissmart...charismatic...achangeagent...avisionary...drivenonvision,mission,andtask.”OthercommentsreferredtohiscontributionsingrowingtheDepartment,suchasenhancingofficersafetymeasures,outfittingofficerswithTasers,institutionalizingpoliciesandprocedureswheretheyweremissing,developingIT,formalizingInternalAffairsprocesses,relocatingtheDepartmentintoanew,betterequippedandmorecentrallylocatedbuilding(summer2016),andmakingvehicleanduniformchanges.ChiefVinsoniscreditedwithraisingsalariesamongcommissionedemployees,afteralongperiodwithoutraises.ManyintervieweesalsoobservedthatChiefVinsonhelpedbringmoreracialandgenderdiversitytoUWPDandthatheiscommittedto

14ChiefVinsonprovidedtheteamwithadocumentsummarizinghisexperienceatUWPD:“UniversityofWashingtonPoliceDepartmentTimeline–HistoricalContext,”JohnVinson,Ph.D.,AssistantVicePresidentforStudentLife/ChiefofPolice(undated).15Id.at3.Payne,JonA.“ClimateReview–UniversityofWashingtonPoliceDepartment”(October31,2007).


workingtomaketheDepartmentstandoutamonguniversitypolicedepartments.Tothatend,andasnotedearlier,ChiefVinsonisfrequentlyinvitedtospeakonpolicingmattersandisPresident-ElectforIACLEA.Headvocatesfordata-drivenpolicingandhashaddiscussionswithUWfacultyandgraduatestudentsaboutwaystocollaborateonresearchtosupporttheworkofUWPD.Earlyinhistenure,theChieftookstepstoensuremoreofficerswereoutonpatrol,gettingtoknowUWcommunitymembersandengagingtheminproblemsolving.UWstakeholdersnotedthattoday,officersareapproachableandaccessibletomembersoftheUniversitycommunity,andseveralstakeholdersprovidedexamplestoillustrateofficers’responsivenessandpatienceininvestigatingcriminalcomplaintsandprotectingdomesticviolencevictims.16StakeholdersalsopraisedChiefVinsonforadvocatingaharmreductionapproachtocertainissues,workingtoaddresscomplexissuesrelatedtohomelessnessaroundtheUniversityDistrict,andforensuringsafetyinlarge-scaledemonstrationswithoutover-policing.HehasendeavoredtobuildUWPDrelationshipswithlawenforcementthroughouttheregion,includingofferingofficespacefortheSeattlePoliceDepartment’suseintheUWPDbuilding,andhastackledjurisdictionalboundaryquestionswiththeSeattlePoliceDepartmentandKingCountySheriff’sOffice.WhilehisstrengthsinitiallyhelpedmovetheUWPDorganizationanditsmissionforward,ChiefVinsonhasstruggledonmanyfrontsthepastthreeorfouryears.Histask-drivenleadershipstyleservedhimwellinhisearlyyearsatUWPD,buttheDepartmenthasbristledagainsttheapproachmorerecently,renderinghimlesseffectiveoverall.ChiefVinsonhimselfnotedthelackofstabilityintheorganizationsince2015,asheunsuccessfullysoughttoestablishamorepermanentcommandstaff,whichhassufferedrepeatedturnoverinrecentyears.GivenhispromotiontoAssistantVicePresidentforStudentLifeandfrequenttripsawayfromtheDepartmenttoteach,train,andmakepresentations,manyquestionedtheChief’scommitmenttotheagencyandattributedself-servingmotivesforhistravel.IV. UWPD’sOverallCultureAvarietyofissuesemergedfromtheteam’sreviewregardingtheDepartment’sorganizationalhealth.InconsideringtheoverallcultureintheDepartment,thedatapointstobothpositivechangesandsomenegativetrends.Organizationalculturehasbeendefinedasthevaluesandbehaviorsthatcontributetotheuniquesocialandpsychologicalenvironmentofanorganization.Organizationalcultureincludesanorganization’sexpectations,experiences,philosophy,andvaluesthatholdittogether,andisexpressedinitsself-image,inner

16However,afewstakeholdersexpressedmixedviewsonhowUWPDhandledspecificincidents.Forexample,oneadministratorwassurprisedbyanofficer’sreluctancetoexploreapotentialracialmotiveinacriminalincident.Anotherpersonwascriticalaboutofficers’responsetoacallinvolvingpotentialdomesticviolence.


workings,interactionswiththeoutsideworld,andfutureexpectations.Itisbasedonsharedattitudes,beliefs,customs,andwrittenandunwrittenrulesthathavebeendevelopedovertime.Alsocalledcorporateculture,it’sshownin(1)thewaystheorganizationconductsitsbusiness,treatsitsemployees,customers,andthewidercommunity;(2)theextenttowhichfreedomisallowedindecision-making,developingnewideas,andpersonalexpression;(3)howpowerandinformationflowthroughitshierarchy;and,(4)howcommittedemployeesaretowardcollectiveobjectives.Itaffectstheorganization’sproductivityandperformance,andprovidesguidelinesoncustomercareandservice,productqualityandsafety,attendanceandpunctuality,andconcernfortheenvironment.17TheUWPDhashadissuesofcultureimpactingthequalityoftheemployeeexperience,retention,andemployeeengagementsincebeforeChiefVinson’shiringasChiefin2009.18Concernssuchasthoserelatingtotransparency,organizationalstructure,andemployeeretentionhavebeendocumentedsinceasearlyas2001.Thecostsofnegativeculturalattributesincludethoseassociatedwithhiring,training,anddevelopingpeoplewholeaveprematurely;coststotheUniversityofaddressingcomplaintsandlaborgrievances;andtheopportunitycostsofnotgettingthebestfrompeoplewhofeelstressed,unhappy,anddisenfranchised.Onapositivenote,thedatagatheredthroughinterviewsandthesurveyindicatesthatemployeesgenerallylikeandrespecttheirUWPDco-workersandhaveagoodrelationshipwiththeirsupervisor:

• 79%19ofsurveyrespondentsindicatedtheylikethepeopletheyworkwithmostcloselyand76%feeltheytreateachotherwithrespect

• 75%ofrespondentsperceivetheirimmediateco-workersasconsistentlystrivingtoperformtheirjobswelland69%believethepeopletheyworkwithmostcloselyarecommittedtoproducingtopqualitywork.

• 93%ofPatrolOfficersand83%ofOfficerswithnon-patrolresponsibilitiesindicatedtheyhaveagoodrelationshipwiththeirsupervisor,and68%ofallrespondentsagreedthesupervisoryrelationshipisgood.

• 80%ormoreofallOfficersagreedthattheirsupervisorhelpsthemresolvemostoftheirworkproblemsandissues.

• Ininterviews,commentsweremadesuchas,“thepeopleareawesome...someofthemostqualifiedaround...myjobisgreat...peoplelovetheuniversity...[aparticularofficer]isbestofthebest...greatpeopleatagreatuniversity...”

• ManyintervieweesnotedapersonalconnectiontoUW,suchashavingattendedcollegethereorhavingarelativeorfriendwhoplayedUWsports.

17http://www.businessdictionary.com/definition/organizational-culture.html18See,e.g.,2007ClimateReview,supra.TheteamalsoreviewedthreeotherassessmentsthattoucheduponUWPDculturalissues:(1)CALEA,“UniversityofWashingtonPoliceDepartmentAssessmentReport,”(2017);(2)TheBusinessResearchLab,“UniversityofWashington2003EmployeeSatisfactionSurveyPolice,”(October2003);and,(3)“UniversityofWashingtonPoliceDepartmentOrganizationStudy&RecommendationtoAdoptBestPractices(2001).19Notethatallpercentagesreportedareroundedtothenearestwholefigure.


Therealsoappearstobelessinternalpeer-to-peer,unit-to-unitconflict,andemployee-supervisorconflictandmistrustthanwasexpressedinthe2007assessmentandearlierstudies.Whileemployeeengagementremainsaconcern,asnotedinthechartbelow,thepercentageofemployeesproudtoworkatUWPDhasrisenfrom32%in2003to47%in2019andretentionconcernshaveimprovedoverallsince2001(thoughtherewasasetbackin2015).In2019,80%ofUWPDemployeesseetheirjobasallowingthemtosupporttheUniversitycommunityand85%understandhowtheirjobfitsintotheUWPDmission.Thisisasignificantimprovementoverthe2007findings.However,intervieweesofferedstronglynegativeculturaldescriptionsofUWPDsuchas:

o Toxicworkenvironmento Toxiccultureo Cultureoffearo Cultureofdysfunctiono Theorganizationisconsumedwithanger,frustrationanddrama

Thesedescriptionsaresimilartothosenotedinthe2007assessment.IssuesofconcerninthecurrentculturalenvironmentatUWPDinclude20:Trust Only8%ofsurveyrespondentsagreethat,“Thereisaclimateoftrust

withintheDepartment.”Respect 76%agreethepeopletheyworkwithmostcloselytreateachotherwith

respect.However,only19%feelexecutiveleadershiptreatsemployeeswithrespect.

Communication Only12%ofsurveyrespondentsagreethat,“ThereisgoodcommunicationwithintheDepartment.”

Inclusiveness Only25%feeltheyareconsultedaboutimportantdecisionsaffectingtheirwork;just23%feeltheirperspectiveisheardandconsidered.

Engagement Only47%areproudtoworkfortheUWPDandonly31%seeUWPDasagoodplacetoworkincomparisontootherlawenforcementagencies.Only32%said,“ItwouldtakealottogetmetoleavetheUWPD.”

Leadership Only21%agreethat,“ExecutiveleadershipmakesgooddecisionsthatimprovetheDepartment’seffectiveness”andonly21%trustUWPDexecutiveleadershiptoguidetheDepartment.21

NeedforChange

82%haveconcernsaboutthewaytheDepartmentisfunctioningand74%wanttoseemajorchangesintheDepartment.

20Otherthanwheredemographicinformationwassought,eachsurveyquestionaskedthatrespondentsindicateoneofthefollowingresponses:StronglyAgree,Agree,NeitherAgreeNorDisagree,Disagree,orStronglyDisagree.Insummarizingandreportingonthesurveyresults,thecategories“StronglyAgree”and“Agree”oftenarecombinedinto“Agree,”and“StronglyDisagree”and“Disagree”arecombinedinto“Disagree.”21Whilesurveyquestionsdidnotdelineatespecificmembersoftheexecutiveleadershipteam,respondentandintervieweecommentsfocusedontherolesofChiefandtheDirectorofAdministrativeServicesandHumanResources.


Despiteemployeesgenerallylikingandrespectingeachotherandhavinggoodrelationshipswiththeirsupervisors,theoveralldispiritedinternalclimateoftheDepartmentisstriking.ThefollowingsectionsconsiderwaysleadershipimpactstheorganizationalclimateaswellasUWPD’sorganizationalstructure,resourceallocation,andrecruitment,hiring,andretention.

V. LeadershipEfficacyToday’spoliceagencyemployees“arelookingformoreforward-thinking,forward-leaning,forward-movingorganizationsthatarecapableofunderstandingtheirneedsandchangingwiththetimeswhennecessary,particularlyintheareasofsupervisorymanagement,leadership,andtalentmanagementpractices.”22Effectiveleadersrecognizethatleadershipissituationalanduseavarietyofmethodsovertimetomotivateandpositivelyimpacttheworkenvironment.“[R]esearchindicatesthatleaderswiththebestresultsdonotrelyononlyoneleadershipstyle;theyusemostoftheminagivenweek–seamlesslyandindifferentmeasure”dependingonthesituation.23Thereviewteam’sanalysisindicatesasignificantgapbetweenUWPDleadershipandthesemanagementbestpracticesandothersnotedbelow.Asdiscussedabove,ChiefVinson’sleadershipstyleinhisearlyyearsatUWPDledtheorganizationtomakeanumberofimportantstructuralandproceduralchanges.However,beginningin2015,theChiefstruggledtomaintainacohesiveandenduringcommandstaff,whichinturncontributedtootherproblemsintheagency.Perhaps,atleastinpart,theongoinginstabilityresultedinChiefVinsonmovingfromanauthoritativeleadershipstyletowhatisperceivedasamorecoercive,

22Warren,GregoryA.GreatLeadershipDrivesHighPerformance,PoliceChiefMagazine(undated).http://www.policechiefmagazine.org/great-leadership-drives-high-performance/?ref=2b0ba0e1b352e187f157fb3ed3dd5dc023Goleman,Daniel.LeadershipThatGetsResults,HarvardBusinessReview(March–April2000).

OverallCulture-Recommendations 1.Takingshort-termstepstocreateahealthierandstableorganizationalcultureshouldbeapriorityfortheincomingInterimChief.ThenewChiefshouldthenleadanorganizationalchangestrategytocontinuetostrengthenthecultureoftheDepartmentandimprovetheexperienceofitsemployees. 2.ThenewChiefshouldinclude,aspartofthatorganizationalchangestrategy,toolstoregularlyassessemployeeconcernsandorganizationalhealthissues,usingthepositiveandnegativeindicatorsdocumentedintheexternalreviewasabaseline.ResultsoftheseassessmentsshouldbereviewedwiththeVice-PresidentforStudentLifetoensurethereisasharedunderstandingofUWPD’sorganizationalhealthamongUPWDleadership,theChief,andtheUniversityadministration.


micro-managingapproach.Overtime,UWPDemployeesresentedandresistedhisefforts.TheorganizationalhealthoftheDepartmenthasbeennegativelyimpactedintheprocess.24IntervieweesprovidedthereviewteamwithnumerousexamplesofhowChiefVinson’sleadershipstylenegativelyimpactedemployeesthroughouttheorganization.Whilethereviewteamconsideredalloftheinformationsharedbyeveryinterviewee,thediscussionbelowfocusesontheChief’sstruggletoestablishastablecommandstaff,hisapproachtobudgetmattersanddecision-making,theimpactofhisleadershipstyleonothersinternallyandintheUWcommunity,andtheissueofsupervisoryinconsistency. A. DifficultyinEstablishingCommandStaffStability2015-2018TherehasbeenorganizationalinstabilitythroughouttheDepartment,includingwithUWPD’sexecutiveleadershipgroup,forseveralyears.25WhileformerDeputyChiefRandyWestservedUWPDforapproximately5years(2010–2015),threedifferentpeopleservedasDeputyChiefbetweenearly2015andtheendof2017–oneforamatterofdaysandtheothertwoforabout10monthseach.ChiefVinsonhiredallfouroftheseindividualsfromoutsideUWPD,alongwithotherexternalcandidateswhofilledtherolesofCommander,Major,andnon-commissionedexecutiveandseniormanagementpositions.Whilebringinginoutsidersforcommandpositionscancreateresentmentanddistrustwithinternalcandidatesandotherstaff,currentandformerUWPDemployeesgenerallyexpressedpositivecommentsaboutnearlyalloftheseexternalhires.AfterthedepartureofthreedifferentDeputyChiefsbroughtinfromtheoutsideinlessthanthreeyears,inJanuary2018theChiefdivideduptheDeputyChiefroleandappointedtwointernalpeople,aLieutenantandaCommander,asInterimDeputyChiefs.Theyservedfor11monthsandwerepermanentlypromotedasDeputyChiefsinDecember2018.26ThislackofstabilityattheexecutiveleadershiplevelhashadrepercussionsthroughouttheUWPDorganization.Ataminimum,thefrequentchangesprovidedanegativedistractionandfedtheinternalrumormillaboutwhycertainpeopleleft.AnotherresultwasthatindividualsinsidetheDepartmentfrequentlyweremovedupanddownthehierarchy,withinterimassignmentsasDeputyChief,Commander,Major,Lieutenant,andothertemporarycommissionedandnon-commissioned24Id.Golemannotesthatuseofacoercivestyle,beyondashort-termcrisis,resultsinemployeesfeelingdisrespected,alossofownership,accountabilityandprideinperformance,andadiminishedcommitmenttotheirownjobs.25Asnotedpreviously,ChiefVinsonacknowledgedinhisfirstinterviewthattherehasbeen“instability”atUWPDsince2015.26The11-month“interim”appointmentsaretypicalofhowChiefVinsonhasmadeanumberofhiringandpromotionaldecisionsovertheyears.ThisapproachhasnegativelyimpactedretentionandsupervisoryrelationshipsthroughouttheDepartment,asdiscussedbelowinSectionVII.


roles.NothavingastableexecutivecommandstaffalsomeantitwasdifficultforChiefVinsontogettractiononseveralinitiativeshehopedtopursue.ThisisillustratedbythefactthatthedescriptionandgoalsnotedunderStrategicInitiative1:CommunicationandAwarenessinthe2012-2017UWPDStrategicPlanarenearlyidenticaltothoseinthe2020StrategicPlan,asistrueforotherareasofthetwoplans.TheDeputyChiefshiredbyChiefVinsonpriorto2018allhad20–30yearsoflawenforcementbackground,eachinavarietyofcapacities,andwereviewedasbringingsignificant“bootsontheground”experiencetosupporttheChief’svisionfortheDepartment.YetformerDeputyChiefsandothercommanderswhowereinterviewedexpressedhavingexperiencedconsiderablefrustrationinworkingforChiefVinson,andgenerallydidnotfeeltrustedorempoweredbyhimtocarryoutcommandduties.Theseformerexecutivestaffleadersfeltconfusedwhentheroleeachhadanticipatedservingintheorganizationbasedonpre-hireconversationswiththeChiefturnedouttobesubstantivelydifferentbecauseofthelimitationsChiefVinsonimposedaftereachwashired.FormerDeputyChiefs(andothersinUWPDseniormanagement)commentedthattheywerenotgivenlatitudeor,sometimesthenecessaryinformation,toruntheiroperations.Further,theyindicatedthatwhentheChiefwasoutoftown,thoseleftresponsibledidnothaveauthoritytomakeanysignificantdecisionthemselves.AclearexampleofhowDeputyChiefsfeltdisempoweredisseenintheChief’sdecisiontonotsharetheUWPDbudgetwiththemoranyoneelseotherthantheDirectorofAdministrativeServicesandHumanResources.LiketheDeputyChiefs,seniormanagersandsupervisors,somewithsignificantexperienceoverseeinglargebudgets,alllackedbasicknowledgeofbudgetaryopportunitiesandconstraintsneededtoeffectivelyadministertheirareasofresponsibilityandalsowereleftthinkingtheChieforotherexecutivesmustnottrustthemwithfinancialinformation.Whileitisnotunusualfortheretobesomefluxintheavailabilityoffundsinapublicagency,employeesthroughouttheDepartmentweregivennoexplanationaboutwhydollarscouldbespentatonetimeandnotanother.Eighty-threepercent(83%)ofsurveyrespondentsdisagreedthat“UWPDexecutiveleadershipistransparentaboutbudgetpriorities.”ThislackoftransparencyfedsuspicionamongsomethatDepartmentalfundswerebeingspentinappropriately,inturncontributingtoamoregeneralsenseofdistrustintheorganization.ChiefVinson’sdisinclinationtosharebudgetdetailswithothersinUWPD--anotherexampleofalackoftransparency--meanthedidnotgetthebenefitoftheirperspectiveandinputwhensettingbudgetpriorities;decision-makingcansufferasaresult.Further,strategicplanningisunderminedbynotknowingiffundswillbeavailabletosupportinitiatives;neitherthe2012nor2020StrategicPlanaddressthefinancialresourcesneededtomeetthevariousgoalslisted.AsoneUWcampusstakeholdernoted,givenlimitedresourcesandcompetingpriorities,asmartleadershouldbeespeciallyeagertoinvolveothersinbudget


decision-making.Includingthoseimpactedbybudgetdecisionsallowsthemtobetterunderstandoperationallimitations,appreciatetheneedtosetpriorities,andacceptfinalbudgetallocations.27Onnon-budgetrelatedmatters,theChiefmetoftenwithUWPDexecutiveleadershipandseniormanagementandverballyinvitedinputor“pushback,”thoughintervieweesdescribedhimasdefensiveandunableorunwillingtoacceptcriticismofideasheproposed.NumerouspeoplegavepersonalexamplesofdisagreeingwiththeChiefonsomematterorbeingperceivedbyhimashavingbeendisloyalinsomeway,withtheresultthattheChiefdidnotspeaktothepersonforweeksafterward(theywere“giventhecoldshoulder”and“walkedoneggshells”),reassignedtheindividualtoapositionwithlessresponsibility(theywere“senttoSiberia”),tookawayequipment,officespace,oraccesstoinformation(he“frozeout”theperson),orinsomeotherwaytookpunitiveactionagainstthe“offending”employee.TheexperienceandperceptionthatemployeesaretreatedpoorlyafterdisagreeingwiththeChiefhashadachillingimpactonthewillingnessofemployeestoopenlyparticipateindecision-making,createdafearofretaliationamongmany,andlikelydepriveddecisionsofcriticalinformationfrompeopleclosetotheissueorproblem.Effectiveorganizationsdependontheiremployeestobeabletoexpressopposingviewsandarewillingtoexplorealternativestofindthebestcourseofaction.Yet,only28%ofallUWPDsurveyrespondentsagreedwiththestatement“Iwouldfeelcomfortablesharingmythoughtswithexecutiveleaders,evenifIdisagreewithwhatisbeingproposed.”28WhilesomeexternalstakeholdersbelievetheChiefhasbeenproductivelyengagedwithvariouscommunitygroups,manyotherinternalandexternalintervieweesstatedthattheydidnotexperienceChiefVinsontobeacollaborativeleader.Forexample,severalUWstakeholdersnotedthattheChiefdidnotwanttoinvolveUniversitypartnersintheselectionprocessforaUWPDpositionthatregularlyinterfaceswiththesepartners.Inanotherhiringsituation,theDepartmentinvolvedothersbycreatingagrouptointerviewandevaluatecandidatesandtheChiefinitiallyofferedthejobtothecandidaterankedthehighestbythegroup.However,whenthatpersondeclinedtheposition,theChiefhiredtheindividualthegrouphadrankedlowest,anddidnotprovidethemwithanexplanation.29StakeholdersprovidedseveralexamplesoflackoffollowthroughbytheChiefafterheexpressedenthusiasmaboutaparticularideainmeetingswiththem.Forexample,studentspointedoutthattheprogramofferedbyUWPDtoteachwomenself-defense,whichiscalledRapeAggressionDefense(RAD)training,isveryuseful,27Inhissecondinterview,ChiefVinsonindicatedhehadplanstodoatable-topbudgetexercisewithDeputyChiefsthiscomingspring,thoughalsoindicatedhewantedthemtofocusonissuesotherthanthebudget.28Notethattheterm“executiveleaders”wasnotdefinedinthesurveyandisintendedtoincludeotherpeoplebesidestheChief.However,thegreatmajorityofsurveyandinterviewcommentsaboutdecision-makingbyexecutivesfocusedontheChief.29ThepersonhiredleftUWPDafterlessthanayear.


butalsoshouldbetailoredandofferedtoothers,suchasthosewhoaretransgenderorgendernon-conforming.TheChiefindicatedUWPDwouldrespondwithchangestoRAD,buthasnotdoneso.ChiefVinsonindicatedthatwhenhefirstcametoUWPD,hereliedheavilyonstrategicapproachesoutlinedinthebook,GoodtoGreat,includingthenotionthataleadermust“firstgettherightpeopleonthebus(andthewrongpeopleoffthebus)beforeyoufigureoutwheretodriveit.”30ChiefVinsoncameintoUWPDhavingavisionofwheretodrivethe“bus,”butovertime,hedidnotknowhowtogetthedrivers(orriders)committedtogoingthere.The2007ClimateReviewpointedouttheneedforaUWPDleaderwho,amongotherattributes,is“particularlyeffectiveatteambuilding,empowermentandaccountability.”31Amorerelationalstyleofleadershipalsoisneededatthisjuncturetoinspire,empower,andmotivateUWPDemployees.Thisapproachtoleadershipisinclusive,recognizeseachindividual’suniquecontributionstothemission,strivestowardtransparency,andtakesactivestepstofacilitateeffectivecommunication.TheDepartmentneedsleadershipthatcanfosterrelationshipsupanddownandacrosstheorganization,tohelpbuildaculturethatenhancestrustandconfidenceandleadstoeffectivenessinaccomplishingtheagency’smission. B. LeadershipEfficacyandFirst-LineSupervisorsAtarecentmeetingofthePoliceExecutiveResearchForum,involvingover150policeexecutives,managers,supervisors,andotherpoliceprofessionals,theroleofsergeantsandfirst-linesupervisorsinpoliceagencieswasdiscussedandresultedinthereport,PromotingExcellenceinFirst-LineSupervision:NewApproachestoSelection,Training,andLeadershipDevelopment.32Chiefsandotherpoliceexecutivesagreed,“Sergeants(andotherfirst-linesupervisors)occupyoneofthemostimportantpositionsinalawenforcementagency.”33However,UWPD,aswithmanyagencies,hasstruggledtofullysupportSergeantsandothersupervisorsintheirroleasagencyleaders.“Outofclassification”assignmentsandshiftadjustmentsforUWPDSergeantsareimportantfactorsinthefrustrationfeltbysomesupervisors.UnderChiefVinson,UWPDhadbeenusingActingSergeants,PatrolOfficersassignedtofillsupervisoryslotsasneeded,whenaSergeantwasunavailable.TheuseofActingSergeantswaschallengedasaformof“skimming”workfromSergeants,whoareinadifferentbargainingunitthanOfficers,andsomebelieveitwasusedbyUWPDtoavoidpayingovertimetoSergeantsorLieutenants.ThemostrecentcollectivebargainingcontractprohibitstheuseofActingSergeants.SergeantsandLieutenantsareinthe

30Collins,Jim.GoodtoGreat,HarperCollinsPublishers(2001),p.44.31Supra,2007ClimateReview.32AvailableonPERF’swebsiteathttps://www.policeforum.org/free-online-documents33Id.at12.


samebargainingunitandUWPDalsoroutinelyassignedLieutenantstofillinforSergeantsasneeded.However,whentheDepartmentstoppedthepracticeofusingActingSergeants,theChiefalsounilaterallydecidedtonolongerassignLieutenantstocoverforSergeants,deemingitan“outofclassification”role.Thus,sincethesechangeshavegoneintoeffect,Sergeantsmustacceptmoreshiftadjustmentassignments(workingoutsideorinadditiontotheirregularschedule),resultinginanumberofgrievances.UWPD’sincreaseduseofshiftadjustmentsservedasasignificantmotivatorinthedecisionbythegroupofsixSergeants,oneformerSergeant,andoneLieutenanttofilealetterofconcernswiththeUWBoardofRegents.InhismemoinresponsetotheletterofconcernssubmittedtotheBoardofRegents,ChiefVinsonindicatedthegroup’sdissatisfactionrelatedtoeffortsbyUWPDtoenhancesupervisionandsupervisoryaccountability.34VinsonnotedthatUWPD’sfirststrategicplan,completedin2012,identifiedsupervisoryconsistencyasagoalandthatplandevelopersnoted,“providingemployeeswithconsistentexpectationsimprovesandenhancesourabilitytoprovideexcellentcustomerservice.”35SupervisoryconsistencywasagainidentifiedasacontinuedgoalinUWPD’s2020StrategicPlan.ChiefVinsonindicatedthatthecurrentDeputyChiefshavebeenchargedwithimprovingsupervisoryconsistency,whichhasresultedinchangestoprocessesandprocedures,includingincreasedaccountability.36TheChiefassertedthatpatrolsupervisorshaveresistedmakingchangestoimprovecommunicationwithofficersoradoptaconsistentapproachinleadingtheirteams.37Further,accordingtotheChief,theincreasedaccountabilityhascausedsomesupervisorstostrugglewithbalancingleadershipwitheffectiveshiftmanagementandhascreatedadditionalhostilityamongsomeofficersandsupervisors.38Vinsonconcludedwith,“theseincreasedaccountabilitymeasures,coupledwithinitialcontractnegotiations,ispossiblywhattriggeredthiscoordinatedcomplaintanddemands...”39DuringasubsequentinterviewwithChiefVinson,heclarifiedthatthereisalackoffollow-throughfromtheDeputyChieftotheLieutenantanddowntotheSergeantsonanumberofissues.“Supervisoryinconsistency”apparentlymostoftenrepresentsalackofprotocolsandprocessesinplacetoensurethateveryonestrivestowardthesameexpectationsandstandards.WhileformerDeputyChiefWesthelpeddevelopanumberofpoliciesandprocesses,effortstocompleteotherswere

34MemotoDr.DenzilSuite,VicePresidentforStudentLife,fromJohnVinson,AssistantVicePresidentforStudentLife/ChiefofPolice,DatedSeptember28,2018,Re:ResponsetoletterreceivedfromsomeWFSEmembers,dated9/13/2018(VinsonResponseMemo).35Id.36Id.37Id.38Id.ChiefVinsonalsonotesthattherehavebeencomplaintsbyofficersagainstsupervisorsandamongsupervisors,presumablyrelatedtosupervisoryconsistencyissues.39Id.


largelystalledduetocommandstaffturnoversince2015.TheChiefgavetheexampleofaDeputyChief’srecentdevelopmentofareport-writingtemplateasastepinthedirectionofconsistency.And,asnotedabove,itappearsthatOfficershavebeenexposedtoavarietyofsupervisors–regularSergeants,OfficersinActingSergeantroles,andLieutenantsfillinginforSergeants.Thisfurthercomplicatestheanalysisof“supervisoryinconsistency.”Itisnotunreasonabletothinkthereisatleastsomesupervisoryinconsistency,thoughthedatadoesnotshowthisasbeingasignificanttheme.Infact,theexpressedmanagementconcernwithSergeantinconsistencystandsincontrasttoOfficers’reportedexperienceoftheirsupervisors.Forexample:

• 93%ofPatrolOfficersagreeorstronglyagree,“Ihaveagoodrelationshipwithmysupervisor”.

• 80%ofPatrolOfficersagreeorstronglyagree,“Mysupervisorisfairanddemonstratespersonalintegrity”.

• 80%ofPatrolOfficersagreeorstronglyagree,“Mysupervisorhelpsmetobesuccessfulinmyjob”.

• 80%ofPatrolOfficersagreeorstronglyagree,“Mysupervisorcanhelpmeresolvemostofmyworkproblemsorissues”.

• 80%ofPatrolOfficersagreeorstronglyagree,“Ingeneral,myperformanceevaluationsaccuratelyreflectmyperformance”.

• 73%ofPatrolOfficersdonotbelievetheirsupervisorshavetheauthoritytomakedecisionsrelatedtothescopeoftheirresponsibility.

TheseUWPDsurveyresultsaremarkedlyhigherandmorepositivethanresearchstatisticsnationallythatindicated“approximately66percentoflawenforcementofficersfeltthattheirsupervisorswereineffectiveandpossessedthequalitiesofinadequateleaders(poorleadershipskills,politicallymotivated,caringonlyaboutthemselves,micromanagement,etc.).”40Additionally,anumberofintervieweesspokehighlyofUWPDsupervisors,includingOfficersandothers.Forexample,aseniormanagementmemberstated,“MostLieutenantsandSergeantsareexceptional,butsomearedisengagedbecauseoftheirperceptionsabouttheorganization.”Insum,theinterviewsandsurveydidnotpointtosupervisoryinconsistencyasamajorproblem,althoughmorein-depthanalysisisbeyondthescopeofthisreview.Regardless,becauseoftheimportanceoffirst-linesupervisors,andthefactthatboththe2012andthe2020UWPDStrategicPlansidentifiedsupervisoryinconsistencyasanissue,totheextenttheChiefhasnotyetputinplaceclearpoliciesandstandardizedprocesses,alongwithdedicatedtrainingandmentoring,thatshouldbeamanagementpriority.40Garcia,HectorR.Heart-FocusedLeadership:AShiftingPoliceLeadershipParadigm,PoliceChief(October2018).


UWPDisencouragedtoconsiderthefullPERFreportonPromotingExcellenceinFirst-LineSupervision,notedabove,andtherecommendedstepspoliceagenciescantaketoimprovesupervision.Further,theDepartmentmustidentifyalternativestousingshiftadjustmentsasawaytoaddressashortageofSergeantsonanygivenshift.OptionsmightincludecreatinganovertimereservewithintheDepartment’slimiteddiscretionaryfundingorchangingtheshiftstructureandSergeant/OfficerratiosothatmoreSergeantsareavailabletofillinasneeded.

EfficacyofLeadershipandFirst-LineSupervision-Recommendations

1.TobuildaculturethatreflectsthepositivevaluesandbehaviorsthatsupporteffectivenessinaccomplishingtheDepartment’smission,UWPD’snextChiefshouldhavedemonstratedexperienceinleadingorganizationalculturetransformationwhilemaintainingoperationaleffectivenessandstability.Operatingprimarilyfromarelationalleadershipapproachthatfostersandfacilitatesrelationshipsupanddownandacrosstheagency,theChiefshouldfocusondevelopingcollaborativedecision-making,team-building,employeeinclusivityandempowerment,transparency,andeffectivecommunication. 2.TheUniversityshouldconsiderthedegreetowhichthenextChiefhasexternalrolesthattakethefocusawayfromfulfillingthemissionoftheDepartment,andwhichoftheserolesbestsupporttheUniversity’sandUWPD’sinterests.ThisisnotmeanttosuggesttheChiefbeprecludedfromprofessionalactivityoutsidetheUniversity,butratherthatthoseopportunitiesbeweighedagainstotherUWPDmanagementpriorities. 3.UWPD’sleadershipshouldfollowthroughonallcommitmentsmadetoUniversitystakeholders,buildingproductiveandcollaborativeexternalpartnerships. 4.UWPD’sleadershipshoulddeveloppoliciesandprotocolsforsupervisorstohelpensureconsistentuseofbestpracticesandaccountability;supportsupervisorytrainingandmentoring;andconsiderotherstepstoimprovefirst-linesupervisionwhereneeded. 5.UWPD’sleadershipshouldidentifyalternativestousingshiftadjustmentsforSergeants,includingacost/benefitanalysisfordifferentapproaches,andsolicitinputfromOfficers,Sergeants,Lieutenants,andothersimpactedbeforechangesaremade.


VI. OrganizationalStructureAnInternationalAssociationofPoliceChiefs(IACP)articledescribestheroleoforganizationaldesignin21stcenturypolicing,“Structureprimarilyreferstohowpowerandauthorityaredispersedintheorganization.Typically,structureismanifestedinfourways:specialization,organizationalshape,distributionofpower,anddepartmentalization.”41Whiletherearesimilaritiesinstructurebetweenlargeandsmalldepartments,therearealsosignificantdifferences.“Oneofthebiggest[differences]istheamountofspecializationpresentintheorganization,”aswellasthenumberofsupervisorylevels.42TheteamidentifiedproblematicissuesassociatedwithUWPD’sorganizationalstructure,includingitstop-heavycommand/executivestaff,bureauover-specialization,andthenumberofsupervisorylevels,atleastinPatrol.Specializationreferstodistinctunitswithinanorganizationandallowsforoperationalexpertiseandefficiency.“Manypolicedepartmentsdividetheworkoftheagencyamongmanyunitsordivisions,suchaspatrol,criminalinvestigation,andadministration,amongothers.Patrolmaybedividedamongseveraldistrictsandshifts.Thetaskofcriminalinvestigationmaybedividedintotheinvestigationofhomicides,propertycrimes,sensitivecrimes,andsoforth.Theamountofspecializationinthedivisionoflaborofadepartmentislargelyafunctionofthesizeoftheorganization,asisthenumberoflevelsintheorganizationalhierarchy.Aprimarydisadvantageofspecializationisthatwithmoreunitsanddivisions,effectivecontrolandcoordinationoftheunitsbecomesmorechallenging.”43Thehierarchyofauthorityorchainofcommandinapoliceagency“hasdirectimplicationsforsupervisionandformalcommunication.Withachainofcommand,communicationistofollowaknownpathfromsubordinatetosupervisor...Thereisnooptimalnumberoflevelsofauthority,”though“largerpolicedepartmentshavemorelevelsofhierarchythansmalleronesbecausewithmorepersonnelcomesaneedformoresupervisorsandmanagers.”44UWPD’sbureausreflectthecorefunctionsofpatroloperationsandinvestigations;humanresources,budget,recordsandadministration;and,accountabilityandcompliance,asreflectedontheorganizationalchart:

41Switzer,Merlin.TheRoleofOrganizationalDesigninTwenty-FirstCenturyPolicingOrganizations,ThePoliceChief(August2010).http://www.policechiefmagazine.org/the-role-of-organizational-design-in-twenty-first-century-policing-organizations/42FoundationsfortheStudyofPolice,Chapter3:TheCharacteristicsandStructureofPoliceOrganizations.https://us.sagepub.com/sites/default/files/upm-binaries/80717_Brandl_Police_in_America_Chapter_3.pdf43Id.at41.44Id.


Inaninitialinformationrequest,theteamaskedforanexactcountofemployeesandtheirplacementonanorganizationalchart.ItwasdifficulttodeterminefromthedocumentsprovidedexactlyhowmanyFTEpositionswereavailableandfilledatanygiventime,inpartbecauseoffrequentchangesinassignmentandchangestotheorganizationalstructureovertime.However,UWPD,withapproximately81commissionedandnon-commissionedemployees(includingsecurityguards),isasmalldepartment,thoughitsorganizationalstructuremorecloselyresemblesthatofmuchlargerpoliceagencies,withasignificantdegreeofspecialization.Therearefourdivisionsand14bureaus(and1“unit”)withspecializedemphasesanddifferingnumbersofemployeesandlevelsofsupervision.Outofatotalof28Officers,22areassignedtoPatrol,threeareDetectivesintheInvestigationsBureau,andoneOfficerworksintheJTFF/IntelUnit,allfallingundertheOperationsDivision.ThelasttwoOfficersareintheEducationandOutreachBureau,undertheProfessionalAccountabilityandCommunityComplianceDivision.ThePatrolOfficersreporttooneofsixSergeants,whoallreporttooneLieutenant,whointurnisresponsibletotheDeputyChief,whoreportstotheChief.45Asoneintervieweenoted,such“alargeverticalstack”inthePatrolBureauexacerbatesthesortsofcommunicationissuesthatwerealreadycausingproblemswithintheDepartment.“Youlosealotwhenyouhavetogotothetopofthe45Further,althoughtheplanhassincebeenindefinitelypostponed,stepsweretakeninlate2018topromoteaCommander,apersonwhowouldserveovertheOperationsLieutenant,addingyetanotherlevelinthatchainofcommand.

OFFICE OF PROFESSIONAL ACCOUNTABILITY & COMMUNITY COMPLIANCE DIVISION

Professional Accountability Bureau

Fritzi Andrews DIRECTOR, ADMINISTRATIVE SVCS & HUMAN RESOURCES

ADMINISTRATIVE SVCS & HUMAN RESOURCES DIVISION

Tom Olson DIRECTOR, POLICE OPERATIONS / DEPUTY CHIEF

John N. Vinson, Ph.D. ASSISTANT VICE- PRESIDENT FOR STUDENT LIFE /

CHIEF OF POLICE

Pending DIRECTOR, STRATEGY & ORGANIZATIONAL EXCELLENCE

Denzil Suite, Ph.D.

VICE-PRESIDENT FOR STUDENT LIFE

STRATEGY & ORGANIZATIONAL EXCELLENCE DIVISION

Professionalism

Respect

Integrity

Diversity

Excellence

Craig Wilson DIRECTOR, PROFESSIONAL ACCOUNTABILITY &

COMMUNITY COMPLIANCE / DEPUTY CHIEF

Administrative Support Bureau

Fiscal Operations Bureau

Technical Services Bureau

Community Protection & Security Services Bureau

Strategic Initiatives & External Relations Bureau

OPERATIONS DIVISION

Support Services Bureau

JTTF | Intel Unit

Patrol Bureau

Accreditation Bureau

Education & Outreach Bureau

Compliance Bureau

Logistics & Planning Bureau

Updated Mar-2019

Karen J.S. Erickson Executive Assistant to AVP /

Chief of Police

VALUES

Investigations Bureau

Records Bureau

“Safeguarding the Academic Community with P.R.I.D.E.”


pyramidtogetadecision...Information,knowledge,andpassionislostalongtheway.”46Incontrast,otherareasoftheDepartmenthavefewerlevelsofsupervision.ExamplesoftwobureauswithonelesssupervisorylevelincludeEducationandOutreach,withtwoOfficersreportingtoaManagerwhoreportstotheDeputyChief,andtheInvestigationsBureau,whereDetectivesreporttoLieutenantwhoreportstoaDeputyChief.OtherBureaushaveevenlesshierarchy,suchasseenintheJTTF/IntelUnitwithoneOfficerreportingdirectlytoaDeputyChief.Aflatterorganizationhasfewerlevelsoforganizationalstructureandprovidespreferredspansofcontrol(thenumberofemployeesforwhomasupervisorhasresponsibility.)Theadvantagesofthisapproachcaninclude“bettercommunicationamongorganizationaldivisionsandlevels,increasedfinancialandpersonnelresponsibility,greaterflexibility,andincreaseddelegationbysupervisorsamongsubordinates.”47Sixty-sixpercent(66%)oftheemployeeswhorespondedtothesurveyconductedbytheteamdonotseetheDepartment’sorganizationalstructureasmakingsensetothem.Intervieweesnotedthatintheirviewtheorganizationistopheavy,withfourDivisionDirectors/DeputyChiefsreportingtotheChiefandthreesupervisorylevelsbetweenOfficersandtheChief.Othersfocusedonthemanybureausacrossdivisions,notingthathigh-level,highlypaidmanagementpositionsexistwithambiguousduties,littleornodecision-makingauthority,andsometimesonlyoneornosubordinates.AlongwiththesingleOfficerrunningtheJTFF/IntelUnitdiscussedabove,oneperson(whoisworkingpart-timeandfromhome)withthetitle“ComplianceManager”staffstheAccreditationBureau;and,CleryreportingdutiesthatfallundertheComplianceBureauhaveshiftedamongseveralpeople,includingoutsidetheBureau,sincethestartoftheteam’sreview.TheJTFFOfficerandAccreditationBureauManagerhavenosubordinatesandthelastpersonassignedtotheComplianceBureauhadnosubordinates.Inaddition,aconsistentcomplaintheardfromintervieweesrelatestofrequentreorganizations,reportedtooccurevery6monthstoayear,andtheroutinereassignmentofdutiesamongemployees.InthefourmonthsafterthisreviewbeganinlateNovember2018,theUWPDstructurechangedatleastonce,asrepresentedbytheorganizationalchartavailableonline;whentheinterimDeputyChiefsreceivedtheirpermanentpromotions,theyweregivendifferentdivisionassignments,andtherewerechangesinthebureausreportingtoeachofthefourdivisions.Forexample,theRecordsBureauwasmovedfromtheStrategy&OrganizationalExcellenceDivisiontoAdministrativeServices&HumanResources;thoughitisnotclearwheretheyresidedinthechainofcommandpreviously,JTFF/IntelandSupportServiceswereaddedtotheOperationsDivision;and,theInformationSystemsandTechnologyBureaubecametheTechnicalServicesBureauundertheStrategy&OrganizationalExcellenceDivision,thoughitisnotclearifthe

46Switzer,supra,citingpersonalinterviewwithSarahMillerCaldicottattheInstituteofManagementConsultant’sAnnualConferenceinReno,Nevada,October28,2008.47Lane,Troy.SpanofControlForLawEnforcementAgencies,PoliceChief(October2006).


changewasinnameonly.48Theredoesnotappeartobeanyonewhomanagesthefrequentorganizationalchange,leadingtoconfusionaboutrolesandresponsibilities.Forexample,twomanagersrecentlywerereassigned,butbothwereunclearthemselvesabouttheirnewspanofduties.Othersintheorganizationalsowerepuzzled,statingtheywerenotprovidedanyexplanationaboutthechanges.Thisisconsistentwiththesurveyresultthatonly17%ofemployeesagreewiththestatement,“Thedepartment’sexecutiveleadershipeffectivelycommunicateschangesaboutthedepartment.”Intervieweesobservedthatfrequentreorganizationsandjobreassignmentscanbedetrimentaltooperations,includingbeingnegativelyperceivedinthecommunity.Somealsoattributedthelackofinstitutionalizationofaccreditationprocesses,propertyandevidencemanagement,andotherprotocols,tobeatleastpartiallyafunctionofrecurrentreorganization,reassignment,andturnover,withnewpeopleconstantlytryingtolearnsystemsandprocedures.Whilethereisnooneidealorganizationalstructureforlawenforcementagencies,UWPD’sistopheavy,overlyspecialized(particularlywhereonlyoneortwoindividualscompriseanentirebureau),andhasmoresupervisorylevelsthannecessary,atleastinthePatrolBureau.Thesestructuralissues,alongwithfrequentreorganizationsandreassignmentofpersonnel,contributetoproblemsrelatedtodecision-making,communication,andtransparencydiscussedelsewhereinthisreport.

48TheoverviewofeachofthefourDivisionsandBureausontheUWPDwebsiterepresentsanolderversionoftheorganizationalstructure,butwastheonlyorganizationaldescriptionmadeavailabletotheteam.Thus,itwasdifficulttodetermineifstructuralchangesovertimerepresentsubstantivedifferencesinresponsibilitiesfortheinvolveddivisionsandbureaus.Also,therewerenodescriptionsonthewebsiteorotherwiseforthenewbureausthathavebeencreated.

OrganizationalStructure-Recommendations 1.WhilesomereorganizationisexpectedwithupcomingchangesinUWPDleadership,theDepartmentshouldworktowardbuildingstabilityandavoidfrequentpositionreassignmentsandreorganizations.Whensuchchangesdooccur,UWPDshouldbecognizantofimpactsonaccomplishingitsmissionandbuildingorganizationalexcellence,andshouldstrivetoclearlycommunicatetherationalebehindchangestoeveryoneimpacted. 2.InlookingatthepreferredorganizationalstructureforUWPD,thenewChiefshouldbringtogetheremployeerepresentativesfromthroughouttheDepartmenttoconsiderapproachestoorganizationalstructureforanagencyofthissizethatwillmosteffectivelyservethemissionoftheDepartmentandallowforimprovedcommunication,informationsharing,andcollaboration,aswellaseffectiveallocationofpeopleandcapabilities.


VII. ResourceAllocationResourceallocationwasacomplextopictoassessduringthisreview,inlargepartbecauseofthecompletelackoftransparencyaroundbudgetingmattersatUWPD.TheimpactsofthislackoftransparencywerediscussedaboveunderLeadershipEfficacy.BecauseemployeeshavevirtuallynoinformationabouttheDepartment’sfinancialassetsandliabilities,itisdifficulttoassessthereasonforthesurveyresultsonthisaspectofagencymanagement.Only14%ofsurveyrespondentsagreeorstronglyagreethat,“Executiveleadershipmakesgooddecisionsonhowtoallocatethedepartment’sresources”,andonly29%agreeorstronglyagreethat,“Thedepartment’sbudgetpromotesoperationaleffectiveness.”Forsomeemployees,theirlackofconfidenceineffectiveresourceallocationcouldbebecausenobudgetinformationismadeavailable.Forothers,itcouldbethattheirconcernsstemfromlackoftransparencyregardingrequestsforequipment,training,overtimeordelaysinfillingvacancies.UWcommunitypartnersfamiliarwiththeDepartment’sbudgetstressedthatUWPD,likeothersthroughoutUW,hasbeenrequiredtoreduceitsbudgetovertime.Also,becauseUWPDwentsignificantlyoverbudgetatonepoint,itoperatesunderadeficitmitigationplanthatincludesascheduletopaybacktotheUniversitythefundsoverspent.Asaresult,UWPDhasverylimiteddiscretionaryfunding,withthebulkofitsbudgetdedicatedtopersonnelcosts,suchassalariesandbenefits.Thoughtheteamwasprovidedwithsomebudgetdetails,theinformationprovidedisnotsufficienttofullyevaluatetheDepartment’sspendingprioritiesandpractices.Suchanevaluationshouldbedone,andshouldtakeintoaccountaswellUWPD’sstrategicplan.Thecurrentstrategicplandoesnotincludeprojectedcostorstaffingimplicationsforthegoalsthatwereset.Aspreviouslynoted,involvingpeopleimpactedbybudgetingdecisionsinhelpingtosetprioritieswouldeducatestaffthroughouttheorganizationaboutthebudgetingprocessandalloweveryonetobetterappreciatetrade-offsthatmayberequiredwhentherearelimitedresources.OneconcernaboutresourceallocationthatwasvoicedbyseveralintervieweesrelatestowhatemployeesperceiveasalackofcommitmenttocertaininitiativestheDepartmentwaspursuing,butdidnotplanforthenecessaryfunding.IntervieweescomplainedthattheDepartmentembarksonaninitiative,butthentheprojectcannotbeimplementedinwholeorinpartduetolackoffunds.Forexample,becausebicycletheftisamajorpropertycrimeofconcernoncampus,UWPDinvestedfundsandemployeetimeinaBaitBikeprogram,asystemallowingOfficerstotrackstolenbicyclestoapprehendsuspectedthieves.However,theDepartmentultimatelywouldnotinvestincellphonesnecessarytorollouttheproject,leavingUWPDinapositionofnottakingadvantageofotherequipmentpurchased,norabletofollowthroughonthegoalsoftheBaitBikeprogram.AnotherresourceallocationconcernthathascausedconfusionandfrustrationamongemployeesisUWPD’spropensitytoclassifynewhiresandpromotionsas


“temporary,”“interim,”“acting,”or“intraining.”EventhoughapositionisincludedintheDepartment’stotalFTEcountas“unfilled,”oncesomeoneishiredorpromotedintothejob,itisofteninitiallyonlyinaninterim/actingstatus.Employeesinterviewedexpressedthattheydonotunderstandwhypositionsthatarefundedunderthebudgetaspermanentpositionsdonotgetfilledwithpermanentemployees.IntervieweesassumethatassigningnewemployeestotemporarystatusratherthanpermanentallowsUWPDtheflexibilitytohavepeopledoingtheworkofapositionwithoutgoingthroughaformalhiringorpromotionprocess,andwithoutreceivinganyassociatedhigherpayorbenefits.Employeesalsoexpressedconcernthatthishasotherunintendedconsequences,suchasindividualsnotwantingtoapplyforpositionsgiventhetenuousnatureoftemporaryemployment.InterimappointmentsareusedthroughouttheDepartment,withbothcommissionedandnon-commissionedemployees.UsingatemporaryorinterimclassificationpotentiallyallowsforbudgetsavingswhileUWPDascertainsifanemployeeisagoodfitfortheDepartmentandwhetherthebudgetsupportsapermanentpositioninthelongrun.UWPDalsodoesnothavetomeetallUWjob-postingrequirementsifithiresatemporaryemployeewhohasworkedfortheDepartmentforaspecifiedperiodoftime.Butwhilethisapproachmightservemanagerialinterests,itcancreateadministrativeissuesandemployeepredicaments.UWPD’suseof“ActingSergeants”-Officerstemporarilyassignedoutofclassificationtosupervisoryduties-servedasamajorissueinthelastroundofcontractnegotiationsbetweenUWandtheWFSELocal1488PoliceManagementBargainingUnit.WFSEclaimedthepracticeamountedtoimpermissibleskimming,bargainingunitworkassignedtonon-bargainingunitemployees,49andUWPDagreedtostopthepractice.WhileWFSEassertsthattheDepartmentshouldcommitovertimefundsforusewhenSergeantsorLieutenantsneedtocoverashiftforaSergeantwhoisonleave,UWPDhasbeenusingshiftadjustments,requiringSergeantstochangetheirregularworkhourstoprovidecoverage.Sergeantshavecomplainedabouttheinconvenienceinvolved,thoughUWPDmaintainsithaslimitedfundsavailabletooffervoluntaryovertimeasanalternative.50AnotherexampleofimpactsintheuseofatemporaryclassificationisseenwiththecurrentDeputyChiefs,whobothworkedinan“interim”capacityfromJanuarytoDecember2018,whentheywereofficiallypromoted.Thus,duringmostof2018,oneInterimDeputyChiefwasstillclassifiedasaCommanderandtheotherasaLieutenantforbudgetpurposes,andeachreceivedthepayassociatedwiththelowerrank.Further,LieutenantsaremembersofWFSELocal1488andthereare

49Western Washington University, Decision 12852 (PSRA, 2018). 50WhentheDepartmentceasedusingActingSergeants,italsostoppeditspastpracticeofhavingLieutenantscoverforSergeants,asneeded.


potentialimplicationsforthebargainingrightsofaunionizedemployeeservinginamanagerialcapacity,suchastherighttoovertimepay.51Otherissuesrelatedtotemporaryemploymentclassificationscametolightininterviewsofcurrentandformernon-commissionedUWPDemployees,inbothmanagementandlinepositions.Theywereclassifiedas“temporary”whenhired,buttoldthattheirpositionswereexpectedtobecomepermanentwithinasetperiodoftime(e.g.,6monthsorayear).AfterworkingintheDepartmentfortheinitialperiod,theysubsequentlyweretoldthatthepositionstillwasnotpermanentandtheirtemporarystatuswasextended.Someintervieweesworkingonatemporarybasisalsowerefrustratedbecausetheydidnotreceivefullbenefits.BenefitsavailabletotemporaryemployeeswhoworkedforUWPDaretiedtotheUWjobcategoryinwhichtheyfallandwhentheyworkedattheDepartment.AsofJanuary2018,allemployeesreceivesickleavebenefits,thoughsuchbenefitsmightnothavebeenimmediatelyavailabletoUWPDtemporaryemployeespriorto2018.Otherbenefits,suchaspaidvacationtimeorretirementcontributions,mayormaynotbeprovidedtotemporaryemployees,dependingonwhetherUWandtheDepartmentcategorizedthemasprofessionalstaff.IntervieweescategorizedastemporaryhadhopedtocontinueworkingintheDepartment,butfoundthemselvesinthedifficultpredicamentofhavingtodecidewhethertocontinueindefinitetemporaryworkwithlowerbenefitsortoseekemploymentelsewhere.AnumberofindividualsleftUWPDunderthesecircumstances,whichwasproblematicforthemandforthoseinUWPDwholostthebenefitoftheircontributions.TheDepartmentusedadifferentapproachwithinterimpositionsintheCommunicationsBureau’sDispatchLeadinTrainingProgram,“createdanddesignedtopreparedispatchersinterestedintheopportunitytoapplyforaleadershiprole.”52Theprogramran2016–2017andwasintendedasameanstoexposeagroupofemployeestothesupervisoryrolebyusinga10-monthrotationalsystemtoprovideon-the-jobtrainingandassessment,togaugeinterestandaptitudeforalong-rangeappointment.However,participantsbecamefrustratedovertime.First,theyresentedtheextraworkinvolvedwithoutcomparablepayandbenefits.Second,theyfelttheprogramultimatelynegativelyimpactedthemasadispatchteam,asitamountedtoaverylengthypromotionalprocessinwhicheveryonewasvyingforthesamejobinaverypublicway.Intheend,noLead

51AtthesametimethepermanentDeputyChiefpositionswereannounced,therewasaninternalannouncementforanInterimCommander.TheonlypersonwhoappliedwasanOfficerwhohadrelativelyrecentlybeenhiredlaterally.SomeintervieweesstatedthattheywereworriedaboutpotentialproblemsofreportingtoanindividualwhohadbeenasubordinateandnowskippedtheranksofSergeantandLieutenanttobecomeanInterimCommander,butwhomightnotgetpermanentlyappointedtothejobandbereturnedtoOfficerstatus.Ultimately,thedecisiontofillthepositionwaspostponedindefinitely.52See,UWPDInternalRecruitment,LeadDispatcher–InTrainingPosition,Unit:CommunicationsandRecords,OpenuntilWednesday,October5,2016(describingthepurposeoftheprogram,trainingschedule,essentialfunctions,andotherprogramdetails).


Dispatcherwasappointed,causingfurtherirritationanderosionoftrustamongtheemployeesinvolved.AnothercommonresourceallocationthemethatsurfacedrelatestoUWPD’stripleaccreditationthroughtheCommissiononAccreditationforLawEnforcementAgencies(CALEA),theWashingtonAssociationforSheriffsandPoliceChiefs(WASPC),andtheInternationalAssociationofCampusLawEnforcementAdministrators(IACLEA).Apoliceagencyaccreditedbyanationalorstateorganizationoflawenforcementexecutivesthatsetsoperationalstandardscanhelpensurethattheorganizationhasadoptedprofessionalpoliciesandprocedures.Lawenforcementagencyaccountabilityisenhancedandthroughinvolvementofinternalandexternalstakeholders,theaccreditationprocesscanprovidegreateroperationaltransparency.ForUWPD,however,thequestionraisedbyintervieweeswasalongthelinesof,“Doestripleaccreditationaddsignificantvalueoverthatofasingleaccreditation?”UWPDhasemployedanindividualfull-timetomanageitstripleaccreditation,thoughthatpersonisnowtransitioningoutoftheDepartmentandonlyworkingpart-timeandfromhome.TheaccreditationprocessistimeconsumingandrequiresthatpeoplethroughouttheDepartmentsubmitinformationonaroutinebasistotheaccreditationmanager,whothencompilesandsubmitsprooftotheaccreditingbodythatUWPDismeetingthestandardsrequiredforcertification.However,inpartbecauseofturnoverandfrequentreassignmentofduties,theDepartmenthasnotinstitutionalizedtheaccreditationprocessandmucheffortisrequiredtosecurealloftheorganizationalevidencenecessaryforcompliancefromemployeeswhomayalreadybeover-extended.ThoughthereisoverlapinamajorityofstandardsrequiredbyCALEA,WASPC,andIACLE,theformatandtimingforsubmissionofproofofcompliancevaries,suchthattheDepartmentiscontinuallyworkingtomeetoneormoreoftheaccreditingbody’srequirements.UWPDhasnotarticulatedthebenefittotheDepartmentorUWofdevotingsignificantresourcestoattainingandmaintainingtripleaccreditation,leavingmanyemployeesquestioningthemotivationsinvolved.IftheDepartmentchoosestomakeitsbudgetandresourceallocationmoretransparent,itwillbenefitfrommoreinputinsettingfundingpriorities.Intheprocess,UWPDshouldconsideraligningitsshortandlong-termgoalswithavailableresourcesandalternativeapproachestoaddressingtheproblemofcoverageforSergeantswhoareonleave.TheDepartmentalsoshouldreconsideritsextensiveuseof“temporary,”“interim,”“acting,”and“intraining”jobclassificationsandevaluatethevalueaddedinmaintainingtripleaccreditationunderCELEA,WASPC,andIACLEA.


VIII. Recruitment,Selection,andRetentionLawenforcementexecutivesgenerallyagreethatoneofthemostchallengingissuestheyarefacinginvolvesrecruiting,selecting,andretainingcommissionedemployees.In2006,itwasestimatedthatmorethan80%ofpoliceagencieshadswornpositionstheywereunabletofill,53andtheproblemhascontinuedintothepresent.Therearevaryingexplanationsfortheproblem,includingtighterbudgetsandthehighcosttorecruit,hire,equip,andfullytrainapoliceofficerfromthetimetheysubmittheirapplicationtothetimetheycanfunctionindependently;negativeperceptionsoflawenforcementgrowingoutofhighprofilepolicingevents;and,alackofqualifiedapplicants,particularlyinatimeoflowunemployment.54Theselectionprocessforentry-levelandlateralofficercandidatesincludescompletingandsubmittingawrittenapplication,anoralboard/panelinterview,abackgroundinvestigation,andpolygraph,medicalandphysiologicalexams.Physical53Woska,WilliamJ.PoliceOfficerRecruitment:APublicSectorCrisis,ThePoliceChief(October2006).54See,e.g.,Meade,Brett.Recruiting,Selecting,andRetainingLawEnforcementOfficers,NationalPoliceFoundation.https://www.policefoundation.org/recruiting-selecting-and-retaining-law-enforcement-officers/

ResourceAllocation-Recommendations

1.TheInterimChiefandChiefshouldevaluatetheDepartment’sbudgettodetermineifchangesshouldbemadetocurrentspendingprioritiesintheshort-term,includingtheneedtoassesswhetherthebudgetalignswithUWPD’sStrategicPlan. 2.TheInterimChiefandChiefshouldmaketheDepartment’sbudgetandresourceconstraints,andconsiderationofallocationdecisions,moretransparentforexecutiveleadershipandseniormanagement,andseekinputfromthoseemployeesimpactedinsettingfundingpriorities. 3.UWPD’sleadershipshouldreconsidertheextensiveuseof“temporary,”“interim,”“acting,”and“intraining”jobclassifications,striveformoretransparencyastotherationalebehindanyclassificationused,andbalancethevalueoftheiruseasabudgetmanagementtoolwiththepotentialnegativeimpactsforemployees. 4.UWPD’sleadershipshouldevaluatewhethertocontinuetoinvestresourcesinmaintainingtripleaccreditationunderCELEA,WASPC,andIACLEA,weighingthevalueagainstnegativefiscalandoperationalimpactsforUWPD.Thedecisionanditsrationale–tocontinueortochange–needstothenbeclearlycommunicatedtoallemployees.


agilityandwrittentests,andaride-alongwithaFieldTrainingOfficer,alsoarerequiredofentry-levelapplicants.TheymustattendandgraduatefromtheState’sBasicLawEnforcementAcademy(BLEA),whichisathree-monthprogram55,andthensuccessfullycompletetheUWPDFieldTrainingOfficer(FTO)program.CandidateswhopreviouslyhavecompletedtheBLEA,andlateralcandidates,mayberequiredtocompletethe80hoursBasicLawEnforcementEquivalencyAcademy.56In2015,afterhigherthanusualturnover,UWPDwasdownto16Officers,abouthalftheusualnumber,withsignificantimpactsonmandatoryovertimeandOfficermorale.57AstheDepartmentconsideredwaystoaddresstheproblem,itreviewedtheroleofUWHumanResources(UWHR)intherecruitmentandhiringprocess,andconsideredwaystoexpeditehiring.UWHRwasresponsibleforadvertisingpositions,receivingapplications,andreviewingbasicqualificationsofapplicants,alongwithbeinginvolvedonoralboards.RatherthanrelyingsoextensivelyonUWHR,by2017theDepartmentassumedmoreofthedutiesinvolved.“Thegoalwastostreamlinetherecruitmentandselectionprocess,increaseretention,andfocusonimprovingmoraleforallofUWPD’scommissionedandcivilianteammembers.”58WhileUWHRcontinuedtopostjobopeningsforpoliceofficers,andapplicationsweresubmittedthroughtheUniversity’sjobsportal,allapplicationsthenwereforwardedtotheDepartmentforreviewandconsiderationastonextsteps.UWHRalsonolongerwasinvolvedwiththeoralboard/interviewpanels.Theteamwastoldthatasaresult,theprocessingtimeisdownto2–4months.TheDepartmentalsoworkedtohiremorelateralofficers,thosewhohadworkedforanotherpoliceagencyinWashingtonorelsewhere,whichwasanotherwaytoshortenthehiringandtrainingprocessforcommissionedofficers.UWPDinstitutedthe“EZ-Hire”programforlateralcandidates,withthehopethattheDepartmentwouldrecruitmorequalifiedandexperiencedcandidatesandthattheycouldmovethroughtheapplicationprocessmorequickly.TherearenowrittenorphysicaltestsorassociatedoutofpocketcostsandlateralsproceedthroughatailoredFTOprogram,allofwhichcouldbeattractivetothosecandidates.59Themajorityof

55The720-hourBLEAcurriculumisdesignedtoproviderecruitofficerswiththebasicknowledgeandskillsnecessaryforlawenforcementservice.Instructionalblocksinclude:CriminalLawandProcedures;TrafficEnforcement;CulturalAwareness;CommunicationSkills;EmergencyVehicleOperationsCourse;Firearms;CrisisIntervention;PatrolProcedures;CriminalInvestigation;andDefensiveTactics.56ThestepsoutlinedfortheofficerselectionprocessaresummarizedfromtheUWjobposting#153368-CampusPoliceOfficer,Entry&Lateral.57https://komonews.com/news/local/uw-police-officers-blame-toxic-workplace-for-staffing-shortage58Supra,VinsonResponseMemo,at2.59SeeUWPDdescriptionforlateralhireprocess:http://police.uw.edu/aboutus/divisions/opst/hiring/


commissionedhiresoverthepastcoupleofyearshavebeenhiredlaterallyfromotherlawenforcementagencies.Overtime,officerturnoverhasdecreased,therehavebeen3or4hiresduringthependencyoftheteam’sreview,andstaffinglevelsareclosetonormal.Nonetheless,theletterofconcernssubmittedtotheBoardofRegents,andnumerousinterviewees,outlinedperceivedproblemswiththeDepartment’shiringprocess.UWcommunitystakeholdersnotedthattheywerenotincludedinconsideringcandidatesforUWPDpositionsoverlappingwiththeirinterestsandexpertise.TheyalsopointedtosomeunusualhiringpracticesbyUWPD,suchasconductinggroupinterviewsofcandidates,ratherthaninterviewingeachpersonindividually,whichfallsoutsidebestpractices.StakeholdersalsoweresurprisedthattheDepartmentbroughtinpeoplefromoutofstate,ratherthanusinglocalpartners,intheoralboards/interviewpanelsheldforthepromotionoftheDeputyChiefsinlate2018.Overhalfoftheemployeeswhorespondedtothesurveydisagreedwiththestatementthat“thedepartment’shiringselectionprocessisunbiasedandfair”and62%agreedwiththestatement,“Promotionswithinthedepartmentdon’talwaysfollowapplicablerules.”AsnotedinSectionV.A,anindividualhiredbytheChiefwasratedlowestbytheinterviewpanelthatmetwitheachcandidate.Intervieweesalsoindicatedthat,accordingtoapplicantsforbothcommissionedandnon-commissionedjobs,ChiefVinsonroutinelytoldapplicantstheyhadajobatUWPD,despitetheapplicantsnothavingcompletedallrequisitesteps.WhileitiscommendablethattheChiefisanadvocateforUWPD,employeesviewedthisastheChiefappearingto“guarantee”ajobtosome.Intervieweesalsopointedoutthatseveralemployeesweregivennon-commissionedpositionsintheDepartmentafterfailingtocompleteBLEAortheFTOprogram.Relatedtotheseconcernsisabeliefbyintervieweesthatatleasttwoorthreeofthemorerecentofficerhiresdidnotreceivearegularbackgroundcheckorwerenotrequiredtotakeapolygraphtest.DuetoUWPDconcernsregardingemployeeprivacy,thereviewteamwasnotallowedtoreviewemployeefilesandthereforeaskedUWHRtoexaminepersonnelfilesandbackgroundcheckinformationforseveralOfficersallegedtohavenotgonethroughthebackgroundandpolygraphstepsinthehiringprocess.WhileUWHRwasnotpermittedtoexaminethecontentofbackgroundinvestigationreports,polygraphtests,ormedicalandpsychologicalevaluations,aUWHRrepresentativeexaminedthebackgroundfileforeachoftheseOfficersandwasshowndocumentsthatappearedtobepolygraphtestresults,drugtestresults,medicalandpsychologicalevaluationresults,andabackgroundinvestigationreportforeachoftheseOfficers.60Further,UWHRwastoldthatthethirdpartyvendorconductingbackgroundchecksforUWPDaccessedsome

60Theinabilityofthereviewteamtogetaccesstothesefilestoinvestigatetheconcernsthatwereraisedwasasignificantlimitationandimpededtheteam’sabilitytodrawevidence-basedconclusionsabouttheintegrityofUWPD’shiringprocess.


backgroundinformationconcerningoneoftheseOfficersthatwasnotsharedwithUWPD.AnotherwidespreadconcernexpressedbyintervieweesisthattheindividualappointedbytheChiefasDirectoroftheAdministrativeServicesandHumanResourcesDivisiondoesnothavebackgroundorexperienceinmanyofthekeyresponsibilitiesrelatedtoHRandbudget.Manyintervieweesalsoexpressedconcernthatsheworksfartoomanyhoursmostweeks,whetherbecauseshe’sstrugglingwiththosedutiesoristaskedwithmoreworkthanmanageablebyasingleperson.61Eitherway,thesituationclearlyimpactsemployeeperceptionsregardingtheeffectivenessandlegitimacyofUWPD’sHRandbudgetfunctions.Sixty-ninepercent(69%)ofsurveyrespondentsdisagreedthatUWPD“takesactiontoretaincompetent,motivatedemployees.”TheDepartmentbeganconductingexitinterviewsinlate2017andtheteamwasgivencopiesofeightformssummarizingfeedbackprovidedbythoseindividualswhoparticipatedintheprocess.62Theseexitinterviewsandinterviewsconductedbytheteamofformeremployees,commissionedandnon-commissionedandfromalllevelsoftheDepartment,pointedtoavarietyofreasonsforemployeesleavingUWPD.Afewpursuedcareeropportunitiesorrelocatedforpersonalreasons,ortemporaryorstudentpositionsendedforsomewithnooptionofapermanentjob.Otherscomplainedtheyleftbecauseofpoortreatmenttheyreceivedaswomen,becausetheydidnotfeelempoweredtodotheirjobs,becauseofpoorsupervisor/officercommunications,ortomovetoanorganizationthatbetterfittheirworkstyle.Exitinterviewparticipants,peopleinterviewedbytheteam,andsurveyrespondentsalsocriticizedtheadequacyofUWPD’strainingprogram.Forexample,65%ofsurveyrespondentsdisagreethatthereisatrainingplanforeachemployeeand5/8oftheexitintervieweesratedUWPDtrainingas“fair”or“poor”,ratherthan“good”or“excellent.”Severalexampleswereprovidedwhereemployeesdidnotreceiveassurancetheycouldattendout-of-towntrainingoraprofessionalconferenceuntiladayortwobeforetheywerescheduledtotravel.AnexecutiveleadernotedthatuntilthehiringoftheCommunityEngagementandTalentDevelopmentManagerinthesummer2018,UWPDlackedtheresourcestofocusontraining,andensuringindividualtrainingplansareputintoplaceisnowaresponsibilityforthatManager.AnotherissueincludedwiththeletterofconcernssubmittedtotheBoardofRegentsrelatedtoinadequateactiveshootertrainingforUWPD.Afterthisreviewbegan,shortsessionactiveshootertrainingwasprovidedduringrollcallsandadayofactiveshootsimulationtrainingwasscheduledformid-December2018,thoughintervieweesindicatedmoresimulation-basedtrainingwasneeded.Alarge-scale

61TheDirectorindicatedtoareviewteammemberthatsheregularlyworks12+hoursaday.62Accordingtoinformationgiventotheteam,24peopleseparatedfromUWPDbetweenJuly2017andDecember2018,thoughthemajoritydidnotparticipateinexitinterviews.


trainingiscontemplatedforlaterin2019.TheDepartmentisencouragedtoworktogetherwithlawenforcementagenciesintheareaonthisandothertrainingthatwouldbenefitfromregion-widecoordination.UWPDalsocanconsideradditionalavenues,suchasthemulti-disciplinary,scenariobasedactiveshootertrainingofferedforfirstrespondersatTexasStateUniversity,supportedthrougharecentgrantfromtheU.S.DepartmentofJustice,OfficeofCommunityOrientedPolicing.63

63https://www.justice.gov/opa/pr/department-justice-announces-new-active-shooter-training-grant-first-responders

Recruitment,Selection,andRetention-Recommendations

1.UWPD’sleadershipshouldassesstheDepartment’santicipatedshortandlong-termhiringneedsanddeveloparecruitment,selection,andretentionstrategythatminimizestheimpactofemployeeturnoverandmaximizestheopportunitytohireandretainhighlyqualifiedemployeescommittedtothemissionofUWPDandUW. 2.UWPD’sleadershipshoulddevelopandcommunicateagency-widetrainingpriorities,identifytraininganddevelopmentgoalsforeachindividualemployee,createatimelineforimplementation,andensureresourcesareavailabletomeettheseobjectives. 3.TheChiefshoulddevelopasharedunderstandingwiththeUWadministrationregardinginvolvementofUWHRinUWPDpersonnelmatters(includinghiring,discipline,andterminations)tobestmaximizetheopportunitytobenefitfromUWHR’sexpertiseandunderstandingofbestpractices,whilenotimpedingtheChief’sdecision-makingauthorityorundulydelayingdecision-making. 4.UWPD’sleadershipshoulddevelopasharedunderstandingwiththeUWadministrationregardingUWHR’saccesstoallDepartmentpersonnelfiles,includingthoserelatedtoemployeeapplicants’backgroundchecksandresultsforanypolygraphtest,drugtest,ormedicalorpsychologicalevaluationadministeredduringtheUWPDhiringprocess. 5.UWPD’sleadershipshouldinvestigatefurtherwhetheranythird-partyvendorhasfailedtosharerelevantbackgroundinformationgatheredduringthepre-hireprocessconcerningindividualsemployedbytheDepartment,andifso,takeappropriatestepstoaddresstheconcernsidentified.


IX. ConclusionWhiletheUWPDhasmadestridesoverthepast10yearsinmovingtheDepartmentanditsmissionforward,aspectsofUWPD’sorganizationalhealtharenotfunctioningwell.CurrentleadershippracticesmakeitdifficultfortheDepartmenttobreakoutofdysfunctionalmodesofoperating.Thefoundationforsuccessgoingforwardwillbeatransformationalleaderwithastrongrelationshipfocus.Whiletheshort-termfocusshouldbeonestablishingstabilityandcivilityintheDepartment,inthelongrunthenextUWPDChiefshouldhaveastrategytopositivelyimpacttheDepartment’soverallculture,makingchangesasrequiredinUWPD’sapproachtoleadershipefficacy,allocationofresources,personnelprotocols,andorganizationalstructure.

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