View
1
Download
0
Category
Preview:
Citation preview
EXTERNAL REVIEW
OF THE
UNIVERSITY OF WASHINGTON
POLICE DEPARTMENT
FINDINGS AND RECOMMENDATIONS
REPORT
April 30, 2019
Change Integration Consulting, LLC
UWPDExternalReview–FindingsandRecommendations 1
EXTERNALREVIEWOFTHE
UNIVERSITYOFWASHINGTONPOLICEDEPARTMENT
FINDINGSANDRECOMMENDATIONSREPORT
I. Introduction
OnSeptember13,2018,agroupofUniversityofWashington(UWortheUniversity)
PoliceDepartment(UWPDortheDepartment)SergeantsandaLieutenant
submittedalettertotheUWBoardofRegentsoutliningtheirconcernsaboutUWPD
leadership.1Toaddresstheissuesraised,UniversityPresidentAnaMariCauceand
DenzilSuite,VicePresidentforStudentLife,determinedthatanindependentthird
partyshouldconductanassessmentoftheDepartment,reviewingthefollowingfive
areas:
• Efficacyofleadership
• Organizationalstructure
• Resourceallocation
• Employeerecruitment,selection,andretentionprocesses
• Overallculture
TheUniversityretainedareviewteam(theteam)withdeepandbroadexperience
inlaw;policemanagement,systems,policy,training,operations,laborrelations,and
communityrelations;stateandlocalgovernmentmanagement;publicsectorsystem
reform;andorganizationalassessmentandchange,leadership,andexecutive
coaching,toconductthereview.2
TobetterunderstandUWPDpolicies,processes,andstructure,andtoassessthe
organizationalhealthofUWPD,thereviewteamgatheredinformationthrough
reviewofdocuments,interviewsconductedwith68currentandformeremployees
ofallranks,aswellasexternalstakeholders,andadepartment-widecultureand
leadershipsurvey,towhich90%ofUWPDemployeesresponded.Byidentifying
majorthemesacrossmultipledatasources,theteamsoughttodiscernwaysthe
Departmentisfunctioningwellandwherethereappeartobeperformance
challenges.
Thedocumentsreviewedbytheteamincludedtheletterofconcernssubmittedto
theBoardofRegents;ChiefVinson’smemoranduminresponse;sampleInternal
Affairsinvestigationsmemoranda,trainingrecords,budgetrecords;UWPD’s
website;twoUWPDstrategicplans;UWPDorganizationalstudiesandemployee
surveysconductedin2001,2003,and2007;uniongrievancesandcomplaints
involvingUWPDreviewedbythePublicEmploymentRelationsCommission;
1SixcurrentPatrolSergeants,oneformerPatrolSergeant,andoneLieutenantsignedtheletter,allmembersoftheWashingtonFederationofStateEmployees(WFSE)BargainingUnit.2Thereviewteamconsistedof:KathrynOlsonandJeffPetee(ChangeIntegrationConsulting,LLC),2Thereviewteamconsistedof:KathrynOlsonandJeffPetee(ChangeIntegrationConsulting,LLC),
JudgeAnneLevinson(ret.),andChiefDeputyJimPugel(ret.).
UWPDExternalReview–FindingsandRecommendations 2
commissionedandnon-commissionedjobpostings;materialsfromChiefVinson’s
backgroundpriortohistenureasUWPDChief;UWPD’smostrecentCALEA
assessment;humanresourcesinformation;andotherwrittenmaterials,someof
whicharespecificallyreferredtobelow.
Totheextentallowed,interviewswereconductedconfidentially,toencourage
intervieweestobecandidandallayfearsofsomethatparticipationcouldresultin
repercussions.Theteamreachedoutbroadlytoencourageemployeesofallranksto
beinterviewed,andtoaskthemtoletothersknowtheycouldcontacttheteam
directlytoscheduleaninterview.Asnotedabove,thisledtotheteaminterviewing
68individuals,manymorethanoriginallyanticipated.Meetingwithnearlyevery
personwhosoughtanintervieworwassuggestedassomeonewithrelevant
informationallowedtheteamtobeinclusiveandthoroughinitsreview.Inorderto
maintainconfidentiality,theteamdoesnotdetailallofthespecificincidentsand
commentssupportingthefindingsinthisreport,butinsteadhighlightsthe
consistentthemesthatemerged.Theteamusedallofthedetailprovidedtoitto
identifyconsistentexperiencesandperspectivespriortoreachinganyconclusions
abouttheissuesunderreview,andinadditiontopreparingthiswrittenreport
sharedadditionalpersonnel-relatedinformationverballywithUWadministrators.
ThoseinterviewedincludedcurrentandformeremployeesatalllevelsofUWPD–
executiveleadership,seniormanagement,commissionedandciviliansupervisory
staff,officers,detectives,analysts,communications,dispatch,supportstaff,security
guards,andothers.Communitystakeholderinterviewswereheldwith
administratorswhohadthemostcontactwithUWPD,studentleaders,andregional
lawenforcementpartners.Interviewstypicallylastedaboutonehour,wereheldin
personandbyphone,andincludedafewsmallgroupmeetings.
Thecultureandleadershippracticessurveyincluded64questionstohelpmeasure
employees’personalengagementwiththeirjobs,workclimate,executiveleadership
andsupervisorypractices,communicationintheDepartment,selectionand
retentionprocesses,andtraining.Thesurveyalsorequestedthatrespondents
identifywhichof8categoriesbestfitthejobroletherespondentfillsatUWPD.3
Spacewasprovidedforanyonewhowantedtoofferadditionalcomments,whether
ornotthepersonhadbeeninterviewed.Thedepartment-widesurveywassentto
81fulltimeUWPDcommissionedandnon-commissionedemployees.Approximately
half(40)oftherespondentsaddedacomment,rangingfromasinglesentenceto
lengthystatementsrelatedtoissuesraisedinthesurvey.The90%responserate,
veryhighforsurveysofthiskind,providedsignificantquantitativedatatoverify
andhelpputintocontextthequalitativeinputfromtheinterviewsaboutUWPD
cultureandleadershipstrengthsandchallenges.
3Thejobcategorieslistedinthesurveywere:ExecutiveLeadership;SeniorManagement;SergeantsorCivilianSupervisor/Lead;Officer–Patrol;Officer–Investigations,Training,Outreach,Other;
Communications/Dispatcher;SecurityGuard;AnalystorSpecialist;orOther.
UWPDExternalReview–FindingsandRecommendations 3
Theteamwasimpressedwiththeinterest,openness,andcommitmentoftimebyso
manytotheUWPDreviewprocess.Thewillingnessofabroadcross-sectionof
individualstosharepersonalexperiencesandobservationsprovidedinvaluable
assistanceinconductingthereview.
Aftertheteamcompleteditsreview,itsfindingsandrecommendationswereshared
withUWadministrators.WhenthedecisionwasmadethatJohnVinsonwouldbe
resigninghispositionasUWPDChief,UWPresidentCauceandVicePresidentSuite
thenaskedthatthereviewteamalsorecommendwhattheUniversityshould
considerinitssearchforanewleaderatUWPDandhighlightanyareastowhichthe
incomingChiefshouldbeattentive.Theteamaddedthoserecommendations,and
finalizedandtransmittedthisreporttoUWonApril30,2019.
II. TheWorkofUWPD
Campuspolicedepartmentshaveresponsibilitiesandchallengessimilartothoseof
lawenforcementatthelocal,state,andfederallevels.Whatevertheirjurisdiction,
policechiefs“mustsuccessfullymeetthedemandsofcommunitymembers,
politicians,organizationalmembers,unions,policeassociations,specialinterest
groups,andtheirownexecutivestaffmembers.”4
Butuniversitypolicingisalsouniqueinanumberofways,suchasitsrolein
supportingotheraspectsofstudentlife,managementoflargeandsometimes
controversialeventsoncampus,andcompliancewiththeCleryAct.5Campuspolice
alsomustaddressparentalfearsandconcernsfortheirchildrenattendingcollege,a
challengenottypicalforotherlawenforcementagencies.Inaddition,inacollege
environment,thecommunityofstudentschangesalmostentirelyeveryfouryears,
creatingbothopportunitiesanddemandsforcampuspolice.Inmeetingtheirlaw
enforcementresponsibilities,campuspoliceexecutivesworkonsometimescomplex
mattersrelatingtofiscal,legal,andtechnologicalissues;diversecommunitiesand
staff;organizationalstructureandoperation;and,humanresourcesconsiderations.6
Asnotedonitswebsite,“TheUWPDhastheexclusiveresponsibilitytoactuponlaw-
enforcementmattersandperformpolicefunctionsfortheSeattlecampusofthe
UniversityofWashington.Officersinvestigateallcrimesandenforcefederal,state
andlocallawsaswellasWashingtonAdministrativeCode(WAC)ruleswithinthe
UniversityofWashington’sjurisdiction.”7UWPDservesstudents,staff,facultyand
4Rainguet,FredW.andDodge,Mary.TheProblemsofPoliceChiefs:AnExaminationoftheIssuesinTenureandTurnover,PoliceQuarterly(September2001),Vol.4No.3,268-288.5TheCleryActisafederallawrequiringthatcollegesanduniversitiesparticipatinginfederal
financialaidprogramsmaintainandreportcampuscrimestatisticsandsecurityinformation.
https://studentaid.ed.gov/sa/about/data-center/school/clery-act-reports6Theseandotherleadershipcompetenciesarediscussedin:Vinson,JohnNathaniel.Leadership
CompetencyNeedsofU.S.CampusLawEnforcementAdministrators,Dissertations(2004),1147.
http://scholarworks.wmich.edu/dissertations/11477http://police.uw.edu/aboutus/divisions/
UWPDExternalReview–FindingsandRecommendations 4
otherpeopleoncampus,alongwithensuringthatUniversitypropertyiskept
secure.Inadditiontoenforcinglawsandinvestigatingcrimes,UWPDprovidesother
publicsafetyservicessuchastrafficandparkingenforcement,emergency
management,victimsupport,andcrimepreventioneducation.
Thejobofapoliceexecutiveisdemanding.TheInternationalAssociationofChiefsof
Policeestimatesthatthetenureforlargemetropolitanpolicechiefsis2.5years,
giventhedepthandbreadthofdemandsonpoliceexecutives.8Typicalreasons
policeexecutivesdepartinclude“health,frustration,weariness,politicalpressures,
andnewjobopportunities.”9Whileitisnotcleariftheaveragetenureofcampus
policechiefsmatchesthatofmajorcitypoliceexecutives,theyfacesimilar
complexities,challenges,andopportunities.Whilehighturnoveramongpolice
chiefscanleadtoorganizationaldisruption,someturnovercanbepositive,creating
“anopportunityfororganizationalgrowthandimprovement.”10
III. UWPDChiefJohnVinson
Dr.JohnVinsonbecameUWPD’sseventhChiefinFebruary,2009.11ThiswasChief
Vinson’sfirstappointmentasadepartmentalchief.Hepreviouslyworkedfouryears
(threeasUndersheriff)withtheIsabellaCountySheriff’sDepartmentinMt.
Pleasant,Michigan.HealsohadservedwiththeCentralMichiganUniversity(CMU)
campuspoliceandintwoDetroitsuburbs,BattleCreekandRoyalOakTownship.
ChiefVinsonholdsaMastersandaPh.D.inPublicAdministrationandgraduated
fromtheFBINationalAcademy.12
ChiefVinsonreportstoDr.DenzilSuite,UWVicePresidentforStudentLife,andhis
currenttitleisAssistantVice-PresidentforStudentLife/ChiefofPolice.Heisan
adjunctfacultymemberteachingleadershipandmanagementcoursesinthe
Master’sofPublicAdministrationProgramforCentralMichiganUniversity,isonthe
adjunctfacultyforSeattleUniversity,andhasinstructedcoursesatWestern
MichiganUniversity,KirtlandCommunityCollege,andMontcalmCommunity
College.Heisregularlyinvitedtospeakandprovidetrainingonpolicing,leadership,
anddiversityissuesacrosstheU.S.andinternationally.ChiefVinsonisPresident-
ElectfortheInternationalAssociationforCampusLawEnforcementAdministrators
(IACLEA)andalsohasprofessionalaffiliationswiththeInternationalAssociationof
ChiefsofPolice,theNationalAssociationofBlackLawEnforcementExecutives,the
WashingtonAssociationofSheriffsandPoliceChiefs,andtheKingCountyPolice
Chiefs&SheriffAssociation.13
8RainguetandDodge,supra,at268.9Id.at284.10Id.at270.11ForinformationconcerningUWPD’shistoryandotherswhohaveservedasChief,see:http://police.uw.edu/aboutus/history/12ChiefVinsonreceivedhisMSAfromCentralMichiganUniversityandaPh.D.fromWestern
MichiganUniversity.13Forfurtherbiographicaldetail,see:http://police.uw.edu/aboutus/divisions/chief
UWPDExternalReview–FindingsandRecommendations 5
WhenhestartedwithUWPD,ChiefVinsonwasgiventhemandateto:
• TransformUWPDintoahighlyvisible,stateoftheartcampuslaw
enforcementagency;
• Developbroaderandmoresustainedoutreachtothecampuscommunity;
• Developclearexpectationsforstaffandrelatedaccountabilitymetrics;and
• Developoutcomemeasuresfortheoverallworkofthepolicedepartment.14
AstheChiefestablishedandimplementedastrategytoaddressthesegoals,hesoon
recognizedanumberofimpediments,includingproblemsofcommunication,
morale,trust,andrespectwithintheDepartmentthatalsohadbeenidentifiedina
2007UWPDclimatereviewreport.15Therewasasensethatsomestaffmembers
viewedVinsonassecondchoicetotheinternalcandidatewhowaspassedover,and
feltthreatenedbyaChiefwhodidnotriseupthroughtheUWPDranksandwho
decidedtobringinothersfromtheoutside.DetailsaboutChiefVinsonhavingbeen
investigatedforanincidentin1994wherechargeswerenotpursuedwere
discoveredandpublicizedbysomeUWPDemployees,causingChiefVinson
frustration,ashebelievedthefactsandissuesinvolvedweremisconstrued.Then-
VicePresidentofStudentLife,EricGodfrey,addressedalettertoallUWPD
employeesassuringthemtheUniversitywasawareofthe15-yearoldchargesatthe
timeofChiefVinson’shireandwassatisfiedtheUniversityhadmadetheright
choiceinselectinghimforChief.Nonetheless,concernsaboutthechargesremained
andwereraisedasrecentlyasduringthisreview.Fromthetimehewashired
throughthepresent,theChiefhasalsofacedclaimsofraceandgenderbias,labor
strife,andotherissuesofemployeerelations.
Despitethesechallenges,ChiefVinsonmadesignificantprogressonthemandatehe
wasgivenwhenfirsthired.Individualsinterviewedbytheteamnotedmanystrong
pointstheChiefbroughttothejobthathelpedhimmovetheorganizationforward.
Someintervieweesmadecommentsalongthelinesof,“ChiefVinsonis
smart...charismatic...achangeagent...avisionary...drivenonvision,mission,and
task.”OthercommentsreferredtohiscontributionsingrowingtheDepartment,
suchasenhancingofficersafetymeasures,outfittingofficerswithTasers,
institutionalizingpoliciesandprocedureswheretheyweremissing,developingIT,
formalizingInternalAffairsprocesses,relocatingtheDepartmentintoanew,better
equippedandmorecentrallylocatedbuilding(summer2016),andmakingvehicle
anduniformchanges.
ChiefVinsoniscreditedwithraisingsalariesamongcommissionedemployees,after
alongperiodwithoutraises.ManyintervieweesalsoobservedthatChiefVinson
helpedbringmoreracialandgenderdiversitytoUWPDandthatheiscommittedto
14ChiefVinsonprovidedtheteamwithadocumentsummarizinghisexperienceatUWPD:
“UniversityofWashingtonPoliceDepartmentTimeline–HistoricalContext,”JohnVinson,Ph.D.,
AssistantVicePresidentforStudentLife/ChiefofPolice(undated).15Id.at3.Payne,JonA.“ClimateReview–UniversityofWashingtonPoliceDepartment”(October31,2007).
UWPDExternalReview–FindingsandRecommendations 6
workingtomaketheDepartmentstandoutamonguniversitypolicedepartments.
Tothatend,andasnotedearlier,ChiefVinsonisfrequentlyinvitedtospeakon
policingmattersandisPresident-ElectforIACLEA.Headvocatesfordata-driven
policingandhashaddiscussionswithUWfacultyandgraduatestudentsaboutways
tocollaborateonresearchtosupporttheworkofUWPD.
Earlyinhistenure,theChieftookstepstoensuremoreofficerswereoutonpatrol,
gettingtoknowUWcommunitymembersandengagingtheminproblemsolving.
UWstakeholdersnotedthattoday,officersareapproachableandaccessibleto
membersoftheUniversitycommunity,andseveralstakeholdersprovidedexamples
toillustrateofficers’responsivenessandpatienceininvestigatingcriminal
complaintsandprotectingdomesticviolencevictims.16Stakeholdersalsopraised
ChiefVinsonforadvocatingaharmreductionapproachtocertainissues,workingto
addresscomplexissuesrelatedtohomelessnessaroundtheUniversityDistrict,and
forensuringsafetyinlarge-scaledemonstrationswithoutover-policing.Hehas
endeavoredtobuildUWPDrelationshipswithlawenforcementthroughoutthe
region,includingofferingofficespacefortheSeattlePoliceDepartment’suseinthe
UWPDbuilding,andhastackledjurisdictionalboundaryquestionswiththeSeattle
PoliceDepartmentandKingCountySheriff’sOffice.
WhilehisstrengthsinitiallyhelpedmovetheUWPDorganizationanditsmission
forward,ChiefVinsonhasstruggledonmanyfrontsthepastthreeorfouryears.His
task-drivenleadershipstyleservedhimwellinhisearlyyearsatUWPD,butthe
Departmenthasbristledagainsttheapproachmorerecently,renderinghimless
effectiveoverall.ChiefVinsonhimselfnotedthelackofstabilityintheorganization
since2015,asheunsuccessfullysoughttoestablishamorepermanentcommand
staff,whichhassufferedrepeatedturnoverinrecentyears.Givenhispromotionto
AssistantVicePresidentforStudentLifeandfrequenttripsawayfromthe
Departmenttoteach,train,andmakepresentations,manyquestionedtheChief’s
commitmenttotheagencyandattributedself-servingmotivesforhistravel.
IV. UWPD’sOverallCulture
Avarietyofissuesemergedfromtheteam’sreviewregardingtheDepartment’s
organizationalhealth.InconsideringtheoverallcultureintheDepartment,thedata
pointstobothpositivechangesandsomenegativetrends.
Organizationalculturehasbeendefinedasthevaluesandbehaviorsthatcontribute
totheuniquesocialandpsychologicalenvironmentofanorganization.
Organizationalcultureincludesanorganization’sexpectations,experiences,
philosophy,andvaluesthatholdittogether,andisexpressedinitsself-image,inner
16However,afewstakeholdersexpressedmixedviewsonhowUWPDhandledspecificincidents.For
example,oneadministratorwassurprisedbyanofficer’sreluctancetoexploreapotentialracial
motiveinacriminalincident.Anotherpersonwascriticalaboutofficers’responsetoacallinvolving
potentialdomesticviolence.
UWPDExternalReview–FindingsandRecommendations 7
workings,interactionswiththeoutsideworld,andfutureexpectations.Itisbased
onsharedattitudes,beliefs,customs,andwrittenandunwrittenrulesthathave
beendevelopedovertime.Alsocalledcorporateculture,it’sshownin(1)theways
theorganizationconductsitsbusiness,treatsitsemployees,customers,andthe
widercommunity;(2)theextenttowhichfreedomisallowedindecision-making,
developingnewideas,andpersonalexpression;(3)howpowerandinformation
flowthroughitshierarchy;and,(4)howcommittedemployeesaretowardcollective
objectives.Itaffectstheorganization’sproductivityandperformance,andprovides
guidelinesoncustomercareandservice,productqualityandsafety,attendanceand
punctuality,andconcernfortheenvironment.17
TheUWPDhashadissuesofcultureimpactingthequalityoftheemployee
experience,retention,andemployeeengagementsincebeforeChiefVinson’shiring
asChiefin2009.18Concernssuchasthoserelatingtotransparency,organizational
structure,andemployeeretentionhavebeendocumentedsinceasearlyas2001.
Thecostsofnegativeculturalattributesincludethoseassociatedwithhiring,
training,anddevelopingpeoplewholeaveprematurely;coststotheUniversityof
addressingcomplaintsandlaborgrievances;andtheopportunitycostsofnot
gettingthebestfrompeoplewhofeelstressed,unhappy,anddisenfranchised.
Onapositivenote,thedatagatheredthroughinterviewsandthesurveyindicates
thatemployeesgenerallylikeandrespecttheirUWPDco-workersandhaveagood
relationshipwiththeirsupervisor:
• 79%19ofsurveyrespondentsindicatedtheylikethepeopletheyworkwith
mostcloselyand76%feeltheytreateachotherwithrespect
• 75%ofrespondentsperceivetheirimmediateco-workersasconsistently
strivingtoperformtheirjobswelland69%believethepeopletheywork
withmostcloselyarecommittedtoproducingtopqualitywork.
• 93%ofPatrolOfficersand83%ofOfficerswithnon-patrolresponsibilities
indicatedtheyhaveagoodrelationshipwiththeirsupervisor,and68%ofall
respondentsagreedthesupervisoryrelationshipisgood.
• 80%ormoreofallOfficersagreedthattheirsupervisorhelpsthemresolve
mostoftheirworkproblemsandissues.
• Ininterviews,commentsweremadesuchas,“thepeopleareawesome...some
ofthemostqualifiedaround...myjobisgreat...peoplelovetheuniversity...[a
particularofficer]isbestofthebest...greatpeopleatagreatuniversity...”
• ManyintervieweesnotedapersonalconnectiontoUW,suchashaving
attendedcollegethereorhavingarelativeorfriendwhoplayedUWsports.
17http://www.businessdictionary.com/definition/organizational-culture.html18See,e.g.,2007ClimateReview,supra.TheteamalsoreviewedthreeotherassessmentsthattoucheduponUWPDculturalissues:(1)CALEA,“UniversityofWashingtonPoliceDepartment
AssessmentReport,”(2017);(2)TheBusinessResearchLab,“UniversityofWashington2003
EmployeeSatisfactionSurveyPolice,”(October2003);and,(3)“UniversityofWashingtonPolice
DepartmentOrganizationStudy&RecommendationtoAdoptBestPractices(2001).19Notethatallpercentagesreportedareroundedtothenearestwholefigure.
UWPDExternalReview–FindingsandRecommendations 8
Therealsoappearstobelessinternalpeer-to-peer,unit-to-unitconflict,and
employee-supervisorconflictandmistrustthanwasexpressedinthe2007
assessmentandearlierstudies.Whileemployeeengagementremainsaconcern,as
notedinthechartbelow,thepercentageofemployeesproudtoworkatUWPDhas
risenfrom32%in2003to47%in2019andretentionconcernshaveimproved
overallsince2001(thoughtherewasasetbackin2015).In2019,80%ofUWPD
employeesseetheirjobasallowingthemtosupporttheUniversitycommunityand
85%understandhowtheirjobfitsintotheUWPDmission.Thisisasignificant
improvementoverthe2007findings.
However,intervieweesofferedstronglynegativeculturaldescriptionsofUWPD
suchas:
o Toxicworkenvironment
o Toxicculture
o Cultureoffear
o Cultureofdysfunction
o Theorganizationisconsumedwithanger,frustrationanddrama
Thesedescriptionsaresimilartothosenotedinthe2007assessment.
IssuesofconcerninthecurrentculturalenvironmentatUWPDinclude20:
Trust Only8%ofsurveyrespondentsagreethat,“Thereisaclimateoftrust
withintheDepartment.”
Respect 76%agreethepeopletheyworkwithmostcloselytreateachotherwith
respect.However,only19%feelexecutiveleadershiptreatsemployees
withrespect.
Communication Only12%ofsurveyrespondentsagreethat,“Thereisgood
communicationwithintheDepartment.”
Inclusiveness Only25%feeltheyareconsultedaboutimportantdecisionsaffecting
theirwork;just23%feeltheirperspectiveisheardandconsidered.
Engagement Only47%areproudtoworkfortheUWPDandonly31%seeUWPDas
agoodplacetoworkincomparisontootherlawenforcementagencies.
Only32%said,“ItwouldtakealottogetmetoleavetheUWPD.”
Leadership Only21%agreethat,“Executiveleadershipmakesgooddecisionsthat
improvetheDepartment’seffectiveness”andonly21%trustUWPD
executiveleadershiptoguidetheDepartment.21
Needfor
Change
82%haveconcernsaboutthewaytheDepartmentisfunctioningand
74%wanttoseemajorchangesintheDepartment.
20Otherthanwheredemographicinformationwassought,eachsurveyquestionaskedthat
respondentsindicateoneofthefollowingresponses:StronglyAgree,Agree,NeitherAgreeNor
Disagree,Disagree,orStronglyDisagree.Insummarizingandreportingonthesurveyresults,the
categories“StronglyAgree”and“Agree”oftenarecombinedinto“Agree,”and“StronglyDisagree”
and“Disagree”arecombinedinto“Disagree.”21Whilesurveyquestionsdidnotdelineatespecificmembersoftheexecutiveleadershipteam,
respondentandintervieweecommentsfocusedontherolesofChiefandtheDirectorof
AdministrativeServicesandHumanResources.
UWPDExternalReview–FindingsandRecommendations 9
Despiteemployeesgenerallylikingandrespectingeachotherandhavinggood
relationshipswiththeirsupervisors,theoveralldispiritedinternalclimateofthe
Departmentisstriking.Thefollowingsectionsconsiderwaysleadershipimpactsthe
organizationalclimateaswellasUWPD’sorganizationalstructure,resource
allocation,andrecruitment,hiring,andretention.
V. LeadershipEfficacy
Today’spoliceagencyemployees“arelookingformoreforward-thinking,forward-
leaning,forward-movingorganizationsthatarecapableofunderstandingtheir
needsandchangingwiththetimeswhennecessary,particularlyintheareasof
supervisorymanagement,leadership,andtalentmanagementpractices.”22Effective
leadersrecognizethatleadershipissituationalanduseavarietyofmethodsover
timetomotivateandpositivelyimpacttheworkenvironment.“[R]esearchindicates
thatleaderswiththebestresultsdonotrelyononlyoneleadershipstyle;theyuse
mostoftheminagivenweek–seamlesslyandindifferentmeasure”dependingon
thesituation.23Thereviewteam’sanalysisindicatesasignificantgapbetween
UWPDleadershipandthesemanagementbestpracticesandothersnotedbelow.
Asdiscussedabove,ChiefVinson’sleadershipstyleinhisearlyyearsatUWPDled
theorganizationtomakeanumberofimportantstructuralandproceduralchanges.
However,beginningin2015,theChiefstruggledtomaintainacohesiveand
enduringcommandstaff,whichinturncontributedtootherproblemsintheagency.
Perhaps,atleastinpart,theongoinginstabilityresultedinChiefVinsonmoving
fromanauthoritativeleadershipstyletowhatisperceivedasamorecoercive,
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-termstepstocreateahealthierandstableorganizational
cultureshouldbeapriorityfortheincomingInterimChief.ThenewChiefshould
thenleadanorganizationalchangestrategytocontinuetostrengthentheculture
oftheDepartmentandimprovetheexperienceofitsemployees.
2.ThenewChiefshouldinclude,aspartofthatorganizationalchange
strategy,toolstoregularlyassessemployeeconcernsandorganizationalhealth
issues,usingthepositiveandnegativeindicatorsdocumentedintheexternal
reviewasabaseline.Resultsoftheseassessmentsshouldbereviewedwiththe
Vice-PresidentforStudentLifetoensurethereisasharedunderstandingof
UWPD’sorganizationalhealthamongUPWDleadership,theChief,andthe
Universityadministration.
UWPDExternalReview–FindingsandRecommendations 10
micro-managingapproach.Overtime,UWPDemployeesresentedandresistedhis
efforts.TheorganizationalhealthoftheDepartmenthasbeennegativelyimpacted
intheprocess.24
IntervieweesprovidedthereviewteamwithnumerousexamplesofhowChief
Vinson’sleadershipstylenegativelyimpactedemployeesthroughoutthe
organization.Whilethereviewteamconsideredalloftheinformationsharedby
everyinterviewee,thediscussionbelowfocusesontheChief’sstruggletoestablisha
stablecommandstaff,hisapproachtobudgetmattersanddecision-making,the
impactofhisleadershipstyleonothersinternallyandintheUWcommunity,and
theissueofsupervisoryinconsistency.
A. DifficultyinEstablishingCommandStaffStability2015-2018
TherehasbeenorganizationalinstabilitythroughouttheDepartment,including
withUWPD’sexecutiveleadershipgroup,forseveralyears.25WhileformerDeputy
ChiefRandyWestservedUWPDforapproximately5years(2010–2015),three
differentpeopleservedasDeputyChiefbetweenearly2015andtheendof2017–
oneforamatterofdaysandtheothertwoforabout10monthseach.ChiefVinson
hiredallfouroftheseindividualsfromoutsideUWPD,alongwithotherexternal
candidateswhofilledtherolesofCommander,Major,andnon-commissioned
executiveandseniormanagementpositions.Whilebringinginoutsidersfor
commandpositionscancreateresentmentanddistrustwithinternalcandidatesand
otherstaff,currentandformerUWPDemployeesgenerallyexpressedpositive
commentsaboutnearlyalloftheseexternalhires.
AfterthedepartureofthreedifferentDeputyChiefsbroughtinfromtheoutsidein
lessthanthreeyears,inJanuary2018theChiefdivideduptheDeputyChiefroleand
appointedtwointernalpeople,aLieutenantandaCommander,asInterimDeputy
Chiefs.Theyservedfor11monthsandwerepermanentlypromotedasDeputy
ChiefsinDecember2018.26
Thislackofstabilityattheexecutiveleadershiplevelhashadrepercussions
throughouttheUWPDorganization.Ataminimum,thefrequentchangesprovideda
negativedistractionandfedtheinternalrumormillaboutwhycertainpeopleleft.
AnotherresultwasthatindividualsinsidetheDepartmentfrequentlyweremoved
upanddownthehierarchy,withinterimassignmentsasDeputyChief,Commander,
Major,Lieutenant,andothertemporarycommissionedandnon-commissioned
24Id.Golemannotesthatuseofacoercivestyle,beyondashort-termcrisis,resultsinemployees
feelingdisrespected,alossofownership,accountabilityandprideinperformance,andadiminished
commitmenttotheirownjobs.25Asnotedpreviously,ChiefVinsonacknowledgedinhisfirstinterviewthattherehasbeen
“instability”atUWPDsince2015.26The11-month“interim”appointmentsaretypicalofhowChiefVinsonhasmadeanumberof
hiringandpromotionaldecisionsovertheyears.Thisapproachhasnegativelyimpactedretention
andsupervisoryrelationshipsthroughouttheDepartment,asdiscussedbelowinSectionVII.
UWPDExternalReview–FindingsandRecommendations 11
roles.Nothavingastableexecutivecommandstaffalsomeantitwasdifficultfor
ChiefVinsontogettractiononseveralinitiativeshehopedtopursue.Thisis
illustratedbythefactthatthedescriptionandgoalsnotedunderStrategicInitiative
1:CommunicationandAwarenessinthe2012-2017UWPDStrategicPlanare
nearlyidenticaltothoseinthe2020StrategicPlan,asistrueforotherareasofthe
twoplans.
TheDeputyChiefshiredbyChiefVinsonpriorto2018allhad20–30yearsoflaw
enforcementbackground,eachinavarietyofcapacities,andwereviewedas
bringingsignificant“bootsontheground”experiencetosupporttheChief’svision
fortheDepartment.YetformerDeputyChiefsandothercommanderswhowere
interviewedexpressedhavingexperiencedconsiderablefrustrationinworkingfor
ChiefVinson,andgenerallydidnotfeeltrustedorempoweredbyhimtocarryout
commandduties.Theseformerexecutivestaffleadersfeltconfusedwhentherole
eachhadanticipatedservingintheorganizationbasedonpre-hireconversations
withtheChiefturnedouttobesubstantivelydifferentbecauseofthelimitations
ChiefVinsonimposedaftereachwashired.FormerDeputyChiefs(andothersin
UWPDseniormanagement)commentedthattheywerenotgivenlatitudeor,
sometimesthenecessaryinformation,toruntheiroperations.Further,they
indicatedthatwhentheChiefwasoutoftown,thoseleftresponsibledidnothave
authoritytomakeanysignificantdecisionthemselves.
AclearexampleofhowDeputyChiefsfeltdisempoweredisseenintheChief’s
decisiontonotsharetheUWPDbudgetwiththemoranyoneelseotherthanthe
DirectorofAdministrativeServicesandHumanResources.LiketheDeputyChiefs,
seniormanagersandsupervisors,somewithsignificantexperienceoverseeinglarge
budgets,alllackedbasicknowledgeofbudgetaryopportunitiesandconstraints
neededtoeffectivelyadministertheirareasofresponsibilityandalsowereleft
thinkingtheChieforotherexecutivesmustnottrustthemwithfinancial
information.Whileitisnotunusualfortheretobesomefluxintheavailabilityof
fundsinapublicagency,employeesthroughouttheDepartmentweregivenno
explanationaboutwhydollarscouldbespentatonetimeandnotanother.Eighty-
threepercent(83%)ofsurveyrespondentsdisagreedthat“UWPDexecutive
leadershipistransparentaboutbudgetpriorities.”Thislackoftransparencyfed
suspicionamongsomethatDepartmentalfundswerebeingspentinappropriately,
inturncontributingtoamoregeneralsenseofdistrustintheorganization.
ChiefVinson’sdisinclinationtosharebudgetdetailswithothersinUWPD--another
exampleofalackoftransparency--meanthedidnotgetthebenefitoftheir
perspectiveandinputwhensettingbudgetpriorities;decision-makingcansufferas
aresult.Further,strategicplanningisunderminedbynotknowingiffundswillbe
availabletosupportinitiatives;neitherthe2012nor2020StrategicPlanaddress
thefinancialresourcesneededtomeetthevariousgoalslisted.
AsoneUWcampusstakeholdernoted,givenlimitedresourcesandcompeting
priorities,asmartleadershouldbeespeciallyeagertoinvolveothersinbudget
UWPDExternalReview–FindingsandRecommendations 12
decision-making.Includingthoseimpactedbybudgetdecisionsallowsthemto
betterunderstandoperationallimitations,appreciatetheneedtosetpriorities,and
acceptfinalbudgetallocations.27
Onnon-budgetrelatedmatters,theChiefmetoftenwithUWPDexecutiveleadership
andseniormanagementandverballyinvitedinputor“pushback,”though
intervieweesdescribedhimasdefensiveandunableorunwillingtoacceptcriticism
ofideasheproposed.Numerouspeoplegavepersonalexamplesofdisagreeingwith
theChiefonsomematterorbeingperceivedbyhimashavingbeendisloyalinsome
way,withtheresultthattheChiefdidnotspeaktothepersonforweeksafterward
(theywere“giventhecoldshoulder”and“walkedoneggshells”),reassignedthe
individualtoapositionwithlessresponsibility(theywere“senttoSiberia”),took
awayequipment,officespace,oraccesstoinformation(he“frozeout”theperson),
orinsomeotherwaytookpunitiveactionagainstthe“offending”employee.The
experienceandperceptionthatemployeesaretreatedpoorlyafterdisagreeingwith
theChiefhashadachillingimpactonthewillingnessofemployeestoopenly
participateindecision-making,createdafearofretaliationamongmany,andlikely
depriveddecisionsofcriticalinformationfrompeopleclosetotheissueorproblem.
Effectiveorganizationsdependontheiremployeestobeabletoexpressopposing
viewsandarewillingtoexplorealternativestofindthebestcourseofaction.Yet,
only28%ofallUWPDsurveyrespondentsagreedwiththestatement“Iwouldfeel
comfortablesharingmythoughtswithexecutiveleaders,evenifIdisagreewith
whatisbeingproposed.”28
WhilesomeexternalstakeholdersbelievetheChiefhasbeenproductivelyengaged
withvariouscommunitygroups,manyotherinternalandexternalinterviewees
statedthattheydidnotexperienceChiefVinsontobeacollaborativeleader.For
example,severalUWstakeholdersnotedthattheChiefdidnotwanttoinvolve
UniversitypartnersintheselectionprocessforaUWPDpositionthatregularly
interfaceswiththesepartners.Inanotherhiringsituation,theDepartmentinvolved
othersbycreatingagrouptointerviewandevaluatecandidatesandtheChief
initiallyofferedthejobtothecandidaterankedthehighestbythegroup.However,
whenthatpersondeclinedtheposition,theChiefhiredtheindividualthegrouphad
rankedlowest,anddidnotprovidethemwithanexplanation.29
StakeholdersprovidedseveralexamplesoflackoffollowthroughbytheChiefafter
heexpressedenthusiasmaboutaparticularideainmeetingswiththem.For
example,studentspointedoutthattheprogramofferedbyUWPDtoteachwomen
self-defense,whichiscalledRapeAggressionDefense(RAD)training,isveryuseful,
27Inhissecondinterview,ChiefVinsonindicatedhehadplanstodoatable-topbudgetexercisewith
DeputyChiefsthiscomingspring,thoughalsoindicatedhewantedthemtofocusonissuesotherthan
thebudget.28Notethattheterm“executiveleaders”wasnotdefinedinthesurveyandisintendedtoincludeotherpeoplebesidestheChief.However,thegreatmajorityofsurveyandinterviewcommentsabout
decision-makingbyexecutivesfocusedontheChief.29ThepersonhiredleftUWPDafterlessthanayear.
UWPDExternalReview–FindingsandRecommendations 13
butalsoshouldbetailoredandofferedtoothers,suchasthosewhoaretransgender
orgendernon-conforming.TheChiefindicatedUWPDwouldrespondwithchanges
toRAD,buthasnotdoneso.
ChiefVinsonindicatedthatwhenhefirstcametoUWPD,hereliedheavilyon
strategicapproachesoutlinedinthebook,GoodtoGreat,includingthenotionthata
leadermust“firstgettherightpeopleonthebus(andthewrongpeopleoffthebus)
beforeyoufigureoutwheretodriveit.”30ChiefVinsoncameintoUWPDhavinga
visionofwheretodrivethe“bus,”butovertime,hedidnotknowhowtogetthe
drivers(orriders)committedtogoingthere.
The2007ClimateReviewpointedouttheneedforaUWPDleaderwho,among
otherattributes,is“particularlyeffectiveatteambuilding,empowermentand
accountability.”31Amorerelationalstyleofleadershipalsoisneededatthis
juncturetoinspire,empower,andmotivateUWPDemployees.Thisapproachto
leadershipisinclusive,recognizeseachindividual’suniquecontributionstothe
mission,strivestowardtransparency,andtakesactivestepstofacilitateeffective
communication.TheDepartmentneedsleadershipthatcanfosterrelationshipsup
anddownandacrosstheorganization,tohelpbuildaculturethatenhancestrust
andconfidenceandleadstoeffectivenessinaccomplishingtheagency’smission.
B. LeadershipEfficacyandFirst-LineSupervisors
AtarecentmeetingofthePoliceExecutiveResearchForum,involvingover150
policeexecutives,managers,supervisors,andotherpoliceprofessionals,theroleof
sergeantsandfirst-linesupervisorsinpoliceagencieswasdiscussedandresultedin
thereport,PromotingExcellenceinFirst-LineSupervision:NewApproachesto
Selection,Training,andLeadershipDevelopment.32Chiefsandotherpolice
executivesagreed,“Sergeants(andotherfirst-linesupervisors)occupyoneofthe
mostimportantpositionsinalawenforcementagency.”33However,UWPD,aswith
manyagencies,hasstruggledtofullysupportSergeantsandothersupervisorsin
theirroleasagencyleaders.
“Outofclassification”assignmentsandshiftadjustmentsforUWPDSergeantsare
importantfactorsinthefrustrationfeltbysomesupervisors.UnderChiefVinson,
UWPDhadbeenusingActingSergeants,PatrolOfficersassignedtofillsupervisory
slotsasneeded,whenaSergeantwasunavailable.TheuseofActingSergeantswas
challengedasaformof“skimming”workfromSergeants,whoareinadifferent
bargainingunitthanOfficers,andsomebelieveitwasusedbyUWPDtoavoid
payingovertimetoSergeantsorLieutenants.Themostrecentcollectivebargaining
contractprohibitstheuseofActingSergeants.SergeantsandLieutenantsareinthe
30Collins,Jim.GoodtoGreat,HarperCollinsPublishers(2001),p.44.31Supra,2007ClimateReview.32AvailableonPERF’swebsiteathttps://www.policeforum.org/free-online-documents33Id.at12.
UWPDExternalReview–FindingsandRecommendations 14
samebargainingunitandUWPDalsoroutinelyassignedLieutenantstofillinfor
Sergeantsasneeded.However,whentheDepartmentstoppedthepracticeofusing
ActingSergeants,theChiefalsounilaterallydecidedtonolongerassignLieutenants
tocoverforSergeants,deemingitan“outofclassification”role.Thus,sincethese
changeshavegoneintoeffect,Sergeantsmustacceptmoreshiftadjustment
assignments(workingoutsideorinadditiontotheirregularschedule),resultingin
anumberofgrievances.UWPD’sincreaseduseofshiftadjustmentsservedasa
significantmotivatorinthedecisionbythegroupofsixSergeants,oneformer
Sergeant,andoneLieutenanttofilealetterofconcernswiththeUWBoardof
Regents.
InhismemoinresponsetotheletterofconcernssubmittedtotheBoardofRegents,
ChiefVinsonindicatedthegroup’sdissatisfactionrelatedtoeffortsbyUWPDto
enhancesupervisionandsupervisoryaccountability.34VinsonnotedthatUWPD’s
firststrategicplan,completedin2012,identifiedsupervisoryconsistencyasagoal
andthatplandevelopersnoted,“providingemployeeswithconsistentexpectations
improvesandenhancesourabilitytoprovideexcellentcustomerservice.”35
SupervisoryconsistencywasagainidentifiedasacontinuedgoalinUWPD’s2020
StrategicPlan.
ChiefVinsonindicatedthatthecurrentDeputyChiefshavebeenchargedwith
improvingsupervisoryconsistency,whichhasresultedinchangestoprocessesand
procedures,includingincreasedaccountability.36TheChiefassertedthatpatrol
supervisorshaveresistedmakingchangestoimprovecommunicationwithofficers
oradoptaconsistentapproachinleadingtheirteams.37Further,accordingtothe
Chief,theincreasedaccountabilityhascausedsomesupervisorstostrugglewith
balancingleadershipwitheffectiveshiftmanagementandhascreatedadditional
hostilityamongsomeofficersandsupervisors.38Vinsonconcludedwith,“these
increasedaccountabilitymeasures,coupledwithinitialcontractnegotiations,is
possiblywhattriggeredthiscoordinatedcomplaintanddemands...”39
DuringasubsequentinterviewwithChiefVinson,heclarifiedthatthereisalackof
follow-throughfromtheDeputyChieftotheLieutenantanddowntotheSergeants
onanumberofissues.“Supervisoryinconsistency”apparentlymostoften
representsalackofprotocolsandprocessesinplacetoensurethateveryonestrives
towardthesameexpectationsandstandards.WhileformerDeputyChiefWest
helpeddevelopanumberofpoliciesandprocesses,effortstocompleteotherswere
34MemotoDr.DenzilSuite,VicePresidentforStudentLife,fromJohnVinson,AssistantVicePresidentforStudentLife/ChiefofPolice,DatedSeptember28,2018,Re:Responsetoletterreceived
fromsomeWFSEmembers,dated9/13/2018(VinsonResponseMemo).35Id.36Id.37Id.38Id.ChiefVinsonalsonotesthattherehavebeencomplaintsbyofficersagainstsupervisorsandamongsupervisors,presumablyrelatedtosupervisoryconsistencyissues.39Id.
UWPDExternalReview–FindingsandRecommendations 15
largelystalledduetocommandstaffturnoversince2015.TheChiefgavethe
exampleofaDeputyChief’srecentdevelopmentofareport-writingtemplateasa
stepinthedirectionofconsistency.And,asnotedabove,itappearsthatOfficers
havebeenexposedtoavarietyofsupervisors–regularSergeants,OfficersinActing
Sergeantroles,andLieutenantsfillinginforSergeants.Thisfurthercomplicatesthe
analysisof“supervisoryinconsistency.”
Itisnotunreasonabletothinkthereisatleastsomesupervisoryinconsistency,
thoughthedatadoesnotshowthisasbeingasignificanttheme.Infact,the
expressedmanagementconcernwithSergeantinconsistencystandsincontrastto
Officers’reportedexperienceoftheirsupervisors.Forexample:
• 93%ofPatrolOfficersagreeorstronglyagree,“Ihaveagoodrelationship
withmysupervisor”.
• 80%ofPatrolOfficersagreeorstronglyagree,“Mysupervisorisfairand
demonstratespersonalintegrity”.
• 80%ofPatrolOfficersagreeorstronglyagree,“Mysupervisorhelpsmetobe
successfulinmyjob”.
• 80%ofPatrolOfficersagreeorstronglyagree,“Mysupervisorcanhelpme
resolvemostofmyworkproblemsorissues”.
• 80%ofPatrolOfficersagreeorstronglyagree,“Ingeneral,myperformance
evaluationsaccuratelyreflectmyperformance”.
• 73%ofPatrolOfficersdonotbelievetheirsupervisorshavetheauthorityto
makedecisionsrelatedtothescopeoftheirresponsibility.
TheseUWPDsurveyresultsaremarkedlyhigherandmorepositivethanresearch
statisticsnationallythatindicated“approximately66percentoflawenforcement
officersfeltthattheirsupervisorswereineffectiveandpossessedthequalitiesof
inadequateleaders(poorleadershipskills,politicallymotivated,caringonlyabout
themselves,micromanagement,etc.).”40
Additionally,anumberofintervieweesspokehighlyofUWPDsupervisors,including
Officersandothers.Forexample,aseniormanagementmemberstated,“Most
LieutenantsandSergeantsareexceptional,butsomearedisengagedbecauseof
theirperceptionsabouttheorganization.”
Insum,theinterviewsandsurveydidnotpointtosupervisoryinconsistencyasa
majorproblem,althoughmorein-depthanalysisisbeyondthescopeofthisreview.
Regardless,becauseoftheimportanceoffirst-linesupervisors,andthefactthat
boththe2012andthe2020UWPDStrategicPlansidentifiedsupervisory
inconsistencyasanissue,totheextenttheChiefhasnotyetputinplaceclear
policiesandstandardizedprocesses,alongwithdedicatedtrainingandmentoring,
thatshouldbeamanagementpriority.
40Garcia,HectorR.Heart-FocusedLeadership:AShiftingPoliceLeadershipParadigm,PoliceChief
(October2018).
UWPDExternalReview–FindingsandRecommendations 16
UWPDisencouragedtoconsiderthefullPERFreportonPromotingExcellencein
First-LineSupervision,notedabove,andtherecommendedstepspoliceagencies
cantaketoimprovesupervision.Further,theDepartmentmustidentifyalternatives
tousingshiftadjustmentsasawaytoaddressashortageofSergeantsonanygiven
shift.OptionsmightincludecreatinganovertimereservewithintheDepartment’s
limiteddiscretionaryfundingorchangingtheshiftstructureandSergeant/Officer
ratiosothatmoreSergeantsareavailabletofillinasneeded.
EfficacyofLeadershipandFirst-LineSupervision-
Recommendations
1.Tobuildaculturethatreflectsthepositivevaluesandbehaviorsthat
supporteffectivenessinaccomplishingtheDepartment’smission,UWPD’snext
Chiefshouldhavedemonstratedexperienceinleadingorganizationalculture
transformationwhilemaintainingoperationaleffectivenessandstability.
Operatingprimarilyfromarelationalleadershipapproachthatfostersand
facilitatesrelationshipsupanddownandacrosstheagency,theChiefshould
focusondevelopingcollaborativedecision-making,team-building,employee
inclusivityandempowerment,transparency,andeffectivecommunication.
2.TheUniversityshouldconsiderthedegreetowhichthenextChiefhas
externalrolesthattakethefocusawayfromfulfillingthemissionofthe
Department,andwhichoftheserolesbestsupporttheUniversity’sandUWPD’s
interests.ThisisnotmeanttosuggesttheChiefbeprecludedfromprofessional
activityoutsidetheUniversity,butratherthatthoseopportunitiesbeweighed
againstotherUWPDmanagementpriorities.
3.UWPD’sleadershipshouldfollowthroughonallcommitmentsmadeto
Universitystakeholders,buildingproductiveandcollaborativeexternal
partnerships.
4.UWPD’sleadershipshoulddeveloppoliciesandprotocolsfor
supervisorstohelpensureconsistentuseofbestpracticesandaccountability;
supportsupervisorytrainingandmentoring;andconsiderotherstepstoimprove
first-linesupervisionwhereneeded.
5.UWPD’sleadershipshouldidentifyalternativestousingshift
adjustmentsforSergeants,includingacost/benefitanalysisfordifferent
approaches,andsolicitinputfromOfficers,Sergeants,Lieutenants,andothers
impactedbeforechangesaremade.
UWPDExternalReview–FindingsandRecommendations 17
VI. OrganizationalStructure
AnInternationalAssociationofPoliceChiefs(IACP)articledescribestheroleof
organizationaldesignin21stcenturypolicing,“Structureprimarilyreferstohow
powerandauthorityaredispersedintheorganization.Typically,structureis
manifestedinfourways:specialization,organizationalshape,distributionofpower,
anddepartmentalization.”41Whiletherearesimilaritiesinstructurebetweenlarge
andsmalldepartments,therearealsosignificantdifferences.“Oneofthebiggest
[differences]istheamountofspecializationpresentintheorganization,”aswellas
thenumberofsupervisorylevels.42Theteamidentifiedproblematicissues
associatedwithUWPD’sorganizationalstructure,includingitstop-heavy
command/executivestaff,bureauover-specialization,andthenumberof
supervisorylevels,atleastinPatrol.
Specializationreferstodistinctunitswithinanorganizationandallowsfor
operationalexpertiseandefficiency.“Manypolicedepartmentsdividetheworkof
theagencyamongmanyunitsordivisions,suchaspatrol,criminalinvestigation,
andadministration,amongothers.Patrolmaybedividedamongseveraldistricts
andshifts.Thetaskofcriminalinvestigationmaybedividedintotheinvestigationof
homicides,propertycrimes,sensitivecrimes,andsoforth.Theamountof
specializationinthedivisionoflaborofadepartmentislargelyafunctionofthesize
oftheorganization,asisthenumberoflevelsintheorganizationalhierarchy.A
primarydisadvantageofspecializationisthatwithmoreunitsanddivisions,
effectivecontrolandcoordinationoftheunitsbecomesmorechallenging.”43
Thehierarchyofauthorityorchainofcommandinapoliceagency“hasdirect
implicationsforsupervisionandformalcommunication.Withachainofcommand,
communicationistofollowaknownpathfromsubordinatetosupervisor...Thereis
nooptimalnumberoflevelsofauthority,”though“largerpolicedepartmentshave
morelevelsofhierarchythansmalleronesbecausewithmorepersonnelcomesa
needformoresupervisorsandmanagers.”44
UWPD’sbureausreflectthecorefunctionsofpatroloperationsandinvestigations;
humanresources,budget,recordsandadministration;and,accountabilityand
compliance,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.
UWPDExternalReview–FindingsandRecommendations 18
Inaninitialinformationrequest,theteamaskedforanexactcountofemployees
andtheirplacementonanorganizationalchart.Itwasdifficulttodeterminefrom
thedocumentsprovidedexactlyhowmanyFTEpositionswereavailableandfilled
atanygiventime,inpartbecauseoffrequentchangesinassignmentandchangesto
theorganizationalstructureovertime.However,UWPD,withapproximately81
commissionedandnon-commissionedemployees(includingsecurityguards),isa
smalldepartment,thoughitsorganizationalstructuremorecloselyresemblesthat
ofmuchlargerpoliceagencies,withasignificantdegreeofspecialization.Thereare
fourdivisionsand14bureaus(and1“unit”)withspecializedemphasesand
differingnumbersofemployeesandlevelsofsupervision.Outofatotalof28
Officers,22areassignedtoPatrol,threeareDetectivesintheInvestigationsBureau,
andoneOfficerworksintheJTFF/IntelUnit,allfallingundertheOperations
Division.ThelasttwoOfficersareintheEducationandOutreachBureau,underthe
ProfessionalAccountabilityandCommunityComplianceDivision.ThePatrol
OfficersreporttooneofsixSergeants,whoallreporttooneLieutenant,whointurn
isresponsibletotheDeputyChief,whoreportstotheChief.45
Asoneintervieweenoted,such“alargeverticalstack”inthePatrolBureau
exacerbatesthesortsofcommunicationissuesthatwerealreadycausingproblems
withintheDepartment.“Youlosealotwhenyouhavetogotothetopofthe
45Further,althoughtheplanhassincebeenindefinitelypostponed,stepsweretakeninlate2018topromoteaCommander,apersonwhowouldserveovertheOperationsLieutenant,addingyet
anotherlevelinthatchainofcommand.
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.”
UWPDExternalReview–FindingsandRecommendations 19
pyramidtogetadecision...Information,knowledge,andpassionislostalongthe
way.”46Incontrast,otherareasoftheDepartmenthavefewerlevelsofsupervision.
ExamplesoftwobureauswithonelesssupervisorylevelincludeEducationand
Outreach,withtwoOfficersreportingtoaManagerwhoreportstotheDeputyChief,
andtheInvestigationsBureau,whereDetectivesreporttoLieutenantwhoreports
toaDeputyChief.OtherBureaushaveevenlesshierarchy,suchasseeninthe
JTTF/IntelUnitwithoneOfficerreportingdirectlytoaDeputyChief.Aflatter
organizationhasfewerlevelsoforganizationalstructureandprovidespreferred
spansofcontrol(thenumberofemployeesforwhomasupervisorhas
responsibility.)Theadvantagesofthisapproachcaninclude“bettercommunication
amongorganizationaldivisionsandlevels,increasedfinancialandpersonnel
responsibility,greaterflexibility,andincreaseddelegationbysupervisorsamong
subordinates.”47
Sixty-sixpercent(66%)oftheemployeeswhorespondedtothesurveyconducted
bytheteamdonotseetheDepartment’sorganizationalstructureasmakingsense
tothem.Intervieweesnotedthatintheirviewtheorganizationistopheavy,with
fourDivisionDirectors/DeputyChiefsreportingtotheChiefandthreesupervisory
levelsbetweenOfficersandtheChief.Othersfocusedonthemanybureausacross
divisions,notingthathigh-level,highlypaidmanagementpositionsexistwith
ambiguousduties,littleornodecision-makingauthority,andsometimesonlyoneor
nosubordinates.AlongwiththesingleOfficerrunningtheJTFF/IntelUnitdiscussed
above,oneperson(whoisworkingpart-timeandfromhome)withthetitle
“ComplianceManager”staffstheAccreditationBureau;and,Cleryreportingduties
thatfallundertheComplianceBureauhaveshiftedamongseveralpeople,including
outsidetheBureau,sincethestartoftheteam’sreview.TheJTFFOfficerand
AccreditationBureauManagerhavenosubordinatesandthelastpersonassignedto
theComplianceBureauhadnosubordinates.
Inaddition,aconsistentcomplaintheardfromintervieweesrelatestofrequent
reorganizations,reportedtooccurevery6monthstoayear,andtheroutine
reassignmentofdutiesamongemployees.Inthefourmonthsafterthisreview
beganinlateNovember2018,theUWPDstructurechangedatleastonce,as
representedbytheorganizationalchartavailableonline;whentheinterimDeputy
Chiefsreceivedtheirpermanentpromotions,theyweregivendifferentdivision
assignments,andtherewerechangesinthebureausreportingtoeachofthefour
divisions.Forexample,theRecordsBureauwasmovedfromtheStrategy&
OrganizationalExcellenceDivisiontoAdministrativeServices&HumanResources;
thoughitisnotclearwheretheyresidedinthechainofcommandpreviously,
JTFF/IntelandSupportServiceswereaddedtotheOperationsDivision;and,the
InformationSystemsandTechnologyBureaubecametheTechnicalServicesBureau
undertheStrategy&OrganizationalExcellenceDivision,thoughitisnotclearifthe
46Switzer,supra,citingpersonalinterviewwithSarahMillerCaldicottattheInstituteofManagementConsultant’sAnnualConferenceinReno,Nevada,October28,2008.47Lane,Troy.SpanofControlForLawEnforcementAgencies,PoliceChief(October2006).
UWPDExternalReview–FindingsandRecommendations 20
changewasinnameonly.48Theredoesnotappeartobeanyonewhomanagesthe
frequentorganizationalchange,leadingtoconfusionaboutrolesand
responsibilities.Forexample,twomanagersrecentlywerereassigned,butboth
wereunclearthemselvesabouttheirnewspanofduties.Othersintheorganization
alsowerepuzzled,statingtheywerenotprovidedanyexplanationaboutthe
changes.Thisisconsistentwiththesurveyresultthatonly17%ofemployeesagree
withthestatement,“Thedepartment’sexecutiveleadershipeffectively
communicateschangesaboutthedepartment.”
Intervieweesobservedthatfrequentreorganizationsandjobreassignmentscanbe
detrimentaltooperations,includingbeingnegativelyperceivedinthecommunity.
Somealsoattributedthelackofinstitutionalizationofaccreditationprocesses,
propertyandevidencemanagement,andotherprotocols,tobeatleastpartiallya
functionofrecurrentreorganization,reassignment,andturnover,withnewpeople
constantlytryingtolearnsystemsandprocedures.
Whilethereisnooneidealorganizationalstructureforlawenforcementagencies,
UWPD’sistopheavy,overlyspecialized(particularlywhereonlyoneortwo
individualscompriseanentirebureau),andhasmoresupervisorylevelsthan
necessary,atleastinthePatrolBureau.Thesestructuralissues,alongwithfrequent
reorganizationsandreassignmentofpersonnel,contributetoproblemsrelatedto
decision-making,communication,andtransparencydiscussedelsewhereinthis
report.
48TheoverviewofeachofthefourDivisionsandBureausontheUWPDwebsiterepresentsanolderversionoftheorganizationalstructure,butwastheonlyorganizationaldescriptionmadeavailableto
theteam.Thus,itwasdifficulttodetermineifstructuralchangesovertimerepresentsubstantive
differencesinresponsibilitiesfortheinvolveddivisionsandbureaus.Also,therewereno
descriptionsonthewebsiteorotherwiseforthenewbureausthathavebeencreated.
OrganizationalStructure-Recommendations
1.WhilesomereorganizationisexpectedwithupcomingchangesinUWPD
leadership,theDepartmentshouldworktowardbuildingstabilityandavoid
frequentpositionreassignmentsandreorganizations.Whensuchchangesdo
occur,UWPDshouldbecognizantofimpactsonaccomplishingitsmissionand
buildingorganizationalexcellence,andshouldstrivetoclearlycommunicatethe
rationalebehindchangestoeveryoneimpacted.
2.InlookingatthepreferredorganizationalstructureforUWPD,thenew
Chiefshouldbringtogetheremployeerepresentativesfromthroughoutthe
Departmenttoconsiderapproachestoorganizationalstructureforanagencyof
thissizethatwillmosteffectivelyservethemissionoftheDepartmentandallow
forimprovedcommunication,informationsharing,andcollaboration,aswellas
effectiveallocationofpeopleandcapabilities.
UWPDExternalReview–FindingsandRecommendations 21
VII. ResourceAllocation
Resourceallocationwasacomplextopictoassessduringthisreview,inlargepart
becauseofthecompletelackoftransparencyaroundbudgetingmattersatUWPD.
TheimpactsofthislackoftransparencywerediscussedaboveunderLeadership
Efficacy.BecauseemployeeshavevirtuallynoinformationabouttheDepartment’s
financialassetsandliabilities,itisdifficulttoassessthereasonforthesurvey
resultsonthisaspectofagencymanagement.Only14%ofsurveyrespondentsagree
orstronglyagreethat,“Executiveleadershipmakesgooddecisionsonhowto
allocatethedepartment’sresources”,andonly29%agreeorstronglyagreethat,
“Thedepartment’sbudgetpromotesoperationaleffectiveness.”Forsome
employees,theirlackofconfidenceineffectiveresourceallocationcouldbebecause
nobudgetinformationismadeavailable.Forothers,itcouldbethattheirconcerns
stemfromlackoftransparencyregardingrequestsforequipment,training,
overtimeordelaysinfillingvacancies.
UWcommunitypartnersfamiliarwiththeDepartment’sbudgetstressedthat
UWPD,likeothersthroughoutUW,hasbeenrequiredtoreduceitsbudgetovertime.
Also,becauseUWPDwentsignificantlyoverbudgetatonepoint,itoperatesundera
deficitmitigationplanthatincludesascheduletopaybacktotheUniversitythe
fundsoverspent.Asaresult,UWPDhasverylimiteddiscretionaryfunding,withthe
bulkofitsbudgetdedicatedtopersonnelcosts,suchassalariesandbenefits.
Thoughtheteamwasprovidedwithsomebudgetdetails,theinformationprovided
isnotsufficienttofullyevaluatetheDepartment’sspendingprioritiesandpractices.
Suchanevaluationshouldbedone,andshouldtakeintoaccountaswellUWPD’s
strategicplan.Thecurrentstrategicplandoesnotincludeprojectedcostorstaffing
implicationsforthegoalsthatwereset.Aspreviouslynoted,involvingpeople
impactedbybudgetingdecisionsinhelpingtosetprioritieswouldeducatestaff
throughouttheorganizationaboutthebudgetingprocessandalloweveryoneto
betterappreciatetrade-offsthatmayberequiredwhentherearelimitedresources.
Oneconcernaboutresourceallocationthatwasvoicedbyseveralinterviewees
relatestowhatemployeesperceiveasalackofcommitmenttocertaininitiativesthe
Departmentwaspursuing,butdidnotplanforthenecessaryfunding.Interviewees
complainedthattheDepartmentembarksonaninitiative,butthentheproject
cannotbeimplementedinwholeorinpartduetolackoffunds.Forexample,
becausebicycletheftisamajorpropertycrimeofconcernoncampus,UWPD
investedfundsandemployeetimeinaBaitBikeprogram,asystemallowingOfficers
totrackstolenbicyclestoapprehendsuspectedthieves.However,theDepartment
ultimatelywouldnotinvestincellphonesnecessarytorollouttheproject,leaving
UWPDinapositionofnottakingadvantageofotherequipmentpurchased,norable
tofollowthroughonthegoalsoftheBaitBikeprogram.
Anotherresourceallocationconcernthathascausedconfusionandfrustration
amongemployeesisUWPD’spropensitytoclassifynewhiresandpromotionsas
UWPDExternalReview–FindingsandRecommendations 22
“temporary,”“interim,”“acting,”or“intraining.”Eventhoughapositionisincluded
intheDepartment’stotalFTEcountas“unfilled,”oncesomeoneishiredor
promotedintothejob,itisofteninitiallyonlyinaninterim/actingstatus.
Employeesinterviewedexpressedthattheydonotunderstandwhypositionsthat
arefundedunderthebudgetaspermanentpositionsdonotgetfilledwith
permanentemployees.Intervieweesassumethatassigningnewemployeesto
temporarystatusratherthanpermanentallowsUWPDtheflexibilitytohavepeople
doingtheworkofapositionwithoutgoingthroughaformalhiringorpromotion
process,andwithoutreceivinganyassociatedhigherpayorbenefits.Employees
alsoexpressedconcernthatthishasotherunintendedconsequences,suchas
individualsnotwantingtoapplyforpositionsgiventhetenuousnatureof
temporaryemployment.Interimappointmentsareusedthroughoutthe
Department,withbothcommissionedandnon-commissionedemployees.
Usingatemporaryorinterimclassificationpotentiallyallowsforbudgetsavings
whileUWPDascertainsifanemployeeisagoodfitfortheDepartmentandwhether
thebudgetsupportsapermanentpositioninthelongrun.UWPDalsodoesnothave
tomeetallUWjob-postingrequirementsifithiresatemporaryemployeewhohas
workedfortheDepartmentforaspecifiedperiodoftime.Butwhilethisapproach
mightservemanagerialinterests,itcancreateadministrativeissuesandemployee
predicaments.
UWPD’suseof“ActingSergeants”-Officerstemporarilyassignedoutof
classificationtosupervisoryduties-servedasamajorissueinthelastroundof
contractnegotiationsbetweenUWandtheWFSELocal1488PoliceManagement
BargainingUnit.WFSEclaimedthepracticeamountedtoimpermissibleskimming,
bargainingunitworkassignedtonon-bargainingunitemployees,49andUWPD
agreedtostopthepractice.WhileWFSEassertsthattheDepartmentshouldcommit
overtimefundsforusewhenSergeantsorLieutenantsneedtocoverashiftfora
Sergeantwhoisonleave,UWPDhasbeenusingshiftadjustments,requiring
Sergeantstochangetheirregularworkhourstoprovidecoverage.Sergeantshave
complainedabouttheinconvenienceinvolved,thoughUWPDmaintainsithas
limitedfundsavailabletooffervoluntaryovertimeasanalternative.50
Anotherexampleofimpactsintheuseofatemporaryclassificationisseenwiththe
currentDeputyChiefs,whobothworkedinan“interim”capacityfromJanuaryto
December2018,whentheywereofficiallypromoted.Thus,duringmostof2018,
oneInterimDeputyChiefwasstillclassifiedasaCommanderandtheotherasa
Lieutenantforbudgetpurposes,andeachreceivedthepayassociatedwiththe
lowerrank.Further,LieutenantsaremembersofWFSELocal1488andthereare
49Western Washington University, Decision 12852 (PSRA, 2018). 50WhentheDepartmentceasedusingActingSergeants,italsostoppeditspastpracticeofhavingLieutenantscoverforSergeants,asneeded.
UWPDExternalReview–FindingsandRecommendations 23
potentialimplicationsforthebargainingrightsofaunionizedemployeeservingina
managerialcapacity,suchastherighttoovertimepay.51
Otherissuesrelatedtotemporaryemploymentclassificationscametolightin
interviewsofcurrentandformernon-commissionedUWPDemployees,inboth
managementandlinepositions.Theywereclassifiedas“temporary”whenhired,
buttoldthattheirpositionswereexpectedtobecomepermanentwithinasetperiod
oftime(e.g.,6monthsorayear).AfterworkingintheDepartmentfortheinitial
period,theysubsequentlyweretoldthatthepositionstillwasnotpermanentand
theirtemporarystatuswasextended.Someintervieweesworkingonatemporary
basisalsowerefrustratedbecausetheydidnotreceivefullbenefits.Benefits
availabletotemporaryemployeeswhoworkedforUWPDaretiedtotheUWjob
categoryinwhichtheyfallandwhentheyworkedattheDepartment.AsofJanuary
2018,allemployeesreceivesickleavebenefits,thoughsuchbenefitsmightnothave
beenimmediatelyavailabletoUWPDtemporaryemployeespriorto2018.Other
benefits,suchaspaidvacationtimeorretirementcontributions,mayormaynotbe
providedtotemporaryemployees,dependingonwhetherUWandtheDepartment
categorizedthemasprofessionalstaff.Intervieweescategorizedastemporaryhad
hopedtocontinueworkingintheDepartment,butfoundthemselvesinthedifficult
predicamentofhavingtodecidewhethertocontinueindefinitetemporarywork
withlowerbenefitsortoseekemploymentelsewhere.Anumberofindividualsleft
UWPDunderthesecircumstances,whichwasproblematicforthemandforthosein
UWPDwholostthebenefitoftheircontributions.
TheDepartmentusedadifferentapproachwithinterimpositionsinthe
CommunicationsBureau’sDispatchLeadinTrainingProgram,“createdand
designedtopreparedispatchersinterestedintheopportunitytoapplyfora
leadershiprole.”52Theprogramran2016–2017andwasintendedasameansto
exposeagroupofemployeestothesupervisoryrolebyusinga10-monthrotational
systemtoprovideon-the-jobtrainingandassessment,togaugeinterestand
aptitudeforalong-rangeappointment.However,participantsbecamefrustrated
overtime.First,theyresentedtheextraworkinvolvedwithoutcomparablepayand
benefits.Second,theyfelttheprogramultimatelynegativelyimpactedthemasa
dispatchteam,asitamountedtoaverylengthypromotionalprocessinwhich
everyonewasvyingforthesamejobinaverypublicway.Intheend,noLead
51AtthesametimethepermanentDeputyChiefpositionswereannounced,therewasaninternalannouncementforanInterimCommander.TheonlypersonwhoappliedwasanOfficerwhohad
relativelyrecentlybeenhiredlaterally.Someintervieweesstatedthattheywereworriedabout
potentialproblemsofreportingtoanindividualwhohadbeenasubordinateandnowskippedthe
ranksofSergeantandLieutenanttobecomeanInterimCommander,butwhomightnotget
permanentlyappointedtothejobandbereturnedtoOfficerstatus.Ultimately,thedecisiontofillthe
positionwaspostponedindefinitely.52See,UWPDInternalRecruitment,LeadDispatcher–InTrainingPosition,Unit:CommunicationsandRecords,OpenuntilWednesday,October5,2016(describingthepurposeoftheprogram,
trainingschedule,essentialfunctions,andotherprogramdetails).
UWPDExternalReview–FindingsandRecommendations 24
Dispatcherwasappointed,causingfurtherirritationanderosionoftrustamongthe
employeesinvolved.
AnothercommonresourceallocationthemethatsurfacedrelatestoUWPD’striple
accreditationthroughtheCommissiononAccreditationforLawEnforcement
Agencies(CALEA),theWashingtonAssociationforSheriffsandPoliceChiefs
(WASPC),andtheInternationalAssociationofCampusLawEnforcement
Administrators(IACLEA).Apoliceagencyaccreditedbyanationalorstate
organizationoflawenforcementexecutivesthatsetsoperationalstandardscanhelp
ensurethattheorganizationhasadoptedprofessionalpoliciesandprocedures.Law
enforcementagencyaccountabilityisenhancedandthroughinvolvementofinternal
andexternalstakeholders,theaccreditationprocesscanprovidegreater
operationaltransparency.
ForUWPD,however,thequestionraisedbyintervieweeswasalongthelinesof,
“Doestripleaccreditationaddsignificantvalueoverthatofasingleaccreditation?”
UWPDhasemployedanindividualfull-timetomanageitstripleaccreditation,
thoughthatpersonisnowtransitioningoutoftheDepartmentandonlyworking
part-timeandfromhome.Theaccreditationprocessistimeconsumingandrequires
thatpeoplethroughouttheDepartmentsubmitinformationonaroutinebasistothe
accreditationmanager,whothencompilesandsubmitsprooftotheaccrediting
bodythatUWPDismeetingthestandardsrequiredforcertification.However,in
partbecauseofturnoverandfrequentreassignmentofduties,theDepartmenthas
notinstitutionalizedtheaccreditationprocessandmucheffortisrequiredtosecure
alloftheorganizationalevidencenecessaryforcompliancefromemployeeswho
mayalreadybeover-extended.Thoughthereisoverlapinamajorityofstandards
requiredbyCALEA,WASPC,andIACLE,theformatandtimingforsubmissionof
proofofcompliancevaries,suchthattheDepartmentiscontinuallyworkingtomeet
oneormoreoftheaccreditingbody’srequirements.UWPDhasnotarticulatedthe
benefittotheDepartmentorUWofdevotingsignificantresourcestoattainingand
maintainingtripleaccreditation,leavingmanyemployeesquestioningthe
motivationsinvolved.
IftheDepartmentchoosestomakeitsbudgetandresourceallocationmore
transparent,itwillbenefitfrommoreinputinsettingfundingpriorities.Inthe
process,UWPDshouldconsideraligningitsshortandlong-termgoalswithavailable
resourcesandalternativeapproachestoaddressingtheproblemofcoveragefor
Sergeantswhoareonleave.TheDepartmentalsoshouldreconsideritsextensive
useof“temporary,”“interim,”“acting,”and“intraining”jobclassificationsand
evaluatethevalueaddedinmaintainingtripleaccreditationunderCELEA,WASPC,
andIACLEA.
UWPDExternalReview–FindingsandRecommendations 25
VIII. Recruitment,Selection,andRetention
Lawenforcementexecutivesgenerallyagreethatoneofthemostchallengingissues
theyarefacinginvolvesrecruiting,selecting,andretainingcommissioned
employees.In2006,itwasestimatedthatmorethan80%ofpoliceagencieshad
swornpositionstheywereunabletofill,53andtheproblemhascontinuedintothe
present.Therearevaryingexplanationsfortheproblem,includingtighterbudgets
andthehighcosttorecruit,hire,equip,andfullytrainapoliceofficerfromthetime
theysubmittheirapplicationtothetimetheycanfunctionindependently;negative
perceptionsoflawenforcementgrowingoutofhighprofilepolicingevents;and,a
lackofqualifiedapplicants,particularlyinatimeoflowunemployment.54
Theselectionprocessforentry-levelandlateralofficercandidatesincludes
completingandsubmittingawrittenapplication,anoralboard/panelinterview,a
backgroundinvestigation,andpolygraph,medicalandphysiologicalexams.Physical
53Woska,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’sbudgetto
determineifchangesshouldbemadetocurrentspendingprioritiesintheshort-
term,includingtheneedtoassesswhetherthebudgetalignswithUWPD’s
StrategicPlan.
2.TheInterimChiefandChiefshouldmaketheDepartment’sbudgetand
resourceconstraints,andconsiderationofallocationdecisions,moretransparent
forexecutiveleadershipandseniormanagement,andseekinputfromthose
employeesimpactedinsettingfundingpriorities.
3.UWPD’sleadershipshouldreconsidertheextensiveuseof“temporary,”
“interim,”“acting,”and“intraining”jobclassifications,striveformore
transparencyastotherationalebehindanyclassificationused,andbalancethe
valueoftheiruseasabudgetmanagementtoolwiththepotentialnegative
impactsforemployees.
4.UWPD’sleadershipshouldevaluatewhethertocontinuetoinvest
resourcesinmaintainingtripleaccreditationunderCELEA,WASPC,andIACLEA,
weighingthevalueagainstnegativefiscalandoperationalimpactsforUWPD.The
decisionanditsrationale–tocontinueortochange–needstothenbeclearly
communicatedtoallemployees.
UWPDExternalReview–FindingsandRecommendations 26
agilityandwrittentests,andaride-alongwithaFieldTrainingOfficer,alsoare
requiredofentry-levelapplicants.TheymustattendandgraduatefromtheState’s
BasicLawEnforcementAcademy(BLEA),whichisathree-monthprogram55,and
thensuccessfullycompletetheUWPDFieldTrainingOfficer(FTO)program.
CandidateswhopreviouslyhavecompletedtheBLEA,andlateralcandidates,may
berequiredtocompletethe80hoursBasicLawEnforcementEquivalency
Academy.56
In2015,afterhigherthanusualturnover,UWPDwasdownto16Officers,abouthalf
theusualnumber,withsignificantimpactsonmandatoryovertimeandOfficer
morale.57AstheDepartmentconsideredwaystoaddresstheproblem,itreviewed
theroleofUWHumanResources(UWHR)intherecruitmentandhiringprocess,
andconsideredwaystoexpeditehiring.UWHRwasresponsibleforadvertising
positions,receivingapplications,andreviewingbasicqualificationsofapplicants,
alongwithbeinginvolvedonoralboards.Ratherthanrelyingsoextensivelyon
UWHR,by2017theDepartmentassumedmoreofthedutiesinvolved.“Thegoal
wastostreamlinetherecruitmentandselectionprocess,increaseretention,and
focusonimprovingmoraleforallofUWPD’scommissionedandcivilianteam
members.”58
WhileUWHRcontinuedtopostjobopeningsforpoliceofficers,andapplications
weresubmittedthroughtheUniversity’sjobsportal,allapplicationsthenwere
forwardedtotheDepartmentforreviewandconsiderationastonextsteps.UWHR
alsonolongerwasinvolvedwiththeoralboard/interviewpanels.Theteamwas
toldthatasaresult,theprocessingtimeisdownto2–4months.
TheDepartmentalsoworkedtohiremorelateralofficers,thosewhohadworked
foranotherpoliceagencyinWashingtonorelsewhere,whichwasanotherwayto
shortenthehiringandtrainingprocessforcommissionedofficers.UWPDinstituted
the“EZ-Hire”programforlateralcandidates,withthehopethattheDepartment
wouldrecruitmorequalifiedandexperiencedcandidatesandthattheycouldmove
throughtheapplicationprocessmorequickly.Therearenowrittenorphysicaltests
orassociatedoutofpocketcostsandlateralsproceedthroughatailoredFTO
program,allofwhichcouldbeattractivetothosecandidates.59Themajorityof
55The720-hourBLEAcurriculumisdesignedtoproviderecruitofficerswiththebasicknowledge
andskillsnecessaryforlawenforcementservice.Instructionalblocksinclude:CriminalLawand
Procedures;TrafficEnforcement;CulturalAwareness;CommunicationSkills;EmergencyVehicle
OperationsCourse;Firearms;CrisisIntervention;PatrolProcedures;CriminalInvestigation;and
DefensiveTactics.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/
UWPDExternalReview–FindingsandRecommendations 27
commissionedhiresoverthepastcoupleofyearshavebeenhiredlaterallyfrom
otherlawenforcementagencies.Overtime,officerturnoverhasdecreased,there
havebeen3or4hiresduringthependencyoftheteam’sreview,andstaffinglevels
areclosetonormal.
Nonetheless,theletterofconcernssubmittedtotheBoardofRegents,and
numerousinterviewees,outlinedperceivedproblemswiththeDepartment’shiring
process.UWcommunitystakeholdersnotedthattheywerenotincludedin
consideringcandidatesforUWPDpositionsoverlappingwiththeirinterestsand
expertise.TheyalsopointedtosomeunusualhiringpracticesbyUWPD,suchas
conductinggroupinterviewsofcandidates,ratherthaninterviewingeachperson
individually,whichfallsoutsidebestpractices.Stakeholdersalsoweresurprised
thattheDepartmentbroughtinpeoplefromoutofstate,ratherthanusinglocal
partners,intheoralboards/interviewpanelsheldforthepromotionoftheDeputy
Chiefsinlate2018.
Overhalfoftheemployeeswhorespondedtothesurveydisagreedwiththe
statementthat“thedepartment’shiringselectionprocessisunbiasedandfair”and
62%agreedwiththestatement,“Promotionswithinthedepartmentdon’talways
followapplicablerules.”AsnotedinSectionV.A,anindividualhiredbytheChief
wasratedlowestbytheinterviewpanelthatmetwitheachcandidate.Interviewees
alsoindicatedthat,accordingtoapplicantsforbothcommissionedandnon-
commissionedjobs,ChiefVinsonroutinelytoldapplicantstheyhadajobatUWPD,
despitetheapplicantsnothavingcompletedallrequisitesteps.Whileitis
commendablethattheChiefisanadvocateforUWPD,employeesviewedthisasthe
Chiefappearingto“guarantee”ajobtosome.Intervieweesalsopointedoutthat
severalemployeesweregivennon-commissionedpositionsintheDepartmentafter
failingtocompleteBLEAortheFTOprogram.
Relatedtotheseconcernsisabeliefbyintervieweesthatatleasttwoorthreeofthe
morerecentofficerhiresdidnotreceivearegularbackgroundcheckorwerenot
requiredtotakeapolygraphtest.DuetoUWPDconcernsregardingemployee
privacy,thereviewteamwasnotallowedtoreviewemployeefilesandtherefore
askedUWHRtoexaminepersonnelfilesandbackgroundcheckinformationfor
severalOfficersallegedtohavenotgonethroughthebackgroundandpolygraph
stepsinthehiringprocess.WhileUWHRwasnotpermittedtoexaminethecontent
ofbackgroundinvestigationreports,polygraphtests,ormedicalandpsychological
evaluations,aUWHRrepresentativeexaminedthebackgroundfileforeachofthese
Officersandwasshowndocumentsthatappearedtobepolygraphtestresults,drug
testresults,medicalandpsychologicalevaluationresults,andabackground
investigationreportforeachoftheseOfficers.60Further,UWHRwastoldthatthe
thirdpartyvendorconductingbackgroundchecksforUWPDaccessedsome
60Theinabilityofthereviewteamtogetaccesstothesefilestoinvestigatetheconcernsthatwereraisedwasasignificantlimitationandimpededtheteam’sabilitytodrawevidence-based
conclusionsabouttheintegrityofUWPD’shiringprocess.
UWPDExternalReview–FindingsandRecommendations 28
backgroundinformationconcerningoneoftheseOfficersthatwasnotsharedwith
UWPD.
Anotherwidespreadconcernexpressedbyintervieweesisthattheindividual
appointedbytheChiefasDirectoroftheAdministrativeServicesandHuman
ResourcesDivisiondoesnothavebackgroundorexperienceinmanyofthekey
responsibilitiesrelatedtoHRandbudget.Manyintervieweesalsoexpressed
concernthatsheworksfartoomanyhoursmostweeks,whetherbecauseshe’s
strugglingwiththosedutiesoristaskedwithmoreworkthanmanageablebya
singleperson.61Eitherway,thesituationclearlyimpactsemployeeperceptions
regardingtheeffectivenessandlegitimacyofUWPD’sHRandbudgetfunctions.
Sixty-ninepercent(69%)ofsurveyrespondentsdisagreedthatUWPD“takesaction
toretaincompetent,motivatedemployees.”TheDepartmentbeganconductingexit
interviewsinlate2017andtheteamwasgivencopiesofeightformssummarizing
feedbackprovidedbythoseindividualswhoparticipatedintheprocess.62Theseexit
interviewsandinterviewsconductedbytheteamofformeremployees,
commissionedandnon-commissionedandfromalllevelsoftheDepartment,
pointedtoavarietyofreasonsforemployeesleavingUWPD.Afewpursuedcareer
opportunitiesorrelocatedforpersonalreasons,ortemporaryorstudentpositions
endedforsomewithnooptionofapermanentjob.Otherscomplainedtheyleft
becauseofpoortreatmenttheyreceivedaswomen,becausetheydidnotfeel
empoweredtodotheirjobs,becauseofpoorsupervisor/officercommunications,or
tomovetoanorganizationthatbetterfittheirworkstyle.
Exitinterviewparticipants,peopleinterviewedbytheteam,andsurvey
respondentsalsocriticizedtheadequacyofUWPD’strainingprogram.Forexample,
65%ofsurveyrespondentsdisagreethatthereisatrainingplanforeachemployee
and5/8oftheexitintervieweesratedUWPDtrainingas“fair”or“poor”,ratherthan
“good”or“excellent.”Severalexampleswereprovidedwhereemployeesdidnot
receiveassurancetheycouldattendout-of-towntrainingoraprofessional
conferenceuntiladayortwobeforetheywerescheduledtotravel.Anexecutive
leadernotedthatuntilthehiringoftheCommunityEngagementandTalent
DevelopmentManagerinthesummer2018,UWPDlackedtheresourcestofocuson
training,andensuringindividualtrainingplansareputintoplaceisnowa
responsibilityforthatManager.
AnotherissueincludedwiththeletterofconcernssubmittedtotheBoardof
RegentsrelatedtoinadequateactiveshootertrainingforUWPD.Afterthisreview
began,shortsessionactiveshootertrainingwasprovidedduringrollcallsandaday
ofactiveshootsimulationtrainingwasscheduledformid-December2018,though
intervieweesindicatedmoresimulation-basedtrainingwasneeded.Alarge-scale
61TheDirectorindicatedtoareviewteammemberthatsheregularlyworks12+hoursaday.62Accordingtoinformationgiventotheteam,24peopleseparatedfromUWPDbetweenJuly2017
andDecember2018,thoughthemajoritydidnotparticipateinexitinterviews.
UWPDExternalReview–FindingsandRecommendations 29
trainingiscontemplatedforlaterin2019.TheDepartmentisencouragedtowork
togetherwithlawenforcementagenciesintheareaonthisandothertrainingthat
wouldbenefitfromregion-widecoordination.UWPDalsocanconsideradditional
avenues,suchasthemulti-disciplinary,scenariobasedactiveshootertraining
offeredforfirstrespondersatTexasStateUniversity,supportedthrougharecent
grantfromtheU.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’santicipatedshort
andlong-termhiringneedsanddeveloparecruitment,selection,andretention
strategythatminimizestheimpactofemployeeturnoverandmaximizesthe
opportunitytohireandretainhighlyqualifiedemployeescommittedtothe
missionofUWPDandUW.
2.UWPD’sleadershipshoulddevelopandcommunicateagency-wide
trainingpriorities,identifytraininganddevelopmentgoalsforeachindividual
employee,createatimelineforimplementation,andensureresourcesare
availabletomeettheseobjectives.
3.TheChiefshoulddevelopasharedunderstandingwiththeUW
administrationregardinginvolvementofUWHRinUWPDpersonnelmatters
(includinghiring,discipline,andterminations)tobestmaximizetheopportunity
tobenefitfromUWHR’sexpertiseandunderstandingofbestpractices,whilenot
impedingtheChief’sdecision-makingauthorityorundulydelayingdecision-
making.
4.UWPD’sleadershipshoulddevelopasharedunderstandingwiththe
UWadministrationregardingUWHR’saccesstoallDepartmentpersonnelfiles,
includingthoserelatedtoemployeeapplicants’backgroundchecksandresults
foranypolygraphtest,drugtest,ormedicalorpsychologicalevaluation
administeredduringtheUWPDhiringprocess.
5.UWPD’sleadershipshouldinvestigatefurtherwhetheranythird-party
vendorhasfailedtosharerelevantbackgroundinformationgatheredduringthe
pre-hireprocessconcerningindividualsemployedbytheDepartment,andifso,
takeappropriatestepstoaddresstheconcernsidentified.
UWPDExternalReview–FindingsandRecommendations 30
IX. Conclusion
WhiletheUWPDhasmadestridesoverthepast10yearsinmovingtheDepartment
anditsmissionforward,aspectsofUWPD’sorganizationalhealtharenot
functioningwell.CurrentleadershippracticesmakeitdifficultfortheDepartmentto
breakoutofdysfunctionalmodesofoperating.Thefoundationforsuccessgoing
forwardwillbeatransformationalleaderwithastrongrelationshipfocus.Whilethe
short-termfocusshouldbeonestablishingstabilityandcivilityintheDepartment,
inthelongrunthenextUWPDChiefshouldhaveastrategytopositivelyimpactthe
Department’soverallculture,makingchangesasrequiredinUWPD’sapproachto
leadershipefficacy,allocationofresources,personnelprotocols,andorganizational
structure.
Recommended