UWPD External Review Findings and Recommendations...Judge Anne Levinson (ret.), and Chief Deputy Jim Pugel (ret.). UWPD External Review – Findings and Recommendations 2 commissioned

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.).


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.


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/


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


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).


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.


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.


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.


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.


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.


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


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.


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.


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.


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).


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.


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.


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.”


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).


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.


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


“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.


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).


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.


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.


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/


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.


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.


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.


IX. Conclusion

WhiletheUWPDhasmadestridesoverthepast10yearsinmovingtheDepartment

anditsmissionforward,aspectsofUWPD’sorganizationalhealtharenot

functioningwell.CurrentleadershippracticesmakeitdifficultfortheDepartmentto

breakoutofdysfunctionalmodesofoperating.Thefoundationforsuccessgoing

forwardwillbeatransformationalleaderwithastrongrelationshipfocus.Whilethe

short-termfocusshouldbeonestablishingstabilityandcivilityintheDepartment,

inthelongrunthenextUWPDChiefshouldhaveastrategytopositivelyimpactthe

Department’soverallculture,makingchangesasrequiredinUWPD’sapproachto

leadershipefficacy,allocationofresources,personnelprotocols,andorganizational

structure.

Documents

UWPD External Review Findings and Recommendations...Judge Anne Levinson (ret.), and Chief Deputy Jim Pugel (ret.). UWPD External Review – Findings and Recommendations 2 commissioned