uwpd external review findings and recommendations...judge anne levinson (ret.), and chief deputy jim...
TRANSCRIPT
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.