warren pd - ta letter - 2006

8/11/2019 Warren PD - TA Letter - 2006

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U.S. Department of Justice

Civil Rights Division

Special Litigation Section - PHB

950 Pennsylvania Avenue, N.W.

Washington, DC 20530

Mar ch 2, 2006

Via Facsimile and U.S. Mail

Honorabl e Mi chael O' Br i en, MayorHonor abl e Wi l l i am Fr ankl i n, Di r ector of Ser vi ce- Saf et yHonor abl e Gr egor y V. Hi cks, Law Di r ect orCi t y of War r en, Ohi oCi t y Hal l391 Mahoni ng Ave. , N. W.

War r en, OH 44483- 4634

J ohn Mandopoul osChi ef of Pol i ceWar r en Pol i ce Depar t ment141 Sout h St r eet , S. E.War r en, OH 44483- 5747

Re: Warren Police Department

Dear Gent l emen:

As you know, i n December 2004, t he Ci vi l Ri ght s Di vi si oni ni t i at ed an i nvest i gat i on of t he Ci t y of War r en, Ohi o Pol i ceDepart ment ( WPD) , pur suant t o t he Vi ol ent Cr i me Cont r ol and LawEnf orcement Act of 1994, 42 U. S. C. 14141 ( Sect i on 14141) . Wewoul d l i ke t o t ake t hi s oppor t uni t y t o expr ess our appr eci at i onf or t he cooper at i on we have r ecei ved t hus f ar f r om t he Ci t y ofWar r en and t he WPD.

To dat e we have r evi ewed r el evant WPD pol i ci es andpr ocedur es, and conduct ed i nt er vi ews wi t h Ci t y of War r enof f i ci al s, WPD command st af f , a cr oss- sect i on of WPD l i ne

of f i cer s and super vi sor s, r epr esent at i ves of t he Ohi o Pat r ol men sBenevol ent Associ at i on ( OPBA) and t he Fr at er nal Or der ofPol i ce/ Ohi o Labor Counci l , I nc. , communi t y l eader s, and ot herci t i zens .

At t he begi nni ng of our i nvest i gat i on, we commi t t ed t opr ovi di ng t he WPD wi t h t echni cal assi st ance t o i mpr ove WPDpr act i ces and pr ocedur es and ensure compl i ance wi t hconst i t ut i onal r i ght s. Dur i ng our meet i ngs wi t h you and t he WPD


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command st af f i n Apr i l and August 2005, we t ol d you t hat we woul dpr ovi de i n wr i t i ng more speci f i cs about r ecommendat i ons ourpol i ce pr act i ces exper t s had made or al l y. I n t hi s l et t er , weconvey our r ecommendat i ons r egardi ng t he WPD s wr i t t en pol i ci es.I mpor t ant aspect s of our f act - gat her i ng pr ocess have yet t o becompl et ed. Ther ef or e, t hi s l et t er i s not meant t o be exhaust i ve,

but r at her f ocuses on si gni f i cant r ecommendat i ons we can pr ovi deat t hi s pr el i mi nar y st age of our i nvest i gat i on.

Addi t i onal l y, we hope t hi s l et t er wi l l assi st i n our mut ualgoal of ensur i ng t hat t he WPD pr ovi des t he best possi bl e pol i ceservi ce t o t he peopl e of t he Ci t y of War r en. We l ook f or war d t ocont i nued cooperat i on t oward t hi s goal . We woul d be happy t opr ovi de exampl es of pol i ci es used by ot her pol i ce depar t ment st hat mi ght addr ess some of t he i ssues we r ai se bel ow.

I. WPD POLICIES AND PROCEDURES.

A. The WPD Should Revise and Update Its Policies and

Procedures to Be Consistent and Comprehensive.

Pol i ci es and pr ocedur es are t he pr i mary means by whi chpol i ce depart ment s communi cat e thei r st andards and expectat i onst o t hei r of f i cer s. Accor di ngl y, i t i s essent i al t hat t he WPD spol i ci es be compr ehensi ve, compr ehensi bl e, up- t o- dat e, andconsi st ent wi t h cont empor ar y pol i ce pr act i ces.

The WPD adopt ed i t s pol i cy and procedur e manual i n 1979.Whi l e t he WPD has added some pol i ci es over t i me, t he manual hasnot been compr ehensi vel y updated si nce ear l y 2002. As di scussedi n f ur t her det ai l bel ow, a number of t he WPD s pol i ci es andpr ocedur es ar e i nconsi st ent wi t h accept ed pol i ce pr act i ces andi nsuf f i ci ent l y det ai l ed t o pr ovi de t he appr opr i at e gui dance f orof f i cer conduct .

I n general , we recommend t hat t he WPD r evi ew al l of i t spol i ci es and pr ocedur es and, wher e necessary, r evi se them t or ef l ect cur r ent accept ed pol i ce pr act i ces and t o pr ovi desuf f i ci ent det ai l t o appr opr i at el y gui de of f i cer conduct .Al t hough we do not pr ovi de l i ne- by- l i ne edi t s and r ecommendat i onsf or al l of t he WPD s pol i ci es and pr ocedur es, we have endeavor edt o pr ovi de t he WPD wi t h general r ecommendat i ons r egardi ngaccept ed pol i ce pr act i ces f or si gni f i cant WPD pol i ci es andpr ocedur es. Al t hough not exhaust i ve, t he exampl es and r ef erences

t o WPD pol i ci es and pr ocedur es i l l umi nat e suggest ed ar eas f orrevi s i on.

We al so recommend t hat t he WPD di st r i but e updat ed andcompl et e pol i ci es and pr ocedur es t o al l of f i cer s and t hat al lof f i cer s provi de a wr i t t en acknowl edgment of t hei r r ecei pt ,r evi ew and underst andi ng of t he pol i ci es and pr ocedur es. Wesuggest t hat t he WPD desi gnat e an i ndi vi dual t o be responsi bl e

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f or r evi ewi ng t he manual s and any revi si ons or new pol i ci es t oensur e consi st ency. Thi s i ndi vi dual woul d al so be r esponsi bl ef or ensur i ng t hat al l of f i cer s r ecei ve copi es of t he manual s andr evi si ons t her et o, and f or mai nt ai ni ng copi es of of f i cer s si gnedacknowl edgment s.

B.

The WPD Must Ensure Compliance with Its Policies andProcedures.

Our i nvest i gat i on has t hus f ar r eveal ed t hat many of f i cer sare not f ol l owi ng WPD pol i ci es and pr ocedur es. The WPD mustensur e t hat of f i cer s ar e compl yi ng wi t h al l pol i ci es andpr ocedur es as wr i t t en.

II. USE-OF-FORCE POLICIES.

I n t he cour se of t hei r dut i es, pol i ce of f i cer s ar e somet i mesr equi r ed t o use deadl y and non- deadl y f orce. Because t he use off or ce can pl ace of f i cer s, ci vi l i ans, and subj ects at ser i ous r i sk

of harm, i t i s i ncumbent upon l aw enf orcement agenci es t o ensuret hat of f i cer s use f or ce appr opr i at el y. Use- of - f or ce pol i ci es andpr ocedur es must cl ear l y set f or t h t he l egal st andar ds f or t heappr opr i ate use of f orce. We r ecommend t hat t he WPD r evi se i t suse- of - f or ce pol i ci es t o pr ovi de a compr ehensi ve pol i cy t hatcont ai ns t he f ol l owi ng el ement s: appr opr i at e def i ni t i ons, ause- of - f orce cont i nuum wi t h i nt er medi at e weapons, gui dance on t heappr opr i at e l evel of f or ce al l owed i n speci f i c ci r cumst ances,det ai l ed useof - f or ce r epor t s, and r evi ew of deadl y f or cei nci dent s by a Deadl y For ce Revi ew Boar d.

A. Legal Standards Governing the Use of Force.

Uses of excessi ve f or ce by pol i ce of f i cer s ar e vi ol at i ons oft he Four t h Amendment and ar e anal yzed under t he Four t hAmendment s obj ect i ve r easonabl eness st andard. Gr ahamv. Connor ,490 U. S. 386, 394 ( 1989) . The anal ysi s requi r es a bal anci ng oft he qual i t y of i nt r usi on on t he i ndi vi dual s Four t h Amendmenti nt er est s agai nst t he gover nment al i nt er est s. I d. at 396. Thecr i t er i a cour t s appl y t o assess an excessi ve f or ce cl ai m i ncl udet he sever i t y of t he cr i me at i ssue, whet her t he suspect pr esent san i mmedi at e saf et y t hr eat t o t he of f i cer s or ot her s, and whet hert he suspect i s act i vel y r esi st i ng or at t empt i ng t o evade ar r est .I d. ; St . J ohn v. Hi ckey, 411 F. 3d 762, 771 ( 6t h Ci r . 2005) . Lackof speci f i c pol i cy gui dance on t he appr opr i at e use of f or ce may

l ead of f i cer s t o bel i eve t hat t hey ar e j ust i f i ed i n usi ng f or cei n si t uat i ons i n whi ch i t woul d be unr easonabl e or unnecessary.Conver sel y, over l y speci f i c pol i ci es may r esul t i n of f i cer sr ef r ai ni ng f r om usi ng necessary and appr opr i at e f or ce out of anunwar r ant ed f ear of usi ng excessi ve f or ce.

The Supreme Cour t has deter mi ned t hat deadl y f or ce i spermi ss i bl e onl y when a suspect poses an i mmedi ate t hr eat of

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ser i ous physi cal har m t o the of f i cer or anot her per son.Tennessee v. Gar ner , 471 U. S. 1, 11- 12 ( 1985) . The onl yexcept i on t o t hi s gener al r ul e i s t he f l eei ng f el on r ul e, whi chal l ows pol i ce of f i cer s t o use deadl y f or ce t o pr event t he escapeof a suspect i n cases wher e t her e i s probabl e cause t o bel i evet he suspect ei t her poses an i mmedi at e t hr eat of ser i ous har m t o

t he of f i cer or anot her or has commi t t ed a cr i me i nvol vi ng t hei nf l i ct i on or t hr eat ened i nf l i ct i on of ser i ous physi cal har m.I d. ; Sampl e v. Bai l ey, 409 F. 3d 689, 696- 697 ( 6t h Ci r . 2005) .Yet even i n t hose ci r cumst ances, pol i ce ar e r equi r ed t o provi de awar ni ng, i f f easi bl e, bef or e usi ng deadl y f or ce. Gar ner , 471U. S. at 11. Deadl y f or ce i s per mi ssi bl e onl y f or as l ong as t het hr eat r emai ns. When t he t hr eat i s over , t he use of deadl y f or cemust st op. Based on r esponses t o i nt ervi ews we conduct ed, andr evi ews of pol i ci es and i nci dent r epor t s, i t appear s t hat t heWPD s useof - f or ce pol i ci es and pr act i ces do not consi st ent l yconf or m t o t hese l egal st andar ds. Accor di ngl y, as di scussed i nf ur t her det ai l bel ow, we recommend t hat t he WPD s useof - f or cepol i ci es and pr act i ces be r evi sed t o i ncor por at e t hese l egal

st andar ds.

B. Use-of-Force Definitions.

Whi l e gener al l y good, t he WPD s useof - f or ce pol i cy, Pol i cy96- 007, ( useof - f or ce pol i cy or Pol i cy 96- 007) does notdef i ne f l eei ng f el on. The l ack of a cl ear def i ni t i on of t hi skey t er m coul d l ead of f i cer s t o f ai l t o under st and pr oper l y t hebounds and l i mi t s of t he use of f or ce. Addi t i onal l y, becauseof f i cer s shoul d be remi nded t hat t hei r use of bat ons and ot heri nt ermedi ate weapons can ki l l , t he WPD shoul d change the termnon- l et hal f or ce t o l ess- l et hal f or ce when r ef er r i ng t o suchweapons.

We al so r ecommend that t he WPD s useof - f orce pol i cyi dent i f y any uses of physi cal f or ce t hat ar e speci f i cal l ypr ohi bi t ed or r est r i ct ed t o l i mi t ed ci r cumst ances. For exampl e,a car ot i d, or choke hol d i s t ypi cal l y consi der ed a use of deadl yf or ce. Thus, t he WPD s useof - f or ce pol i cy shoul d expl ai n t hatof f i cer s shoul d use t he car ot i d hol d onl y i n ci r cumst ances i nwhi ch deadl y f or ce woul d be aut hor i zed.

C. Intermediate Weapons.

A compr ehensi ve useof - f or ce cont i nuum t hat i ncl udes

i nt er medi at e weapons i s cent r al t o ef f ect i ve and ef f i ci entpol i ci ng. The cont i nuum pr ovi des a usef ul t ool i n t r ai ni ngof f i cer s t o consi der l ower l evel s of f or ce when appr opr i at e,whi ch pr ot ect s t he saf et y of bot h t he of f i cer and t he ci vi l i an.

The WPD s useof - f or ce pol i cy set s f or t h a useof - f or cecont i nuum wi t h f our pr ogr essi ng l evel s: ver bal f or ce, physi calf or ce, i nt er medi at e f or ce, and deadl y f or ce. The pol i cy def i nes

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i nt er medi at e f or ce as t he use of non- l et hal weapons. Sect i onVI . A. aut hor i zes t he use of t he st r ai ght bat on, f l ashl i ght ,st un- gun, pepper spray, and Taser as i nt er medi at e non- l et halweapons. I mpor t ant l y, whi l e t hi s sect i on si mpl y aut hor i zes t hei ruse, i t does not mandat e t hat of f i cer s car r y any non- l et hali nt ermedi ate weapon. We f ound no other pol i cy or or der mandat i ng

i nt er medi at e weapons, and sever al of f i cer s conf i r med t hat t heywere not r equi r ed t o car r y t hese weapons. Thus, pur suant t o WPDpol i cy, of f i cer s have no i nt ermedi at e weapon. They have onl yt hei r handcuf f s and t hei r r evol ver ( or ser vi ce weapon) .

Of f i cer s wi t hout i nt er medi at e weapons cannot appl yi nt er medi at e f or ce. Because of f i cer s may unnecessari l y r esor t t ot hei r f i r ear ms i f i nt er medi at e f or ce opt i ons ar e not avai l abl e,we r ecommend t hat t he WPD r equi r e al l of f i cers t o car r y ast andard i mpact weapon ( e. g. , st r ai ght baton) and a chemi calagent , and, as det ai l ed i n t he t r ai ni ng sect i on bel ow, t he WPDshoul d t r ai n al l of f i cer s on any weapon t hey car r y.

As st at ed above, Sect i on VI . A. aut hor i zes of f i cer s t o car r yand use a st r ai ght bat on. Thi s sect i on, however , shoul d def i nest r ai ght bat on, and speci f i cal l y l i st and def i ne al l ot heraut hor i zed i mpact weapons. Mor eover , t hi s sect i on shoul d al sospel l out whi ch weapons ar e pr ohi bi t ed ( e. g. , wei ght ed gl oves) .

The WPD does not have a separ at e pol i cy address i ng t he useof chemi cal agent s. We r ecommend t hat t he WPD cr eat e a separat epol i cy t hat gi ves speci f i c gui dance and r est r i ct i ons on t he useof t hi s i nt er medi at e weapon, whi ch i ncl udes wher e t hi s par t i cul arweapon f al l s wi t hi n t he useof - f or ce cont i nuum, l i mi t s upon t heaccept abl e use of t he weapon, r epor t i ng pr ocedur es, anddecont ami nat i on pr ocedur es.

D. Specific Uses of Force.

1. Firearms.

Unnecessar i l y or pr emat ur el y dr awi ng and di spl ayi ng af i rearm l i mi t s an of f i cer ' s al t ernat i ves i n cont rol l i ng asi t uat i on, cr eat es unnecessar y anxi et y on t he par t of ci t i zens,and may r esul t i n an unwar r ant ed or uni nt ent i onal di schar ge oft he f i r ear m. We r ecommend t hat t he WPD add a sect i on t o Pol i cy96- 007 i dent i f yi ng when an of f i cer may di spl ay hi s or herf i r ear m. The useof - f or ce pol i cy shoul d st r ess t hat of f i cer s

shoul d not dr aw or di spl ay a f i r ear m unl ess t he ci r cumst ancessur r oundi ng t he i nci dent cr eat e a r easonabl e bel i ef t hat i t maybe necessar y t o use t he f i r earm. Reasonabl e bel i ef shoul d bedef i ned as an obj ect i ve bel i ef det er mi ned by the f act s andci r cumst ances r easonabl y avai l abl e t o t he of f i cer at t he t i me andvi ewed f r om t he per spect i ve of an or di nar y r easonabl e peaceof f i cer i n t he same si t uat i on.

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2. Canines.

The WPD shoul d di scour age t he use of cani nes f or cr owdcont r ol . Cur r ent l y, Pol i cy 96- 004, Sect i on I I . B. l i sts Assi stwi t h crowd cont r ol as a cani ne dut y and Sect i on I I . G. 1. l i st scr owd cont r ol as reason t o cal l i n an of f - dut y cani ne t eam. We

r ecommend that t he WPD del ete t hese r ef erences, and i nser tl anguage t hat t he use of cani nes f or cr owd cont r ol i s gener al l ydi scour aged.

3. Arrests.

Pol i cy 04- 001 set s f or t h t he WPD pol i cy f or ar r est s.Sect i on B. 3. f ocuses on handcuf f i ng. I t st at es, I n addi t i on t ohandcuf f s, ot her r est r ai nt s may be saf el y appl i ed t o t he ar r est eewho i s vi ol ent t o pr event i nj ur y t o t he of f i cer . . . . Wer ecommend t hat t hi s pol i cy speci f i cal l y i dent i f y t he ot herr est r ai nt s t hat ar e per mi ssi bl e. Addi t i onal l y, t he pol i cyshoul d detai l t he danger s of posi t i onal asphyxi a, and met hods and

pr ocedur es t o avoi d i t . As wi t h al l ar r est pr ocedur es, of f i cer smust be t r ai ned on any per mi ssi bl e other r est r ai nt s.

E. Use-of-Force Reporting.

The WPD s cur r ent useof - f or ce pol i cy mandat es t hat of f i cer scompl et e a useof - f or ce repor t f or m ( Use- of - For ce For m) anyt i met hei r act i ons al l egedl y r esul t i n i nj ur y or deat h, anyt i me t heyut i l i ze a non- l et hal weapon, and anyt i me t hey di schar ge t hei rf i r ear m. Addi t i onal l y, t he pol i cy r equi r es a det ai l eddescr i pt i on of any use of physi cal f or ce i n t he ar r est r epor t .The WPD shoul d def i ne t he el ement s of t he det ai l ed descr i pt i oni t r equi r es i n al l ar r est r epor t s. We r ecommend t hat t he WPDr equi r e bot h t hi s det ai l ed descr i pt i on, and a useof - f or cer epor t , f or al l uses of f or ce beyond unr esi st ed handcuf f i ng. I naddi t i on, t he pol i cy shoul d cl ar i f y whi ch i ndi vi dual s ar er equi r ed t o compl et e a det ai l ed descr i pt i on or Use- of - For ce For m.Cur r ent l y t he pol i cy onl y appear s t o r equi r e t he of f i ceradmi ni st er i ng t he f or ce t o r epor t i t s use. The WPD shoul d r evi sei t s pol i cy t o r equi r e t hat t he ar r est i ng of f i cer and al l of f i cer swho took part or wi t nessed t he use of f orce must pr epare aUse- of - For ce For m det ai l i ng t he event .

The i nf or mat i on r egar di ng each use of f or ce shoul d bet r acked i n an Ear l y Warni ng Syst em, as di scussed bel ow. The WPD

shoul d t r ai n al l of f i cer s i n useof - f or ce r epor t i ng and i n t heUse- of - For ce For m.

F. Deadly Force Review Board.

The WPD shoul d consi der f or mi ng a deadl y f or ce r evi ew board.Thi s boar d woul d not be a boar d of publ i c i nqui r y; but r at her ,t he boar d woul d r epor t di r ect l y t o and advi se t he chi ef . I t s

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pur pose woul d be t o eval uate whether uses of deadl y f orce werewi t hi n pol i cy, and pr event f ut ur e si t uat i ons cal l i ng f or deadl yf or ce. Thi s revi ew boar d woul d not t ake t he pl ace of i nt er nalaf f ai r s or any cr i mi nal i nvest i gat i on, but woul d pr oact i vel yi dent i f y t r ai ni ng needs wi t hi n t he useof - f or ce pol i cy. Wer ecommend t hat a capt ai n, an oper at i ons l i eut enant , t he t r ai ni ng

manager , and t wo operat i ons ser geant s compr i se t he r evi ew boar d.III. BODY-CAVITY SEARCHES AND STRIP SEARCHES.

The WPD should retrain all its officers on its body-cavityand strip search policy.

The Four t h Amendment guar ant ees t he r i ght of t he peopl e t obe secur e i n t hei r per sons, houses, paper s, and ef f ect s, agai nstunr easonabl e sear ches and sei zur es . . . . U. S. Const . amend.I V. I t s cent r al r equi r ement i s one of r easonabl eness. I l l i noi s v. McAr t hur , 531 U. S. 326, 330 ( 2001) .

The Four t h Amendment s prot ect i on agai nst unr easonabl esear ches and sei zur es not onl y pr event s sear ches and sei zur est hat woul d be unr easonabl e i f conduct ed at al l , but al so r equi r est hat cour t s must consi der t he scope of t he par t i cul ar i nt r usi on,t he manner i n whi ch i t i s conduct ed, t he j ust i f i cat i on f ori ni t i at i ng i t , and t he pl ace i n whi ch i t i s conduct ed. Mast er sv. Cr ouch, 872 F. 2d 1248, 1253 ( 6t h Ci r . 1989) ; see al so Gr ahamv. Connor , 490 U. S. 386, 395 ( 1989) ( st at i ng t he r easonabl eness of a par t i cul ar sei zur e depends not onl y on wheni t i s made, but al so on how i t i s car r i ed out ) .

St r i p and body- cavi t y sear ches of ar r est ees by pol i ceof f i cer s ar e per mi t t ed onl y i n ver y l i mi t ed ci r cumst ances. Thel aw on st r i p sear ches of ar r est ees f or mi nor , non- vi ol entof f enses i n t he Si xt h Ci r cui t i s cl ear :

a st r i p sear ch of a per son ar r est ed f or a t r af f i cvi ol at i on or ot her mi nor of f ense not nor mal l yassoci at ed wi t h vi ol ence and concer ni ng whom t her e i sno i ndi vi dual i zed r easonabl e suspi ci on t hat t hear r est ee i s carr yi ng or conceal i ng a weapon or ot hercont r aband, i s unr easonabl e.

Mast er s, 872 F. 2d at 1255. I n Mast er s, t he cour t di st i ngui shedcases uphol di ng st r i p sear ches of ar r est ees f or vi ol ent cr i mes,

and r ej ect ed t he count y empl oyees and of f i ci al s ar gument t hatt he st r i p sear ch pol i cy at i ssue was desi gned t o pr eventar r est ees f r om di st r i but i ng cont r aband t o ot her det ai nees. I d.( ci t i ng Duf r i n v. Spr een, 712 F. 2d 1084 ( 6t h Ci r . 1983) ) .

I n 2003, t he WPD i ssued i t s body- cavi t y and st r i p sear chpol i cy, Pol i cy 03- 001. We f ound t he pol i cy t o be compr ehensi veand gener al l y consi st ent wi t h t he above l aw; however , our

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i nt er vi ews r eveal ed t hat of f i cer s wer e uncl ear on t he pol i cy sst andar ds and r equi r ement s. We r ecommend t he l aw depar t mentr e- br i ef and r e- t r ai n al l of f i cer s, i ncl udi ng al l commandof f i cer s, on i t s body- cavi t y and st r i p- sear ch pol i cy.

IV. THE TRUMBULL METROPOLITAN HOUSING AUTHORITY.

The Trumbull Metropolitan Housing Authority Unit needssupervision and structure.

The WPD has est abl i shed a uni t of WPD of f i cer s t o pat r olhousi ng compl exes managed by t he Trumbul l Met r opol i t an Housi ngAut hor i t y ( TMHA) . 1 The TMHA Uni t i s compr i sed of on- dut yof f i cer s who pat r ol al l housi ng aut hor i t y pr oper t i es f or dr ug andvi ol ent cri mes.

Our i nvest i gat i on r eveal ed t hat no cl ear chai n of commandexi st s f or t hi s Uni t . Pr esent l y, t he WPD s descri pt i on of i t sTMHA Uni t l i st s t wo pat r ol of f i cer s wor ki ng f l exi bl e hours wi t h

onl y a WPD capt ai n as t hei r super vi sor . Thi s descr i pt i on l i st sno i nt er veni ng l i eut enant or ser geant as a f i r st l i ne super vi sor ,and TMHA Uni t of f i cers we spoke wi t h appear ed uncl ear as t o t hechai n of command. Moreover , some TMHA Uni t of f i cer s r epor t edt hat t hey t ook di r ect i on f r om a TMHA ci vi l i an empl oyee - - e. g. ,TMHA s di r ect or of secur i t y - - whi l e wor ki ng f or t he WPD i n t heTMHA Uni t . Accor di ngl y, i t appeared t hat somet i mes t he WPDabr ogat ed super vi si on of t he TMHA Uni t of f i cer s t o t he TMHA.

The TMHA Uni t needs di r ect f i el d super vi si on by t he WPD. Wer ecommend that t he WPD assi gn a ser geant as a di r ect f i el dsuper vi sor r esponsi bl e f or t he TMHA Uni t . Thi s f i el d ser geantshoul d r epor t di r ect l y t o t he second shi f t l i eut enant , who shoul dmanage t he TMHA Uni t . We not e t hat t he shi f t commander i sunavai l abl e t o act as t he f i el d super vi sor because t he TMHAof f i cer s wor k f l exi bl e hour s t hat st r et ch over sever al shi f t s.

Addi t i onal l y, t he TMHA Uni t does not have a cl ear obj ect i vebeyond pat r ol l i ng t he housi ng aut hor i t y pr oper t i es and TMHA Uni tof f i cers acknowl edged t hat no operat i ons manual exi st ed. Wer ecommend t hat t he WPD wr i t e a comprehensi ve oper at i ons manualout l i ni ng the dut i es and pr ocedur es of t he TMHA Uni t , and ensuret hat TMHA Uni t of f i cer s ar e appr opr i at el y t r ai ned on t hi s manual .

1 The TMHA i s a pol i t i cal subdi vi si on of t he Stat e of

Ohi o, and i s t he publ i c housi ng agency wi t h j ur i sdi ct i on over al lof Trumbul l Count y, Ohi o, except t he Townshi p of Mesopotami a.See TMHA 2004 Annual Report , p. 8, avai l abl e at ht t p: / / www.t r umbul l t mha. or g/ about / t mha_ar . pdf ( l ast vi ewed Febr uar y 7,2006) . The Ci t y of War r en i s l ocat ed i n Tr umbul l Count y.

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V. Complaint Investigations.

An open, f ai r , and i mpar t i al pr ocess f or r ecei vi ng andi nvest i gat i ng ci t i zen compl ai nt s ser ves sever al i mpor t antpur poses. An appr opr i at e ci t i zen compl ai nt procedur e ensuresof f i cer account abi l i t y and super vi si on, det er s mi sconduct , and

hel ps mai nt ai n good communi t y r el at i ons, i ncr easi ng publ i cconf i dence i n, and r espect f or t he WPD. I mpr ovi ng t he cur r entpr ocedur e f or handl i ng ci t i zen compl ai nt s woul d maxi mi ze t hesegoal s.

The WPD s cur r ent pol i ci es and procedur es r egar di ng ci t i zencompl ai nt pr ocess are l ocat ed i n t he WPD Manual i n Pol i cy 02- 006.Based on r evi ew and i nspect i on of t he WPD Manual provi ded t o us,no separ at e pol i cy concer ni ng t he conduct of i nt er nal af f ai r si nvest i gat i ons exi st s; r at her , we under st and t hat t he WPDconduct s i nt er nal af f ai r s i nvest i gat i ons under t he ci t i zencompl ai nt pol i cy set f or t h i n Pol i cy 02- 006, al one. Accor di ngl y,we addr ess her ei n t he ci t i zen compl ai nt pr ocess as out l i ned i n

t he WPD Manual and appendi ces t her et o. We t hen t urn t o t heconduct of i nt er nal af f ai r s i nvest i gat i ons, wher e we dr aw f r omt he appl i cabl e por t i ons of t he ci t i zen compl ai nt pol i cy and t henadd f ur t her i nf or mat i on f or areas of concer n f or whi ch t he WPDdoes not cur r ent l y have a pol i cy.

A. Complaint Intake and Forms.

The WPD should develop and implement a centralized, formal,structured, and consistent system for receiving complaints,without discouraging the filing of complaints.

Cur r ent l y, t he WPD has both f ormal and i nf ormal pr ocessesf or i nvest i gat i ng and r esol vi ng ci t i zen compl ai nt s. The WPDut i l i zes t wo separ at e f or ms f or t he i nt ake of compl ai nt s:( 1) t he Ci t y of War r en Pol i ce Depar t ment Ci t i zen Compl ai nt For m( Compl ai nt For m) , whi ch i s used bot h exter nal l y and i nt er nal l yf or al l f or mal i nvest i gat i ons; and ( 2) t he Mi nor I nci dentResol ut i on For m, whi ch i s f or i nf or mal compl ai nt s r esol vedwi t hout a f ul l i nvest i gat i on. As di scussed bel ow, we r ecommendt hat t he WPD use onl y t he Compl ai nt For m f or al l ci t i zencompl ai nt s and el i mi nat e i t s use of t he Mi nor I nci dent Resol ut i onForm. Moreover , t he WPD shoul d i mpr ove t he Compl ai nt Form andi nt ake pr ocess i n sever al ways.

1. Complaint Intake.A compl ai nt pr ocess shoul d al l ow unf et t er ed publ i c access t o

make compl ai nt s. WPD pol i cy shoul d r equi r e t hat a Compl ai nt For mbe r eadi l y accessi bl e and avai l abl e t o any per son who wi shes t ol odge a compl ai nt . Accordi ngl y, we r ecommend t he f ol l owi ngchanges i n pol i cy and pr act i ces.

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The avai l abi l i t y of Compl ai nt For ms and t he process f or t hehandl i ng of compl ai nt s shoul d be pr omi nent l y post ed at t he WPDheadquar t er s and ot her publ i c f aci l i t i es. The WPD shoul d pr ovi deCompl ai nt For ms i n publ i cl y accessi bl e l ocat i ons t hat shoul dper mi t t he f or ms t o be obt ai ned wi t hout a speci f i c r equest by aci t i zen, e. g. , bl ank f or ms pl aced i n a publ i cl y accessi bl e ar ea

f or t he t aki ng.The ci t i zen compl ai nt process set f or t h i n Pol i cy 02- 006 i s

i nconsi st ent i n many ar eas wi t h t he act ual compl ai nt i nt akepr act i ces r epor t ed t o us by WPD per sonnel , Ci t y personnel , andci t i zens. Mor eover , t he WPD Manual does not provi de suf f i ci entgui dance to WPD of f i cer s r egardi ng t he compl ai nt i nt ake pr ocess.For exampl e, Pol i cy 02- 006 pr ovi des t hat t he Chi ef desi gnat eCommand Of f i cer s t o r ecei ve compl ai nt s f r om ci t i zens. Pol i cy02- 006 def i nes a Command Of f i cer as a pol i ce of f i cer of t he r ankof Li eut enant or above, or a Ser geant who i s act i ng ( bei ng pai d)as a Li eut enant . Yet , t he WPD i nf or med us t hat i t has pl acedonl y a si ngl e Li eut enant i n command of i nt er nal af f ai r s

i nvest i gat i ons. To be sure, t he WPD command st af f has i nf ormedus t hat i f t he appoi nt ed Li eut enant i s unavai l abl e, compl ai nt scan be accept ed by a second Li eut enant who f ormer l y headedi nt er nal af f ai r s i nvest i gat i ons, and t he Chi ef and hi s secret ar ymay al so accept Compl ai nt Forms. Even so, some ci t i zens havei nf ormed us t hat t hey have not been permi t t ed t o submi t aCompl ai nt For m t o anyone other t han t he appoi nt ed Li eut enant .Addi t i onal l y, we have been i nf ormed t hat t he WPD accept scompl ai nt s onl y dur i ng l i mi t ed wor ki ng hour s. Accor di ngl y, t hepr act i ce of t he WPD has appar ent l y been i nconsi st ent and, at ami ni mum, i n conf l i ct wi t h t he WPD s cur r ent pol i cy by notal l owi ng t he submi ss i on of Compl ai nt For ms t o any WPD of f i cermeet i ng t he Command Of f i cer def i ni t i on. Mor eover , t hi s pr act i cel i mi t s t he ci t i zens access t o t he ci t i zen compl ai nt syst em, andi s i nconsi st ent wi t h pol i cy, t her eby det er r i ng genui ne compl ai nt sof mi sconduct and under cut t i ng t he l egi t i macy of t he r esol ut i onpr ocess.

We recommend t hat t he WPD r evi se i t s pol i cy t o al l ow anymember of t he WPD t o accept compl ai nts, and t o pr ovi de t hatci t i zens may submi t compl ai nt s t o any WPD of f i cer , desi gnat edCi t y of f i ces, or dr op boxes l ocat ed i n t he pol i ce st at i on andother publ i c bui l di ngs. We al so recommend t he WPD change i t spol i cy t o al l ow ci t i zens t o submi t compl ai nt s at any t i me. Wer ecommend r evi si on t o t he WPD s pol i cy t o pr ovi de a consi st ent

and compr ehensi ve out l i ne of t he pr ocedur es t hat al l WPD of f i cer sshoul d f ol l ow t o accept a compl ai nt t hat , i f t r ue, woul dconst i t ut e a vi ol at i on of t he WPD s rul es and r egul at i ons. Thi spol i cy shoul d i ncl ude i nst r uct i ons t o any of f i cer t hat uponaccept i ng a f or m, he or she shoul d del i ver t hat f or m t o asupervi sor pr ompt l y, or as soon as one becomes avai l abl e. Wef ur t her r ecommend t hat t he WPD conf or m i t s pract i ces wi t h r espect

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t o accept i ng compl ai nt s so t hat i t s pr act i ces wi l l meet each oft hese new, suggest ed pol i ci es.

Whoever accept s a Compl ai nt For m shoul d pr oper l y i dent i f yhi m/ her sel f on t he Compl ai nt For m as i t s r eci pi ent . TheCompl ai nt For m cur r ent l y pr ovi des r oom f or t he si gnat ur e of t he

empl oyee who r ecei ves t he compl ai nant . As di scussed above, t heWPD s pract i ce has r epor t edl y been t o l i mi t who may act ual l yaccept Compl ai nt For ms. I n order t o assure t hat t he person whocol l ect s a Compl ai nt For m can be pr oper l y i dent i f i ed, t he per sonr ecei vi ng t he f or m shoul d i dent i f y hi m/ her sel f by pr i nt i ng hi s orher name and/ or badge number , al ong wi t h t he dat e and t i me ofr ecei pt , on t he f or m. Accor di ngl y, t he WPD shoul d r evi se t heCompl ai nt For m t o accommodate such i nf ormat i on.

2. The WPD Should Not Discourage the Filing ofComplaints.

An open compl ai nt pr ocess cont empl ates t hat compl ai nt s wi l l

not be act i vel y di scour aged. The WPD Compl ai nt For m cur r ent l ynot i f i es ci t i zens t hat t hey can be subj ect t o ci vi l or cri mi nalact i on by t he WPD and by t he empl oyee who i s t he subj ect of t hecompl ai nt pur suant t o Ohi o Revi sed Code ( O. R. C. ) 2921. 15, f ori nt ent i onal l y f i l i ng unt r ue st at ement s. We r ecommend t hat t heWPD r emove thi s l anguage as i t may i nappr opr i atel y di scour age thef i l i ng of compl ai nt s. We r ecommend t hat t he WPD shoul d not gi veany di r ect i on - - ei t her as par t of t he Compl ai nt For m or i nsepar at e wr i t t en mat er i al or or al i nst r uct i ons - - t o compl ai nant st hat may di scour age pot ent i al compl ai nant s f r om f i l i ng l egi t i mat ecompl ai nt s.

As a pr el i mi nary mat t er , we note that t he WPD has pr evi ousl yagr eed to r emove t he l anguage r ef erenci ng the Ohi o Revi sed Codef r omt he Compl ai nt For m i n 2002. On March 26, 2002, t he WPDChi ef si gned a Let t er of Underst andi ng bet ween t he Ci t y ofWarr en, t he Warr en Mi nor i t y Coal i t i on, and t he NAACP. 2 I n t hatdocument , r epr esent at i ves of t he War r en Mi nor i t y Coal i t i on andt he NAACP i nf ormed t he WPD t hat t hey percei ve theabove- r ef er enced por t i on of t he Compl ai nt For m t o be ani nt i mi dat i on t act i c. The WPD agr eed t o amend t he Compl ai ntFor m t o r emove r ef er ence t o O. R. C. 2921. 15 and pr ovi de t hei nf or mat i on as a separ at e i t em. As of t he t i me our r evi ew, t hesechanges had not been made.

I t i s appr opr i at e f or a compl ai nant t o acknowl edge t hat heor she at t est s t o t he f act s of a compl ai nt by si gni ng t hecompl ai nt . However , a pr omi nent t hr eat of r epr i sal , par t i cul ar l y

2 The Depar t ment of J ust i ce, Communi t y Rel at i ons Ser vi ce

f aci l i t at ed and wi t nessed t hi s Let t er of Under st andi ng, but i snot a par t y t o t he document .

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by t he of f i cer who i s t he subj ect of t he compl ai nt , det er si ndi vi dual s f r om f i l i ng compl ai nt s and under mi nes t he l egi t i macyof t he compl ai nt syst em. We recommend t hat t he WPD r edesi gn t heCompl ai nt For m t o cont ai n an at t est at i on t hat t he compl ai nt i smade t o t he best of compl ai nant s knowl edge and made i n goodf ai t h. Such an at t est at i on woul d convey t o t he compl ai nant t he

gr avi t y of f i l i ng a compl ai nt .I n addi t i on t o r emovi ng t he l anguage i n t he cur r ent

Compl ai nt Form, we recommend that t he WPD r evi se i t s pol i cyr egardi ng Compl ai nt s whi ch may al so di scour age compl ai nant s f r omf i l i ng l egi t i mat e compl ai nt s. I n per t i nent par t , Pol i cy 02- 006cur r ent l y pr ovi des:

1. Command Of f i cer s ar e t o make ever y r easonabl eef f or t t o resol ve compl ai nt s wi t h t he concur r enceof t he ci t i zen, at t he l owest possi bl e l evelwi t hout submi ssi on of a f or mal compl ai nt .

2. I f a ci t i zen concur s wi t h t he Command Of f i cer sef f or t t o r esol ve t he mat t er i nf or mal l y, t heCommand Of f i cer must submi t a Mi nor I nci dentResol ut i on f or m ( Appendi x 2) t hr ough t he Chai n ofCommand t o the Of f i ce of t he Chi ef of Pol i cedescr i bi ng t he compl ai nt and t he manner i n whi chi t was r esol ved.

3. I f t he ci t i zen does not concur wi t h t he ef f or t oft he Command Of f i cer t o r esol ve t he mat t eri nf or mal l y, or does not concur wi t h t he act i on( s)t aken by the Command Of f i cer , a f ormal Ci t i zenCompl ai nt wi l l be i ni t i at ed i n accor dance wi t ht hi s Di rect i ve.

The above l anguage per mi t s a Command Of f i cer t o at t empt t or esol ve ci t i zen compl ai nt s i nf or mal l y. Though t hi s l anguageappear s beni gn on i t f ace, we underst and t hat WPD of f i cers havedi scour aged a number of ci t i zens f r om f i l i ng compl ai nt s t hr ought hi s i nf or mal pr ocess.

Si mi l ar l y, t he WPD uses a separ at e Mi nor I nci dent Resol ut i onFor m i n l i eu of t he Compl ai nt For m i n some i nst ances, such ascompl ai nt s t hat ar e r esol ved i nf or mal l y, or compl ai nt s ofpur por t edl y i nsi gni f i cant pol i cy vi ol at i ons. We r ecommend t hat

t he WPD di scont i nue t he use of t hi s al t er nat i ve f or m. Accor di ngt o our consul t ant s, al l i nci dent s t hat war r ant t he i ni t i at i on ofan i nvest i gat i on shoul d be r eport ed and r ecor ded on t he same f ormand t r eat ed uni f or ml y i n t hei r i nt ake and t r acki ng. Mor eover ,t he use of t hi s f or m t o i nf or mal l y r esol ve al l egat i ons of of f i cermi sconduct al l ows f or t he possi bi l i t y of i nappr opr i at e handl i ngand r esol ut i on of al l egat i ons of const i t ut i onal vi ol at i ons.Addi t i onal l y, t hi s i nf or mal mechani sm depr i ves t he WPD of usef ul

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and cr i t i cal i nf or mat i on r egar di ng of f i cer conduct , whi ch coul dpot ent i al l y expose t he WPD t o l i abi l i t y. Accor di ngl y, wer ecommend t hat t he WPD el i mi nate t he Mi nor I nci dent Resol ut i onFor m and, i nst ead, empl oy the Compl ai nt For m f or t he i nt ake ofal l i nci dent s i nvol vi ng WPD empl oyees.

Our expert s al so agr ee t hat t he WPD shoul d accept al lcompl ai nt s of act i ons t hat , i f t r ue, woul d const i t ut e a vi ol at i onof t he appl i cabl e l aws, or WPD s rul es and r egul at i ons. Onceaccept ed t hr ough st andar di zed i nt ake and t r acki ng syst ems, t heChi ef of Pol i ce may t hen assi gn mat t er s of l ess si gni f i cantal l eged i nf r acti ons, e. g. , di scour t esy wi t hout f ur t her vi ol at i on,t o an i nf or mal r esol ut i on t hr ough shi f t commander s as di scussedl at er her ei n. Under no ci r cumst ances shoul d a pol i cy of i nf or malcompl ai nt r esol ut i on be used as a subt er f uge to bar ci t i zens f r omsubmi t t i ng compl ai nts. We r ecommend t hat t he WPD updat e i t spol i cy t o expl i ci t l y st at e t hat a member of t he publ i c has t her i ght t o f i l e a compl ai nt , and t hat no WPD of f i cer shoul ddi scour age the submi ssi on of any compl ai nt .

3. Anonymous and Third-Party Complaints.

The WPD shoul d i nvest i gate al l compl ai nt s, i ncl udi ng t hoser ecei ved f r omanonymous sour ces. The WPD has advi sed us t hat , i npr act i ce, anonymous compl ai nt s ar e not accept ed. We st r ongl yr ecommend that WPD pol i cy be r evi sed t o requi r e t he accept anceand i nvest i gat i on of al l compl ai nt s t hat al l ege conductconst i t ut i ng a vi ol at i on of pol i cy, i ncl udi ng anonymouscompl ai nt s and t hose submi t t ed i n f orms ot her t han t he st andardCompl ai nt For m - - e. g. , by tel ephone, e- mai l , TDD, or ot hermeans. Pol i cy 02- 006 cur r ent l y st at es: Anonymous or t hi r d par t ycompl ai nt s or al l egat i ons of mi sconduct wi l l be handl ed as aDepar t ment al I nqui r y. Pol i cy 02- 006 def i nes a Depar t ment alI nqui r y as [ a] n i nvest i gat i on i ni t i at ed by the depar t ment i nt o aspeci f i c i nci dent or al l egat i on of a r ul es vi ol at i on. Thepol i cy of f er s no f ur t her expl anat i on of t he pr ocess f or handl i nganonymous or t hi r d- part y compl ai nt s. The WPD shoul d consi der t hecompl ai nant s f ai l ur e t o execut e t he f or m onl y i n wei ghi ng t hatf act among al l evi dence i n t he i nvest i gat i on.

The WPD shoul d al so accept t hi r d- par t y compl ai nt s. TheCompl ai nt For m cur r ent l y r equi r es an at t est at i on t hat t hei nf or mat i on t he compl ai nant submi t s i s based onl y on hi s/ her ownexper i ences or obser vat i ons. Si mi l ar l y, Pol i cy 02- 006 r equi r es

t hat :For mal Ci t i zen Compl ai nt s wi l l onl y be accept ed f r ompar t i es who have f i r st - hand knowl edge. Thi s means t hatt he per son was ei t her i nvol ved i n t he i nci dent or wasan eyewi t ness t o t he i nci dent .

The pol i cy makes no except i on f or a wi t ness or a r epr esent at i ve

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of an aggr i eved per son, e. g. , a par ent , mi ni st er , or at t or ney, t of i l e a compl ai nt on behal f of anot her per son. The WPD shoul di nvest i gat e t hi r d- par t y compl ai nt s, but , l i ke anonymouscompl ai nt s, al so be abl e t o consi der t he compl ai nant s l ack off i r st - hand knowl edge i n wei ghi ng t he al l egat i on among al l ot herevi dence i n t he i nvest i gat i on. Accor di ngl y, we al so st r ongl y

r ecommend t hat t he WPD modi f y i t s pol i cy and pr act i ces t o acceptand i nvest i gat e t hi r d- par t y compl ai nt s.

4. Incomplete Complaint Forms.

The WPD shoul d i nvest i gate compl ai nt s t hat f ai l t o meet al lt he f or mal i t i es of i t s Compl ai nt For m. Pol i cy 02- 006 st at es:

I f a compl ai nant i s unabl e t o pr ocess a f or malcompl ai nt on a Ci t i zen Compl ai nt For m, t he CommandOf f i cer wi l l r ecor d t he i nf or mat i on on a Ci t i zenCompl ai nt For m as accur atel y as possi bl e. The CommandOf f i cer wi l l al so not e t he r eason( s) why the

compl ai nant was unabl e to compl ete t he f orm and wi l lt hen pr ocess t he compl ai nt i n accor dance wi t h t hepr ocedur es est abl i shed wi t hi n t hi s Di r ect i ve.

By the use of process t he compl ai nt , t he WPD pol i cy appear s t oi ndi cat e t hat t he WPD wi l l i nvest i gat e even i ncompl et e Compl ai ntForms. However , our i nt ervi ews of WPD personnel and othersr eveal ed t hat t he WPD does not i nvest i gate unsi gned or i ncompl etecompl ai nt s. For exampl e, our r evi ew r eveal ed a compl ai nt f i l edi n March 2004 by a mother on behal f of her son al l egi ng t hat t heson was assaul t ed by of f i cer s whi l e r est r ai ned i n handcuf f s. Thecompl ai nt was not process[ ed] . Rat her , t he WPD s i nt er nalaf f ai r s of f i cer di sr egar ded t he cont ent of t he compl ai nt becauset he f orm was i ncompl ete and unsi gned. Accor di ngl y, we r ecommendt hat t he WPD change i t s procedur es t o requi r e the i nvest i gat i onof compl ai nt s t o t he f ul l est ext ent possi bl e and appr opr i at e,even i f submi t t ed t hr ough i ncompl ete Compl ai nt For ms.

5. Identification of WPD Employees by Complainants.

A compl ai nant shoul d be encour aged t o i dent i f y t he WPDempl oyee and t he compl ai nant s case or t i cket number t hat r el atet o t he i nci dent descr i bed i n t he compl ai nt .

i . e. , a notebook cont ai ni ng t he photos and names of al l WPD sworn

The WPD has advi sed us t hat t he WPD keeps a yearbook,

of f i cer s. We under st and t hat t he WPD r ecent l y updat ed t hi syearbook i n r esponse t o a t echni cal assi st ance r ecommendat i onf r om our consul t ant s, but t he onl y copy of t hi s year book i s kepti n t he Chi ef s of f i ce whi ch may l i mi t i t s avai l abi l i t y t ocompl ai nant s. We r ecommend t hat t he WPD keep t he year book up t odate and make copi es of t he yearbook access i bl e t o compl ai nant sat al l t i mes at t he WPD headquar t er s and dur i ng al l wor ki ng hour s

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at Ci t y Hal l or ot her appoi nt ed ci t y of f i ce wher e Compl ai nt For msmay be submi t t ed.

We al so recommend that t he WPD updat e t he Compl ai nt For m t opr ovi de a space f or a compl ai nant t o submi t t he case number ort i cket number of t he pol i ce act i on f r om whi ch t he compl ai nt

ar i ses. Obt ai ni ng t hi s i nf or mat i on f r om compl ai nant s shoul df aci l i t at e an accur at e and mor e ef f i ci ent r esol ut i on t ocompl ai nt s.

6. Confidentiality of Complaint Form.

Most pol i ce depar t ment s pr ohi bi t t he unnecessar y di scl osur eof i nf or mat i on cont ai ned i n compl ai nt s. The cur r ent Compl ai ntFor m cont ai ns an opt i on f or t he compl ai nant t o r equest t hat t hei nf or mat i on be kept conf i dent i al and not r el eased t o the publ i c.Whi l e possi bl y r eassur i ng t o t he compl ai nant , t hi s por t i on of t heCompl ai nt For m may al so be mi sl eadi ng. Conf i dent i al i t y cannot beassured gi ven t hat t he Compl ai nt For m i t sel f may ser ve as

evi dence i n admi ni st r at i ve, ci vi l , or cri mi nal pr oceedi ngs.

We r ecommend that t he WPD omi t f r om t he Compl ai nt For m t hesent ence r egar di ng conf i dent i al i t y. Accor di ngl y, we r ecommendt hat t he WPD r evi se i t s Compl ai nt Pol i cy t o requi r e that WPDper sonnel keep conf i dent i al t he cont ent s of ci t i zen compl ai nt sexcept f or such di scl osur es t hat ar e r equi r ed f or t hei nvest i gat i on of t he compl ai nt s, or pr osecut i on or def ense ofr el at ed admi ni st r at i ve, ci vi l , or cri mi nal pr oceedi ng.

C. Assignment of Citizen Complaints.

The WPD should develop objective criteria for the assignment

of complaints for the appropriate level of review, includinga policy and protocol that requires allegations of

potentially criminal conduct be timely and appropriatelyreferred for investigation and appropriate action.

1. Objective Criteria for Assignment.

Pol i cy 02- 006 st at es:

The Chi ef of Pol i ce or hi s desi gnee wi l l det er mi ne i f af or mal Ci t i zen Compl ai nt i s t o be i nvest i gat ed by theOf f i ce of I nt er nal Af f ai r s , Di vi s i on, or at t he Tur n

Level .The pol i cy present s no obj ect i ve cr i t er i a f or t he ass i gnment ofci t i zen compl ai nt s t o any of f i ce ot her t han t he WPD I nt er nalAf f ai r s Di vi si on. We r ecei ved r epor t s f r om WPD st af f andof f i cer s t hat t he handl i ng of compl ai nt s wi t hi n t he WPD i s bi asedby per sonal r el at i onshi ps bet ween t he subj ect of t he compl ai nt sand some of t he WPD management member s. Sever al of t hese

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i ndi vi dual s al l ege that f avor ed WPD empl oyees ar e per mi t t edi nf or mal r esol ut i on of compl ai nt s, whi l e di sf avor ed WPD empl oyeesar e subj ect t o f or mal i nvest i gat i ons of compl ai nt s and gr eat erdi sci pl i ne.

We r ecommend that , i n i nst ances where i nt ernal r evi ew or

compl ai nt s r eveal mi sconduct t hat qual i f i es as ser i ous under t heWPD s pol i ci es, t he Chi ef shoul d make t he ul t i mat e det er mi nat i onas t o whet her and how an al l egat i on i s r ef er r ed f or i nvest i gat i onwi t hi n t he WPD. The Chi ef s determi nat i on shoul d be memor i al i zedi n wr i t i ng. Fur t her , when an al l egat i on of mi sconduct qual i f i esas mi nor , t he Chi ef may choose t o assi gn bot h t he i nvest i gat i onand di sposi t i on of t he mat t er t o t he shi f t l evel commander . I nmaki ng al l such det er mi nat i ons, t he Chi ef shoul d appl y consi st entand obj ect i ve cri t er i a. For exampl e, al l al l egat i ons ofdi scour t esy on t he f i r st occasi on of such an al l egat i on mayqual i f y as mi nor . Any al l egat i on of excessi ve f or ce or otherconst i t ut i onal vi ol at i on shoul d not be consi der ed mi nor , andshoul d be subj ect t o f ul l i nvest i gat i on t hr ough t he i nt er nal

af f ai r s di vi si on. Whi chever obj ect i ve cri t er i a t he Chi ef appl i es- e. g. , number of i nci dent s i nvol vi ng t he same of f i cer , t ype ofi nci dent , r epeat compl ai nt s f r om t he same compl ai nant about t hesame of f i cer , al l egat i ons of cr i mi nal conduct - - shoul d be setout i n wr i t i ng i n t he WPD Manual . By appl yi ng t hese obj ect i vecr i t er i a t o t he assi gnment of compl ai nt s, t he WPD shoul d t her ebyi mpl ement a consi st ency i n the assi gnment f or i nvest i gat i on ofcompl ai nt s t hat wi l l suppor t a gr eat er per cept i on of l egi t i macyi n the compl ai nt pr ocess by bot h WPD per sonnel and ci t i zens.

2. Potentially Criminal Investigations.

Some al l egat i ons of mi sconduct , i ncl udi ng t hose that ar e t hesubj ect of compl ai nt s f r om a member of t he publ i c, may be soser i ous as t o war r ant a r ef er r al t o l ocal or f eder al pr osecut or s,or ot her appr opr i at e ent i t y. The WPD pol i ci es and pr ocedur esmake no r ef er ence t o t hi s possi bi l i t y. I n r evi si ng i t s pol i cyr egardi ng compl ai nt s, t he WPD shoul d pr ovi de gui dance as t o whi chcompl ai nt s are appr opr i at e f or i nt er nal r evi ew and whi chcompl ai nt s shoul d be r ef er r ed out si de t he WPD f or pot ent i alcri mi nal i nvest i gat i on.

The det er mi nat i on of whether t he al l egat i ons of a compl ai ntwoul d pot ent i al l y requi r e a cr i mi nal i nvest i gat i on al so shoul d bemade as ear l y as possi bl e. We are aware of an i nst ance i n whi ch

t he Ci t y of War r en hi r ed an at t or ney t o be a speci al pr osecut ort o i nvest i gat e speci f i c al l eged i nst ances of st r i p andbody- cavi t y sear ches by WPD per sonnel . The at t or ney s r evi ewi ndi cat ed t hat t he WPD of f i cer s had act ed i n cont r avent i on ofOhi o l aw, but he coul d not pur sue cr i mi nal pr osecut i on because2933. 32 [ r egar di ng t he conduct of body- cavi t y and st r i psear ches] i s a mi sdemeanor and, unf or t unat el y, t he appl i cabl e

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t wo- year st at ut e of l i mi t at i ons had r unby the time the caseswere referred to me. ( Emphasi s added. )

Whether or not a convi ct i on or acqui t t al woul d haveul t i mat el y r esul t ed i n t he par t i cul ar mat t er s, t he f ai l ur e t or ef er t hose mat t er s i n a t i mel y f ashi on i l l ust r at es t he need f or

a uni f or m pol i cy on t he r ef er r al of pot ent i al l y cri mi nal mat t er s.Accor di ngl y, we r ecommend that t he WPD adopt and adher e t o apol i cy r equi r i ng t hat t he Chi ef , i n consul t at i on wi t h t he LawDi r ector , t i mel y r ef er al l egat i ons of pot ent i al l y cri mi nalconduct t o appr opr i at e l ocal or f eder al pr osecut or s.

The pol i cy and procedur e t hat t he WPD i mpl ement s shoul d al socl ar i f y t he r i ght s of of f i cer s i nvol ved. Dur i ng i nvest i gat i onsof pot ent i al l y cr i mi nal mi sconduct : of f i cer s may be r ead r i ght spur suant t o Mi r anda v. Ar i zona, 384 U. S. 436 ( 1966) , bef or equest i oni ng; may be ent i t l ed t o have counsel pr esent ; and may ber equi r ed t o be pol ygr aphed. Mor eover , each WPD of f i cer i sent i t l ed t o pr ot ect i on pur suant t o Gar r i t y v. New J er sey, 385

U. S. 493 ( 1967) , agai nst t he use i n subsequent cr i mi nalpr oceedi ngs of st at ement s compel l ed f r om hi m or her i nadmi ni st r at i ve pr oceedi ngs under t hr eat of di sci pl i nar y act i on.Thi s pol i cy shoul d be consi st ent and coor di nat ed wi t h t he pol i cyr egar di ng t he i nvest i gat i on and eval uat i on of compl ai nt s. Thi scoor di nat i on wi l l pr event a si t uat i on i n whi ch t he i nvest i gat i vepr ot ocol used t o i nvest i gat e a compl ai nt t ur ns out t o bei ncompat i bl e wi t h t he r equi r ement s f or t he i nvest i gat i on ofser i ous mi sconduct , t hus compr omi si ng t he i nt egr i t y of each. Forexampl e, i f a compl ai nt al l eges t hat ser i ous mi sconduct mi ghthave occur r ed, WPD pol i cy shoul d r equi r e t hat such a compl ai nt bei nvest i gat ed under t he hei ght ened st andar ds, r at her t han t hest andar ds appl i cabl e t o compl ai nt s t hat do not i nvol veal l egat i ons of pot ent i al l y ser i ous mi sconduct .

D. Investigations.

The WPD should have a consistent policy regarding theappropriate investigation of complaints by trained andobjective internal affairs investigators.

Under t he cur r ent syst em of compl ai nt i nvest i gat i on andr esol ut i on, i f t he WPD accept s a Compl ai nt For m, t he WPD si nt er nal af f ai r s of f i cer wi l l pr ovi de a wr i t t en not i ce t o some oral l of t he of f i cer s i nvol ved t hat t hey must submi t a wr i t t en

st at ement r egar di ng t he i nci dent . I n pr act i ce, i t appear s t hati n some, but not al l , i nst ances t he i nt er nal af f ai r s of f i cer wi l lal so sol i ci t st at ement s f r om ci vi l i an wi t nesses or wr i t t enst at ement s f r om ot her l aw enf or cement of f i cer s or cor r ect i onsof f i cer s - - i . e. , i nvol ved pol i ce of f i cer s f r om nei ghbor i ngj ur i sdi ct i ons or count y j ai l er s. WPD pol i cy does not , however ,r equi r e t hat basi c i nvest i gat i ve techni ques, i ncl udi ngquest i oni ng WPD per sonnel t hr ough per sonal i nt er vi ews or

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gat her i ng ext r i nsi c evi dence - - e. g. , t hi r d- par t y wi t nessaccount s, or phot ogr aphs of al l eged i nj ur i es.

We wer e al so i nf or med t hat i t i s t he pr act i ce of t he WPD t of ocus onl y on t he speci f i c pol i cy vi ol at i on of t he al l egat i ons i nt he compl ai nt t hat i ni t i at ed an i nvest i gat i on, even i f f ur t her

pol i cy vi ol at i ons come t o l i ght - - or woul d come t o l i ght i n t heexer ci se of r easonabl e due di l i gence - - i n t he cour se of t hei nvest i gat i on. We f ur t her not ed t hat t he WPD of f i cer char gedwi t h command of i nt ernal af f ai r s i s al so i n command of t he WPD snar cot i cs di vi si on; t hi s i s of concer n because of t he pot ent i alappear ance of conf l i ct s of i nt erest between these t wo commands.Addi t i onal l y, we underst and t hat t he Chi ef may or may not becomeawar e of t he exi st ence of a compl ai nt , and of t en t her e i s nowr i t t en r ecor d t hat t he Chi ef has r evi ewed t he out come of ani nvest i gat i on or r ender ed a di sposi t i on as t o t he mat t er . Thesepol i ci es and pr act i ces ar e i nconsi st ent wi t h t he i nt er nal af f ai r si nvest i gat i ons of most pol i ce depar t ment s.

The pol i cy and pract i ce of i nter nal af f ai r s i nvest i gat i onsat t he WPD, t her ef or e, coul d be subst ant i al l y i mpr oved byi mpl ement i ng t he f ol l owi ng recommendat i ons.

1. Consistent, Objective Process.

We r ecommend t hat t he WPD adopt a pol i cy concerni ng t hei nvest i gat i on of compl ai nt s r ecei ved f r om ei t her member s of t hepubl i c or i nt er nal compl ai nt s. The pol i cy shoul d pr ovi de t hatt he Chi ef be not i f i ed of compl ai nt s as soon as possi bl e. Forcompl ai nt s al l egi ng t he excessi ve use of f or ce or vi ol at i on of aper son s const i t ut i onal r i ght s, t he Chi ef shoul d be not i f i ed nol ess t han t went y- f our hour s af t er r ecei pt of a compl ai nt .

The pol i cy shoul d del i neat e and speci f y r esponsi bi l i t y f ort he ci t i zen compl ai nt i nvest i gat i on pr ocess. A desi gnat edsuper vi sor y of f i cer ( s) shoul d be r esponsi bl e f or t hei nvest i gat i on and r ecommended r esol ut i on of compl ai nt s. Wer ecommend that t he WPD appoi nt a qual i f i ed WPD of f i cer whoseposi t i on does not gi ve r i se t o a pot ent i al appear ance of aconf l i ct of i nt er est t o command i t s i nt er nal af f ai r si nvest i gat i ons. We f ur t her r ecommend t hat t he WPD i nvest i nout si de t r ai ni ng pr ogr ams f or t hi s i nt er nal af f ai r s commander ,who coul d t hen, i n t ur n, t r ai n al l t he WPD command of f i cer sr egar di ng t he pr oper handl i ng of i nt er nal af f ai r s i nvest i gat i ons.

We recommend t hat al l WPD of f i cer s charged wi t h handl i ngcompl ai nt s, whet her conduct i ng i nt ake or i nvest i gat i ngcompl ai nt s, r ecei ve speci al i zed t r ai ni ng bef or e begi nni ng i nt akeor i nvest i gat i ve r esponsi bi l i t i es. The t r ai ni ng shoul d i ncl udei nvest i gat i ve and i nt er vi ew t echni ques f or f or mal compl ai nt s,i ncl udi ng exami ni ng and i nt er r ogat i ng wi t nesses; i dent i f yi ngmi sconduct , i ncl udi ng mi sconduct t hat i s not speci f i cal l y namedi n a compl ai nt ; et hi cs; i nt egr i t y; pr of essi onal i sm; t he f actor s

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t o consi der when eval uat i ng compl ai nant or wi t ness cr edi bi l i t y;and t he appr opr i at e bur den of pr oof - - i . e. , pr eponder ance of t heevi dence. The t r ai ni ng shoul d al so cl ar i f y t he l i mi t edci r cumst ances i n whi ch i nf or mal compl ai nt s ar e appr opr i at e,obj ect i ve cr i t er i a used t o separ at e f or mal f r om i nf or malcompl ai nt s, and di scuss t he met hods f or i nvest i gat i ng t hose

compl ai nt s.The WPD pol i cy shoul d cl ear l y def i ne t he nat ure and scope of

t he compl ai nt i nvest i gat i on. I n t he cour se of our i nvest i gat i on,we hear d compl ai nt s f r om bot h ci t i zens and of f i cer s t hat t hecompl ai nt pr ocedur e can be er r at i c and i r r egul ar . The l ack of af or mal , st r uctur ed, and consi st ent pol i cy poses di f f i cul t i es t ot he compl ai nant as wel l as t he of f i cer i nvol ved i n t he i nci dent ,bot h of whom ar e ent i t l ed t o know i n advance what t hei r r i ght sand r esponsi bi l i t i es ar e i n t he cour se of t he i nvest i gat i on. I ndef i ni ng t he scope and nat ur e of t he i nvest i gat i on, t he WPDpol i cy shoul d pr ovi de that any i nvest i gat i on i ncl ude an i nt er vi ewwi t h t he compl ai nant and al l wi t nesses, ci t i zen or pol i ce. The

pol i cy shoul d r equi r e t hat al l f or ensi c or ot her evi dence beobt ai ned and anal yzed.

We al so recommend t hat t he WPD pol i cy on compl ai nts speci f ya cl ear t i me l i ne under whi ch t he compl ai nt wi l l be i nvest i gat edand adj udi cated. We r ecommend t hat t he pol i cy r equi r e t hat ,absent exi gent ci r cumst ances, any i nvest i gat i on be compl et edwi t hi n 45 days, i ncl udi ng r evi ew of t he i nvest i gat i on by t heChi ef wi t hi n t hat t i me f r ame. I nt er nal adj udi cat i on, i f any, oft he r esul t s of t he i nvest i gat i on shoul d be t i mel y compl et edwi t hi n deadl i nes speci f i ed under t he WPD s l abor agr eement s.I mposi t i on of di sci pl i ne, i f any, shoul d occur wi t hi n 30 days oft he end of t he Chi ef s r evi ew or t he end of i nt er naladj udi cat i on. Extensi ons beyond t hese t i me per i ods shoul dr equi r e t he Chi ef s wr i t t en appr oval and be communi cat ed i nwr i t i ng t o t he compl ai nant .

Fi nal l y, WPD pol i ci es and pr ocedur es do not expl i ci t l y st at et hat of f i cer s must r epor t vi ol at i ons of l aw or WPD codes ofconduct t hat woul d be subj ect t o di sci pl i nar y act i on. Wer ecommend t hat t he WPD r evi se i t s pol i cy to r equi r e t hat of f i cer swho wi t ness mi sconduct by ot her of f i cer s r epor t such conduct t ot he ser geant on dut y and, i n the event t hat such mi sconduct i st he subj ect of a ci t i zen compl ai nt , t o any super vi sor y of f i ceri nvest i gat i ng such compl ai nt . We r ecommend t hat t he f ai l ur e of

an of f i cer t o r epor t t he mi sconduct of anot her of f i cer be subj ectt o a ser i ous l evel of di sci pl i ne. Si mi l ar l y, we r ecommend t hati nt er nal af f ai r s i nvest i gat or s be r equi r ed t o r epor t andi nvest i gat e evi dence of vi ol at i ons of l aw or pol i cy t hat come t ol i ght i n t he cour se of i nt er nal af f ai r s i nvest i gat i ons.

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2. Internal Affairs Interviews of WPD Personnel.

The WPD command st af f we i nter vi ewed i ndi cat ed t hat i n t hecour se of conducti ng al l i nt er nal af f ai r s i nvest i gat i ons, wr i t t enst at ement s f r om WPD of f i cer s and not or al i nt er vi ews wer e usedbecause t he WPD bel i eved t hi s t o be a r equi r ement of t he uni on

col l ect i ve- bar gai ni ng cont r act s. The counsel f or t he OPBAr evi ewed t hat uni on s cont r act i n t he pr esence of bot h aDepart ment of J ust i ce t eam on t our and t he WPD s counsel , and hest at ed t hat t her e was no such r equi r ement wi t hi n t he cont r act .Accor di ngl y, t her e shoul d be no cur r ent cont r act ual r eason t hatt he WPD s l i ne of f i cer s are onl y request ed t o submi t wr i t t enst at ement s f or i nt er nal af f ai r s i nvest i gat i ons.

I n t he cour se of our r evi ew of i nci dent i nvest i gat i ons, i twas r eadi l y appar ent t hat many of f i cer s wr i t t en st at ement s wer ei dent i cal or near l y so, l eadi ng t o t he concl usi on t hat of f i cer shad t he opport uni t y t o conf er among t hemsel ves t o cor r oboratet hei r wr i t t en st at ement s bef or e submi t t i ng t hem t o t he I nt er nal

Af f ai rs of f i cer . I n f act , a l et t er f rom one of f i cer cont ai ned i nan i nt er nal af f ai r s i nvest i gat i on f i l e evi dences t hat t he of f i cerr equest ed - - and was appar ent l y gr ant ed - - an extensi on of t i met o submi t hi s wr i t t en st at ement i n or der t hat he have t heoppor t uni t y t o f i r st r evi ew ot her of f i cer s st at ement s concer ni ngt he same i nci dent . Accor di ngl y, t he WPD s use of wr i t t enst at ement s, al one, f or i nt er nal af f ai r s i nvest i gat i on may l ead t ounr el i abl e st at ement s t hat may af f ect t he per cei ved l egi t i macy oft he compl ai nt r esol ut i on pr ocess.

We r ecommend that t he WPD i nt ernal af f ai r s conduct personali nt er vi ews of al l t he WPD per sonnel i nvol ved i n, or a wi t ness t o,al l eged i nci dent s t hat gi ve r i se t o i nt er nal af f ai r si nvest i gat i ons. A subj ect of f i cer shoul d al so be r equi r ed t opr oduce al l st at ement s, r epor t s, and not es compl et ed i n hi s orher cour se of dut i es t hat ar e r el at ed t o t he al l egat i ons. Wer ecommend that t he WPD pol i cy r equi r e t hat al l i nt er vi ews bemechani cal l y r ecor ded usi ng an audi o or vi deo t ape. The WPDshoul d al so est abl i sh gui del i nes as t o when t o compel st at ement sf r om of f i cer s pur suant t o Gar r i t y. The WPD shoul d ensur e t hat ,t o t he extent t hat t he compl ai nt i mpl i cat es possi bl e cr i mi nalact i vi t y by t he of f i cer , of f i cer s ar e adequat el y i nf or med oft hei r r i ght s agai nst sel f - i ncr i mi nat i on under Mi r anda. As not edabove, t he i nvest i gat i ve pr ot ocol f or compl ai nt s shoul d r equi r ean ear l y assessment of whether ser i ous mi sconduct may have

occur r ed t hat may war r ant a r ef er r al t o l ocal or f eder alpr osecut or s.

3. Thorough Gathering of Evidence.

The WPD shoul d r equi r e t he gat her i ng of avai l abl e, r el evantevi dence f or i nt er nal af f ai r s i nvest i gat i ons, i ncl udi ng wi t nessst at ement s. The WPD shoul d i nt er vi ew al l avai l abl e compl ai nant s.

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Some ci t i zen compl ai nant s have advi sed us t hat t hey have not beencont act ed by t he WPD t o i nvest i gat e t hei r cl ai ms. Fai l i ng t ocont act t he compl ai nant t o i nvest i gat e hi s or her compl ai nt doesnot conf or m t o pr act i ce of most pol i ce depar t ment s. TheCompl ai nt For m al l ows l i t t l e space f or a compl ai nant t o l i st hi sor her cont act i nf or mat i on, or t he cont act i nf or mat i on of

wi t nesses. I n or der t o f aci l i t at e t he WPD s abi l i t y t o cont actt he compl ai nants, we recommend t hat t he WPD r evi se i t s Compl ai ntFor m t o al l ow gr eat er space on whi ch t o f i l l i n t he addr ess andmul t i pl e t el ephone numbers of t he compl ai nant and any wi t nesses.

Whi l e t he WPD shoul d r etai n t he use of t he cur r ent Compl ai ntSummary por t i on of t he Compl ai nt For m, t hat summar y shoul d nott ake t he pl ace of an i nt er vi ew wi t h t he compl ai nant .I nst r uct i ons f or t he Compl ai nt Summar y por t i on of t he Compl ai ntFor m di r ect t he compl ai nant t o gi ve a det ai l ed account of t heal l eged act i on of t he empl oyee t hat gave r i se to t he compl ai nt .Whether compl ai nant s provi de onl y sparse i nf ormat i on on t heCompl ai nt For m or a t hor ough descr i pt i on, t he WPD shoul d

i nt er vi ew t hem and conduct t hor ough i nvest i gat i ons. We f ur t herr ecommend that , i n pr act i ce, t he WPD make al l r easonabl e ef f or t st o cont act compl ai nant s - i ncl udi ng on- si t e vi si t s, t el ephoneconver sat i ons, and r egi st er ed mai l - and i nt er vi ew t hem r at hert han r el y onl y upon t he st atement s cont ai ned i n t he Compl ai ntFor m.

We f ur t her r ecommend t hat t he WPD pol i cy r equi r e t hat al li nt er nal af f ai r s i nvest i gat or s at t empt t o gat her and r evi ewext r i nsi c evi dence. Thi s shoul d i ncl ude vi deo and audi or ecor di ng of t he i nci dent s, wher e avai l abl e, medi cal r ecor ds ofi nj ur i es t o of f i cer s or ci t i zens, ar r est repor t s, et c. Ther ecor d of t hi s at t empt t o gat her such ext r i nsi c evi dence, as wel las copi es of t he evi dence gat her ed shoul d be kept i n t hei nvest i gat i on f i l e.

4. Adjudication and Resolution of Complaints.

The WPD should develop a protocol for the adjudication andresolution of complaints, including the use of a discipline

matrix.

We r ecommend that t he WPD devel op a pr ot ocol t hat r equi r es asummary of t he i nvest i gat i on and an assessment of t he al l egedmi sconduct be pr esent ed t o the Chi ef f or adj udi cat i on and any

i mposi t i on of di sci pl i ne. The pol i cy shoul d addr ess t hepossi bi l i t y t hat a compl ai nt may r equi r e di sci pl i nar y act i on.The of f i cer conduct i ng t he i nvest i gat i on of t he compl ai nt shoul dbe r equi r ed t o r ecommend a f i ndi ng concerni ng t he compl ai nt . Thesupervi sor of t he of f i cer concerned shoul d recommend whether anydi sci pl i nary measures shoul d be i mposed based upon t he compl ai nt ,pr ovi ded t hat super vi sor was not al so i nvol ved i n t he conduct

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t hat was t he subj ect of t he compl ai nt . 3 I f t he concer nedof f i cer s super vi sor was al so i nvol ved i n t he conduct t hat wast he subj ect of t he compl ai nt , t hen t he next hi gher l evelsupervi sor shoul d r ecommend whether any di sci pl i nary measur esshoul d be i mposed based upon t he compl ai nt . Recommendeddi sci pl i nar y measures shoul d be based upon an obj ect i ve

di sci pl i ne mat r i x, as di scussed bel ow. Both t he r ecommendedadj udi cat i on of t he compl ai nt and the recommended di sci pl i ne oft he of f i cer shoul d be pr ovi ded t o t he Chi ef , f or hi s appr oval ,di sappr oval , or j ust i f i ed modi f i cat i on.

The pol i cy shoul d r equi r e a f i ndi ng as t o whether : ( 1) t hepol i ce act i on was i n compl i ance wi t h pol i cy, t r ai ni ng, and l egalst andar ds; ( 2) t he i nci dent i nvol ved addi t i onal mi sconduct ;( 3) i nvest i gat i on of t he i nci dent r eveal ed ot her i nci dent s ofmi sconduct by t he same of f i cer , or i nst ances of mi sconduct byot her of f i cer s; ( 4) t he use of di f f er ent t act i cs shoul d or coul dhave been empl oyed; ( 5) t he i nci dent i ndi cat es a need f oraddi t i onal t r ai ni ng, counsel i ng, or ot her non- di sci pl i nar y

cor r ect i ve measures; or ( 6) t he i nci dent suggest s t hat WPD shoul dr evi se i t s pol i ci es, t r ai ni ng, t act i cs, or equi pment . The WPDpr ot ocol shoul d st at e t hat t he st andar d of pr oof f or suchadmi ni st r at i ve i nvest i gat i ons i s a pr eponder ance of t he evi dence.

We al so recommend t hat t he WPD devel op a di sci pl i ne mat r i x.Such a mat r i x shoul d i ncl ude t he l evel s of di sci pl i ne avai l abl et o addr ess vi ol at i ons of pol i cy - - e. g. , r et r ai ni ng, ver balcounsel i ng, l et t er s of counsel i ng, f or f ei t ur e of l eave t i me,suspensi on, demot i on, and t er mi nat i on. The mat r i x shoul d speci f yf or each t ype of pol i cy vi ol at i on and what l evel of di sci pl i neshal l be ut i l i zed f or sustai ned vi ol at i ons of pol i cy i n t he f i r sti nst ance, second i nst ance, et c.

We recommend t hat t he WPD pol i cy r egar di ng compl ai nt sr equi r e a cl ear r esol ut i on of ever y compl ai nt f r om a member of at he publ i c, wi t h not i ce pr ovi ded t o al l r el evant par t i es. Pol i cy02- 006 cur r ent l y st at es t hat a compl ai nant wi l l be cont act ed i nwr i t i ng wi t h r espect t o t he out come of t he compl ai nt . Manyci t i zens we i nt er vi ewed, however , t ol d us t hat t hey have no i deawhat t he out come of t he compl ai nt s t hey have f i l ed i s becauset hey do not r ecei ve any r esponse t o t hei r i nqui r es and the WPDhas not af f i r mat i vel y cont act ed t hem t o i nf or m t hem of t he st at usor out come of t hei r compl ai nt s. I ndeed, a r evi ew of t he i nt er nalaf f ai r s i nvest i gat i on f i l es pr ovi ded t o us by t he WPD r eveal ed

t hat onl y a handf ul of t hose f i l es cont ai ned a copy of a l et t ernot i f yi ng the compl ai nant of t he out come of t he i nvest i gat i on.

3 I n some cases, t he of f i cer conduct i ng t he i nvest i gat i on

coul d be t he subj ect of f i cer s super vi sor , i n whi ch case t hatsupervi sor woul d r ecommend both t he di sposi t i on of t he compl ai ntas wel l as any di sci pl i nar y measur es.

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Of t hose l et t er s t hat di d exi st , many wer e not dat ed, such t hatt he t i mel i ness of not i f i cat i on coul d not be assessed.

Consi st ent wi t h Pol i cy 02- 006, t he WPD shoul d keepcompl ai nant s appr i sed of t he st at us of t he compl ai nt s t hey havef i l ed. At t he concl usi on of t he i nvest i gat i on, t he compl ai nant

shoul d r ecei ve a l et t er f r om t he Chi ef set t i ng f or t h t he keyf act s of t he compl ai nt , i ncl udi ng t he name of t he compl ai nant ,t he i nt er nal cont r ol number , t he dat e of t he i nci dent , t hename( s) of t he of f i cer ( s) i nvol ved, and whet her t he compl ai nt waswi t hdr awn, exonerated, deemed unf ounded, i nconcl usi ve, 4 orsust ai ned. I f sust ai ned, t he l et t er shoul d i ndi cat e whet herr emedi al act i ons wi l l be t aken. 5

The l et t er advi si ng t he compl ai nant of t he r esol ut i on of t hecompl ai nt shoul d be pr epared by t he supervi sor conduct i ng t hei nvest i gat i on, and t hen pr ovi ded t o t he Chi ef at t he concl usi onof t he i nvest i gat i on. I f t he Chi ef modi f i es t he super vi sor sr ecommendat i on, t he reason f or such modi f i cat i on shoul d be i n

wr i t i ng, and kept wi t h t he or i gi nal r ecommendat i on i n t hecompl ai nt f i l e. Thus, ever y compl ai nt shoul d begi n wi t h aCompl ai nt Form, and end wi t h a l et t er , wi t h each documentr ef l ect i ng t he same cont r ol number f or ease of r ef er ence andl at er r evi ew, i f any.

VI. SUPERVISORY OVERSIGHT.

A. Risk Assessment and Management.

WPD command staff should examine and review officer conducton a regular basis as a proactive measure to minimize anddetect misconduct, and to identify training and policy

issues.

Our i nvest i gat i on t hus f ar has r eveal ed a l ack of st r uct ur edoversi ght of WPD of f i cers by command st af f . There do not appear

4 As par t of t he r ecommended change i n t he i nt ernal

af f ai r s pr otocol , we recommend t hat t he WPD adopt t he f i ndi ng ofi nconcl usi ve, and di scont i nue i t s cur r ent use of notsust ai ned. The cur r ent not sust ai ned l abel i ndi cat es anexonerat i on where t here i s an absence of evi dence t o support af i ndi ng ei t her f or or agai nst t he al l eged vi ol at i on of pol i cy.I f evi dence suppor t s exoner at i on, t he exoner at ed f i ndi ng shoul dbe used.

5 The prot ocol f or i nter nal af f ai r s i nvest i gat i ons shoul d

al so al l ow f or a f i ndi ng t hat t he subj ect of f i cer acted i naccor dance wi t h WPD pol i cy, but t hat t he compl ai nt r eveal s af ai l ure i n the pol i cy, i t sel f .

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t o be r egul ar r evi ew pr ocedur es f or mal i zed i n pol i cy, and r evi ewof of f i cer act i vi t y appear s t o be i nf or mal and ad hoc. Thought he WPD has a hi gh number of command of f i cer s f or a pol i cedepar t ment of i t s si ze, day- t o- day management of cert ai n uni t sal so appear ed t o be l acki ng. Accor di ngl y, t he WPD s super vi si onand oversi ght coul d be i mpr oved by i mpl ement i ng t he f ol l owi ng

r ecommendat i ons.We r ecommend t hat t he WPD i mpl ement pol i ci es and procedur es

f or WPD super vi sors t o r out i nel y revi ew al l aspect s of WPDof f i cer conduct , i ncl udi ng a r evi ew of : ( 1) al l uses of f or ce,as set f or t h above; ( 2) pr obabl e cause f or ar r est s and t heappr opr i at eness of char ges f i l ed; and ( 3) r easonabl e suspi ci onf or st ops and sear ches t hat do not r esul t i n an ar r est .

We recommend t hat WPD pol i cy r equi r e supervi sor s t o revi ewand appr ove al l ar r est r epor t s and sear ch- and- sei zur e r epor t s,and t o r ecor d t hei r appr oval on t he ar r est or i nci dent r epor t s byhandwr i t t en or el ect r oni c si gnatur e. We r ecommend t hat t he

Chi ef , or hi s or her desi gnee, meet annual l y wi t h ever y WPDof f i cer t o di scuss posi t i ve aspect s of hi s or her pol i ce wor k,hi s or her compl ai nt hi st or y, i f any, and t o di scuss any pr obl emsor concerns of f i cers may have concerni ng t he depar t ment .

As di scussed above, we r ecommend that t he WPD est abl i sh acl ear l i ne of di r ect super vi si on over t he TMHA Uni t . Wer ecommend t hat t he WPD r easser t i t s aut hor i t y over of f i cer s i nt he TMHA Uni t and not per mi t t hose of f i cer s t o be di r ect ed by t heTMHA.

B. Early Warning System.

Al t hough the WPD s useof - f or ce pol i cy cont ai ns an i nf or malpr ocess f or r evi ewi ng al l useof - f or ce r epor t s on an annualbasi s, t hi s pol i cy does not const i t ut e a compr ehensi ve,syst emat i c r i sk assessment syst em or an Ear l y War ni ng Syst em( EWS) . The WPD, t heref ore does not have, but shoul d adopt , anEWS as an i ntegr al par t of i t s r i sk management progr am. The WPDshoul d devel op an EWS t hat i s appr opr i at e and appl i cabl e t o i t sneeds and si ze. Whether paper - based or comput er - based, even asi mpl e EWS woul d pr ovi de a usef ul assessment of each of f i cer sconduct as wel l as t he depar t ment as a l aw enf orcement agency.

We r ecommend t hat t he WPD i mpl ement pol i ci es and procedur es

t o col l ect dat a on i ndi vi dual of f i cer s f or t he pur pose ofmai nt ai ni ng, i nt egr at i ng, and r et r i evi ng i nf or mat i on necessar yf or ef f ect i ve supervi si on and management of WPD personnel . TheEWS shoul d cont ai n i nf or mat i on on al l i nvest i gat i ons andcompl ai nt s, i ncl udi ng non- sust ai ned compl ai nt s and compl ai nt spr i or t o f i nal di sposi t i on, di sci pl i ne and ot her cor r ecti veact i ons, uses of f or ce, ar r est s and char ges, sear ches andsei zur es, ser vi ce cal l s, t r ai ni ng, awar ds and commendat i ons, si ck

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l eave, ci vi l l awsui t s, and ot her i t ems r el evant t o an of f i cer sconduct . The WPD shoul d t hen use t hi s data r egul ar l y andpr oact i vel y t o: ( 1) pr omot e best pr of essi onal pol i ce pr act i ces;( 2) i mpr ove account abi l i t y and management ; ( 3) manage t he r i sk ofpol i ce mi sconduct and pot ent i al l i abi l i t y; and ( 4) eval uat e andaudi t t he per f or mance of of f i cer s and uni t s on a r egul ar basi s.

We r ecommend t hat t he WPD r equi r e supervi sors, i ncl udi ng commandst af f , t o r evi ew t hi s dat a f or ever y of f i cer t hey super vi se on ar egul ar , pr edet er mi ned basi s, such as ever y quar t er .

The pol i cy i mpl ement i ng t hese r ecommendat i ons shoul d al soest abl i sh gui del i nes r egar di ng speci f i c event s t hat wi l l t r i ggeran addi t i onal super vi sory revi ew, such as a speci f i c number ofuses of f or ce or ci t i zen compl ai nt s wi t hi n a di scr et e per i od.Once an of f i cer has been sel ect ed f or t hi s addi t i onal r evi ew, ar epor t shoul d be pr epar ed t hat det ai l s al l useof - f or ce r epor t s,f or mal and i nf or mal compl ai nt s, cal l s f or ser vi ce, si ck l eave,counsel i ng r epor t s, ci vi l l awsui t s, and commendat i ons per t ai ni ngt o t he of f i cer wi t hi n t he past f i ve year s. The of f i cer s

i mmedi at e supervi sor and command st af f shoul d t hen meet t odi scuss t he r epor t and det er mi ne i f any cor r ect i ve act i on i swarr ant ed. The supervi sor s and command st af f s recommendat i onsshoul d t hen be f or war ded t o t he Chi ef f or hi s or her t i mel yr evi ew and i mpl ement at i on. The ef f ect i veness of t he i mpl ement edr ecommendat i ons shoul d be det ermi ned by moni t or i ng t he of f i cerand dr af t i ng wr i t t en r epor t s on t he of f i cer s conduct on amont hl y basi s. Both t he supervi sor y r ecommendat i ons and t hewr i t t en mont hl y r epor t shoul d be i ncl uded i n t he of f i cer sper sonnel f i l e.

We r ecommend that t he WPD consi der ut i l i zi ng peer r evi ews oft he i nf or mat i on cont ai ned i n t he r epor t s by compar i ng compl ai nt s,useof - f or ce r epor t s, and ot her per t i nent i nf or mat i on about apar t i cul ar of f i cer wi t h si mi l ar i nf or mat i on f r om ot her of f i cer son t he same pat r ol t eam or shi f t . I n addi t i on, t he pol i cy shoul dpr ovi de expl i ci t gui dance t o super vi sor y of f i cer s r evi ewi ngr epor t s t o ensur e t hat pat t er ns of possi bl e mi sconduct ar ei dent i f i ed, anal yzed, and addr essed pr oper l y by command st af f .The ai m of t hi s process i s t o gi ve super vi sor s val uabl ei nf or mat i on t hat , i f r ecei ved ear l y, coul d i dent i f y pot ent i alpr obl em of f i cer s bef or e mi sconduct act ual l y devel ops.

C. The WPD Should Develop an Employee Evaluation System.

At t he st ar t of our f i r st t our , t he WPD had no system t oper i odi cal l y eval uat e i t s empl oyees. We under st and t hat ,pur suant t o t he t echni cal ass i st ance r ecommendat i ons of ourconsul t ant s, t he WPD i s cur r ent l y devel opi ng anempl oyee- eval uat i on syst em. When i mpl ement i ng t hi s syst em, wer ecommend t hat one person t i mel y t r ai n t he ent i r e depar t ment ont he composi t i on and use of t he syst em. Thi s per son shoul d t r ai nal l manager s how t o eval uat e t hei r st af f , and i nf or m al l l i ne

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of f i cer s as t o how t hey wi l l be eval uat ed. Thi s uni f or m t r ai ni ngshoul d el i mi nat e di f f er ent i nt er pr et at i ons of t he syst em, andensur e t he i nt egr i t y of t he eval uat i on i nf or mat i on.

Di r ect super vi sor s shoul d eval uat e t hei r subor di nat esannual l y. Pr i or t o t he eval uat i ons, super vi sor s shoul d expl ai n

t he eval uat i on pr ocess and t he expect at i ons t o t hei rsubor di nat es. Af t er t he di r ect super vi sor compl et es t heeval uat i on, t he ent i r e chai n of command shoul d revi ew t heeval uat i on and add comment s. The eval uat i ons shoul d be st ored i nt he empl oyee s t r ai ni ng or per sonnel f i l e. The WPD shoul d t i et hese eval uat i ons i nt o i t s pr omot i on pr ocess, t o t he ext entpermi t t ed by l aw and t he WPD s col l ect i ve bargai ni ng agr eement s.

VII. OFFICER TRAINING

The WPD should continue to develop comprehensive trainingprograms for new and experienced WPD officers.

A. Policy Re-Training.

Much of t he t echni cal assi st ance of f er ed i n t hi s l et t ercal l s f or t he creat i on of new pol i cy or r evi si on of exi st i ngpol i cy. We recommend t hat as t he WPD updat es or cr eat es each newpol i cy, t he WPD r e- t r ai n al l WPD per sonnel , i ncl udi ng commandst af f , on each new pol i cy and i t s ef f ect s. Such t r ai ni ng shoul dbe compr ehensi ve t o cover al l aspect s of t he change i n pol i cy sot hat WPD personnel are aware of what woul d no l onger be wi t hi npol i cy, as wel l as what new mat er i al woul d t hen be i ncl uded i nt he WPD s r evi sed pol i ci es.

Most si gni f i cant l y among t he pol i cy t opi cs f or whi ch t he WPDshoul d st r ess r e- t r ai ni ng f or al l i t s per sonnel ar e:( 1) accept abl e and non- accept abl e uses of f or ces; ( 2) l ess- l et haluses of f or ce; ( 3) useof - f or ce cont i nuum; ( 4) useof - f or cer epor t i ng; and ( 5) ci t i zen compl ai nt pr ocess.

Pol i cy r e- t r ai ni ng shoul d be compet ency- based. Accor di ngl y,once t r ai ned, each WPD member shoul d demonst r at e competency ofhi s or her knowl edge of t he new subj ect mat t er t hr oughper f ormance or exami nat i on. Each member of t he WPD, i ncl udi ngcommand st af f , shoul d be requi r ed t o pass competency- basedperf ormance or exami nat i on f or each new pol i cy.

B. In-Service Training.

The WPD has provi ded us document at i on r egar di ng i t s newl yi ni t i at ed 40- hour bl ock of i n- ser vi ce t r ai ni ng. We t hank t he WPDf or pr ovi di ng thi s i nf or mat i on and ar e encour aged by t he WPD sef f or t t o of f er t r ai ni ng t o i t s l i ne of f i cer s and some commandst af f . I t does not appear , based on t he schedul e pr ovi ded t o us,however , t hat al l command st af f , par t i cul ar l y t he Chi ef , ar e

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r equi r ed t o at t end al l 40 hour s of t r ai ni ng. As we di scusseddur i ng our most r ecent t our of t he WPD, i t i s i mper at i ve t hat t heWPD s command st af f part ake i n t he WPD s new i n- ser vi ce t r ai ni ng.The Chi ef , i n par t i cul ar , shoul d par t i ci pat e i n as much of t hi st r ai ni ng as he i s capabl e of at t endi ng. I n so doi ng, t he WPDcommand st af f wi l l convey t o al l WPD personnel t he i mport of t he

i n- ser vi ce t r ai ni ng.Though a mar ked i mprovement f r om t he pr i or absence of any

f or mal i zed annual t r ai ni ng, t he newl y i ni t i at ed 40- hour bl ock oft r ai ni ng coul d be i mpr oved i n sever al ways. The t r ai ni ngschedul e pr ovi ded t o us i ndi cat es t hat al l WPD of f i cer s i nat t endance woul d r ecei ve t hr ee hour s of t r ai ni ng concer ni ng useof cani nes. For non- cani ne of f i cer s, t he use of cani nes may bet aught wi t hi n one hour . The cur r ent t r ai ni ng shoul d i ncl ude atl east f our hour s on use of t he WPD s appr oved i mpact weapon- - e. g. , a bat on - and f or al l of f i cer s who use or may useTaser s, f our t o ei ght hours on use of Taser s. We al so r ecommendt hat WPD personnel r ecei ve t r ai ni ng on each pi ece of equi pment

t hat he or she carr i es t hat may have t o be used as a weapon -e. g. , a f l ashl i ght , or r adi o. The cur r ent t r ai ni ng shoul d al soi ncl ude what r est r ai nt s are consi der ed per mi ssi bl e and what t hei mpact of t he use of r est r ai nt s may have on t he r est r ai nedi ndi vi dual .

We recommend t hat al l t r ai ni ng be conduct ed by i nst r uct orswho have been t r ai ned and cer t i f i ed t o be i nst r uct or s, and whoar e competent i n t he subj ect mat t er t hey ar e t o t each.Accor di ngl y, t he WPD shoul d val i dat e the qual i f i cat i on andexper t i se of i t s cur r ent t r ai ner s. The WPD may do so t hr oughcer t i f i cat i on pr ogr ams out si de of t he WPD.

We f ur t her r ecommend that t he WPD commi t t o pr ovi de al l i t sof f i cer s 40 hour s of i n- ser vi ce t r ai ni ng ever y year . The WPDshoul d f or mal i ze t hi s commi t ment i n i t s pol i cy. Each year , t het r ai ni ng pr ogr am shoul d be r evi sed wi t h an updat e t o cover newsubj ect ar eas and r evi si ons i n pol i ci es, as wel l as per i shabl eski l l s t hat shoul d be r e- t aught and pr act i ced at r egul ari nt er val s. Accor di ng t o our consul t ant s, t he 40- hour r equi r ementshoul d be i n addi t i on t o f i r ear ms r e- qual i f i cat i on. We r ecommendt hat of f i cer s recei ve separ at e f i r ear ms t r ai ni ng bi annual l y f oral l servi ce weapons used by WPD of f i cer s.

Each year s t r ai ni ng cur r i cul a shoul d i ncl ude pol i ce t opi cs,

such as: use of f or ce, f i r ear ms, def ensi ve t act i cs, pol i ci es andpr ocedur es, cur r ent l egal i ssues or ot her i ssues t hat ar eessent i al t o pol i ce wor k, sear ches and sei zur es, l egaldevel opment s, and pol i ce i nt egr i t y. The WPD s i n- servi cet r ai ni ng shoul d i ncl ude de- escal at i on t echni ques, par t i cul ar l yf or i nt er act i ons wi t h per sons wi t h ment al i l l ness and t hose whomay be under t he i nf l uence of dr ugs or al cohol . Thi s t r ai ni ngshoul d al so i ncl ude r ol e- pl ayi ng and i nt er act i ve exer ci ses

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r egar di ng si t uat i onal , et hi cal , and useof - f or ce scenar i os,i ncl udi ng de- escal at i on t echni ques, cul t ur al di ver si t y, andcommuni t y pol i ci ng. Tr ai ni ng cur r i cul a and l esson pl ans shoul di ncorporate compr ehensi ve and updated pol i ce pr act i ces and beappr oved by l egal counsel and t he Chi ef .

We note t hat one potent i al r esour ce f or t he WPD i nest abl i shi ng and i mpr ovi ng i n- servi ce pr ogr ams may be t hel ongst andi ng t r ai ni ng and gr ant pr ogr ams admi ni st ered by ot hercomponent s of t he Depar t ment of J ust i ce, such as t he Of f i ce ofJ ust i ce Pr ogr ams. Whi l e t hese progr ams ar e compl et el y separ at eand i ndependent of t he Ci vi l Ri ght s Di vi si on s i nvest i gat i on, wewoul d be pl eased t o pr ovi de you wi t h cont act i nf or mat i on f orexpl or i ng t he possi bi l i t y of such assi st ance.

VIII. THE WPD SHOULD WORK TO IMPROVE COMMUNITY RELATIONS.

Citizen interviews revealed that the WPD must improve itsrelations with the community. To improve relations, we

recommend the WPD: (A) overhaul its citizen surveys; and(B) hold quarterly community outreach meetings.

A. Citizen Surveys.

Ci t i zen sur veys pr ovi de a val uabl e t ool t o gauge t hecommuni t y s percept i on of t he WPD s per f ormance. Whi l e t he WPDal r eady t akes ci t i zen surveys, t he WPD coul d i mpr ove i t s surveyswi t h a more f r equent and f ocused appr oach, and obj ect i vemethodol ogy. The WPD shoul d abandon t he potent i al l yi nt i mi dat i ng, and t her ef or e l ess r el i abl e, pr acti ce of t aki ngci t i zen surveys i t sel f . We r ecommend t hat t he WPD enl i st t hehel p of a l ocal col l ege or uni ver si t y t o co- desi gn and admi ni st ert he sur vey. These i nst i t ut i ons shoul d be f ami l i ar t he sur veypr ocess. Havi ng a t hi r d par t y admi ni st er t he sur veys wi l l maket hem l ess i nt i mi dat i ng, i mpr ovi ng f r ankness and accur acy. Wer ecommend a comprehensi ve survey at l east ever y t wo year s. Ourconsul t ant s have of f er ed to pr ovi de sur vey exampl es upon request .

B. Community Outreach Meetings.

To i mprove communi t y r el at i ons, t he WPD shoul d hol dcommuni t y out r each meet i ngs. The meet i ngs shoul d be an openf or um f or al l ci t i zens t o di scuss i ssues wi t h t he WPD. Thesecommuni t y out r each meet i ngs shoul d occur as needed, but at l east

quar t er l y. The shi f t commander s, who head t he Emergency Servi cesDi vi si on t hat i nt er act s wi t h t he communi t y most , shoul d at t endt hese communi t y out r each meet i ngs. We r ecommend t hat a shi f tcommander chai r each of t hese communi t y out r each meet i ngs.

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IX. CONCLUSION.

We st r ongl y ur ge t he WPD t o adopt t hese t echni cal assi st ancer ecommendat i ons as i t r evi ses i t s pol i ci es and pr ocedur es. Wel ook f orward t o worki ng wi t h you and

warren pd - ta letter - 2006

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