In July 2016, the City of Winslow commissioned the Police Executive Research Forum (PERF) to conduct an organizational review of the Winslow Police Department (WPD) following the shooting death of Loreal Tsingine by a Winslow police officer in March 2016.
The report recently unveiled is lengthy and comprehensive, covering topics ranging from officer training to administrative practices. The report is not an investigation, nor is it an evaluation of specific investigations conducted by either WPD or outside agencies. The research contained was gathered by reviewing current WPD policies, and interviewing officers and supervisors, as well as a focus group consisting of “a diverse cross-section of the community and including local business leaders, leaders from the faith community, representatives of the local media, leaders from the Navajo Nation, and other concerned residents,” according to PERF. Members of the focus group were asked to relay their thoughts on WPD and what they felt needed to be improved.
The reported noted that violent crime is relatively low in Winslow, with most concerns stemming from alcohol and drug related issues. Personnel and citizens told PERF, “that many of these alcohol-related problems are a result of addictions and other medical issues that require a comprehensive public health response. However, the lack of local social services available to assist individuals with alcohol addictions, along with the fact that alcohol consumption and intoxication often take place in public view, means that the responsibility of responding to these issues often falls on the WPD.” Members of the community suggested police should be “doing more to clean up the streets.”
WPD explained that the manpower and financial burden of arresting each individual suspected of drinking in public is not feasible and presents only a short-term solution. WPD jails suspects 30 miles away in the Holbrook complex and transportation to the jail is not always a safe option, as it takes officers away from their duties on patrol.
The PERF report also explored the staffing issues at WPD, revealing part of the issue to be, “that the there is typically only enough staff available to allow for one sergeant and one officer to be on patrol at any given time.” Officers also expressed safety concerns tied to staffing, noting, “it can also create safety issues, such as when officers need backup in emergency situations but none is available.”
Beyond the safety concerns, officers told PERF that unpredictable scheduling has the potential to, and has led to a drop in morale, leads to exhaustion and burnout, and keeps officers from being available to attend in-service training opportunities.
PERF recommended “shift schedules should be made clear to officers and should be as consistent as possible.”
Additional recommendations include sending potential recruits to training academies throughout the state instead of waiting for availability at the Northeastern Arizona Law Enforcement Training Academy (NALETA) in Taylor, as it would increase the number of trained personnel much more quickly.
Training was a major topic of the PERF report, with officers expressing their desire for more comprehensive, more available and more up to date training on a regular basis from the beginning of their careers. They explained that, “currently, WPD does not provide any sort of standard orientation or formal department-specific training to recruits upon their graduation from the academy. Instead, recruits immediately begin field training after leaving the academy. As a result, many WPD personnel told PERF that they felt confused and unprepared as they transitioned from the academy.”
WPD plans to implement a formal orientation for new officers, which will include a review of policies and procedures before they begin their field training.
WPD officers were also concerned with the lack of in-service training available to them on a regular basis. According to PERF, “WPD has begun taking steps towards a more strategic and meaningful approach to in-service training. For example, the department is working to build a training calendar to help coordinate yearly training requirements and opportunities,” which will include de-escalation techniques not currently taught, more comprehensive crisis intervention training, one on one guidance on the firearm range and ongoing tactical training.
PERF also recommends the communications employees undergo formal training in conflict management, crisis identification, and bias and sensitivity.
Alongside the training desires, many WPD officers expressed belief that, “the agency’s culture has not always reflected strong notions of leadership, fairness, and internal transparency.” Officers cited, “a lack of strong guidance and supervision, gaps in internal communication, and inconsistent standards with respect to hiring, promotions, and discipline.”
PERF stated, “As WPD builds its leadership team, it should focus on employing innovative, forward-thinking leaders who are committed to making positive changes to WPD’s culture, operations, and relationship with the community. WPD leaders should have a solid understanding of Winslow’s unique needs and resources, and should strive to improve transparency, fairness, and communication within the department.”
PERF reports a finding of talent and dedication among WPD leaders, but found some ways to strengthen supervision. “For example, PERF learned that there is often confusion regarding the proper chain of command. Some officers are not certain to whom they directly report, and as a result, they do not know whom they should approach if they have a question or problem. Some personnel also feel that they receive conflicting directives from various supervisors, which creates confusion and a lack of trust,” according to the report.
In order to remedy that concern, WPD has begun implementing accountability mechanisms for first line supervisors, including regular meetings with patrol officers.
Communication, both internal and external, proved to be a major issue within the WPD, according to PERF. Reform has already begun in relation to this problem as daily activity reports and regular briefings will become part of the routine. WPD also plans to have direct and frequent contact with local news media and an updated website. Other reforms implemented recently include the city manager and human resource department’s inclusion in hiring and promotion decisions, and restructuring of the department’s internal affairs procedures, which will henceforth include the city’s human resource department in disciplinary issues, as WPD does not have its own HR personnel. This should ensure follow through with disciplinary actions, transparency, consistency and public trust.
Members of the focus group interviewed by PERF described several positive efforts being made by WPD. For example, “Officers often provide people on the street with food, water, and blankets, and that officers even know these people by name and appear to have a good rapport with them. They said these kinds of actions demonstrate compassion and signal that WPD genuinely cares about people in the community who are struggling.”
Other positive observations include the department’s involvement in community engagement and outreach such as the “Coffee with a Cop” program, which brings police officers and community members together to informally discuss issues over a cup of coffee. WPD is also in the process of many more community minded projects. For example, officials are looking to “potentially partner with the local fire department to develop a program that will help assist elderly residents who are homebound and in need of medical care.”
The PERF report also offered an in depth look at WPD policies pertaining to use of force, including issues stemming from the March 2016 officer involved shooting that resulted in the death of a citizen. According to PERF, “Many focus group participants believe that WPD did not effectively handle its public response to a fatal officer-involved shooting. They said that WPD should have done a better job of engaging the community to answer questions and provide information about what happened, which would have helped people understand the issues involved and possibly calmed some of the emotions caused by the incident.” WPD plans to hold a public town hall meeting in the event of an officer involved shooting or if other critical incidents occur. These meetings will provide opportunity for questions and concerns from the public and the press. PERF suggests such a procedure will increase public trust in the WPD.
In conclusion, PERF stated, “The Winslow Police Department (WPD) is committed to strengthening accountability and transparency, improving service delivery, and building stronger relationships with the community it serves. This commitment is evidenced by WPD’s consistent cooperation with PERF’s independent review, as well as by an array of reforms that WPD has already implemented regarding its policies, practices, and community engagement efforts.”
The entire report is available to the public on the city’s website, www.winslowaz.gov.
In addition to the PERF report, the WPD is in the process of hiring a chief of police. The applicants have been narrowed down to three candidates to be interviewed by a selection committee consisting of WPD members, city officials, council members and civilians. The interview process took place April 17 and 18.
