To Lead LearnTo LeaveTo Legacya

Major Cities Chiefs Federal Bureau of Investigation National Executive Institute June 2005 To Lead, To Learn, To Leave a Legacy

2 Contents

Contents

Foreword Richard M. Ayres Director, Center for Labor-Management Studies; FBI (Retired) ...... 7

No Job is Too Big and No Responsibility is Too Small LeRoy D. Baca Sheriff, Los Angeles County Sheriff’s Office, Los Angeles, CA ...... 9

Always Try to Do the Right Thing, the Right Way, for the Right Reason Cornelius J. Behan Former Chief of Police, Baltimore County, MD; New York, NY Police Dept. (Retired) ...... 11

Information Sharing: Key to Law Enforcement Effectiveness Vince Bevan Chief of Police, Ottawa Police Service, Ottawa, Ontario, Canada ...... 21

The Nineteenth Hole James J. Carvino Former Chief, U.S. Capitol Police; former Chief of Police, Racine, WI; Former Chief of Police, Boise, ID; New York, NY Police Dept. (Retired) ...... 27

Leadership: Common Sense and Understanding of Human Nature Richard L. Cashdollar Executive Director of Public Safety, Mobile, AL; U.S. Coast Guard (Retired) ...... 31

An Absolute Fidelity to Public Service Lee Colwell President, Pegasus Research Foundation, Little Rock, AK; Associate Director, FBI (Retired)...... 35

Survival With Honor Charles P. Connolly Former Commissioner, Yonkers, NY Police Dept; New York, NY Police Dept. (Retired) ...... 39

Be Focused, Be Honest, and Show You Care Lee D. Donohue Former Chief of Police, Honolulu, HI ...... 49

I Was There Julian Fantino Commissioner, Emergency Management of Ontario, Canada; former Chief of Police, Toronto Police Service, Toronto, Ontario, Canada ...... 53

3 To Lead, To Learn, To Leave a Legacy

Lessons Learned From the Oklahoma City Bombing Sam Gonzales Adjunct Instructor, National Emergency Rescue and Response Training Center, Texas A & M University; Former Chief, Oklahoma City, Oklahoma Police Dept.; FBI (Retired) ...... 57

Remain True to the Compass That Guides Your Morality and Integrity R. Gil Kerlikowske Chief of Police, Seattle, WA Police Dept; former Deputy Director, COPS Program; Former Commissioner, Buffalo, NY Police Dept ...... 61

Stand by the Truth and Accept Responsibility Robert Lunney Former Chief of Police, Edmonton, Police Service, Edmonton, Alberta, Canada; former Commissioner of Protective Services, Winnipeg, Manitoba; Royal Canadian Mounted Police (Retired) ...... 63

A Sacred Trust Terry Mangan Leadership Development Institute, FBI Academy; former Chief of Police, Spokane, WA; Former Chief of Police, Bellingham, WA ...... 67

Honesty, Integrity and Sincerity Patrick D. McGowan Sheriff, Hennepin County Sheriff’s Office, Minneapolis, MN ...... 69

Every Day is a Learning Experience William P. Oldham Chief Deputy, Shelby County Sheriff’s Office, Memphis, TN; Former Chief of Police, Memphis, TN ...... 71

Blessed Are the Peacemakers Robert K. Olson Former Chief of Police, Minneapolis, MN; former Chief of Police, Corpus Christi, TX ...... 73

So, You Want to be a Police Chief Ruben B. Ortega Former Chief of Police, Salt Lake City, UT; former Chief of Police, Phoenix, AZ ...... 79

The Eight Habits of Creating a Legacy Ron Palmer Palmer Security Consulting; former Chief of Police, Tulsa, OK; former Chief of Police, Portsmouth, VA ...... 83

Legatus: Who and What We Are Paul Pastor Sheriff, Pierce County Sheriff’s Office, Tacoma, WA...... 89

4 Contents

Public Service is a Virtue Joseph Polisar Chief of Police, Garden Grove, CA; former Chief of Police, Albuquerque, NM ...... 93

Learn and Adapt From the Best Matt L. Rodriguez Former Superintendent, Chicago Police Dept., Chicago, IL ...... 97

Balanced/Shared Leadership Fred Taylor President, Fred Taylor and Associates; former Director, Metro-Dade Police Dept, Miami, FL ...... 103

Credibility is Everything John F. Timoney Chief of Police, Miami, FL; former Commissioner, Philadelphia Police Dept., Philadelphia, PA; New York, NY Police Dept., (Retired) ...... 105

The Executive’s Role: The Care and Feeding of the Troops Thomas H. Wells Former Colonel, Alabama Department of Public Safety; U.S. Secret Service, (Retired) ...... 109

Conclusion ...... 111

5 To Lead, To Learn, To Leave a Legacy

6 Foreward Foreword

ave you ever wondered how you Over the years, much has been said about might be remembered in your the law enforcement “giants” who have Hcareer as a law enforcement helped to shape our profession. Many of us executive? Have you made a difference to have suggested that if only they would put the law enforcement profession? These two their experiences on paper, a great deal could questions were recently asked of numerous surely be learned by their successors. So current and former law enforcement here, in the following pages, are the true executives throughout the United States and stories, noteworthy experiences and lessons Canada. Their widely varying responses learned from some of the most outstanding were collected for this year’s National law enforcement executives throughout our Executive Institute Associates (NEIA) nation and Canada. research project, “To Lead, to Learn, to Leave a Legacy”; and they are the basis for As law enforcement leaders, you are in this publication. more vulnerable positions than ever before. With the pressures on our agencies at an all- The project goal was to identify the best time high, you are all faced with unprec- practices and lessons learned by successful edented demands to respond effectively to law enforcement leaders that may benefit your escalating roles and responsibilities. current and future executives. Project The NEIA hopes that the widely diverse participants were asked to consider the insights and experiences shared in these following specific questions: legacies will indeed prove valuable and · What are the most important learning applicable for many of you as you seek to lessons that helped shape your success- fulfill your complex, challenging missions. ful leadership journey? · Is there an operational philosophy or The NEIA is most grateful to the 24 pro- managerial mindset that helped you ject participants who dedicated many hours carry the day during a most difficult or and thoughts to writing their legacies. Only crucial time in your career? minor changes have been made for consis- · Could you identify a behavior or set of tency in format. We also want to thank others best practices that assisted the develop- who assisted with this project, including ment of your career? Hugh M. McKinney FBI (retired), and Terry · Is there something you wish you had Mangan, Dave Corderman, Nick Nicholson done differently? Why and how would and Michael Ferrence, of the FBI Academy’s you have done it differently? Leadership Development Institute. · Was there an action or a practice that you did not initiate because of such factors as Special appreciation goes to Charles P. political environment, media pressure, Connolly, for his advice, encouragement and governmental interference, etc? Do you insight in helping this project come to regret not initiating these actions? fruition. Finally, credit must go to Chris Looking back, could you have succeeded Silverthorn for her editorial skills in bringing through a different approach? order to this publication under almost · In dealing with challenges from the poli- impossible deadlines. tical environment, the media, community activists or even your appointing Richard M. Ayres authority, was there an operational or Director, Center for Labor-Management Studies; functioning style that enhanced your FBI Retired ability in achieving the goals and objectives of your administration?

7 To Lead, To Learn, To Leave a Legacy

8 No Job is Too Big and No Responsibility is Too Small No Job is Too Big and No Responsibility is Too Small by LeRoy D. Baca

s Sheriff of our nation’s largest work sites for all employees so they may county serving ten million people, attain bachelors, masters and doctorate Amy responsibility for public safety degrees. To accomplish this, we created requires constant action, innovation, strong an LASD University in partnership with core values, cutting edge technology, five public and private universities who positive political partnerships at the federal, use our facilities for classrooms. This state, and local level. Also required is a learning efficiency also created reduced daring to be different, no fear of criticism, tuition for the 2,000 Sheriff’s personnel transparency regarding our mistakes, full who are enrolled. respect and cooperation with the media, and big ideas. Most important is the training of • We thirst for cutting edge technology. all my employees to be leaders who thirst for Although the Department has a Techni- knowledge to do better. This permeates our cal Services Division, key leaders have thinking and actions. special responsibilities to seek new technical tools. We are currently By example, I teach my people to create developing, as an example, the radio car ideas, celebrate diverse people, and establish of the future. religious harmony throughout the County. Our specific action-oriented achievements • We protect civil rights as a duty. To include but are not limited to the following: accomplish this, I created the Office of Independent Review (OIR) comprised • Our first order of business was to of six civil rights attorneys. This body develop core values that prescriptively monitors all criminal and administrative require all of us to address properly the investigations from beginning to end. It legal, civil and human rights of all also recommends discipline or correc- Americans. tive measures based on Department Our Core Values: guidelines. Our investigative credibility As a leader in the Los Angeles County has not been challenged since the Sheriff’s Department, I commit myself OIR’s inception. to honorably perform my duties with respect for the dignity of all people, • We have built an organizational culture integrity to do right and fight wrongs, that is consistently substantive and wisdom to apply common sense and values human needs. We have mentors fairness in all I do, and courage to for employees who are in need of sup- stand against racism, sexism, anti- port, including psychologists and peer Semitism, homophobia and bigotry in group volunteer counselors. Significant all its forms. volunteer charitable activities are going on throughout all departments. We • We have trained ourselves to be leaders aspire to be the most charitable law who excel in our work responsibilities enforcement agency in the nation. no matter what they are. To accomplish this, we created a Deputy Sheriff • We have eliminated most of the Leadership Institute that all sworn and negative aspects of bureaucracy. I professional personnel jointly attend manage from the middle down. I without regard for individual rank, title personally visit each of our seventy or levels of responsibility. commands on a regular basis to listen to the complaints and concerns of our • We provide educational opportunity at sworn and professional staff.

9 To Lead, To Learn, To Leave a Legacy

• Finally, we believe we can do it all. We have shaped the role of police work to that of universal social work that reduces human misery and crime. We are supportive healers of human despair within children and adults. We believe that, “No job is too big and no responsi- bility is too small.”

Because of these practices and approach, the Los Angeles County Sheriff’s Depart- ment is a hotbed of hundreds of successful activities and programs led by 14,500 leaders backed by a 1.7 billion dollar budget and growing.

10 Always Try to Do the Right Thing, the Right Way, for the Right Reason Always Try to Do the Right Thing, the Right Way, for the Right Reason by Cornelius J. Behan

have found it difficult to put into words • Creating a Spousal Abuse Unit the actual thoughts and motivations that • Creating a Commercial Vehicle Safety Unit I governed what we did rather than • An attempt to limit the proliferation of merely stating the process employed. In my hand guns and assault rifles view, these are more important because they • Establishing a Values Statement for the guided the decisions and actions taken. By department living and acting by these factors, anything • Dealing with the media was possible. • First large department to be Accredited (3rd in the nation) and first to be reaccredited Leadership and management are very by the Commission on Accreditation of different, although intertwined. This brief Law Enforcement Agencies (CALEA) chapter will attempt to reveal the beliefs, • Dealing with elected officials philosophy and reasoning used in leading with • Creation of an Aviation Unit and a some references to managing along the way. Marine Unit • Establishing a police foundation • Leadership develops over a lifetime. • Designing a department shoulder patch It starts in childhood and continues until we • Statewide repeat offender program die. It is a never ending process of learning Establishing a computer crime unit, and and risk taking. Each step, provided new hostage negotiation teams experiences, knowledge and insights into the • Response to racial, religious and ethnic reasoning used and choices made. I was not bias incidents the same leader as a sergeant as I was as a • Executive development and training chief and I was not the same leader in 1977 • Designing station houses as I was in 1993. True, power increased but more importantly so did the understanding Some of these events appear of no and effectiveness of the forces at work. significant consequence or accomplishment. These and many more events occurred, • Two major themes. which upon examination, demonstrate the Those themes influencing and joining the effectiveness of the underlining beliefs this learning progression were values – both chapter addresses. What follows are not “pie legal and ethical – and interacting with in the sky” notions but actually applied people in the department, other law enforce- criteria which brought about desired results. ment entities, the community, academe, and the various disciplines. These had to be • Basic requirements for success. understood and broadened along the way. Before accepting the position of chief of police, certain requirements had to be met. The following is a list of some of the Interference in any way with the internal major issues we faced. The beliefs that came operations of the department by anyone into play in dealing with them will then be outside was not acceptable. The person(s) explained. Detailing the procedures we used that hired me or any political, business, could be the subject of another paper if these union or community forces were not to thoughts have any merit. dictate assignments, transfers, promotions, • Gaining control of the department strategies or be involved in disciplinary • Organizing/reorganizing the department procedures. Also, it had to be understood • Establishing the Community Oriented that the chief would involve the agency in Police Experiment (COPE) and the assisting not only his government but also creation of Community Policing other local, state and federal police agencies.

11 To Lead, To Learn, To Leave a Legacy

The chief was to join and be active in department from outside. It is understandable professional organizations. This understand- to want to be involved with those tried and ing had to be clarified with each newly true. One needs someone to support him and elected administration. carry out his directions. I was determined to find the talent within and develop it. Admit- However, included in such discussions tedly, this takes time. Many within the depart- with the hiring authority is the acknowledge- ment are proud of it and want it to succeed ment that the elected official has a mandate and will support anyone who has the same from the electorate and that the chief will idea. Bringing in your own people tells the cooperate with that mandate in ways that are people in place that they are not as qualified consistent with the department’s mission, or competent as the newcomers and cannot be appropriate and legal. trusted. Promotional opportunities are lost.

• Realistic idealism is essential. • My personal life had to be above reproach. I saw how things should be and went for In any organization, the person at the top is a them with the full realization that the ideal target for praise and criticism. Always may not be achievable but progress would present in and outside the agency, are those occur anyway. When I believed, others did who expect him/her to make a mistake. I did also. More than one made the comment, “is not frequent bars, night clubs, or engage in he for real”. A realist avoids becoming a any activity that could carry a negative cynic. We were well aware that it is an connotation and reduce the effectiveness of imperfect world and many people in it are the office of chief. Many will not like the harmful to the greater good. chief, but their criticisms would have to be confined to job related matters and not This kind of thinking brought about the extracurricular activity. creation of the department’s shoulder patch. The patch in use was adequate and exactly • Avoid factionalism. the same as used by all other departments in Do not make alliances that could be interpreted government except for the agency name. as favoritism. Surround oneself with competent Events prior to my appointment resulted on people. The cynics can’t do much harm when factionalism, favoritism, bad morale, and the people selected for assignments are ob- union antagonism to the department execu- viously capable of doing the job well. I avoid- tives and elected officials. I wanted the men ed joining any internal alliances that would and women to realize they were different and encourage factionalism. Now in retirement, I special. Their identifying insignia had to be enjoy the company of those I admired. something they could relate to, be proud of—something signifying they had a special • Let your philosophy about policing be known. calling. With plenty of input from the various Policing is essential to the operation of a free ranks, a distinctive logo was designed and society. Schools, businesses, courts, hospi- readily accepted. tals and the government could not function without its effective presence. Therefore, the • Avoid capture at the outset. chief has an obligation to serve his commu- In assuming the new job, people came from nity to the best of his ability. Also, he/she has many directions in and outside the depart- an obligation to do whatever is possible to ment to ingratiate themselves and to assist in assist in policing at the state and federal the chief’s orientation. These approaches levels. The responsibilities are part of a can be flattering and intoxicating. However, whole not an entity unto itself. If the country they have an agenda. It takes time to is to survive, we must work as a team, determine who is sincere and has the best cooperating, sharing, assisting, and research- interest of the agency’s mission in mind. ing with one another. To do less is myopic and self serving. Repeatedly share these • Stay with the insiders. ideas, write about them and involve as many When the new chief takes over, avoid the of your personnel (and civilian supporters) temptation to bring your own people into the in carrying out your philosophies.

12 Always Try to Do the Right Thing, the Right Way, for the Right Reason

• The Status Quo. simple position was that “if you contracted This is impossible to maintain. It is a HIV, it developed into AIDS and you died.” Herculean task to try. Human organizations It should have been automatic but we had to either deteriorate or go forward. My obtain court orders to test prisoners claiming decision is always to go forward. or suspected of carrying the dreaded virus. Yes, we gathered strong opposition because • Mediocrity. this disease became political as well as This is never an acceptable norm. medical, and not being medics we had little credibility. After a few years, with persis- • Collaboration. tence and meetings with the medical Developing relationships with other law leadership, we were proven correct. To this enforcement agencies is important. This day, it is not treated the same as other goes beyond cooperation and coordination communicable diseases. into collaboration. With the latter, all agencies would have to make appropriate • The Pure Mission. concessions about jurisdiction, recognition A personal philosophy is what I called “the and pride for the greater good. Sharing pure mission”. Any decision made had to be equipment and personnel became routine. devoid of any planned personnel gain. It had Even when I found other agencies not to be examined to see if personal aggran- cooperating with one another, an effort was dizement, promotion, making one look made (usually with success) to bring them good, trying to please the boss, etc. were in together. Competition between agencies in any way the motivating factors in the deci- carrying out their missions is not productive sion. Rewards or recognition might result from a good decision but those notions • I filled vacuums. cannot be a part of the process. It had to be I never sought leadership roles for the sake doing “the right thing, in the right way, for of being the leader. When something had to the right reason.” It had to be for the best be done and no one else stepped up to the interest of the community or the plate, then we would do it if it was for the department’s mission. common good. Besides the efficacy of the decision, the An example of our philosophy was when pure mission provided protection when the HIV appeared on the scene. It was obvious attacks came. If the decision created change, that it was a fatal disease but the medical it almost always had detractors who exam- profession disagreed. In the meantime our ined the issue thoroughly and with a personnel were exposed to fluid transfers at jaundiced eye. The absence of personal gain accidents, shootings, and arrests. I called for the decision maker makes it very difficult other chiefs around the country to see what to destroy the plan and more often than not, they were doing about the problem. They the plan went forward. Implementation stated they were following the leadership of would reveal if the decision was a good one. the medical community. To me, this was unacceptable. • You must trust and believe in your personnel. Without political or medical support our On the surface this appears obvious and procedures were changed to deal with the many leaders would say that it is automatic. new phenomenon. Our personnel and But, is it? Our rules and regulations say prisoners had to be tested after exposure to otherwise. The disciplinary procedures fluids. Prisoner cells had to be cleaned. brought to bear on violations cause officers Against strong opposition, we trained our and supervisors to spend a great deal of time people in protecting themselves and others. avoiding things rather than doing things. Our open disagreement with the medical profession led us to lecture to groups and I trusted my subordinates and felt obli- make public statements at meetings and gated to do so. I taught them to take risks conferences that it was a fatal disease. Our and honest mistakes carried no penalties

13 To Lead, To Learn, To Leave a Legacy

even if I suffered embarrassment because of of the executive corps for comment, sugges- them. Risk taking by subordinates is essen- tions or approval. This technique was used tial to make an agency effective. Our people even when I could have implemented it by take physical risks that could result in their an order and saved much time. For example, injury or death all the time. Why shouldn’t such a committee created our shooting they be encouraged to take administrative policy. When the U.S. Supreme Court issued and developmental risks. its findings on police related shootings, we did not have to change a word of our policy. I became convinced of this when the new strategy, Hostage Negotiations, was tried for • The brains of the department are not at the first time in 1972 on Myrtle Avenue, the top. Brooklyn, N.Y. Members of a group calling My belief is that the “brains” of the depart- themselves The Black Liberation Army ment is at the collective lower ranks of the attempted to rob a gun store, were trapped chain of command. The climate had to be set inside, killed the first officer responding and to allow it to be revealed. A field sergeant took a number of hostages. I was second in caused important improved precinct bound- command of the 12 hour day shift and after ary alterations, another improved tours of three days of negotiations, the criminals duty, a police officer designed the U.S. surrendered and all hostages were safe. McGruff stamp and police officers reported corruption. Reorganization would not take As the negotiations unfolded, plans had to place without serious input from every rank be made for a frontal assault should they kill in the department. A police officer using his any of the hostages. I watched as the own plane and another using his own boat on planners on their knees, with flashlights patrol missions without getting permission pouring over building construction maps on from the top forced the department to create, the floor of the darkened movie theatre used and the county to finance, an Aviation Unit as a command post, engaged in a free and and a Marine Unit. open discussion of what would be the best approach. All ranks from patrolman to chief • Never ask permission to do your job. were energetically and equally involved. If the situation calls for action of some After seeing this, I pondered that if we listen dimension, if it is the right thing to do and to police officers in life and death situations, there is no prohibition against it, then do it. why shouldn’t we listen to them in other Yes, it is risk taking. When applied it is not police matters. always successful. The department has to understand the dynamic and no penalties • Involve as many as possible in incurred for unsatisfactory results. decision making. Whenever possible, major changes would I listed above the designing of station not occur without research by a committee. houses. In and of itself it is not a major This was not running the department by accomplishment. However, the county committee to avoid responsibility, but rather always had station houses built without input to avoid a decision that might negatively from the police department. We had a police affect a segment of the agency and also, to officer with architectural skills and had him gain support for the outcome. The project trained in station house design. His skills and was well publicized and the committee or our assuming responsibility without asking committees comprised of all ranks in the permission resulted in new and efficient department except the chief. In addition, a station house design and construction.. union representative was included who was selected by the union president. • The personnel can be overloaded in a progressive agency. Without any direction, each rank involved We had to be careful not to overload the kept its peers informed of the committee organization with change and innovation. It deliberations. The committee would present was essential to get all out of the comfort its findings to the chief and other members zone into the learning zone while avoiding

14 Always Try to Do the Right Thing, the Right Way, for the Right Reason the panic zone. Program development had to • Loyalty to subordinates. be watched for that reason. There were times Much is made of the executives expecting when good plans had to be postponed or loyalty from their subordinates. While abandoned for the good of the department. understandably so, my belief is in being Not every good idea can be put into effect. more loyal to my subordinates that I expect them to be to me. My obligation is • Personnel development. to have them succeed. Their task was to The rank and file was exposed to a wide concentrate on doing the job, taking risks array of opportunities to learn and travel to and not trying to please me. In this climate, gain experience and confidence. Tour it is amazing what they can accomplish. adjustments for those going to school, attending special courses and seminars, • In human organizations, problems exist. meetings in foreign countries and joining It’s a given. local and national professional organizations People want to provide you with good news. were encouraged. When budgets were tight When everything seems to be going well, the first items to be cut were travel, educa- you can be assured that somewhere trouble tion and training. My belief is that tight is brewing. For example, one strong assump- budgets usually meant fewer replacements of tion I followed is that minorities in any or- personnel and equipment. Those left to do ganization suffer prejudice and discrimina- the job must be better prepared to take on tion — often in the absence of complaints. It more obligations. Therefore budgets is not necessarily venal. The majority is often allowing for personnel development and ignorant or insensitive to the needs, culture of training had to be maintained. the minority and unaware of the Civil Rights Act protecting certain classes. The minorities • The Chief must lead in police executive in an effort to get along will put up with real development. or perceived abuses until they become This is largely neglected by our govern- unbearable. Then it becomes a major ments. Large business corporations would problem. Of course, formal complaints are never put anyone in charge that wasn’t fully investigated and adjudicated accordingly. prepared for the job. That’s why in New York City, the police department arranged In order to find out potential problems, with the University of the City of New York and since African-Americans and women to provide college degree programs with were the minorities in the department at that some classes held in police buildings. time, I appointed a black male police officer Eventually with the police commissioner and a female police officer as direct liaison leading, the John Jay College of Criminal to me to report any feelings, impressions or Justice was created and developed. When incidents of unfairness that may appear in the University System wanted to eliminate the ranks. It was their choice whether to John Jay, I testified at public hearings for the identify the complainer or not. They per- department in favor of continuing the formed under an open door policy to the college. We prevailed and John Jay is now a chief. By designating people from the basic thriving college within the New York City rank who posed no threat and had the respect University System. of their peers, situations could be discovered and handled before becoming problems. All In Maryland we joined other police chiefs members of the department, especially the and Dr. Sheldon Greenberg, a retired police supervisors and executive corps, were official, and created the Police Executive informed of the project to avoid the uncer- Leadership Program within Johns Hopkins tainty that comes from the unknown. Most University which offered a masters degree. cases were handled satisfactorily with action, Police chiefs regularly appear at seminars, advice, counseling and education. When panel discussions and as guests in courses and serious bad news was reported, I had to guard engage the students. With the Chiefs’ bless- against an explosive reaction. I knew that a ings, an undergraduate degree program has display of emotion would cause fewer people started and many other courses are offered. to report problems until it was too late.

15 To Lead, To Learn, To Leave a Legacy

• The union president is a VIP. • Decentralizing. The union president is elected by the officers Working to decentralize the department that serve the department—the same officers pushed decision making down to the most who serve the public and by extension work effective level. A great deal of our for the chief. This person, regardless of innovations came from lower echelon whether he/she is on good terms with the personnel who were comfortable either chief, is treated as a VIP with an open door making decisions or recommendations. policy and dignitary status at all department Failure of an idea did not carry penalties. functions. This is a way of telling the officers Also, operational decisions were made at the that their choice for president was respected. scene without having to wait for the arrival of higher authority. If I discovered that my discussions with the union president were not transmitted to • Loyalty Down. the rank and file as they occurred, I then met Another personnel philosophy was to never with the union’s board of directors on a regu- require an officer to perform a task that would lar basis. A free exchange was mandatory. not allow us to protect him or her from negative outcomes. Local and national court • Communication with the Administration. decisions and laws had to be monitored where For my entire time in office, I attended in- departments and officers were found liable. service training every week. At these Our training and policies had to be altered to sessions, I discussed policy changes, new assure the officer would not be required to laws and internal and external problems in take an action that would be indefensible policing. The participants were encouraged when challenged. For example, training was to make any comments and ask any ques- mandated for all equipment carried by the tions and if they so desired submit questions officer that could be used as a weapon. in writing, anonymously. It was important Submission was all that was required of an that all questions were answered even those arrestee. He/she did not have to assume any that might be insulting or not made in good preordained position before submission was faith. In the course of a year, every year, considered finalized. every member of the department met with the chief. A downside of this is that officers • Care was given not to create a forbidding would refrain from bringing items to their rule that would automatically place an commanders and would save them for the officer in violation. meeting with the chief. Special briefings For example, we did not forbid hot pursuits with commanders allayed their fears about but put in a policy of how to handle them. We the phenomenon. did not mandate that every officer wear body armor but supplied him/her with the best vest Police officers are very candid. They and strongly encouraged it to be worn. speak and write in direct terms. Their However, in recruit training, the armored vest cynicism is readily observed. I needed a was mandated to be worn at all times, except thick skin and good self control to handle the during physical exercises. This allowed them questions that clearly were accusatory rather to get fully use to it. In other words, we tried than a search for information. No retaliation to treat them as adults and not like children would occur no matter how blunt the from whom we demanded obedience. dialogue. About fifty percent of the policies, decisions and strategies we made administer- • Transparency. ing the department were the result of what Every effort was made to prevent the chief was learned at in-service. Special attention and the top executives from placing “friends” was given to issues that effected officers in choice assignments. Position openings in personally, such as, uniforms, cars, equip- the department were advertised and a screen- ment, discipline and grievances. I noted that ing committee appointed to interview and over time when these personal items were make recommendations. These recommenda- taken care of, the officers would delve into tions were followed. Appointment of unit important issues relating to the mission. commanders and the transfer of commanders

16 Always Try to Do the Right Thing, the Right Way, for the Right Reason were made at a meeting with the top execu- continuous scanning of the environment in tives of the department and the chief. the U.S. and abroad for the latest develop- Personality clashes among good people were ments that would enhance our ability to often avoided through these consultations. serve our community and the profession. For example, I was at the meeting when the • No Political Interference. British police introduced DNA technology. At times, elected officials were solicited by a A drug conference in New Orleans enabled department member or a friend to use their us to learn about and adopt Drug Abuse influence to have the member appointed or Resistance Education (DARE.). Learning of promoted to a desired position. In turn, the computer crime in Silicon Valley in Califor- official would write or call the chief and nia led to our creating the first computer make the request. I would never become crime unit in the East. A visit with the Israeli angry at the request or react negatively to police led to the adoption of robots to the member of the department who made the handle suspicious packages. move to by-pass the established procedures. Usually in writing, I would thank the elected • Professionalism. official for his interest in the department and Active participation in national police its members and assure him or her that every organizations is a must The International consideration would be given to the request. Association of Chiefs of Police (IACP), While not hiding the request, the department Police Executive and Research Forum procedures would be followed to the letter. (PERF), National Executive Institute (NEI), The elected official received a response Federal Executive Institute (FEI), National showing he/she acted upon the constituents Sheriffs Association (NSA), and the request and the integrity of the department’s National Organization of Black Law procedures was maintained. Enforcement Executives (NOBLE) are but a few of them. The reason for joining them is • Values. to advance the profession. We attended the With in-house and outside assistance, we National Executive Institute, the Federal developed a value system. While rules and Executive Institute and the Harvard Sessions regulations are necessary, they were insuffi- on Community Policing and sent others to cient. Rules are usually negative motivators similar learning and sharing experiences. while values would help police personnel When called upon, we served as president of with their decisions. Values are beliefs several of the organizations. which are held in such high esteem that they noticeably affect the way a person Formal education was encouraged and thinks and acts. We required that changes partially funded. Politics prevented legisla- in departmental rules and procedures include tion requiring college education. Recruit- how they would advance or include our ment of women brought more degreed values. We adopted the management people into policing. philosophy of, “doing the right thing, for the right reason, in the right way.” Police are • Discipline Procedures keepers of the public trust and all the Discipline procedures were transparent and responsibilities that accompany it. followed state law. Over time my part of the process would include whether the offender • Limitation of Rules and Regulations. had violated or tried to follow the depart- As chief, I never studied or became en- ment values. Unfortunately, reasonable grossed in the department’s rules and outcomes were often thwarted by the regulations. Other executives, supervisors legalistics involved. and police officers would have to rely on them. I purposely decided to manage and We insisted on a zero tolerance policy lead by focusing on the department’s for brutality, discrimination and sexual mission, new ideas and vision. I followed harassment. I found that it was very difficult the cliché and “kept my eye on the horizon to implement it. It is not a problem when the and not on my navel.” This required a offender was identified and remedies taken.

17 To Lead, To Learn, To Leave a Legacy

There is a problem holding people account- but to try and reduce the availability of guns. able who had knowledge of the offense but The process included speeches, TV appear- did nothing about it, i.e. they “tolerated” it. ances, press conferences, lobbying, letters to Officers perceived such accountability as newspapers an visits to the offices of unfair. Accountability in these incidents does legislators. A police march on Capitol Hill not have to be formal disciplinary proce- was also employed. The police leadership dures but an action that clearly indicates to became the target of the gun lobby who tried the officer that he or she did not live up to to have them fired or passed over for the values of the department and allowed a appointments as chiefs. Every year an effort fellow officer to suffer without their taking was made to have me removed from office. action. We implemented the policy but Consider the turtle – it cannot make any nowhere in the outside environment did it progress unless he sticks his neck out. When appear that anyone else did. he does, there is the possibility it will be hacked off. A written media policy was promulgated. The press was given access to records and • Melting Down Guns. personnel as allowed by law. The philosophy There was pressure applied to have the we adopted was that the street reporter was department sell the weapons it recovered, and very much like the officer. He was at the the officers’ guns it was replacing, to firearm bottom of the organizational chain, subject dealers. Funds are always needed. We refused to review, second guessing by superiors, not knowing that some of the weapons would end so much concerned with the First Amend- up in the wrong hands and a citizen or a ment as with doing his/her job and making a police officer would be killed. We had them living. Never lie to them. If an officer at any melted down to save lives. This was not a level is comfortable giving an interview, popular decision with the budget office. have him do it. The public would rather hear from the working officers than the chief. The The same reasoning applied to the “cop media relations officer was commanded by a killer bullet.” The military arranged to former reporter and available to respond to release its enormous supply of armor any scene and assist the media personnel in piercing bullets to the public for purchase their mission and police personnel in dealing over the counter. A friendly federal agent with them. The police are not to be censors. informed me of the plan. There was no That is the responsibility of media superiors. choice but to vigorously oppose such a happening for the safety of police officers all • Battling the Gun Lobby, NRA and Others. over the country. Although many in law The only reason we entered the “gun fight” enforcement joined the effort, the Secretary was to save lives. Gun lobbyists wanted to of Defense did not respond to our request. make handguns, assault rifles and Saturday We prevailed through the efforts of the night specials readily available to anyone in President of the United States. the country who signed a paper that they were not a felon and not mentally incompe- • Community Policing. tent. Saturday night specials were cheap Community Policing originated in Baltimore handguns made readily available to people in County. It is a simple philosophy of identify- poor communities. There was no way to ing the obstacles that prevent citizens from check the truth of the statements. Since being comfortable where they work, live, thousands of people die from handguns and play, followed with an attempt to every year, the police who are obligated to eliminate them. It adds another dimension to save lives could not stand by without traditional law enforcement but does not speaking out. It was a time when one had to replace it. The seed was planted by our put his career on the line. desire to eliminate fear caused by violent crime, narcotic addicts, and neighborhood Since the gun lobby would not meet with conditions. Fear can’t be seen or touched or law enforcement to help it reduce the felt. We scanned the environment and saw carnage from handguns, there was no choice that the literature was filled with discussions

18 Always Try to Do the Right Thing, the Right Way, for the Right Reason of fear but no one was doing anything about and service for the common good. But, it. We decided it was our job. Surveys generally colleges and universities were showed that citizen fear arose for reasons more interested in obtaining funds than different from what the police surmised. In giving them away. most cases, dirty and neglected streets, vandalism, rowdy people, difficult traffic The following is a description of some situations and other types of neglect, caused other principles ideas that were publicly more fear than burglaries and robberies. announced and followed.

While training our police officer volun- • Only Enforce Traffic Laws teers to survey neighborhoods in order to Where There is a Need. identify fear, Gary Hayes, Director of PERF, We monitored whether tickets were issued introduced us to Professor Herman because it was easy or because there were Goldstein, University of Wisconsin, and his accidents or complaints. The U.S. Constitu- idea of problem solving. The two ideas were tion was established to ensure domestic married and community policing emerged. tranquility, promote the general welfare and to secure the blessings of liberty among Just one example of its application was a other reasons. The police are best positioned severe train wreck in Baltimore County on to fulfill that Constitutional mandate. Our January 4, 1987 that killed 16 people and relationship with the public is not adver- injured hundreds more. After the accident sarial, “us against them” but one sworn to was investigated, criminal charges followed, work with the citizenry for the public good. injured taken care of, tracks cleared, property damage caused by the accident and • Know Yourself. rescue efforts repaired, community policing I recognized my weaknesses and shored continued at the site. Starting at “ground them up with people who had the knowledge zero” of the accident, officers visited every and strengths I lacked. The expressed reality home to identify anyone suffering psycho- is that by so doing one of those could logical effects from the disaster. Schools replace me as chief. If they did, it was were visited for the same purpose. Therapy probably for the best interest of the depart- was provided. We didn’t walk away until ment. We work for the public good and not every human being touched by the accident for ourselves. was made whole. • Listen to the Dissenter. • Corporate Organizations in America. I learned more from people who disagreed These organizations want a safe environment with me than from those who agreed. An for their employees and to conduct their honest different opinion fully examined and business. They are willing to invest to get it. not dismissed will do a number of things: bring Most know very little about police opera- new dimensions to the issue, stimulate think- tions beyond the issuing of traffic tickets but ing, allow the dissenter satisfying entrance into are willing to fulfill part of their social the discussion, tend, to heal differences; and by responsibility by learning more and being of careful analysis tells you are wrong, or how to help. We welcomed them, showed we were improve the idea or confirms that you were not a secret organization, started a civilian correct. Similarly, I learned more from police academy, created a police foundation, mistakes than I did from successes. and created a police and business committee within the structure of the Maryland Chiefs The bottom line is that our values and of Police Association and our own organiza- religious beliefs guided us through the com- tion. The alliance proved to be beneficial in plicated issues. It is summed up in the ex- crime prevention and fund raising for police pression very familiar to you mentioned earlier training and equipment. in this response – always try to do the right thing, in the right way for the right reason. A few successes occurred with individuals in academe who gave willingly of their time

19 To Lead, To Learn, To Leave a Legacy None of these things could be accom- plished without the cooperation, creativity and participation of many inside and outside the police department. The chief set the tone, developed the atmosphere and they did the rest.

20 Information Sharing: Key to Law Enforcement Effectiveness Information Sharing: Key to Law Enforcement Effectiveness by Vince Bevan

started my career in policing in July great deal about police work and about the 1973 with the Niagara Regional Police way business could be done better. I quickly I Force in Ontario, Canada. It was the learned that information is power. It is not very day my father marked twenty years of to be shared with someone who may steal service in the same police service. When your arrest, even if you’re not even close to my father retired he left a legacy that all an arrest. If information was shared between municipal police officers in Ontario still agencies, it was shared between friends and enjoy to this day. He helped to establish one acquaintances. If you didn’t know the of the premier retirement funds in the person on the other end of the telephone country as a founding member of the line, you were less likely to get all the Ontario Municipal Employees Retirement information that was available. The network Service. From time to time I have wondered of the day was based upon familiarity or by what I will leave behind for my colleagues dropping a name. As I found out at critical in policing and this NEIA Research Project moments in my career, the network could has given me an opportunity to ponder that make or break investigations. question and reflect on what my legacy to the profession may be. In 1986, after a fairly successful tenure in the Detective Office, I was selected to work Certainly, across North America and from on the system design and implementation of my exposure to colleagues in the United a new Records Management System (RMS), Kingdom, Europe and Asia, we all face the Computer Aided Dispatch System and challenge to put all available information into Mobile Data Terminal System. I was the hands of front-line officers quickly so selected to be part of the system design they can respond to incidents and make phase to ensure that the RMS product put informed decisions. In the past two decades a information in the hands of investigators. I great deal of work has been invested in the also had the opportunity to research and development and enhancement of technolo- develop the specifications for a crime gies that support policing. But, police work analysis system. I was provided this is very different today than it was when I opportunity in part because I was a strong started 32 years ago. Indeed, in the past advocate for information sharing. decade changes the world over have trans- formed the way we deliver police services. In My experience in the Detective Office order to understand and respond better to taught me that much more was possible if we these challenges, it is vital for officers to shared the information we collected and access a wide range of information. made it available to colleagues who might be able to link crimes and criminals more I hope that my legacy to this profession effectively. Although the RMS design was will be a solution to that problem. I hope successful in this respect, the crime analysis that in sharing the lessons learned and by system was never implemented within the describing how the solution was derived, police service. That experience taught me a others in policing will benefit. I can claim great deal about technology. I learned that no individual responsibility. Much of what solutions to problems we face are only has been accomplished was done by police limited by our imagination. leaders of vision who understood the needs, rolled up their sleeves and did it. Following that experience I was returned to Detective Operations. It was there that I I earned my first transfer to the Detective was faced with the biggest challenge of my Office in 1978. That experience taught me a career. It proved to be an information

21 To Lead, To Learn, To Leave a Legacy

management nightmare and taught me problems turn out to be the same, the difficult lessons in leadership and account- mistakes the same, and the systemic failures ability, media relations, victim management, the same. . . ”2 joint forces operations and politics. I was assigned as the officer in charge of the Green Unfortunately, because of the systemic Ribbon Task Force (GRT), a multi-jurisdic- weaknesses and the inability of the different tional investigative team that involved a law enforcement agencies to share their dozen law enforcement agencies and almost information and co-operate effectively, sixty investigative and analytical staff. Bernardo “fell through the cracks” and committed additional offences after he was Between May 1987 and December 1992, first identified as a suspect. Paul Bernardo raped or sexually assaulted at least 18 women in the Toronto area, including Between May 4, 1987 and May 26, 1990, Scarborough and Mississauga, and killed Paul Bernardo attacked 15 young women in three women in Burlington near Toronto and Scarborough and one in Mississauga. The St. Catharines in the Niagara Region. I victims were in their teens or early 20s and became involved in this investigation in July were returning home at night, often from a 1991 after the dismembered body of Leslie bus stop. The attacks were carried out by a Mahaffy had been discovered, encased in vicious and sexually sadistic predator who blocks of cement, in the Niagara Region. stalked his victims and took them from behind. He would drag them into a driveway Paul Bernardo is a unique type of criminal. or bushes, punch and beat them before He is determined, organized, mobile and raping them anally and vaginally, and taking sadistic. He is a serial rapist and killer who trophies by which to remember them. demonstrated the ability of such predators to strike in any community. The tragic history Bernardo’s name first emerged as a of this case, and similar cases from other potential suspect in January 1988 after the countries, demonstrated that these predators fifth Scarborough rape. That was two years pose a unique challenge to the systemic before the first murder occurred in the investigative capacity of local law enforce- Niagara Region and three years before Leslie ment agencies throughout North America Mahaffy was abducted from her home in and the world. Burlington and brutally raped, killed and dismembered. The next time Bernardo’s As a Judicial Inquiry led by Mr. Justice name came up was when a bank teller called Archie Campbell subsequently found, the police in June 1990 after the 15th and “. . . [t]he Bernardo case, like every similar final Scarborough rape occurred on May 26, investigation, had its share of human error. 1990. The victim was able to get a good But this is not a story of human error or lack look at her attacker and a composite drawing of dedication or investigative skill. It is a was produced and circulated in Toronto. story of systemic failure. . . ”1 That composite turned out to be a good likeness of Bernardo and was probably a Sadly, as history shows, virtually every motivating factor in his decision to relocate inter-jurisdictional serial killer case includ- from Toronto to the Niagara Region 120 ing Peter Sutcliffe (the Yorkshire Ripper) kilometers away. His name was provided to and Robert Black (the cross-border child Toronto investigators a third time in Septem- killer) in England, Ted Bundy and the Green ber 1990 by an acquaintance who also River Killer in the United States, and thought Bernardo resembled the composite. Clifford Olsen in Canada, has demonstrated and raised similar problems and questions. In the early morning of December 24, And, as Justice Campbell observed, 1990, Bernardo and his then girlfriend, Karla “. . . always the answer turns out to be the Homolka, drugged Homolka’s 14 year old same - systemic failure. Always the sister in the basement of the family home

1 Page 13, Report of Mr. Justice Archie Campbell on the Bernardo Investigations, June 1996 2 Page 14, Report of Mr. Justice Archie Campbell, June 1996 22 Information Sharing: Key to Law Enforcement Effectiveness while her parents slept upstairs. When the During the subsequent investigation girl passed out, Bernardo undressed her. contact was made with investigators on the Homolka put a cloth soaked with an Scarborough Rapist cases, but there was no anesthetic called Halothane over her mention of Paul Bernardo and the fact he unconscious sister’s face while Bernardo had relocated to St. Catharines. raped her. They videotaped much of the sexual assault. Just after Bernardo stopped Then, in a very high risk move on April 16, raping his unconscious victim, she vomited, 1992, at about 3 p.m., Kristen French was choked, and stopped breathing. Their crime forcibly abducted by Bernardo and Homolka was never detected. The autopsy never as she walked home along a busy road in St. examined her for sexual assault. Death was Catharines. She was held captive, repeatedly attributed to aspiration because she had raped and beaten and then murdered on April ingested alcohol the previous evening. 18, 1992, Easter Sunday. Much of what happened was recorded by Bernardo and After the fifteenth in the series of Homolka on videotape. The crime captured Scarborough rapes, the pattern of attacks the nation’s attention. suddenly ended. As the record shows, Bernardo moved to St. Catharines in January At the time, the Green Ribbon Task Force of 1991. Then, in the early morning hours of investigation was recognized as the largest April 6, 1991, Bernardo attacked a 14 year- investigation of its kind in Canadian old girl who was walking to rowing practice a history3. As a consequence it drew incred- short distance from her home. This attack ible media scrutiny – and criticism. also occurred less than a mile (2 kilometers) Throughout the investigation, the relation- from Bernardo’s new residence. The details ship with the media was poor at best. of the attack and the phrases used by the attacker were strikingly similar to those used Bernardo was called in as a possible by the criminal now called the Scarborough suspect and was interviewed. But the Rapist. If these details had been shared connection to his role in the rapes in between investigators, one would have Scarborough was not made. He won that immediately concluded that the crimes were interview, an accomplishment not unusual likely committed by the same individual. for this type of offender. He was able to use Unfortunately, investigators in the two cross-jurisdictional weaknesses to “slip jurisdictions never connected that fact. through the cracks.”

Tragically, after midnight on June 15, Finally, on February 8, 1993, I was invited 1991, Bernardo abducted Leslie Mahaffy at to a meeting in Toronto where I learned that knife-point from outside her home in Bernardo was suspected to be the Burlington, a city midway between Toronto Scarborough Rapist. A DNA test that had and St. Catharines. He took her to the home been delayed for months had potentially in St. Catharines that he shared with Karla linked him to one of those cases. Toronto Homolka. There, assisted by Homolka, he Police had immediately placed him under repeatedly raped her and recorded the acts surveillance at his home in St. Catharines. on videotape. He then murdered her, cut up her body, encased it in cement and dumped During that meeting, when I saw the the blocks in a lake in Niagara Region. A detailed descriptions of the acts committed few days after her body was discovered, I and words spoken by the Scarborough became involved as the officer-in-charge of Rapist, it was clear that he was also respon- the Green Ribbon Task Force. I remained sible for the rape on Henley Island in April with this case until Bernardo was convicted 1991. Had the information been available, and sentenced to jail for life. that connection likely would have been

3 It has since been surpassed by the investigation into Robert Picton in British Columbia concerning the murder of more than twenty women in the Vancouver area. 23 To Lead, To Learn, To Leave a Legacy

made earlier, perhaps even before Leslie to ensure communication and co-operation Mahaffy was abducted and murdered in June among law enforcement agencies. . . ”4 1991. Since that day, I have dedicated my Clearly communication between police career to making certain that information forces was inadequate. At that time, there sharing occurred within the police and public was no ViCLAS5 automated crime linkage safety community. system in place. There was not even a system to ensure that the “Zone Alert” from There were still issues that arose in the the Henley Island rape was considered by the ensuing investigation, but Bernardo and his Toronto investigators. Such an alert would wife were both arrested. Her lawyer have been a red flag for any experienced negotiated a deal in exchange for her investigator that the Scarborough Rapist was testimony against her husband. Unfortu- operating in a jurisdiction an hour away. As nately, after that deal was struck, the Justice Campbell found, “[t]here was no videotapes made by Bernardo were recov- system in place to recognize that the ered. Still, he pled not guilty and subjected Scarborough Rapist was still operating the families of his victims to a long and almost next door. There was no system to painful trial. Finally, in September 1995, ensure full communication between Metro Bernardo was convicted. He will spend the (Toronto) and GRT (Green Ribbon Task rest of his life in jail. Homolka is due to be Force) when GRT inquired about Bernardo released from prison in July 2005 and there as a Scarborough rape suspect. So far as has been a great deal of renewed media Bernardo was concerned, the Metro force attention focused on her as a result. and the GRT might as well have been operating in different countries.” 6 After the trial ended, the media needed someone to blame. As a result of the media As a result of Justice Campbell’s report, storm, the government called two separate many of the systemic weaknesses in informa- inquiries, each led by a Superior Court tion sharing have been identified and Justice. The more famous of the two was that corrected in Ontario. Changes have been headed by Mr. Justice Archie Campbell. His made to investigative procedures and there Report has become the basis of large scale have been marked advances in the applica- reform in policing in Ontario and beyond. tion of forensic science. We now have a state of the art ViCLAS system. Police Justice Campbell diligently researched the services are now required to submit crimes issues, studied the investigations into the according to prescribed criteria. We also Bernardo case and gathered suggestions from have an advanced case management system participants that he used to formulate his own into which the police services must enter recommendations into what he termed a details of homicide, sexual assault and other Strategic Defence Against Serial Predators. serious crimes. The system has already been His recommendations were broad-based, but able to link serial crimes committed across much of what he had to say focused on the jurisdictions. But until recently, other need to have systems in place that facilitated systemic weaknesses have continued to exist. the timely sharing of information. In 1998, when I accepted a position with In Justice Campbell’s view, “. . . [t]he the Ottawa Police Service, I brought with me Bernardo case showed that motivation, a philosophy built upon the “3 Cs”: coordi- investigative skill, and dedication are not nation, communication and cooperation. enough. The work of the most dedicated, This philosophy of doing business was the skillful, and highly motivated investigators by-product of experiences in my career. The and supervisors and forensic scientists can ap-proach has since become the cornerstone be defeated by the lack of effective case of our relationship within the police commu- management systems and the lack of systems nity and with our partners in the criminal

4 Page 9, Report of Mr. Justice Archie Campbell, June 1996 5 Violent Crime Linkage and Analysis System, hosted by the Royal Canadian Mounted Police 6 Page 47, Reportof Mr. Justice Archie Campbell, June 1996 24 Information Sharing: Key to Law Enforcement Effectiveness justice system. Information is shared and police investigators. As I look back and we have acted to eliminate silos that wonder how I will be judged, I hope that the inhibited communication. many mistakes I have made will be forgiven. Although I believe that information sharing In Canada, as is the case in most other is still the single biggest challenge facing jurisdictions, police services each employ police leaders in this decade, I pray that RMS technologies of varying sophistication. recent developments, born of experience and But, because of the different systems, it has lessons learned, will benefit all those who always been almost impossible to share data come after me. between law enforcement agencies. Ideally, Canada needed a single tool that facilitated information-sharing no matter what type of RMS was involved. The Ontario government invested millions of dollars to integrate systems used by the players in the criminal justice system before abandoning the project.

In my capacity as Vice President of the Canadian Association of Chiefs of Police, I have been heavily involved in the work to promote interoperability and information- sharing. In November 2003, I was co-chair of a National Conference on Information- Sharing. Since the conference, things have moved very quickly and what was once only a dream is becoming reality. A National Memorandum of Understanding has been developed and the technological solution has been tested and is ready to be rolled out across the country. A pilot project between a group of police services in Ontario, including Ottawa and Toronto, were linked with a group in British Columbia, including Vancouver. The pilot testing of the solution proved very successful. As police services line up to get access, the federal government has now agreed to fund the expansion of the project across the country. In the end, it was police leaders who came together to build systems which enable officers to obtain another agency’s incident reports, mugshots, traffic tickets and street checks at the push of a button.

In the past twenty years a great deal of work has been invested in the development and enhancement of the technologies that support policing. Now, in the latter stages of my career, I feel better as a police leader about our improved ability to share informa- tion and pool our resources to be effective

25 To Lead, To Learn, To Leave a Legacy

26 The Nineteenth Hole The Nineteenth Hole by James J. Carvino

would like to thank the National discuss the litany of trials and tribulations a Executive Institute for providing this chief is likely to experience, except to say I opportunity to share with new police that the job itself is not nearly as difficult as chiefs a few “best practices” that have the people you will need to deal with while helped me over the years. I hope to commu- performing it. nicate some thoughts and conclusions that I have reached based upon my experiences as I believe every new chief must have an a police chief in three different cities over 15 ethical and moral value system, one that will years, views shared with me by other teach- be the hallmark of their careers. Having a ers, mentors, chiefs and law enforcement philosophy of life to guide them will also professionals during that period, from a total sustain them throughout all their years. Take of almost forty years in law enforcement. your time when choosing the values by which you will live. Make sure the values A comprehensive analysis of what advice you embrace are tried and true traditional can be given a new chief would more likely be values, and avoid considering the use of suited for a book than a chapter in a publica- situational ethics. When you’re finished, tion. In my first draft I attempted to eat the write it down. There will be times you may whole enchilada, then I realized that all I could want to look at it. This will help you do effectively was take a bite out of it. So that crystallize your thinking and to know who is what I did. I’ve made some assumptions you are, what you hope to be, and what type regarding the knowledge, qualifications and of legacy you want to leave. Recognizing, experience of a new chief, and limited my developing, and embracing an ethical and comments to a few specific areas. morale value system – based upon honesty, integrity, and character –is the singularly This chapter is broken down into three most important and positive step a chief can sections. Part I, “At the Tee,” covers take after being appointed to their position. philosophical and practical considerations I Living by the standards set will often be feel new chiefs should ponder when coming arduous, and at times costly, but always well into their jobs. Part II, “On the Fairway”, worth the effort. takes a look at some tools that can be used to help get through the maze. And finally, in Part II – On the Fairway Part III, “The Nineteenth Hole,” I will discuss what I believe most chiefs I have Take your work seriously, but don’t take spoken with want to leave as a legacy. yourself too seriously. I don’t know of any chief that had all the answers coming into a Part I – At the Tee job. For that matter, the vast majority of us never really had any idea about what the job There are many attributes necessary for really entailed. You’ll need the help of police chiefs, such as, possession of an many people if you are to succeed, and ethical and moral value system, experience, principal among those are mentors. knowledge, education, personal courage, honesty, integrity, fairness, and a willingness A mentor is defined by the American to listen and to serve. The list goes on and Heritage Dictionary of the English Language on. If the chief’s selection process was as, “a wise and trusted counselor or conducted in a fair and impartial fashion, we teacher.” Mentors as a rule are givers rather can assume that the successful candidates than takers, and their only desire is to help will possess a plethora of these qualities. and assist others. They are to be valued. This chapter’s scope is far too limited to Select, based upon their reputations, among 27 To Lead, To Learn, To Leave a Legacy

people whose opinions and values you enforcement, seeking the advise of mentors cherish, and by how close their value system and utilizing the teachings of professional coincides with your own. organizations will broaden your horizon. When things get tough – as they will from Mentors have no vested interest in your time to time – you can take a “Mulligan” and organization per se; they will give objective reach out for help and support from people and straight-from-the-shoulder advise and who have no axe to grind. counsel. As a rule, they don’t pull their punches and will let you know if they think We all have a tendency to forget that our you’re getting off track. It’s hard to find this first step into a job is our first step out of it. honesty and sincerity in people within your Nothing lasts forever, and career circum- own department, city government, elected stances and conditions will change over time. leaders, politicians, or the public. They are There are lots of reasons, good and bad, that likely to have agendas of their own. ultimately end or change a chief’s career, and you are almost as likely to be fired, retired, or Join and become involved with profes- asked to resign, for being a good chief as sional law enforcement related organiza- being a poor one. I am sure we can all cite tions. Do not choose just any police examples of when inept, immoral or even organization, but one that is value driven. corrupt chiefs were hired or retained. There are any number of them to choose among. For starters I would recommend the Doing what is right is leadership. It may Police Executive Research Forum and the make you unpopular at times, could cause a National Executive Institute. Organizations vote of “no confidence,” or even cost you of this type are dedicated to providing your job. It all comes with the territory. New professional advice and counsel to chiefs on chiefs need to be clear about who they serve. the management and administration of law In my view it’s not the Mayor, City Manager, enforcement agencies. Their lecturers, County Executive, Council, Unions, mem- teachers, law enforcement professionals, and bers of the department, special interest others associated with them have always groups, politicians, the media, etc. It’s the been people of the highest quality, reputa- community, and not just any one segment of tion, and character. it. If you believe that your role is to serve and not be served, you must understand that Another valuable tool that can be used is it will not necessarily make life easier for networking. Once a value system is in place, you, but it is clearly doing what is right. A mentors have been selected, and you have new chief should create an organization that joined a professional organization, it’s time is open and transparent, there should be no to begin to network with those people you’ve doubt left in anyone’s mind as to who the come in contact with. Working with them, organization serves and what it stands for. you can discuss problems, issues, programs, policies, procedures, system designs and I recall reading a paper that discussed the methodologies. The people you network difference between doing what’s right as with will provide a sounding board for ideas, opposed to doing the right thing. Being able offer suggestions, and render solid advice to differentiate between the two makes a and counsel. As time progresses, you will huge difference. Over the years I’ve begin making valuable contributions to the observed many instances where people of group yourself. You will slowly build a good will and intentions have been lost in a network of professional people who you know futile and misguided effort to save, cover up, and who know you. Design your network or dispose of situations that they never carefully and make certain you share the same should have become involved with in the values. first place. Self discipline and adherence to the principles behind your personal philoso- Notwithstanding the fact that you may phy are a must. At times it’s very easy to have a formal education and possess cave in and forego your values due to knowledge and experience in law friendships, emotions or pressures that are

28 The Nineteenth Hole placed upon you. That’s the time to slow down and think. It’s always better to hold your ground and do what is right as opposed to doing the right thing. You can also be confident that if you lived by the moral and ethical code you set when beginning your career you’ll do just fine.

Part III – “The Nineteenth Hole”

By the time you’ve reached the nineteenth hole you may have made a transition from using mentors to becoming one yourself. Hopefully you have, on balance, kept faith with your values and passed on to others some of the wisdom and counsel shared with you. This is where your legacy, if any, will be found.

29 To Lead, To Learn, To Leave a Legacy

30 Leadership: Common Sense and Understanding of Human Nature Leadership: Common Sense and Understanding of Human Nature by Richard L. Cashdollar

eadership is largely common sense and people along our various paths who had to a decent understanding of human control every aspect of their organization all Lnature. That’s why we had some great the time. These folks generally fail because leaders long before we had so many wealthy they simply can’t manage all the information authors who have written leadership books. needed to run a complex organization by Leadership can be taught. That’s why the themselves. They demotivate the people overall quality of organizations has improved around them who are only expected to significantly in the past fifty years. However, respond, and not to initiate. Even Maslow no canned leadership program will ever recognized that self-actualization was a high replace the two cardinal components men- order human need. If this basic human need tioned in my first statement. is unsatisfied, it will have a corrosive impact on key people in any organization. I’ve been blessed with two careers, one in the military, and one dealing with cops and Good leaders must convince their subordi- firefighters. Even though generations have nates that they have the right and privilege changed and young people in either arena of failing from time to time – so long as the today look at life differently than our older leader insures that these failures do not generation does, these seemingly divergent endanger lives, organizational missions, or careers, and the people I have encountered, the good name and reputation of the have much in common. organization. People do learn from success. They may learn even more about responsi- They tend to be mission driven and out to bility, and about themselves, from an make the world a better place. That occasional failure. If your key subordinates altruistic component of the package of understand that they have this freedom, and motivators that draws people to these they trust you in the knowledge that these professions hasn’t changed much. People in occasional bumps in the road will not be this category WANT to perform, and WANT fatal to their careers, you will unleash to excel. Most WANT the challenge of creativity, enthusiasm, and innovation in responsibility, and the opportunity to prove your organization. that they are up to the challenge. Leaders who over-manage tend to shut down this Its a worn cliché but its so important – enormously valuable component of their good leaders lead by example. The higher people. A truly successful leader will you go, the more you are watched. Prag- nurture these attributes, but help to mold matic folks like cops tend to think that and guide development so that promising actions speak louder than words. young performers remain challenged and motivated, yet are not given tasks and Never, ever separate yourself from the duties too far beyond their current level people doing the real work in your organiza- of development. tion. Ride-alongs and other encounters with the troops on the front line – as long as they A good, inspirational leader learns the art are genuine – send a powerful message. and science of DELEGATION. They re- member that their responsibility is not to DO Keep the differences between leadership everything, but to make sure that everything and management clear in your mind. You gets done. We have all encountered talented manage things. You lead people.

31 To Lead, To Learn, To Leave a Legacy

Operational Philosophies more guiders and developers. It’s a poor and Managerial MindsetMindsets leader who crafts an organization that comes to a halt without their immediate guidance. I stop to think of those processes that have We should work towards organizations that helped me through the day during a difficult function without us almost as well as with us. or crucial time in my career. The following This only happens if we develop competent three points come to mind which I feel are and CONFIDENT subordinates. most important. Sometimes we think back and ponder that First, people in high profile law enforce- there was an action or practice that we didn’t ment positions should expect that everything initiate perhaps due to the political environ- they do will eventually be public knowledge. ment, media pressure, governmental interfer- Make all your decisions based on the ence, etc. In smaller, southern organizations expectation that they will eventually receive race is still such a major issue. public scrutiny. All leadership actions pass through the Second – trust your inner compass. We all prism of racial interpretation before they are have one, and we should listen to it more processed any further by members of my closely than the many voices around us organization, our political establishment, and during those truly stressful times when your by the community at large. Hiring and organizational and personal credibility are promotions are always put under this on the line. microscope. While good-faith internal efforts to make these processes fair have And finally third, find someone that you been implemented, they are still perceived trust who is smarter and wiser than you are. by all as slanted one way or the other. Local We all need someone to talk to during the political careers are made beating this horse. rough times. An important subset of this point is to LISTEN to what your mentor In retrospect perhaps more could have tells you. been done, but it most probably would have cost me my job. I think that sometimes we Best Practices and Lessons Learned overestimate the impact that we can have on an organization. Attempts to be more aggressive in this arena would most probably Be aggressive. Volunteer to do the hard simply have fanned the flames. There are things when an opportunity presents itself. some areas we must recognize that problems Your bosses will remember those who may be solved only by time, and by incre- innovate, and those who are not fence-sitters. mental successes that accumulate along the If they are good bosses, a personal evaluation way. Maybe a hundred years from now this process also factors into this advice. won’t be an issue. I sometimes wonder if there was some- The following two last points are adminis- thing that I wish I had done differently. I trative or leadership styles that played a role wish that I knew at thirty what I now know at in achieving the goals and objectives of my sixty. Don’t we all! administration. Always be truthful and honest. Honor your word. I’ve often told In retrospect I can think of many missed people that I’m not smart enough to be leadership opportunities when I was young devious. I have always worked from the and dumb. With this in mind, I would advise perspective that people will deal with and readers to be constantly cognizant of tolerate a straight shooter, even if they don’t potential opportunities to develop talented always agree. and promising subordinates. Pick your fights carefully, and know when Age and seniority bring about an evolution to quit. Recognize when a battle is lost or in our roles. We become less “do-ers” and

32 Leadership: Common Sense and Understanding of Human Nature unwinnable. Don’t bring the house down in flames on a fight you can’t win – unless it is a matter of personal or organizational honesty or honor.

33 To Lead, To Learn, To Leave a Legacy

34 An Absolute Fidelity to Public Service An Absolute Fidelity to Public Service by Lee Colwell

held almost every management understanding or grasp. My advice is to position in the FBI and each was listen, listen and then listen more. I always temporary. To emphasize the point I received a letter for each position You must love the work you do, care stating in writing that the appointment was about employees, and your organization. Be temporary. The FBI insured that you were a leader who is aware, awake, alert and aware that, like life, a position in the FBI knowledgeable as opposed to someone like was not permanent. Ken Lay of Enron who appears to be none of these. Never challenge an individual’s dignity. A View of Self (Philosophy) Have pride and perseverance

Most individuals, at one time or other, have Read, read and read more. Reading illusions of grandeur and I was not an provides insight. It makes one more exception. We are indeed fortunate if we independent of thought. It provides options. possess built in reality checks that cause us When there is uncertainty, always seek the to reflect on who we really are and the supreme comfort of reason. consequences of our actions. Wearing authority well was always a constant concern Analyze. In large organizations there are for me. We can always see when others do enough positions for you to place people not wear authority well. Hopefully, we have who cannot do well. You cannot accommo- sufficient internal checks to alert us to when date limited abilities with no growth we occasionally become consumed with our potential in a small organization. own perceived self-importance. Get involved and be knowledgeable in the allocation of resources. This affects the lives Did I choose the correct line of work? I of your employees. In the 1990s there was an noted with interest, many FBI employees incredible drop in crime over a decade. This contrary to public opinion, were often certainly eliminated any perceived myths that concerned with the well being of citizens of law enforcement could not make a difference our society. I have no confidence that I in the quality of life of citizens it serves. chose the FBI as a career. To the contrary, a Always be concerned about your return on sequence of events I believe guided me to investment of people (ROI). the FBI doorstep. I have always admired those who seem to know what their destiny It has been asserted that an elitist ideology would be in advance. Amazing! over three decades focused on preventing Watergate era abuses has crippled intelli- Important Attributes (for Leaders) gence and national security agencies. These issues, controversial and confrontational in I believe to be successful, exceptional national debates, have been occurring for abilities in people skills help, but only if decades. They can be used, and often are, to they are sincere and real. It helps to be a identify intelligence failures. On the consummate people person and storyteller. opposite end of the spectrum, advocacy groups concerned with privacy and the People have many needs…they look to intrusive nature of the instruments of you to meet those needs. Needs are both government, are the self appointed watch personal and professional and when a person dogs of limits for intelligence collection wants to talk, you never know which box functions. Current times for the FBI are they will draw from. Equity is often a goal reminiscent of the past.Who is right? It is that is liquid and often beyond our part of the balancing of authorities that are 35 To Lead, To Learn, To Leave a Legacy

constantly under debate by individuals of years. Former Attorney General Edwin different perspectives. Meese, III has challenged the encroachment of federal initiatives on the local sheriff. He Could different permissions have resulted has repeatedly asked, “wWhat is the proper in detection and prevention of individuals federal role?” For years, scholars have committing the 9/11 homicides and atrocities questioned the wisdom of policy makers on innocent people? We can speculate but regarding expanding federal police powers. never know. But it is imperative that Adams, Madison and Jefferson are often permissions of intelligence agencies be the quoted by academics in addressing the subject of public policy debate, constantly. increasingly disturbing expansion of federal jurisdiction all based on a loosely deter- What is My Legacy? mined interpretation of the Interstate How I Made a Difference Commerce clause, from which most all of federal law enforcement authority derives. I attempted to be a role model by: Operations people should never cede their • being a caretaker of the institutional authority to technocrats, who do not have the values, training, the education, or the experiences to • being knowledgeable on the organiza- understand organizational cultures and tional history and the proper role in a human behavior in the organizations. Nor democratic society, do they understand the mission or the • being accessible to all employees on a functions required to meet that mission. timely basis, Hence you have an efficiency model • avoiding the seven deadly sins – technically, if you are lucky. categorized in ancient times as lust, gluttony, avarice, anger, pride, envy and sloth, What Would I Have Done • developing and maintaining an under- Differently? standing of politics. One cannot truly understand the criminal justice system I cannot provide an example of what I would and its significant role in our society if have done differently. I am an entirely he does not understand the strong role different person today. One cannot go back. played by policy makers (our Congress), I am hopeful these thoughts help to inform. • being aware of the history and where leaders come from. They come from There were many actions or practices those who are readers of the classics more not initiated due to a political environment. often than not. They learn the discipline They were the result of media pressures, of the mind and the history of thought and government interference, and the policy civilizations of those who have gone environment. Other contributing factors before us. They are regarded as more originated in constitutional issues, the courts, educated because of this knowledge. case law, domestic issues, legislative bodies, Education and an informed mind generate and executive branch policies. I regard all of more options to deal with conflict. these factors as the responsibility of an employee to deal with and manage these I always expected to be held accountable competing challenges. Almost all fell within for my actions and lack of action. I tried to or were directly related to the broader issue of monitor the growing tendency to add policy setting which was not the responsibility additional responsibilities to the mission of of the organization. Rather, that responsibility the FBI that was done in haste. Currently resides in the executive and legislative there are far too many federal crimes branches of government. There is no control (reportedly in excess of 4100), most dupli- over external forces and influences. For the cating state and local statutes. Chief Justice FBI these external forces include Congress, William H. Rehnquist has called for a review the Administration, and the American public. of our national priorities regarding crime for There are no prescriptions.

36 An Absolute Fidelity to Public Service

Conclusions and Lessons Learned models. It is extraordinarily difficult to reconcile contradictory objectives in an The 2000s have resulted in a “technology” organization. For example in the early 1970s era. I have many concerns. Operations Congress was opposed to records maintained managers should never abdicate their by the FBI. Yet law mandated the FBI to responsibilities and turn decisions over to receive any information a citizen might want information officers or technology experts to provide no matter how Machiavellian it who unfortunately do not understand might have been. Another law prevented the organizational missions, cultures functions FBI from destroying information. and investigators and managers. The information officer and technology staff are Periodic scandals that prompt an interven- severely restricted if deprived of the critical tion by the policy-making bodies and its knowledge and active direction of the support by the media and popular culture operations staff. This is occurring with make for an extremely complex environment increasing frequency at the federal level. for federal law enforcement managers.

The proliferation and suffocating satura- Few budgets on the whole can permit a tion of the myths of how forensic sciences, leader over the long term to sustain educa- intelligence gathering, analysts, surveil- tion, service and research programs. There lances, data mining have or will solve all our is too little research on strategy. The crime investigations are beyond comprehen- apparent sunset of the Police Foundation has sion. Investigators solve crimes, and the caused research on strategies to slow to a role of forensics is grossly overstated. More crawl. As a fact, it may be dead. research on the real and important roles of these new tools is desperately needed. In federal law enforcement, employees want to know about “real” FBI Agents, and So what lessons do I posit? Be an astute yes real bureaucrats. What you and I might observer. Resist being a pawn in and to the call “professionals.” People want real life system. Be independent in thought and deed, lesson illustrations that provide information, but not to the extent of being viewed as lessons learned and that contribute to their isolated or one who “does not listen.” Every idea of “law enforcement lore.” law enforcement agency is a bureaucracy. This is good and bad. It can work to your You need real hard-core information and disadvantage. Never discount the value of an resources and universal trust to help you pre- employee. People hunger to be valued. pare your people. Each supervisor and ad- ministrator should know of terrific stories that During my tenure with the FBI and my can prove instructive to their colleagues in observations since leaving, it was and is, the law enforcement. Learning is a life long im- exception rather than the rule when an perative. We all learn about preparedness – individual betrays himself, his family, what, when and how to execute. More often organization, associates, and his country. than not, people shy away from this. That kind of behavior is usually not so much an omission of leadership but a character To address a challenge you want to tell fault of the individual. your colleagues what you came up with, what worked, and what didn’t, what re- When law enforcement agencies fail, it can sources they might find useful and how you be the result of constant negative headlines, funded your program or effort. which call into question the ability of law enforcement to manage itself effectively in a Well meaning political leaders love to democratic, diverse society. Examples show up at disaster scenes and have their include the work of the Church Committee, pictures taken in hard hats and reflector Peterson Committee, Pike Committee, vests as they inspect the rubble or hug a Watergate, and the allegations of burglaries. survivor. Press conferences and photo Government agencies are not efficiency sessions displaying the presentation of

37 To Lead, To Learn, To Leave a Legacy

enlarged checks to law enforcement officials checking our caller IDs. We delete emails, unfortunately do not seem genuine. A discard volume mail, and daily decide what to proclamation of their support for “our nation’s ignore. We have built barriers around our- true heroes,” to TV audiences as the awards selves and created for privacy artificial filters and pinning of medals on uniformed chests which tend to isolate us. We think in a way occur all seem surreal. With few exceptions, that requires proof of the relevance of some- these activities do not appear to be sincere thing before we take the time to look at efforts that result in public reassurance. something new. All of this makes the task of a Effective law enforcing must combine leader more difficult because our employees approaches, attitudes of citizens served, learn to condition themselves against change tactics, strategies, policies and programs and and intervention as never before. We must most importantly the competencies of their convince others as never before of the mean- entire staff. ingfulness and effectiveness of new ideas.

Avoid societal pieties fashionable rhetoric, First reports of incidents or situations only and lofty attitudes. It is popular to criticize inform that something has occurred. Rarely, the “police culture” or FBI culture even if ever, are they accurate as to what hap- likening it on occasion to organized crime pened, how and why. To be fair you must culture. This overlooks the necessary rule judge fairness through the eyes of the bound imperatives for law enforcement. If a employee and his/her peers. law enforcement agency is truly responsive to the citizens it serves, it is mandatory to have Always adhere to the idea of the ideal, that rules and regulations, and yes, even be viewed rightness and perfection are there, but only if as static when enforcing laws and protecting we can keep our tether line anchored to what the rights of citizens. The two are NOT mu- life and caring “ought” to be. Conduct tually exclusive. Law enforcement represents yourself with an absolute fidelity to the in our country the only agent/instrument of intentions of public service. government that is the most visible arm of government charged with a legitimate I believe that I was a good steward of the bureaucracy, empowered to use force to enormous trust placed in me by former FBI maintain political order. Advocacy groups Directors, Attorney Generals, Congress and who become locked in on a particular point the American public. often grossly misunderstand this role. Man- ning, Alpert, Dunham, Bayley, Bittner, Hey- Semper fi. mann, Kelling, Klockars, Mastrofski, Reiss, Skolnick, Wilson, Blumstein, and Amnesty International have often discussed these issues in their search for structural changes.

Experiences – Lessons Learned or Learning Lessons

It is difficult, maybe impossible, to transfer the value of my own experiences. Teaching is a most difficult task and one must excel at inspiring others. It is a constant challenge and it is rare where one can be all things to all people but you must try…try…and try over and over.

People will ignore everything they can without jeopardizing themselves. In our world today we monitor phone calls by

38 Survival With Honor Survival With Honor by Charles P. Connolly

rior to 9/11, it was reasonable to Teamsters Union providing similar leader- suggest that the police role and its ship challenges. While sharing my learning Ptraining was reactive in nature. experience, I apologize in advance if any Terrorism, 24 hour media, instantaneous professional sensibilities are affected. technology and the continual emergence of single issue groups have changed the way As part of my introduction I would like to populations and police conduct themselves. make a comment about leadership in As such, Police Executives in dealing with general, particularly as it applies to the today’s complex issues similarly need to police and military. Much of the literature be proactive. we absorb involves qualities enumerated within the latter’s operational philosophy. Having been part of the police profession Without denigrating its value, I submit that 1 for some 36 years, 12 /2 of them as chief there are “ distinctions with a difference” executive of two police agencies, I welcome particularly as it affects operations and the opportunity to be heard if not necessarily environment. We are similar in developing a paid attention to. Having been a member of strategic plan accompanied by tactical the NEI for 23 years I am well aware of the initiatives, utilization of personnel, equipment abilities, talent, and leadership qualities of and resources. We do not share a common its membership. Therefore, it is not my public. Further, I sense a distinction in the intention to address a legacy commitment in sense that military operations are primarily terms of adding to the “Leadership” litera- engaged in some form of a “beachhead”, ture. While I have been an adjunct professor where its leadership ultimately moves opera- at four local colleges and one semester at tionally off the beachhead continually probing West Point, there are more gifted writers and attacking the enemy’s weakness. If than I available in our membership. Rather I successful, they encircle the opposition and would like to offer some personal behavioral render them harmless. practices, style of management that allowed me to survive with honor. My sense of policing is that we never get off the beachhead. There is no finality to our In terms of some background, one “battle” plan. Our opposition, absent the department was 650 sworn personnel while suppression of criminality, is ongoing and the second agency consisted of 1300 just a part of our leadership commitment. personnel. My initial executive position Our adversary, if one can be called such, 1 consisted of 4 /2 years in the fourth largest ranges from an aroused, anxious even city in New York with four City Managers, critical citizenry, to that of the media and four municipal strikes involving police and political process. Our focus is not to fire services, one in which the ranking neutralize the opposition, it is to serve it. officers (Sgts. to Chiefs) went on strike for four days. During my tenure, I presided over The difference, I suspect, is that police the arrests of some 15 members of the leadership to be effective requires a number service from Officer to Captain. Additional of competencies separate and distinct from arrests included the chairman of the Demo- the military model. Police leadership is not cratic Party and the City Planning Commis- an academic experience. It’s an action, not sioner. My 22 years with the NYPD helped an intellectual activity. In an in depth shape some of my coping skills in this city exercise the Gallup Organization inter- and upon my return to New York City’s viewed over 80,000 leaders and managers. Hospital police for eight years. The latter In interviews of one and half hour duration department being represented by the the surveys revealed one particular shared

39 To Lead, To Learn, To Leave a Legacy

trait. Leaders did not hesitate to challenge boss and own the “limelight” but that rules held sacred by traditional wisdom. there were understandable limits They were not necessarily “rule breakers”, governing our relationship. but they would not hesitate if such needed to be challenged. There are many smart In the 12 years did I have problems? individuals who will say that some rules are Absolutely. Two even tried to remove me, so successful that they are immune to unsuccessfully, I might add. But such a criticism. In today’s environment it would be simple type conversation acknowledged worthwhile to examine those assumptions. what I term the “unspoken conversations” Leadership is a way of thinking that devel- that managers, and many others, have but ops over time, a process that causes change never verbally communicate. Also in and growth. It is not a simple menu. Differ- accepting my appointment, the manager ent personalities are comfortable with a knew that I would be hard at work taking variety of approaches. The size of your care of his position while serving myself and organization does not determine the size of the department as well. your thinking. Today’s leaders have to deal with ideas, creativity and the understanding Keeping the Position that different relationships can occur among different groups. You can’t solve a problem Having obtained the position, there are a with the same mindset that creates it. That number of things that should be on your applies to us as well as those we deal with. mind. How do you grow into the job, enlarge My contribution, for what it’s worth, is to your support base and fill staff positions? I offer an abridged sense of my “reality” in have always felt that you don’t require a dealing with reporting relationships, the majority support of the citizenry to keep media, political process and the community your job, only a majority of people of in all of its diverse forms. influence. If there appear to be no real obstacles I suggest you identify these people. Obtaining the Position They come from the administration, busi- ness, religious, ethnic and political commu- The fact that I had four city managers during nity. Set up interviews and seek their one four and a half year appointment may be comments on what is needed, what did they unusual. Yet it was an interesting experience admire about the previous regime, what as I was always being interviewed for a job didn’t they appreciate. I don’t have to de- that I already had. For what it is worth I velop the questions. You know most of them. always tried to simplify the process. As such, I would reduce the conversation to the Further, it doesn’t matter whether you following points: establish programs and policies based on the • I am being interviewed for a job that I information that was collectively obtained. already have. Your boss probably would not like additional • You have ample opportunity to gauge credit seekers. Actually no individual credit my current effectiveness and job should be given because you want all of performance. them to sense in any new undertakings, • I don’t have any problems with you something that all might view as part of their “being the boss” as long as you never contribution. The real objective is that you ask me to kill someone, commit an will start off with far greater support than the illegal or immoral act. (I was smiling at day you were sworn in. I should mention that this time.) if you choose not to use their “collective • I have no problems with your adminis- wisdom” it still doesn’t matter. Those tration taking credit for any improve- interviewed will still recognize your product ment or job initiatives. I would add, as their contribution and support your however, that I have no problem programs. Egos tend to blur reality. because I am capable enough to get a share of the credit. In a sense I was Review your selections with a wider net recognizing his or her need to be the than simply “friendly recommendations.”

40 Survival With Honor

Your selection of local friends should capable individual to carry it out. Obviously initially be somewhat circumspect. Your first I don’t have to tell you which one to select. new friends can become an “ albatross around your neck.” I have counseled many While I am on the subject of command to be aware of the “functional relationship” personnel, there is another type which I that occurs when a new Chief arrives in respect but who unfortunately limits his /her town. Many of these relationships have a potential. For most of us in law enforcement, duration based on one function – your financial success is primarily dependent Chief’s position. These “friends” and this upon successfully passing exams and relationship is transferable to the next Chief. assuming the responsibility of command. Should you ignore these friendship over- There are individuals who are great cops but tures? Absolutely not!. Just be aware of such have an aversion to being responsible for the so that you and your spouse don’t feel a performance of others. Yet, financial future disappointment. Besides many of incentives motivate these people into these relationships fall into that influential positions that they may be capable of support network that you need. performing but are reluctant to do so.

Staff is another consideration. You should At the risk of throwing or compressing too value all employees but promote only the many personnel issues into one pot, let me capable. Unless your appointment is remind you that there is one other personal- predicated on “cleaning house” it probably ity that could be of interest to you: that of wouldn’t hurt if you use some time to the gadfly or Mr. Negative. You have them evaluate the personnel moves you feel are at all ranks. Some Chiefs discard or transfer necessary. Getting a feel for the existing them away from the decision making culture and its personnel might lessen process. I suggest a better use for the pushback or resentment. Besides some stars brighter ones at least. When developing shine slowly. Moving someone up a rank of policy and programs with key staff mem- two has value. Those individuals feel they bers, you run the risk of group approval have a contribution to make and, fairly or without debate, who too often settle for the unfairly, often believe the existing command first right answer but not necessarily the best staff somehow held the department back. answer. From my perspective, an agency Unlike the top command, they may not failure or the seeds of its destruction can believe that they are ready for the top job often be found in the tendency to make the and will serve you well in the hopes of boss happy, protect turf and avoid associa- future recognition. While you are reviewing tion with failure. Why would you want a staff it might help to determine just who is gadfly screwing up your consensus group? more interested in “doing the job than Well, whatever plans you have for the keeping the job.” community there will rarely be consensus within the community. That’s why successful I have found that people who appear busy politicians are always compromisers. Paying are not always working. I have found two attention to the gadfly’s opinion doesn’t specific groups of police managers that need imply implementation, only surfacing other addressing. It’s called the “symbols versus ways how public opinion may play out with substance” factor. Fortunately for us, the police initiatives. You have an opportunity latter group prevails. The “symbols” to weigh options not normally introduced individual is the one who succeeds largely around the table and consider ways to on the notion that he or she will take every introduce or deal with a controversial issue. benefit or perk available in his/her current rank. Their actions suggest that the depart- While we are on the subject of handling ment and its membership primarily serve the staff personnel, executives shouldn’t waste needs of the ranking officer. The “sub- too much time and energy trying to get stance” individual, despite any faults he or employees to overcome their faults and she may have, functions as though they have weaknesses. From my perspective, people a contribution to make and are the most don’t change too much. Therefore to be

41 To Lead, To Learn, To Leave a Legacy

effective, focus on their strengths and them. The press always has the last word. manage around their weaknesses. Further still, That doesn’t preclude you from developing try to focus on opportunities rather than appropriate responses. problems. While people appear to learn faster through adversity use encouragement freely Long before a bad story hits town you suggesting that faults seem easy to correct. should be considering how to handle a host of unfortunate situations, e.g. corruption, I mentioned earlier that I dealt with four brutality, racial incident, failure to respond. strikes in four years. One involved every More and more, particularly involving ranking officer including chiefs on strike for terrorism, we are utilizing desktop exercises four days (one captain against tremendous to conjure up scenarios or threats that might pressure refused ). We were on television occur in the future. As the response develops every day. I had to support the administra- we increase the degree of difficulty in tion, and despite strong personal feelings overcoming the threat. Such exercises help neither condone nor condemn the walkout. I us to better prepare and manage crisis. Use realized that I needed their support to carry your staff or even other sources to script out future programs. Playing the good possible incidents that generate criticism in politician allowed the bosses to return to the media and the community. You are more work, a number of whom apologized for likely to lose your job in those circumstances their behavior and expressed their apprecia- than a terrorist incident. Developing re- tion for any lack of hostility displayed by me sponses prior to the actual incident places during the incident. you on a better footing in meeting the challenge and putting a positive spin on your As long as I can remember I always tried message. You and your staff are better to see pass the fog or beyond the incident at prepared mentally for an actionable response hand. I know it’s somewhat of a cliche but for controversial scenarios. These thought for me it’s always been the journey not the out responses are immediately retrievable destination that provides me with satisfac- from the files. tion, the challenge not the reward. Peggy Lee said it better when she sang “Is that all In any situation you should never take a there is?” call from the media without writing on a piece of paper items that help convey a Someone once wrote that having a positive message dealing with the subject at purpose in life is a life of purpose. At times hand. For example, if the subject deals with I found that the introduction of change a bad shooting, try to mitigate the outcome provided a clear purpose. My mission by introducing possible police actions, some whether I knew it at the time was to get planning notion, that would explain or others to feel the same way. I have learned mitigate the police response or reduce such many times that what happens to us doesn’t an occurrence in the future. With a little matter as much as does our reaction to what creativity and forethought one can link a has happened. Our reaction separates the training initiative, a grant, a new policy, all achiever from the ordinary. of which can enhance or reduce or prevent the issue at hand. Dealing with the Media One of your responsibilities is too manage Many of the NEI Associates were fortunate perceptions impacting on your department. to have the late Jerry Nachman and John Remember, a reporter only becomes conver- Miller provide numerous training sessions on sant with his subject after you prepared him. handling the media. It is not my intent to Don’t rely on his good judgment or his/her offer their advice on dealing with the media. ability to do research. Focus on rewarding However, I will reiterate Jerry’s admonition him/her with positive agenda items and not to forget the local members of the press upcoming programs. Don’t be reluctant to when a big story breaks in your city. You act like you respect and admire the reporter. have to live with the local press so feed Use the interview situation to be creative in

42 Survival With Honor driving home the message that this depart- public during your tenure. Always act as if ment realizes that people want to be assured you are talking to an audience for the first that everything that can be done is being time. When pitching such a first message we done, and what is being done is being done have a tendency to project a more effective well. Remember you are the expert on the image of care, concern and a sense of subject that the reporter is asking about. urgency. It worked for me. Make him/her your messenger. Often we become very friendly with some print or Some of you may find useful a technique video reporters. It’s part of the process. that I always used in speaking to various However, let me caution you that despite any audiences. Upon your arrival, whether it is pro police position on their part don’t divulge an emergency meeting or a regularly a story you don’t wish to see go public. Their scheduled event, those in charge may profession evolves around great stories not request that you go right on and take personal or agency damage control. questions from the audience. Resist the request and insist on making a brief intro- The Community ductory statement prior to taking questions. This allows you the opportunity to raise and Accountability is becoming an overused respond to anticipated questions according term in our organizational jargon. Neverthe- to your format and comfort zone. Working less, it is an increasing burden for police the issues in a prepared, yet concerned and leaders in responding to the various constitu- caring manner, offers you an opportunity to encies we seem obliged to serve. Ideally defuse and take some of the sting out of the these “publics” should be equally account- complainant’s charge. You are controlling able in their responsibility to understand the the introduction, timing and significance of limitations on democratic policing systems. controversial issues, minimizing an ava- lanche of complaints that can give an Increasingly, there is a lack of understand- appearance that you lost control of the ing on the use and consequences of our use meeting. The latter situation could easily be of deadly force. The application of lawful the next day’s news story. and necessary use of force often involves conflict and physical contact resulting in Yes, angry individuals will raise the same unintended consequences. The police are complaint you addressed but by initiating the often placed in public positions in which we issue you begin to mitigate its impact. Some restrict ones activity on the behalf of another will have solutions for which there is no citizen or group. Under such circumstances problem. Worse, some will have problems for someone will be unhappy with the result of which there is no solution. Still many in the any police action. audience will empathize with your handling of the event given they are aware of the Police chiefs can often find themselves concerns you introduced. Given the circum- operating among numerous uncertainties due stances and importance of the meeting you to an individual or group’s political, cultural may tell the host that you want five introduc- and social ideologies. Worse, such uncer- tory minutes but don’t hesitate to take 15 or tainties create demands for action or minutes or more if such warrants. You are restraint from the diverse groups we service. responsible for enhancing the communication I believe there is a responsibility on our part environment. A few additional points might to educate these diverse groups. I believe it be appropriate at this time. is important for new chiefs to always remember that in terms of public communi- Enroute to any meeting you should be cation, you are always talking to a parade. mulling over the potential for questions Those who heard your message easily forget that might be asked. Review and control and many move on simultaneously while your hot buttons because you don’t want to new persons take their place. The remedy give the greatest speech you will live to for you is never assume that you have been regret. If your responses favor righteous getting a consistent message out to the anger, use it for an advantageous reason.

43 To Lead, To Learn, To Leave a Legacy

Also, don’t ask questions for answers you Fortunately I had both. I truly felt that don’t want to hear. removing such perceptional distractions was an effective way to convey the sense of I think we all recognize that we can’t pick sincerity needed. Granted exercising this the environment in which we live nor the type of communication style doesn’t fit circumstances under which we operate. But everyone’s personality or management style. there are parts of the environment that you However, it might prove useful for new can invest some time and creativity. I might chiefs to consider what is on display in their also add that your public communication office that can jeopardize their efforts to responsibility requires that you establish the defuse or resolve a difficult situation. environment that transmits the most favor- able message to its recipients. The example I While on the subject of communication let am going to cite might be seen as demeaning me offer an insight in dealing with politically or politically incorrect. In many appearances correct or seemingly unfair police criticism. at the annual IACP conferences, the audi- Physical courage is not a scarce commodity ence response confirmed my belief that in the law enforcement culture. But the while creative it was an effective communi- ability to stay the course in the face of unre- cations tool. You be the judge. lenting hostility and public attack can be difficult, to say the least. Even in local Whenever, a group of citizens, a local government, cries for peace at any price can NAACP chapter or ad hoc group met at my be found among those whose support we office to complain about an issue that was need. Institutions, including local govern- difficult to identify or quantify e.g. alleging ment, don’t give out to adversity and opposi- that police officers were disrespectful to tion, rather they give in to it. Yet, every issue women of color, I would not hesitate to is not a do or die conflict. Given the impact innovate if such would enhance my message. on those who follow you, there are issues Recognizing that perception is reality with worth defending. However, you don’t have groups who sense a history of police neglect, to be suicidal over the outcome. or worse requires more than just listening with a promise “to look into this matter.” Therefore, let me suggest that when you Even if I believed the meeting was a politi- feel obligated to take a strong stand in de- cally inspired event, the same format would fending your administration shift some of the apply. Naturally, our major response would burden by creating a “straw man.” Obviously, include the potential of additional training or there is some support out there for your views. inviting them to address some portion of the Therefore, use statements such as “there is a troops. Realistically, the lack of specificity body of thought, or a number of professionals, limits the options for solution. Yet, there is even a body of research” exists that favorably the necessity of conveying a sincere image of address your viewpoint or counterpoint. concern and follow through. Remember you are not obligated to provide chapter and verse, citation and address, in Creating a receptive environment includes developing support for your position. Your a review of your office for any awards or opposition doesn’t. Basically you are provid- photos that a particular group might consider ing your position a little more cover and alien to the group’s interest. Regardless of support thereby reducing the critics opportu- my personal opinion, a photo of an indi- nity to demonize you and your position. So vidual such as the publisher of a major when there is something that needs to be said, conservative magazine or highly publicized don’t hesitate to suggest the general notion law and order advocate can add to the that there is support for your position. perception, that contrary to what the Chief says, their best interests will not be aggres- In line with providing various groups with sively pursued. By removing such items an understanding of complex issues, be from view replacing it with a photo of prepared to deliver similar messages to the persons or politicians they identify with troops. One of the difficulties I found is that enhances the communication environment. police officers lack history or understanding

44 Survival With Honor of the nuances and cultural disparities policies and training may reduce the among traditional minorities and emerging effective adverse impacts created by those immigrant groups. Police have a history of claiming to speak for “our people”. outreach programs with various minority and immigrant groups, some more successfully Compounding traditional perceptional than others. Given that current migration problems associated with immigrant groups, trends suggest “parallel societies” emerging we may also be witnessing another new im- within the mosaic of the cultural diversity migration whose population’s experience and experience, police can anticipate even view tends towards the “collective good of further difficulty in bridging police commu- the community (society) as opposed to this nity initiatives. country’s traditional notion of the primacy of individual rights. Time will tell whether such I found it worthwhile to include in our will be another learning lesson for us. training the notion that not only the newest arrivals to our country but traditional ethnic, While I am preaching to the choir on religious minorities as well, came from training needs, let me comment on a countries where policing systems were problem that I felt impacts on some police neither democratic nor interested in provid- brutality or even perjury charges. We often ing safeguards or the police restraint taken use the term “turnstile justice” to describe for granted in this country. Their prior leniency on the part of the system’s incar- experiences and old country history were ceration policy. Granted, we now have the passed along to first and second generations lowest crime rate in the nation in several shaping their perceptions on how police decades. However, what goes down eventu- operate. These same out of country experi- ally goes back up. Crime rate or no crime ences can be perceptionally matched by rate, too many officers internalize the failure older blacks and passed along to later to incarcerate people they feel richly deserve generations regarding past practices, punishment. Such may result being that they particularly in the south, but not exclusive to have to deal with victims regardless of that region. They insulate themselves in whether their complaint ever reaches court cohesive enclaves thus reinforcing such resolution. That, in my judgment, results in belief systems and perceptions. While many some officers feeling the need to met out of these perceptions are innocently perpetu- some form of street justice or perjure them- ated, unfortunately self aggrandizing activist selves in court. If we are not doing such, leaders accommodated by the media training should include a clear understanding continually fuel the fire. that we are only one part of the justice system and not responsible for the distribu- We need to keep reminding the troops that tion of some notion of justice. Such empha- simply proclaiming that our American sis might reduce some of the tragic and un- policing is different doesn’t stop adults from fortunate circumstances some well meaning passing on “horror stories” admonishing but over zealous officers find themselves. their young to avoid contact with the police. Despite distance and time, passage of civil Speaking of Community Activists, I would rights legislation, great currency is given to like to explore the possibility of police ex- such perceptions. Despite tremendous ecutives identifying and developing commu- changes in police dealing with diverse nity leaders within those communities, par- groups, tremendous challenges still exist for ticularly religious and business leaders who the police profession. Yet if police officers truly care for the well being of their commu- are trained to recognize that such beliefs and nity rather than seeking a launching platform perceptions are rational given the dynamics for political self aggrandizement. I found arising from past histories, I believe such a that such “real leaders” are reluctant to step mindset would better serve them in dealing forward, particularly when they witnessed with such groups. Conflict arising from the the theatrical antics of those claiming to “us versus them” mentality may be lessened. speak for the community. They need to be If recognition is given to its existence, police encouraged. That “reluctance” or reticence to

45 To Lead, To Learn, To Leave a Legacy

serve, while still acting in the best interest of I think we are all aware that history is a their communities, makes them ideal commu- great teacher but it is important that we use, nity representatives. I am not suggesting that rather than abuse, its lessons. Despite the these individuals be “co-opted” for a police need to think out of the box in a changing agenda, but their lack of an anti-police society failure to pay attention to that which mindset is sufficient reason for police went before us will have consequences. Yes, investment in encouraging their participation. despite the exaggerated push and pull of current events, we must learn from its The new operating reality for police lessons rather than ignore them. Misreading executives should be responsible for investing a situation may be intentional or simply out in community talent searches at the commu- of ignorance. Have we not witnessed nity level. Both the community and the politicians and self proclaimed leaders delivery of police service will be better pursue laws and policies supporting their served. Failure on the part of responsible cause while ignoring or filtering anything political, religious, business, even police that contradicts their self interest. Therefore, leaders to engage in such worthwhile commu- you need to be vigilant in your own self nity investments encourages unchallenged process, as well as those who serve under pathways for community demagogues. you, as the tendency to practice selective research is all to tempting. For us the ends Negotiating and compromising is an don’t justify the means no more than those integral part of public service. Therefore, with whom we disagree. any type of negotiating, written or verbal despite existing difficulties should conclude The ultimate test of an agency’s strength is on a positive note. Why, because the not what it says they can accomplish, but what conclusion of one negotiation is often the they actually accomplish. Even if one is on the starting point for the next round of negotia- right track, you’ll get run over if you just sit tions. Playing “we won” only energizes the there. Don’t simply write a mission statement. opposition to seek revenge or exact a higher Energize its focus by the creative and judicious price in the next set of agreements. Also, if use of your staff and department. Also ,a you really want to drive your adversaries results driven organization is fine but not crazy make out like you like and respect without holding people accountable. In them. The art of making believe you like and hindsight, I would have reorganized more. respect someone can be shared even with your staff and the troops, or practiced on When prior notice as to ones accountabil- your colleagues in government, even the ity has been given, with the proper encour- media. Why you might ask? It should be an agement people get excited given new acquired art, because there are those whose opportunities. It brings freshness and new cooperation is necessary for your success yet eyes to the problems and issues. Those who very difficult people to deal with. Therefore, don’t, can now be dealt with fairly as the whether you are educating or co-opting, act game plan was put in front of them. as if you like and respect your adversaries. Remember that committing to a program I sense some of my colleagues practice the or project is not a commitment to marriage. craft without understanding the psychologi- Some initiatives seemingly worthwhile, cal dynamics. Over time you will observe a simply won’t work given a lack of resources, change for the better in these relationships. If financial support, community culture and you think about it, how can someone dislike resistance and the ever present media and or denigrate an individual who has shown political opposition. The learning lesson is such great judgment in admiring that that the project, or even policies that are individual’s talent and skill. Are there terminated are not failures. Rather they were exceptions to my principle? Absolutely. In pilot projects, trial policies that needed that case you may have to go around that further research and adjustment. When I individual and work on his subordinates or to introduced a program I always tried to get his reporting relationships. several “bites out of the apple” in terms of

46 Survival With Honor community relations. I would introduce the interviewing the so called street witnesses, program or project and down the road perjuring themselves with tales of horrific include an interim report with a final press police stories, does not help your release at its conclusion. Getting staff to reputational capital nor the morale of the think in such terms is not always easy. troops. I recognize that prosecutors and city Traditionally we identified the problem, hall types have a different slant on the issue, worked the solution moving it on operation- but we have to develop a reporting process ally and to a large degree left it to field that doesn’t leave us defenseless and mute commanders. Some aspects may survive during a community dispute and crisis. without follow up but best practices require an occasional review. It’s possible that a I would like to believe every one of us more effective response may be waiting to thinks we have what it takes to be success- be discovered. ful. I also believe success is preparation bumping into opportunity. It has been my Also, I tried to avoid any connotation of experience that opportunity can lurk failure in meeting our objectives by remind- everywhere. The problem for some is that it ing myself and others about Thomas Edison’s sometimes comes disguised in work clothes. philosophy. When asked how he could handle Yet, even when opportunity arises, some of a thousand light bulb failures, he would reply us don’t seem to have the mental toughness “I didn’t experience a thousand failures, I to go for it. Unfortunately some of our role found a thousand ways it didn’t work.” You models and mentors did not lead by good won’t have as much time as Edison did but I example, often taking the path of least or no hope you get the message. resistance. Yet, risk aversion has never been a crowd pleaser. I believed it was Teddy During my 44 years in the protection Roosevelt who praised the intrepid who profession, I have observed the tendency to entered the arena and unlike the timid, address issues and circumstances that appear understood the thrill of victory and the more favorable to resolution and/or political agony of defeat. It is not an easy chore as the and media attention and approval. The code media too often ignore the existence of real of “survival with honor” requires that certain positives in favor of the negative, making it things need to be done in order to get certain more difficult for the police to close the gap needs accomplished. But we should and the between perception and reality. public may at some point, aware that there are consequences. In our planning do we Political and community activists tend to surface only those problems that our complicate matters, more particularly when solutions can address. Do we tend to things are not going well. Even the civil compartmentalize our planning ignoring the liberty groups seem to have lost track in impact on other parts of the agency or other their focus on making the law enforcement departments? In resolving an uncomfortable effort more difficult, as if that was a laudable crisis, i.e. a police shooting, do we focus on end in and of itself. Hopefully, I may be actions that are “doable” while not address- wrong but I suspect there is an organiza- ing the long term dynamics involved in the tional tendency to adopt programs and incident itself? In our haste to get it off the policies that accommodate anti police headlines, do we fail to educate the public criticism rather than pursue more appropri- even if such may be uncomfortable to some ate policies. members of the community? Regardless of my opinion, risk aversion While on this topic I might recommend behavior is never the best prescription for a that we rethink our statement “we can’t healthy police department or its reputational comment at this time as this is under capital. Institutional pessimism needs to be investigation or until a review of all the discouraged. I suspect that risk aversion is facts.” Prior to the 24/7 media cycle, that often influenced by perceptions of uncer- strategy probably did more good than harm. tainty. As uncertainty increases, risk But remaining mute while the press is aversion becomes one of its casualties. It’s

47 To Lead, To Learn, To Leave a Legacy

important to reverse uncertainty by introduc- Finally self promotion is not a sin. The ing action and/or activity. Unfortunately “meek may inherit the earth”, but I am not today, partisan inspired rhetoric trumps the sure I want to be around when they are in day. Therefore, police executives also must charge. Visibility doesn’t guarantee success have and “keep on message.” by a long shot, but at least the public knows who is in charge. Your success is not There are some worthwhile activities we determined by anonymity. But visibility can emulate from the political process. If doesn’t work without performance either. you don’t have good news to deliver then Sometimes you even get a chance to make focus on the efforts in play that will create real “script” changes. People give you credit the desired turnaround or minimally the for being smarter than you are and for perception of future positive results. Talk up accomplishments that others deserve more the challenges involved and the opportunities credit. Most folks aren’t given any such present or being sought. Don’t be a one wonderful public service opportunities. Your person band. Get others involved through challenge is to make the most of it. creative activity. It’s been my experience that you are likely to discover a rooting section out there to counteract police criticism.

People are looking for real leaders not just individuals who command large groups of personnel. You can’t afford to be like the judge who answered “you are right to the plaintiff s lawyer only to be challenged by the argument of the opposing attorney and responding you are right. The court clerk stepped up to the bench and said your honor they both can’t be right. With that the judge responded you know you’re right.” Think ahead, but speak out on the issues. We need to think and act more positive in our planning and initiatives. Develop a sense of curiosity and put it to practical use. Some of our colleagues act as failure is to be avoided at all costs. That cost, in my judgment is too high a cost. We need to think and act more positive. We have an army behind us. It has to be fed and you determine the menu. Consider “failure” as just fertilizer for success. I have to confess that a number of colleagues and friends believe I know more about fertilizer than success. Notwithstand- ing their opinion, success was for me a series of tests and challenges that took me out of my comfort zone. Possibly I was too dumb to recognize those predicaments that engaged me but I loved the game.

Despite the falsehoods made and criti- cisms aired, the endgames made around me, the lying and cheating you encounter, I still feel that we are given a front row seat in one of life’s greatest shows.

48 Be Focused, Be Honest, and Show You Care Be Focused, Be Honest, and Show You Care by Lee D. Donohue

First Lesson – Be Nice! was always open to our employees and I was also accessible by email. Being nice is not a weakness but a sign of strength; in fact it is much like the “Golden I have often been asked what I would like Rule” in treating others as you want to be my legacy to be when I left the Department. treated. My answer, I would like to be known as a Chief who cared about his people! I remember when I was a young officer walking through the main floor of the As the years passed, I learned from other Honolulu Police Department. I saw one of officers that they were also treated in the our Captains standing near an escalator that same manner by the same Captain. They I had to use. This Captain was a well known never forgot that glare and that silent “HOW person in the community and in the Depart- DARE YOU!” Needless to say, he was not ment. He was known as a “NO NON- well respected or liked by the officers. I was SENSE” person and was feared by many in glad that I never served directly under the Department. As I passed him, I stated in this Captain. a crisp and respectful manner, “Good morning sir.” His response was Second Lesson – Stay Focused unbelievable. He did not utter a word but and be Honest! instead just glared at me and the message I received from his facial features was “how As the Chief of Police of a major city Police dare you speak to me.” I have never Department, I have had my share of adversi- forgotten that day. His response at first left ties. Some of these included police me feeling empty and speechless. What shootings, scandals involving corruption have I done to this man to warrant this type within the Department, allegations of wrong of treatment? I did not know this man doing by our officers and employees, and personally and I did not have any prior attacks on the administration by politicians, encounters with him. So why did he treat public employee unions, the media, other me with such disrespect? government agencies and the public. The first rule is to accept the fact that you will That one event, more than anything else, face these challenges. shaped my philosophy in dealing with people. I told myself that I would never be As the leader of the organization you must like that Captain. I would always treat others step forward and answer the allegations or with respect and dignity, which I did inquiries about any ongoing investigation. throughout my career as a police officer. Today, the public expects some official response from the Department. The more Throughout my career and especially serious the allegation or incident, the more a when I was the Chief of Police, I took the response from the Chief is expected. If you time to acknowledge our employees where- choose to say “No Comment” you have ever I met them on and off duty. I spent time made a comment. You must stay focused on to find out what was going on in their lives. leading the Department! Allegations or If they were ill or injured, I would visit or perceptions of possible wrong doing must be call them to let them know that I cared and if acknowledged. As the leader, you need to I could do anything to help them, I would. assure the public, the city administration and I went to family funerals of our employees your employees that you are aware of the and social events hosted by the various facts involved in the case at hand and that it divisions within the Department. My office will be fully investigated. At the same time,

49 To Lead, To Learn, To Leave a Legacy

if there are allegations of wrong doing by However, you cannot take advantage of your officers especially in criminal cases, you this situation. In my experience, it was need to remind the public that these are better to work with the Directors of other allegations and your officers are entitled to agencies and gain their trust. Usually in a their constitutional rights and they are budget crunch, money is moved from other innocent until proven guilty. city agencies to the public safety depart- ments. This often causes a disenfranchise- One of the most difficult cases that I have ment of the public safety departments by the had to deal with involved an officer who was other city agencies and causes an unneces- off duty and spent his evening at several bars sary atmosphere of animosity. When our where he consumed alcoholic beverages. On budget projections showed that we would his way home, he ran a red light and crashed end the fiscal year within budget and a into a vehicle driven by a 19 year old female surplus would probably happen, we would killing her. The media had captured other move these surplus funds to other agencies officers consoling the off duty officer at the that served us. Our Corporation Counsel and scene of the crash. There was a lack of the City’s law firm, would often benefit from leadership at the scene, the off duty officer these situations since they defended our was not arrested immediately and a blood officers and employees in the law suits filed alcohol reading was not taken until several against the Department. I usually got along hours later. with all of our partners in the City but I have seen how playing “hardball” with the Mayor When confronted with all of the evidence can have devastating affects on the Depart- that was being provided for by the media, I ment and our employees. accepted the fact that we “goofed.” At the press conference, I admitted our mistakes in A previous Chief decided that he would handling the case, and assured the public that challenge the Mayor’s edict on promotion a complete investigation of the incident policies. This resulted in the budget for would occur. The end result is that the replacement vehicles not being released in leaders at the scene of the crash were the fiscal year and our fleet vehicles used disciplined, and the off duty officer was by our patrol officers were in terrible convicted in court of negligent homicide and condition. Finally, there was relief provided sentenced to twenty years in prison. The City for by the City Council and new replacement Prosecutor and the media acknowledged the vehicles were purchased. The Mayor had good work of our Department. Once we made his point! corrected our mistakes, we picked ourselves up and conducted an investigation that I have also challenged the Mayor and resulted in the conviction. Staying focused Managing Director on various issues. and honest helped us weather this storm. However, I always tried to find a way that allowed the City Administration to ease out Third Lesson – Be Cooperative of the situation gracefully. I learned early to and Supportive of the City let the boss believe he or she is the boss. I would always inform the Mayor, Managing Administration While Remaining Director or Chair of the Police Commission, Apolitical of my need to give them all of the pertinent facts involved in an issue, so they could You must be able to work with other make the best decision based on the facts agencies and members of the Mayor’s presented. Doing this in a timely manner Cabinet, the Managing Director, the Police will help you. I know this policy saved me Commission and the City Council. In my when a disgruntled employee claimed that I experience, the public safety departments, stalled the start of an investigation of Police, Fire and Emergency Services are corruption because the accused employee looked upon as “sacred cows” in the was my friend. budget process.

50 Be Focused, Be Honest, and Show You Care

Fourth Lesson – Have a Vision and a Plan to Make that Vision Become a Reality

As a new Chief, I provided a vision that I believed would be embraced by our employ- ees, officers, commanders and assistant chiefs. At first, there were skeptics but as we moved and created our strategic plan based on the vision, a “buy in” by our employees began to happen. The public and our employees were polled by an indepen- dent marketing service. We learned about our strengths and weaknesses as perceived by the public and our employees. This created the benchmarks for judging our performance in the future.

We then selected three pillars that we would base the administration of our De- partment on. Anything that we did was based on the three pillars of vision, technol- ogy and communications. This allowed us to focus on the various issues and place it into our strategic plan. The next strategy was to intertwine our daily administration and operation of the Department into our strate- gic plan. At our weekly Command meetings, we would have our Commanders inform us of problems encountered or projects they were working on and how it fit into the strategic plan. The commanders were then questioned by their peers or superiors about the outcome of their efforts in working on these specific problems or projects.

These meetings provided a central focus point among the commanders and they learned about the various issues that we were facing. This often resulted in the commanders supporting each other and suggesting alternative actions that the commanders may want to consider. This resulted in the strategic plan becoming a “living document” and a part of the daily administration of our Department, instead of being a dust collector on a commander’s office shelf.

Without a vision and a supporting plan, the department would be a “ship without a rudder.”

51 To Lead, To Learn, To Leave a Legacy

52 I Was There I Was There by Julian Fantino

fter over 36 years in policing, 14 There can be no ethical compromises or as Police Chief in three major shortcuts to personal and organizational A Canadian Municipal Departments, I integrity for the law enforcement profes- am wondering what legacy I have left sional. Remember always that the public behind. I suppose the most immediate trust is of paramount importance. I maintain thought that comes to mind is one of having that in our profession if we lose the public survived the daunting pressures and chal- trust, all is lost. It is worth noting that the lenges of a unique and extremely demanding public trust is critical to our credibility and profession. It is a profession like no other. its importance is never negotiable. Leadership is constantly tested to the core in an environment of extreme oversight, public It is no secret that a number of highly scrutiny, inescapable accountability, political publicized acts of inappropriate conduct pressures and influences that abound in have resulted in an added degree of public everything that we do, all the time. scrutiny upon law enforcement organizations and their leaders. Therefore, even in the In many respects the job of Police Chief most professional, ethical and conscientious has evolved to be one of the most vulnerable law enforcement agencies, there must be and demanding positions in law enforce- eternal vigilance against misconduct, abuse ment, where the executive is constantly of power and authority or corrupt practices. thrust in the eye of the storm. The chief position often comes in conflict with Law enforcement organizations must political agendas, the unions, the insatiable assume ultimate responsibility for the con- thirst for blood of the media as well as duct of all their employees. They must place shifting moral and ethical societal values. particular emphasis on the performance of their leaders, who must show that they are This is a time when law enforcement is willing and prepared to answer publicly for being impacted by many aspects of change the actions of their people. It is, therefore, and severe challenges – not the least of reasonable to believe that among the many which is the globalization of crime – a aspects of ethical decision-making in law difficult economic reality and the threat of enforcement, nothing can be more important terrorism. Law enforcement organizations, than the need for quality leadership, espe- especially their contemporary leaders are cially at the top of the organization. forced to be increasingly resourceful and creative in order to remain relevant and In my experience, of the many factors that simply survive. In other words, law enforce- impact how an organization controls and ment organizations and their leaders must be provides solutions to ethical problems is the strategically positioned and be ultimately quality of leadership that is crucial to the accountable to the point of passing the overall culture, performance and reputation microscope test. They must function with a of the organization and its people. For exam- firm grasp of today’s realities and ple, it is through leadership, above all, that tomorrow’s forecasts. Among many organizational values are established, nur- pressures and challenges that face law tured and reinforced. The quality of leader- enforcement leaders is the whole spectrum ship is an important consideration that will of public trust, ethics and professionalism – determine the general ethical culture and critical considerations that if ignored will health of the organization, and by conse- surely, sooner or later, result in the demise of quence that of the profession as a whole. the leader.

53 To Lead, To Learn, To Leave a Legacy

During my years as Police Chief I have Some 32 recommendations resulted touching learned many important lessons. Among on identified vulnerabilities ranging from these is the crucial role of leadership in recruit selection processes, integrity training, defining and clearly communicating to all supervision, financial checks, as well as members of the organization the levels and psychological and drug testing for people limits of accountability, the setting of working in certain defined high risk units. standards and methods to implement integrity processes, training, supervision and An Implementation Committee co-chaired performance. While doing all of these above by the judge and myself, was made up of a you must also consistently uphold the ethical cross section of members from within the culture of the organization and the profes- organization including union representatives. sion of law enforcement. Much debate took place, legal opinions obtained and finally an agreement reached Abraham Lincoln stated, “What truly on most issues, all in an atmosphere of motivates people is values.” I strongly sug- cordiality and cooperation that lasted well gest that no matter the passage of time, fads or over a year. the arrival of a new generation of law en- forcement professionals, values and character These insightful recommendations are still count and serve to give meaning to our being adopted by other police agencies that personal and professional lives. We can want to be, as they should, proactive in always do better, and most certainly as leaders preventing corrupt practices and the pain we need to seize the opportunity to raise the inherent to such odious breaches of the bar, to pursue personal, professional, and public trust. In the meantime a number of organizational excellence in all that we do, police officers are facing numerous criminal including the commitment to ensure optimum and internal conduct charges. public confidence. Managing the media and political fall-out The IACP membership Law Enforcement of this painful episode has been a monumen- th Oath of Honour that was adopted at the 107 tal challenge It was made somewhat easier IACP Annual Conference says it all: “On my by five strategic decisions taken at the outset honour, I will never betray my profession, my of uncovering the corruption problem. These integrity, my character, or the public trust. I decisions were: will always have the courage to hold myself 1. Publicly disclose the problem and take and others accountable for our actions. I will affirmative action to deal with the always uphold the laws of my country, my same. community, and the agency I serve.” 2. Take decisive action to have the I have had the unpleasant experience of allegations thoroughly investigated by having to deal with a number of serious a team headed by a senior officer from corrupt practices that required decisive, an independent agency. strategic and painfully transparent action. During one such episode, I solicited the assistance of another law enforcement agency 3. Retain the services of a retired judge to head up the criminal probe that spanned to delve into the causes of police over two years, thus ensuring a significant corruption and adopt the recommenda- degree of independence and transparency. tions that resulted.

As the internal investigation progressed it 4. Proceed to implement the prevention became evident that it was also necessary to strategies recommended by the judge. uncover what factors, systemic or otherwise, contributed to the corrupt practices uncov- 5. Provide open and timely internal ered. This caused me to retain the services communication and updates. of a retired judge whose comprehensive worldwide research focusing on police Some media outlets and critics attempted corruption produced unprecedented results. to portray the corruption problem as an

54 I Was There epidemic – one that happened on my watch wheels come off: “Demands that leaders and suggested that somehow I was to blame. make rapid assessments of situations, arrive These suggestions, albeit to be expected, did at quick decisions. They must be decisive not resonate with the public once reconciled and, in times of crisis, must not hesitate to act with the facts and the affirmative action in the absence of instructions or orders from taken in an open and transparent manner. above in order to take advantage of what is Basically messaging that the fix and not the often a fleeting window of opportunity.” cause was on my watch. The best endorsement of this style of Of the many critical issues I have had to leadership came from a police officer that deal with during my tenure as Chief of reflected on this crisis and wrote, “There are Police none has been more difficult to not many who have the courage to investi- manage than allegations of police corrup- gate their own and also take care of their tion. The media frenzy, the political own.” This being a reference to the leader’s opportunism, the confrontational stance duty and responsibility to ensure that the taken by the union including a vote of no inappropriate actions of a relatively few confidence, law suits and personal attacks, people are not allowed to damage the the internal turmoil that permeated the reputation of the overwhelming majority of organization and much more, created what decent, honest and hardworking profession- often seemed to be a never-ending and als who are the true heart and soul of the unstoppable crisis. There are many phases to organization – every organization. No managing a crisis successfully. Although matter the crisis, leadership is also about some things are done based on trial and maintaining a fair, balanced and measured error, none is more important than decisive, response and remembering that people are determined and competent leadership. By watching, listening and evaluating. its very nature, a crisis will not go away on its own, nor will ineffective and incompetent So as I look back and reflect on my tenure leadership bring a crisis under control. as Chief of Police, I believe that I have consistently shown the moral and ethical When faced with the allegations of police courage to tackle many tough issues without corruption beginning to develop a media fear or favour, always trying to do the right profile, I knew that we had a serious event in thing for the greater good. That fact alone the making. I was anticipating how certain has provided me with the acquired knowl- politicians and vocal police critics were like edge that the job is hard, however as leaders likely to spin the rhetoric. I knew that such we are doing it because it is hard. a damaging portrayal of the police service if not proactively confronted, would cause the It’s the type of job that our most ardent situation to be spun out of control. For a critics can’t do nor would they be qualified time that is exactly what the media and to walk but a moment in our shoes. others tried their best to do. And I was there! In retrospect, the previously mentioned five part strategy worked exceptionally well with one not unexpected exception – the politi- cally motivated criticism directed at me for having taken such an assertive and indepen- dent approach without public consultation and debate. These are the very stalling tactics known to be the trademark of “what’s’ in it for me - do nothing politicians.”

For the most part every decision taken during this crisis had an element of risk. However, as has been stated when the

55 To Lead, To Learn, To Leave a Legacy

56 Lessons Learned From the Oklahoma City Bombing Lessons Learned From the Oklahoma City Bombing by Sam Gonzales

ne of the most valuable lessons Unless prior planning has been done, one learned from leading the efforts in of the first questions that first responders Othe Murrah Bombing in Oklahoma must answer is, “Who’s in charge?” Without City is the need for communities to prepare this prior determination there may be a lot of for the management of major case incidents. confusion about who is running the show. As I have traveled across the nation I still All of the personnel responding will ask the find a lot of jurisdictions preparing their same questions: what is my job, and to responses by department, or discipline, not whom do I report. There is no universal by the “community.” Our experience, as well answer and each community must decide for as those of the agencies responding to the themselves whom they want to place in September 11, 2001 attack on the Pentagon, charge. The personalities, skill levels or shows the necessity of all response disci- politics of any given community may play a plines planning, exercising, and training role in determining the answer. There are together. We must realize that, unless your some obvious choices. jurisdiction is close to some significant federal assets, the only assets you will have Law Enforcement to respond to a major incident for the first several hours are those that you as commu- Because the incident may be of a criminal nity collectively bring to the table. nature, thus establishing a crime scene, your choice may be someone from one of the Most major case incidents, especially state or local law enforcement agencies. those of the magnitude of Oklahoma City, Regardless of who is in charge, the law en- have many things in common. Responding forcement component will play a large role agencies will be force to deal with them, either through pre-planning, or by making on in the incident. Establishing and protecting the spot decisions in the middle of the crisis. the perimeters, evidence collection and I believe communities, as well as their preservation, solving the crime, and submit- citizens, are far better served when we pre- ting the evidence to the prosecutors will all plan for those issues we know will arise. be a part of the law enforcement role.

The most common reason voiced for this Fire Service failure to prepare; “It’s not going to happen in our city.” I challenge you to think back to The incident may have been caused by an April 18th, 1995, the day prior to the explosive device, or as in the case of the Oklahoma City bombing, and tell me where New York Trade Towers and the Pentagon, you would have placed Oklahoma City as a an airplane or other explosive means. If possible target site. We would not have there are building collapses then rescue and even been on the page. Do not deceive recovery may play a significant role for an yourself. Your community could be a target. extended period of time. In most communi- It is up to you to do all you can to make sure ties the rescue and recovery responsibilities your community is prepared. fall under the purview of the fire service.

I have resisted writing about my experi- Elected Official ence during the bombing incident due to personal reasons. But, I would like to leave The incident commander may be one of the first response community a guideline on the local or county elected officials. Elected issues that I know will arise during a major officials are elected to play a leading role case, and my recommendations on how to prepare for them. and some of them, because of the

57 To Lead, To Learn, To Leave a Legacy

significance of the incident, may want to enforcement perspective several issues come assume the lead role. It was apparent in the immediately to mind: attack on 9/11 of the New York Trade Center • Integrity of the crime scene. Make sure the ultimate incident commander was Mayor only those persons who have a need Rudolph Guillani. enter the crime scene. • Collection and preservation of evidence. Emergency Management As stated before, life safety will always be the first priority, but at some point A lack of qualified leaders in one of the the collection of evidence must occur. other disciplines may lead you to look to the • Protection and collection of personal emergency management arena. The city, property of the victims and occupants at county, or state emergency manager should the site of the incident. have the knowledge and leadership skills to • Minimization of further injuries to be the incident commander if necessary. rescue workers. Emergency management is primarily involved in incident mitigation and if that A decision that must be made is who will were the choice, I would strongly recom- have the authority to allow access into the mend some type of unified command. crime scene. Obviously not everyone who wants to enter the crime scene should be Control of Assets allowed access, but there is a need for more people than you would first suspect. As in the choice of the Incident Commander, the Many agencies will be bringing both decision on who is allowed access is a local personnel and other assets to assist in the one. I would suggest a unified command of handling of the incident. It is important to some sort to determine who to allow access, note that the operational control of assets and into what areas. Should they be allowed should never leave the agency they belong access into the “inner perimeter” or just the to. The incident commander should always “outer perimeter?” go through the agency head to utilize their assets and never assume they can take Once the decision has been made as to control of the assets. how access will be allowed or to whom, then a structure must be put in place to accommo- Regardless of whom you select, I would date the issuance of entry badges. Some of recommend you have a unified command these factors should be considered in pre- that would include all of the above disci- planning to facilitate the issuance of entry plines. Even with a unified command there badges: is ultimately one person the others will defer • What facility can be used to accommo- to for the final decision on some matters. date several hundred persons waiting to That person is someone whom you must be issued entry badges? select at the local level. As I have stated, all • Where will personnel come from to incidents are local incidents, so someone manage the entry process? from the local “community” should be the • Who has the camera or computer incident commander. Involvements of state capability to take photos and attach and federal resources are a must and they them to an entry badge? should be a part of the unified command, but • Do you need a different type of entry should not be the incident commander. A badge for the inner and outer perimeters? unified command consists of representatives • Will you require a local person to vouch from all the major responding agencies. for or verify an out of town volunteer? • Will you require entry badges for Crime Scene Access persons in uniforms or bunker gear? • Who will maintain the records of entry Once the crime scene perimeters have been badges? At some point a criminal set, law enforcement will want to restrict defense lawyer may want to know how access to the crime scene. From the law many people had access to the crimes

58 Lessons Learned From the Oklahoma City Bombing

scene and may have tainted the evidence. • Command Post for the agencies involved • How will you handle the thousands of • Staging areas for shifts coming onto duty volunteers who show up and want to be • Eating locations a part of the rescue and recovery? • Supply locations (A separate section will deal with • Media volunteers) • Red Cross/ Salvation Army • How will you deal with citizens who • Viewing area for politicians or visiting may want to enter the outer perimeter to dignitaries check on their personal property? • Chaplains/religious facility • Critical Incident Stress Management In Oklahoma City we issued over 21,000 personnel and facilities entry badges. We used a unified command operation to make sure we did not leave out Medical Response any valuable assets or providers. A good example was the public works director. He Like the rest of your community, the medical needed free access in the outer perimeter to response will be overwhelming. As soon as help in the removal of debris, erection of the medical community hears of the disaster barricades, placing of port-a-pottys, and they will respond without being asked. There even removal of fire escapes in some cases. will be a great need for medical assistance All law enforcement, state, local and especially in the first several hours. The federal personnel were required to have following are some areas to consider in your access or entry badges. Gary Marrs, then pre-planning: Oklahoma City Fire Chief, did not require firefighters in bunker clothes to have access The Disaster Area badges. He later stated that if he had it to Inside the disaster area will be hundreds of do again he would have required them volunteers, including first responders, having access badges. medical personnel, and citizens. It is important to remember that the disaster area We also issued a different type badge for is not a safe area. The facility will probably the entry into the inner perimeter (the be unstable. There is a possibility of Murrah building). To avoid copies of our secondary devices, and most of the citizens badges, we changed the color of this entry will not have on proper clothing to be in the badge on almost a daily basis. Entry into the debris area. From the medical community actual building was much more restricted you need doctors and nurses with trauma than entry into the outer perimeter. The inner experience. You need people who are used perimeter will normally be restricted to the to working in adverse conditions and making following types of personnel: quick life and death decisions. I suggest that • Rescue and recovery personnel in your pre-planning you work with your • Crime scene personnel medical community and identify those • Crime scene photographers personnel you would want to be helping in • Evidence collection personnel the “trauma area” of the disaster. • Volunteer experts in building repairs or stabilization Triage • Medical specialist in trauma care during A good triage set up will save lives. Making the rescue stage sure those victims who are the most severely • Rescue dogs and their handlers injured are treated and transported first is a • Bomb personnel must. The medical community in Oklahoma • Personnel for the retrieval of classified City did a great job. We found that the documents triage site most used was the one closest to • Gas/electrical/water personnel as needed the building. We also discovered that although several other triage areas were The outer perimeter, normally a much initially established, if they were not in the larger area, will host a number of different area of escape from the disaster, people agencies. They may include: would not detour to get to them.

59 To Lead, To Learn, To Leave a Legacy

Hospitals finally concluded. We also invited the Almost all of the injured that can flee the spouses of our employees to attend, as they area will do so. They will run away. Private went through as much trauma as their spouse. individuals will take them in their vehicles, and police officers will use their vehicles to One thing I would encourage is to have transport victims during the first hour of the mental health help plans in place for your disaster. In Oklahoma City I would estimate employees prior to an incident occurring. that 75% of the victims self evacuated from There is plenty of information available to the area. It is extremely important to help you make a decision. The disaster establish pre-planning with the hospitals in industry that emerged in the 1990s trains the area so they know what to expect. more that 40,000 persons a year in psycho- logical debriefing. The Department of Medical Examiner Defense had its members undergo stress debriefing before returning home from Iraq. The size of your incident may overwhelm the capacity of your medical examiners facility. I Recent studies released in the Wall Street would recommend contacting and possibly Journal, dated September 12, 2003, question contracting with a trucking firm or some other facility that may have the ability to meet the the validity of debriefing. They quote a panel appointed by the American Psychological need for the temporary storage of bodies. Society as saying; “Contrary to a widely held belief, pushing people to talk about their Critical Incident Stress Management feelings and thoughts very soon after a trauma Long-term responses to incidents, like may not be beneficial.” Their study showed Oklahoma City, will create stress for the that “when police officers who worked a plane individuals involved in the rescue and crash underwent debriefing, they had signifi- recovery as well as many of the support cantly more PTSD symptoms 18 months later personnel. For some, this may lead to post- than officers who weren’t debriefed.” traumatic stress disorder (PTSD), while for others it may not pose a significant psycho- One thing is clear. Our employees are our logical problem. best assets and we owe it to them to have a plan in place, just in case it is needed. In Oklahoma City both the Police and the Fire Service provided daily debriefing for personnel engaged in either rescue or recovery, working the temporary morgue, or fingerprinting of small children. The sessions were mandatory to attend, although participation was not. Law enforcement professionals attended to the law enforce- ment personnel and fire professionals to fire personnel. We found that participation with anyone outside of his or her own discipline was just about impossible.

One of the lessons we learned was making sure we had enough trauma professionals to help our employees. Although we thought we had sufficient trained personnel, we found most of them were also responders and needed help as much as the other personnel. We were able to secure additional law enforcement professionals through the State Attorney General’s Office. We also mandated sessions for the entire police department when the incident was

60 Remain True to the Compass That Guides Your Morality and Integrity Remain True to the Compass That Guides Your Morality and Integrity by R. Gil Kerlikowske

have had a truly extraordinary Patrick Murphy of NYPD, the founder of the opportunity to view and be a part of Police Founda-tion, and author, told me that I policing for over more than three someone could be the First Deputy Commis- decades. I started as an intern in 1966 while sioner of the NYPD and it is not the same as still in high school and had the glamorous job chief of police. In other words, no matter of fingerprinting the prisoners on Saturday how large the agency, the final decisions, the and Sunday mornings that had been arrested successes and failure belong to you. over the weekend. I learned crime scene processing and was photographing homicides • Understand the importance of flexibility with a 4x5 Graphflex camera. My experien- in your management/leadership style ces – spending 15 years in the St. Petersburg but remain true to the compass that Police Department, leading four police guides your morality and integrity. departments (two major cities), a year fellow- I like to make decisions using the guide – ship at the National Institute of Justice and “do the right thing for the right reasons.” two years as the Deputy Director of the COPS program – have allowed me to reflect on what • Your reputation and, to some extent, your I would like to impart to those that follow. legacy is set fairly early in your career. These are lessons learned from my own You can’t climb the ladder and when you get successes and mistakes, and the advice I have to the top impose hard work, long hours, and received from my mentors and colleagues. demand high quality output from the staff when it was known (and it will be known) • You entered this profession as a student. that you came in late, left early, or took credit When I end my career I will leave as a for the work product of subordinates. student. Education and experience do not provide you with the answers, merely a • Be self-confident. place from which you can ask the right That does not mean that you should be questions. Ben Ward, a long-serving Police arrogant. You got to your position through Commissioner in the NYPD, now deceased, study, hard work, and a string of successes in told me what education does for a police your past positions. That track record gives officer, “it puts doubt where there was you the credibility and authority and I would certainty and questions where there were say the responsibility, to change an order, a answers.” What he was saying was that a lot procedure, or a plan after you have received of folks in our business often have quick and the input of those around you and carefully simple answers to the complex problems we considered the consequences. Remember face. You can be assured of one thing – a that you are going to own the results, regard- simple answer to a complex problem is less of who made the decision and if you see usually wrong. something that needs correcting; do it.

• Read everything and read widely. • Recognize your strengths, more impor- tantly recognize your weaknesses. • Pay attention to the details. Bring people close to you that shore up your That does not mean that you fail in your weaknesses, you do not need more people position as a leader by not providing the like you. If you are a visionary, bring detail- direction, guidance, and articulating the oriented people near you. If your strength vision for the department–oh no–you still is working and dealing with people in the have to do that to. It does mean that when department, bring people who are you review policies, after-action reports, community-focused to your team. By doing etc., you see them from a perspective that no this you can’t neglect or hide from the myriad one else in the agency has. The iconic of responsibilities. Force yourself out of your

61 To Lead, To Learn, To Leave a Legacy

comfort zone, but recognize the value of other other hand, if you have made a wrong people’s skills. decision do not hesitate to correct it and take responsibility for it. • Enjoy the job, love what you do. There will be very bad days and every once in • You are in the position to make change. a while a very bad week. But on balance, the Incremental change over time is the most job should be far more rewarding and fun than substantive and lasting for an organization. dark and frustrating. I just received a letter out It is really about changing culture. Some of a time capsule from a chief from forty years chiefs have made dramatic and immediate ago, many of the problems the department was change. Unless you have a clear mandate, facing were similar to today’s and he men- support, and a “burning bridge”, then my tioned that he believed whoever was reading counsel is that this is the least lasting of any the letter would agree. of the change models and places a lot of stress on the organization. Remember that • You are the chief of police for a police every chief is hired to make change but as department, but more importantly than that; someone mentioned, no one likes change you are the chief of police for a community. except a wet baby. When you make those That means that your decisions have far greater significant changes the support you may impact than just for your agency. They affect have believed you had can erode quickly. neighborhoods, businesses, and children. That The test is not whether change will be made, means that some of your decisions will not be but how much change will be tolerated both well received by your own members and some within and outside the agency. decisions will not be well received by various community groups or others. If you take a • The 50/50 rule. look at your decisions over a year and find that Try to spend 50% of your time outside the they heavily favored any particular group, then department. Remember that in a 70-hour you may want to consider in whose interest the week you can still spend 35 hours in the decisions were made. office! The outside time can be with officers, detectives, support personnel, • You assume a mantle of knowledge community groups, and key leaders in and and of community leader as the chief. out of government. Go to almost everything Do not be drawn into opining on areas you are invited to in the first year –coffee in outside your responsibility and outside your the basement of a neighborhood organizer on expertise. People will ask you about the Saturday, Rotary, Chambers of Commerce, death penalty, abortion protests, etc., and I etc. When you are new everyone wants to recommend that those situations that do not see you. Once they know you are accessible have nexus to your position and the depart- they will be less interested in seeing you ment should not be commented on. The sit- after that year. uations that do impact your organization and the safety of your community are ones I • Treat everyone with courtesy and respect. encourage you to weigh in on. For example, Know as much as you can about the people early childhood education programs and in your department, the person who cleans quality after-school programs can prevent a the office and your command staff should all child from becoming a criminal. It is less know that you care. expensive to invest in those programs than jails and your voice often carries further than • You cannot have a good department on the that of educators or social workers when outside unless you have a good department on discussing these issues. the inside. Public relations campaigns for the agency have • Time proves you right. little value if the department is not properly You may often wonder about decisions you structured, managed, lead, and trained. made and for a while some of those deci- sions may result in significant criticism, if I am honored by the opportunity to have participated you have done your homework and thought in this project and wish to thank NEI and Dick Ayres it all through, time will support you. On the for pulling us together to fill a needed void.

62 Stand by the Truth and Accept Responsibility Stand by the Truth and Accept Responsibility by Robert Lunney

was 38 years old and on the fast track • Think positively: Turn problems into for promotion in my department. It was opportunities. I time to take stock. Sitting down with a list of tested life-guiding questions, I set • Practice continual learning: Focused myself the task of documenting basic beliefs, self-improvement is the key to surviving guiding principles and career objectives. and prospering in a changing society. My mission, I decided was, “To achieve something of significant good; something • Welcome change: Adapt to new that will be a lasting contribution; something conditions and relish the challenge of that can be built upon.” On six pages of change. handwritten foolscap I mapped out goals for managing my career and fulfilling family • Be mentally tough and physically fit: responsibilities. The second step was Bend but don’t break; build personal evaluating my strengths and weaknesses and stamina and endurance. plotting a comprehensive plan for self- education to acquire the skills and knowl- • Never seek credit for success, but edge to fulfill my mission. always take responsibility for results.

Those pages resided in a diary that was • Give permission: Place your trust in never far from my hand during the following people. Give permission to good people 26 years of my policing career. At critical to meet a challenge on their own terms career junctures, such as job change or when and in their own ways, and be prepared facing a challenge, they were used as to be pleasantly surprised with the good reference and periodically supplemented but things that happen. never fundamentally changed. What ever success I later realized flowed from docu- • Encourage team-building: Most people menting and acting on this original personal work best as a member of a happy, mission statement. productive group.

This brief but intense process of self- • Support your team: In the most difficult evaluation was the most important influence circumstances, when you have to make on my later career. When people ask me a choice between the good of the today for assistance with finding their way in community and the good of the service, policing, I invariably counsel them to write a you must choose the community. But in personal mission statement. It is difficult to most cases your officers deserve your confront your deepest wishes and dreams, support internally and in the public doubts and fears. We dissemble most when arena. Never shrink from explaining the challenged to seek the truth within, for fear vicissitudes of policing to the public or of what we may find. Ultimately, it is an act the policing authority, and stoutly of courage. For those who dare, the prize is defend the actions of your officers when self knowledge, and self-knowledge is the they have acted properly and legally. foundation of wisdom. • Practice tolerance and understanding: Rules for Leadership With the officers and employees, with all members of the community and their My rules for prevailing leadership are: organizations.

• Perseverance: Keep going, and never • Remember the principle of the egg: give up. People will endlessly debate the chicken 63 To Lead, To Learn, To Leave a Legacy

and egg equation. Don’t bother. It is • Placing the public and the organization always the egg. The egg is the basic before self resource, and a chicken is just an egg’s • Unending hard work and effort way of making another egg. The police • Sustaining a professional attitude budget is the egg, and the role of the despite disappointments and set backs chief is to secure the funding needed to • Acting with tolerance and compassion sustain the police service to the level of to those who are troubled public expectations. The Chief must • Meting out justice to those who trans- take a leadership role in planning, gress the law or departmental orders shaping and marketing the budget. • Mental and physical fitness • Learning patience • Never underestimate the power of good • Recognizing family responsibilities management: Good management is not flashy or exciting, but the underlying Actions Reconsidered system that demonstrates organizational effectiveness and efficiency provides the I took over an agency as an outside chief. stability that makes employees feel There was stiff resistance from the manage- confident in their organization and earns ment group and at the core of the insurgency their respect and loyalty. were two clever but obdurate senior officers. We clashed immediately and while my • Develop foresight and intuition: legitimate authority prevailed, their constant Constantly think ahead of immediate undermining of my purpose was an impedi- events. Try to deduce what will happen ment to my getting the organization headed next. Cultivate intuition by learning and in a new direction. After months, one of studying cause and effect. Intuition is them resigned. By this time I had cornered the sum of knowledge and experience the other in a nothing job. He came to me, analyzed by the subconscious mind. all contrite and submissive, and asked for a Intuition is a building block of wisdom. second chance. Acting on my compassion, I bought it. Based on his competency and • Manage the aftermath: The time feigned loyalty I later promoted this man to unfolding after the conclusion of a deputy chief. He went on to be a constant critical incident is a time of great peril subversive influence, sabotaging my inten- to the organization. Don’t leave the tions and plotting ceaselessly against me. command post until well after the Eventually I cobbled together an offer to buy moment of crises. Make sure that him out, but much damage had been done. I normalcy is restored before resting. learned from that unfortunate judgment there are limits to the exercise of compassion by Best Practices leaders, and that every chief must be capable of executing a crucial termination when I have compiled the following list of necessary for organizational health. It was a behaviors or set of best practices that costly lesson, and today I counsel others not assisted in my career development. to make the same mistake.

• Continual learning and reassessment of On another occasion I failed to read the needs economic signs of recession at the end of a • Relentless efforts to improve perfor- long boom. Stubbornly, I fought publicly for mance another increase to the police budget when • Reinvesting success in pursuit of future City Council had resolved on cut-back challenges management. I lost the battle for public • Recognizing the talents of others and support and was forced to retreat into a ensuring rewards period of penitence for my poor judgment. I • Extending trust; giving permission to learned from this that it is human nature worthy people to use their skills and always to hope for the best, even in the face ingenuity of oncoming disaster. Foresight, caution,

64 Stand by the Truth and Accept Responsibility and healthy skepticism are important The best practice is never to be diverted qualities for a leader. from the truth, to answer all questions directly and honestly to the best of your ability. Of Pressures From the Outside course all this must be accomplished with full protection for investigative details and legal I believed in transparency in the public rights to privacy. Educated populations of service and strived to act with sincerity and democratic countries are fully capable of candor, but at the depth of another period of making up their own mind on issues of public economic restraint, when police officers had business, provided they are afforded access to not received a pay increase in four years, the the facts and the framework of issues. I results of an internal survey exposed serious learned to respect and rely on public opinion morale problems. At the time I was in in all manner of crisis and challenge. conflict with the police authority. A number of new appointees representing a conservative, business-orientated mind set were making decisions that in my opinion, encroached upon the authority of the chief to manage the affairs of the department. This was damaging to the best interests of the department and the policing program.

Despite an opinion favoring my position by government officials overseeing the legislation, the authority was not dissuaded. I concluded that if the survey result was released in its raw state it would be used to further erode the authority of the chief. I consulted an ethicist and was advised that reporting a summary of the results was a justifiable, provided the summary accurately represented the sum of the total picture.

This is what was done, and despite the adverse statistics it was received by the authority with little comment or damage to my position. If I had to do this over I would not shrink from exposing the totality of the data in all its brutal detail. In retrospect, I think that I acted defensibly and permitted my personal feelings to stand in the way of exposing the truth. It was a failure of moral courage, and a retreat from my best behav- ior. I retired from the service within the year and did not feel good about myself.

Standing by the truth as I knew it and fearlessly accepting responsibility was my finest hour. I learned that honestly held positions defended openly and with clarity, was the most effective style of public leadership. Even when critics did not agree with you, at least you merit respect. The media are constant and critical observers of the behavior of public officials. 65 To Lead, To Learn, To Leave a Legacy

66 A Sacred Trust A Sacred Trust by Terry Mangan

hen I was offered the opportunity sharing can make any work easier, and that to contribute something to the sense of purpose can make the smallest or WLegacy Project, I thought that it most humble task meaningful. In the years of would be relatively easy to do so. I was formation in the monastery, seminary, and wrong. In reminiscing about the last 67 later in the academy, it was customary to years and my various opportunities to serve, balance perspective on ones own role and first as a clergyman and then later as a importance. Following a three month stint as police officer and as a Director of Public the person in charge of all manual labor Safety in California, a Chief of Police in two projects, one was usually assigned to clean cities in Washington state, and over seven the restrooms for the next three months. years working in various programs and projects for the FBI, I realized that the I also learned that none of us will be legacy is more about what I received from remembered for the famous cases we may others, than what I left. have successfully handled or the great pro- grams which we might have implemented in However, I am going to attempt to share our agencies. All of us will be remembered some of the basic lessons that I had the good for the way in which we treated others and fortune to learn from many outstanding for the way in which we offered them oppor- professional role models and mentors I had tunities to grow into their own potential, the privilege to work for or with during the and to become leaders themselves. last 39 years in law enforcement. I will start out by saying that I am one of those fortu- It is always so much easier to “just do it nate persons who got to do what he liked to ourselves” than to invest the time, patience, do, and looked forward to going to work and even risk to let others learn by doing it. every day. The opportunities afforded me as It is always easier, but never productive. a peace officer and as a leader gave me People will remember us by the opportuni- much more than I ever could contribute. ties we afforded them and by the manner in which we helped them to grow and learn If I had a dollar for every mistake which I from their own mistakes. They will remem- have made or for every opportunity which I ber us hopefully with fondness because we have missed, I would be as rich as the supported them when they needed it, held an proverbial Croesus! Fortunately, there were umbrella over their heads when it rained, patient people who helped me learn from at and showed them how, rather than telling least some of my mistakes. Therein lies, I them how. think, the secret of a true legacy. To the extent that I may have been successful in my Leaders are supposed to bring their people law enforcement career, I owe the outstand- to where they need to go by creating a ing men and women with whom I had the powerful vision and sharing and living it, as privilege to work and from whose character, Henry Kissinger once put it. I think that courage, sacrifice, and dedication I learned. good leaders are found at all levels in an organization and their leadership is exer- I learned early on that there were no cised by their personal example and energy, perfect organizations, including the church, and by their personal character and enthusi- because all organizations are made up of asm, whether they are in positions of people and there are no perfect people. I leadership or not. also realized that more got done by asking rather than ordering, and suggesting rather I had the good fortune in my career to be than commanding. I was blessed with surrounded by such people. I also had the colleagues who taught me that humor and opportunity and the authority to let them 67 To Lead, To Learn, To Leave a Legacy

become what they had the potential to be. If and community, and ultimately to the one I was successful in this, it is by virtue of source of all authority and justice. Each others having done that for me before. day and in each opportunity we are given the chance to make things better! We are I still believe that law enforcement is a truly fortunate! calling as well as a career or profession. I believe that the work law enforcement people – both officers and other specialists – are called upon to do is a ministry of sorts for the good of society, in general and particularly for those who are vulnerable and innocent. The gift which we receive for doing this work is the on-going feeling of satisfaction and fulfillment in that what we do makes a difference and contributes to the future and well being of our community and of our country.

There is much discussion and talk about transitional leadership and the various styles of leadership, and of course anyone in the position of leadership moves through all of those styles every day unconsciously, depending on the circumstances and the task at hand. But I believe that the leadership style, if that is what it’s called, that contrib- utes the most to growth and development in our people, is servant leadership. By that, I mean seeking every opportunity to help our people learn and grow and by providing them the wherewithal to do so. If we tell our people that they are our most important resource, but do not ensure that they have what they need, our words ring hollow. It is in our deeds that we model the vision and provide the chance to grow.

If I have left a legacy, it lives somehow in the confidence and achievements of those who still labor in those departments with which I was at once associated. Hopefully, they will remember me as someone who wanted them to be the very best that they could be and encouraged them to do so. I certainly will forever be grateful to the very many people both in law enforcement and outside of it who have done this for me over many years.

The privilege of working in law enforce- ment, in any agency at any level, is that we are fulfilling a sacred trust, making a difference, and exercising an authority that belongs not to ourselves but to our country

68 Honesty, Integrity and Sincerity Honesty, Integrity and Sincerity by Patrick D. McGowan

isted below are a few reflections that • Keep people informed. influence and shape my thinking, as L well as concepts I feel are important • Do not set people up to fail. qualities for a leader to possess. • Know what it is you are trying to Personal Core Attributes accomplish and ensure others involved know the same. Regardless of the type of leadership role, the following personal qualities must be • Do not be afraid to ask tough questions. possessed: • Honesty • Do not be afraid to say “ I made a • Integrity mistake” or “I was wrong.” Do not • Sincerity blame others for your shortcomings or mistakes. Also, do not be afraid to end a My Management Philosophy project or terminate one. Remember, not everything is a good idea or a success. The following are some key concepts of management: • Pick and choose your battles carefully – you cannot fight every single issue. • Surround yourself with smart people. I look for people whose strengths • Get to know the people who work for complement my weaknesses. Encourage you within the organization. I know open thinking. Look for problem- you cannot know everyone in a large solvers, not just people who identify organization, but strive as best you can problems. Do not micro-manage. to let your employees see the human side of you. • Provide an atmosphere where your management team knows they are free Decision-Making to express their input and feelings. Realize every good idea does not have • Do the right thing. Being popular is to come from you. Expect your people easy. Doing the right thing can be very to tell you the truth, not just tell you difficult. what you want to hear. However, once a decision is reached, all members of my • Do not make key decisions when you management team must be on board and are mad. You will make poor decisions. move forward as a united front. Discipline • Create an atmosphere of teamwork, not competition. • I have my Chief Deputy (my Number 2 person) monitor, coordinate and handle • Be a good communicator – work all discipline within my Office. especially hard on being a good listener. • My philosophy and direction - be fair • Explain “why” you are doing something. and consistent. I do not believe in over- I feel it is more important for people disciplining so we can negotiate within my office to know what went into discipline down to where we want to my thought process, than it is for them to end up. agree with my decision. 69 To Lead, To Learn, To Leave a Legacy

Efficiency & EffectivenesEffectiveness

To determine how the organization or any component of it is doing, I always ask the following questions. I seek this input from both supervisors and the line staff perform- ing the duties, clerical staff included.

• What do we do well? • What can we improve on? • What are they doing that they should not be doing? • What are they not doing that they should be doing?

Mistakes I Have Made

Do not expect members of your Administra- tion to know everything off the top of their heads. Unfortunately, it took me about two years to realize this. Initially, when people from my Administration would call to inform me of a situation or problem, they did not have all the information I wanted to know. I would get frustrated with the lack of infor- mation and would take my frustrations out on them, rather than remaining calm and asking them to update me as they learn more.

Initially, I was afraid (because I thought it made me look stupid) to answer a question with “I don’t know.” Today, I realize that I, and members of my Administration, cannot know all of the minutia about every single thing going on in my office. There is nothing wrong with realizing this and providing the response, “Let me research things and get back to you.”

I am not a good listener and I have a tendency to cut people off – this is not good.

Remember, it is the privilege of the Office we hold that affords us the opportunity to do what we do. Too many people start thinking it’s them personally, not the position, that provides them with these opportunities. Each of us got to where we are because someone helped or mentored us along the way. Don’t forget to help others. Never think of yourself to as being too important or too good to talk to anyone, regardless of their position or stature in life.

70 Every Day is a Learning Experience Every Day is a Learning Experience by William P. Oldham

was very fortunate to have experienced Throughout the years one is asked to a tremendous variety of assignments as make many decisions which affect may I I moved up in the Department. I people. In all those years, I have felt looked at every assignment as an opportu- comfortable and confident in all of my nity to learn and to demonstrate my compe- actions and decisions. I did what I believed tence and abilities. Every day was a learning was right in all of my activities, whether it experience and every task a challenge. I was was popular or not. also blessed to have worked with tremen- dous peers and some outstanding mentors. I also remembered I represented my family first, myself, and my organization. I By demonstrating my abilities I was didn’t want to do anything that would reflect afforded training opportunities and experi- negatively on them. I also believe that we ences which also prepared me to move up should treat everyone with dignity and and take on greater responsibilities. My respect, and to be treated the way we would outside activities also assisted me in my want to be treated. Also remember where development. I coached (and still do), and came from before we judge anyone. served in leadership roles in civic and school related organizations. To learn more about Be prepared to learn from each new budgets and finances, I sought election to experience. Look at every day as an oppor- the Board of Directors of the City of tunity to grow and develop. Take advantage Memphis Credit Union. I have been elected of each opportunity by performing to the to eight terms and I have served for a little best of your abilities. over 22 years. The absolute best learning experience I had As a practitioner, I could not have asked as a member of our command staff was the for a better career path. As I look back it opportunity to accompany the Director to the was as if all of the assignments had been Major City Chief’s meetings. I learned more scripted to prepare me to spend ten years on there by listening to all of the presentations the command staff of the Memphis Police than anyone could imagine. There were Department, culminating with my last year legends in attendance who spoke frankly and as Interim Director of my hometown police honestly about their success and failures. The department. spoke about how they dealt with critical incidents or just the day to day operations of I encourage you all to examine all of the their agency. For almost five years I benefit- facts and information presented to you prior ted from that experience at least twice a year. to making your decision. Always do what is right, regardless of how popular your I cannot express enough gratitude to the decision may be to the rank and file, your FBI for the training opportunities they command staff, the media, the politicians provided for me as well. That exposure and and the public. I often used this check list in my attendance at the M.C.C. meetings led to my decision making process: my being selected to participate in projects • Is it legal? and research for the N.E.I. and M.C .C. • Is it moral? From there I was selected to be a participant • Is it safe for me, my partner, and the in the 21st session of the National Executive public? Institute. All of that prepared me for a • Does it meet policy and procedure? leadership role in my agency. • Is it the right thing to do?

71 To Lead, To Learn, To Leave a Legacy

In my dealings with the Mayor who appointed me as Interim Director, I told him that I would always do the right thing. I told him I didn’t know him personally, and to not take what I was going to say the wrong way, but, I would not do anything illegal. I wouldn’t do political favors and I would not be a “yes” man.

In dealing with the media, I told them I would be honest and accessible. From time to time we may have opposing views, and I understood that they had a job to do. In dealing with community activities, I told them I would be approachable and give them answers to their questions. I also told them that their agenda may not be mine or the organization’s.

In dealing with our union I told their leadership that we may differ in our interac- tion, but I respected them an wanted to have a professional relationship. Our ultimate goal with the union was the same as theirs – to provide a safe and beneficial work environ- ment for our commissioned and civilian staff. I also told them I had worked hard to earn the right to wear the badge and be called a police officer, and would not allow anyone to bring a division upon the depart- ment. While I am in a leadership role a net will be out to snare any dirty cop or em- ployee and it had never bothered me to put cuffs on a crooked cop.

72 Blessed Are the Peacemakers Blessed Are the Peacemakers by Robert K. Olson

don’t think that any police leader that daily, especially since 9-11. It is the personal has been in the business of being a engagement at conferences, reading the I police chief executive for almost twenty journals and listening to and acting on the years in three large police departments and collective experiences and wisdom of others had the opportunity to participate in and in the business, that is the secret to develop- contribute to one of the most significant ing successful police leadership. cultural “sea changes” in modern American policing, can give this writing project the Every police executive who wants to be a justice it deserves with a deadline of April successful leader must first settle in their 15th. However, I will try. own mind what does “success” mean. What is their personal definition? If a person just When I became a young police cadet aspires to be the chief and keep the job or (thirty hours a week at the PD while going to become the chief of a larger or perceived college for a CJ degree) and an officer a more prestigious department and consider year later, I decided that I wanted to be the those appointments as accomplishments that Chief. Of course I had no conception of brand them a successful leader, they are what that meant at the time, but none the kidding themselves. Leadership sometimes less, I aspired to have that job. So I looked means getting fired, having votes of no at the current chief and studied his career confidence, having conflicts with peers and and noted several things immediately. He superiors and consistently taking risks. was one of the few Chiefs in the country “Only dead fish flow with the current.” with a Masters Degree in Public Administra- tion (which he obtained in 1956), one of the There are many things that a young youngest chiefs ever on the department, and executive should do who aspire to be an was one of the authors of then President effective leader in our honorable business. Nixon’s Commission on Crime and Justice, Always remember you are like “Caesar’s established in the wake of the race riots of wife.” You are always in a fishbowl and the late 1960s. I modeled my career after his everything you ever did or didn’t do in your and made sure that I would get at least a public and private life will be recorded and Masters Degree. I also found out that hard regurgitated on a regular basis by the press work, continual changes in assignments, and and those who would see you fail. You must good preparation for promotional exams, begin early to mold yourself into the highly made for a more experienced and knowl- ethical and moral individual you need to be edgeable officer; and that this experience in order to withstand the onslaught of overt and knowledge led to wisdom. and covert professional and personal criticisms that will be leveled against you as Regardless of my assignment, I always you go about the serious life and death went the extra mile and made my superiors business of police leadership. Special look good with results oriented policing and interests, the press and politicians, can take a performance. A watershed experience came lot of things away from you, but they can’t for me when I was allowed to attend PERF’s take away your integrity. You have to give it Senior Management Institute for Police. to them. Don’t become one of them. Always That three-week opportunity changed my take the high road, even when it hurts, and it professional life forever. There is a whole will. Don’t succumb to the very tactics that new world out there and successful execu- are being used against you. Never say tives must be connected to it in order to anything negative about a person (you survive in today’s more complex manage- should have scars on your tongue). Respond ment environment that seems to be changing to things they have done, but don’t ever get

73 To Lead, To Learn, To Leave a Legacy

personal. Never carry grudges or bad Prepare yourself for the day you will get personal feelings about people who have fired or asked to leave. I once told a transgressed against you or the department. community leader that I was not a politician. When you carry those feelings, you are only He called me a liar. The police chief s job is hurting yourself and sometimes unknowingly to keep politics out of the department and clouding your judgment. Policing is a sometimes that means losing your job. No professional public business and you make true police leader (non-elected of course) business decisions, not personal ones. If you should be perceived as partisan within or fire a bad officer and an arbitrator gives him outside of the department. That does not his job back, you did your best, didn’t you? mean, however, that the chief shouldn’t be Get on with business; it’s over. They’ll mess politically astute to their surroundings and up again. Every senior command staff I have realities of their community. This goes back had the privilege to work with was given an to the integrity issues. Police chiefs must order that they had my permission to tie me make it clear to their hiring authority where up in my office if need be, to keep me from their ethical boundaries are. If the mayor making any executive decisions while I am wants his brother-in-law promoted, be ready angry. Yes, it’s ok to get mad, but get over it. to deal with it. Sometimes you can say no in a way that doesn’t result in confrontation. Never publicly (or privately if you can Sometimes you just leave with your personal help it) lose your temper, use profanity or integrity intact. Being a police chief is often make derogatory remarks about anyone or rough political business. anything. If you haven’t done it, develop a stress reliever. Some chiefs run, use weights, Any new chief needs allies. You must ride bikes, kayak or play sports. develop your own community power base. Quickly meet with every local community Always strive to utilize collaborative group possible and be very visible in the consensus building decision models in the community. If the citizens like you and see routine operation of the department inter- the sincere positive message you consistently nally and externally with affected agencies give them, it becomes politically more and organizations. Don’t develop a “fortress difficult to unseat you. However, there is a mentality” about policing. Internal and two edged sword you should be aware of. external transparency is the key to successful As soon as elected officials believe you are leadership. If you have to whisper about becoming more popular with the public, their your public business or keep even embar- egos take hold and you become a potential rassing information secret, you are on a political threat to their power. Another slippery slope that will ultimately lead to slippery slope could begin to form. Do your undoing. As Terry Hilliard, former everything you can to reflect praise and Superintendent of the Chicago Police credit to them publicly whenever possible. Department , would say: “When you mess By doing all of the right things mentioned up, fess up, fix up and go on.” People want above and always publicly and privately and expect you to tell them when things go taking the high road with the community and wrong and what you will do to not have that the political powers that be, you may be able happen again. People do support the police to survive a coup attempt. and even when you make mistakes, they will support you as long as they feel you are I personally had such a situation where my always acting in “good faith.” As I have told new boss went on a public campaign to every recruit class I ever graduated, there are discredit me and force my departure so they three things that they need to do to have an could appoint their own person. I did not honorable and successful police career. “In succumb to the temptations that come whatever police service or enforcement naturally and never said anything publicly. action you take, always: Do what’s right, do The leaks from his office on what was the best you can and police others as you happening caused the media and the public would have them police you.” to find out. The citizens became so angry

74 Blessed Are the Peacemakers that they “melted his phones” with calls to learned long ago that you are only as good the point that his office staff were leaving as the people that work for you. Having phones off the hook. His council support processes in place for career enhancement at disappeared and the coup attempt failed. all levels is important. Employees should be However, the next couple of years were very made aware and allowed to participate in difficult. As unlike the attitude about things programs and educational activities that will for police chiefs mentioned above, most improve their ability to compete for assign- politicians do not believe in that philosophy ments and promotions. Employees will work and carry the bad feelings of their public hard in an organization that they feel treats embarrassments to their grave. When things them fairly and they will be rewarded for get tough, it is important that you rely on the their good work. I created opportunities for professional relationships that you have managers to get training at several respected developed locally and nationally with your police management training programs in the peers in the business. They can be a com- hope that they would experience the forting reaffirmation that what you are doing epiphany that I did, and come back with that is the right thing to do and help you get fire in their belly for our profession. through those troubling times. We were successful in fighting crime This brings up another thing to consider. (dropped serious crime 40% in just five Don’t stay too long. You can accomplish a years) because of a consistent cohesive lot in six to ten years, but as you reach eight, command staff that was empowered to run nine or ten years in the same job, you can their own operation and held responsible for get stale. Unless you have a way to person- the results and accountable for their employ- ally re-energize yourself to where you ees and their performance and behavior. started as chief, it is time to think about Risk taking was encouraged and the mis- moving on and let the next generation takes made were taken as lessons learned for (whom you should have been developing) the group. Collaboration and sharing of take over. Fresh people bring fresh ideas and resources was encouraged and commanders the drive and enthusiasm for the long hours, were held accountable for results. I always occasional crisis and tragic incidents that looked at the departure of one of our you never get used to. Burn out can happen commanders to be chief of another depart- to the best of us. You also have to consis- ment as a feather in our cap, not the loss of a tently remind yourself that your family is great employee. A new chief should find out more important than your job. The crime who are the individuals, that if they left the will be there when you get back, your family department, they couldn’t be replaced. If might not. Or your children are suddenly all you had such people, they have been there grown up and you missed it. Never lose too long and should be replaced as soon as sight of the fact that you could die tomorrow possible. Get others in training to take over and as Sonny and Cher would say: “the beat those jobs, if they are related to policing. goes on.” I remember one officer that had been in Your true legacy is the systems and people narcotics handling forfeitures, and not doing you helped develop and left behind. A police work for many years. He was the only successful police leader recognizes that they “go to” person that knew that job. When I have an obligation to the community for not hired a civilian accountant shortly after only their safety while they are there, but to arriving, we found out that the “indispens- ensure that safety when they move on. It is able officer” had stolen a lot of money. It also true for the successes you enjoyed while should be noted that cops just don’t want to there. The key to operational success is the believe that cops can be bad. When the consistent mentoring, training and promo- deputy chief and captain told me they were tion of competent staff. A successful police calling the “indispensable person” (who was leader must provide equal opportunity and a running out sick leave at the time with intent level playing field to employees at all levels on retirement now that a civilian was taking for assignments, training and promotion. I his job) to see what happened to some

75 To Lead, To Learn, To Leave a Legacy

money sent in for forfeiture with the US embezzling of the officer mentioned above, Marshall’s Office, I told them not to call him long before he was finally caught. At the time as he may be a thief. They took umbrage to I called in the State Auditor to review our that but agreed to look further. By the end of entire property unit function (remember the day, they found that over period of years transparency) and shared that report with the in small amounts, over $400,000 had been Major Cities Chiefs. I advised them to look at stolen. I must admit to a little personal the issue as they could have time bombs satisfaction at getting him 21 months in a ticking in their property rooms. Within six federal penitentiary and taking and selling months, a large Canadian city identified a his $250,000 lake cabin. huge problem with missing firearms and a large Northeastern city ended up with indict- Don’t take for granted that your command ments and retirements from their property staff is watching the store. There is a good units. As to accountability, I believe the chance many of them are not. If there are “compstat” process has shown all of us what hints of integrity problems, don’t be afraid to can be accomplished when you hold people do some integrity testing. In a Northeast city, accountable for what we hired them for. the FBI had a Florida department call the detective bureau and asked them to try and COULDA, WOULDA, SHOULDA is a arrest a person at an address there for a game that a successful chief should not felony offense of drug dealing. The targeted spend a lot of time worrying about. When detective (a twenty year veteran detective you make a decision and the “bullet is out of supervisor) went to the address, where a the barrel”, there is nothing you can do about large catch of cash was found. FBI cameras it. Sure, there are decisions that I wish I caught the theft on tape. would have made differently, but articulating one for posterity will only give incite on that These issues lead to internal discipline and specific set of circumstances. Good police accountability. We all know that bad things leaders learn and grow from their mistakes will happen. But there are a lot of bad things and the mistakes of colleagues. The key is if that can be avoided, and if the Chief hasn’t you don’t know for sure, ask. That is what addressed those issues or left them un- our police associations at the state, local and checked, their tenure will not be long. Like it federal level are for. A ten minute phone call or not, our employees are drawn from the can save your city hundreds and thousands community we serve and they come to us of dollars and you your job. It’s O.K.not to with the same bias, prejudice and hang-ups know what to do. that afflict the rest of the population. Some people slip through that shouldn’t, even with Here is a mistake. When I took over my the most thorough background investiga- first department as chief, I had all the right tions. These are people that I always say academics and latest operational techniques should have been “Maytag Repairmen”, so packed in my carpetbag. But I neglected to that they will never have to come in contact start slowly by educating and collaborating with any other human beings. Besides all the with the people who were going to cany out training and department policy on ethics in these new operational ideas to gain their buy policing, if the rules aren’t being enforced at in and sense of ownership. I foolishly the first and second level of supervision, bad thought that they would see the brilliance of things will happen. As Ronald Reagan said: this initiative and follow me to the devil’s “trust and verify”, or something like that. gate. When I got there, I was all alone. It takes time to change culture in our business Besides an aggressive Internal Affairs and being autocratic will never get the job function, there must be an internal audit done. “You can lead them to water. . . .” In process that routinely reviews operations and my next life, I formed several groups of ensures that there is compliance with depart- personnel from all levels of the organization, mental policy. Without it, the chief is blind to gave them a vision of what I wanted to what is happening in their organization. A accomplish, and then empowered them and simple audit would have caught the turned them loose on the idea. What came

76 Blessed Are the Peacemakers back, with a little shepherding, was a plan leader. And always remember to leave your that was bought into by the rank and file and ego in the closet. You can achieve self- successful. It took longer, with lots of actualization without it. That doesn’t mean education within and outside the organiza- you shouldn’t be visible and publicly on tion, but it worked. Patience is a virtue. stage for issues at the chief’s level that the public expects to see and hear their police As I look back on things I did or didn’t do leader. At the same time, take pride in because of politics, I always held true to my developing and watching others excel under ethics, regardless of the cost. But there were your leadership. times when discretion was the better part of valor. Of course there are those important When we talk about an operational or situations where you must hold firm to functional style in dealing with challenges yourself and your integrity. However, there from the political environment, special are lesser important things that can be done, interests and etc., transparency and honesty if political prudence is applied, and still not is the best policy. When one of your damage your personal integrity. Police employees does something “bad” in or to the chiefs need to think like NASA. Sometimes community, get out front with it. When one they have to wait for a break in the weather of our personnel was accused of sticking a to launch the shuttle. The same is true in the toilet plunger up the rectum of a minority political world. Timing is everything. For drug suspect, it was the chief who contacted example: When I decided that the “X” the affected community leaders to tell them program was not an effective and efficient what had been reported and what we were use of personnel, I waited to end the doing about it. I called a press conference program until the State Coordinator for the right away to point out how seriously we were program was no longer the Attorney General taking this allegation. In this case I immedi- for the State. I also made sure the local ately turned it over to the FBI, whose later public agency we partnered with to do the investigation showed the suspect to be program was on board too. In another untruthful in his report of what happened. We situation, I was going to appoint a precinct did not have the community uproar that might commander to deputy chief and I knew the have followed in other communities. Always boss might not be happy about it. So I did it keep your political constituents informed as and dutifully emailed him that I was well. It is your job to advise them what they appointing someone. I got an email back that can say when confronted by the media or I shouldn’t do that, so I advised him that I their constituencies. Never let a political had already done it and the person had person get cold called from the media on a already worked for a couple of days. I big serious police issue in their community. advised him to send me an email if he wanted me to un-appoint the individual. The Sometimes the political environment can boss didn’t respond. He didn’t want it on the not only get you fired, it can get you hurt. record that he was directing me to do Don’t be naive about the viciousness and something he shouldn’t. corruption that politics can foster in a community. When I took over a large I have also found that many council Northeastern community, I replaced a members and other political persons actually predecessor who had been picked up on FBI like that fact that “That darn chief won’t do surveillance tapes with known associates of it” and they are able to relate that to the the mob. City Hall was also infested with constituent or special interest group that was persons associated with people they pressuring them. Of course those incidents shouldn’t have been. Our community was can become cumulative and again, eventu- colorfully known to the residents as “the city ally, or when a bad thing happens they get of hills, where nothing is on the level.” A rid of you. When you think about other couple of cabinet members and others were approaches, pick your fights. Don’t fall on milking city hall like a cash cow. In this your sword for an issue that is not that situation, we asked for help and we got it relevant to your integrity or real success as a from State and Federal authorities. A long

77 To Lead, To Learn, To Leave a Legacy

investigation finally put one city commis- sioner in prison, sent a local union official into hiding and relegated another commis- sioner to acting as a look out for a local gambling operation in NY. There was an off site local unit, headed by a captain, whom I couldn’t figure out what they did, even after the captain explained it. I had a trusted captain in internal affairs take over the office and their records and three members of the unit retired. It is believed that they were doing political intelligence gathering and other unknown special operations (black bag jobs), not to mention submitting overtime slips on case numbers that either didn’t exist or were empty files.

When this type of corruption is detected, the road is clear. I had the back up of a firm contract for employment (I demanded it to take the job) and that helped the city manager at the time, to resist the special interests that pressured him to get me under control. Politics also determined who was promoted and who was assigned to where. Every change in political leadership caused wholesale changes in detective assignments and appointed promotions. Even civil service was circumvented when a “favored son” was #5 on the captains list and with only three vacancies, they either skipped two (rule of three) or created two more captain positions. All of this stopped and the rank and file officers felt good about their jobs again. A lot of “Maytag Repairmen” had also been hired and had to be weeded out. During the course of dealing with these issues, a bomb exploded under my car as I was getting in it. The incident impacted my family signifi- cantly, but solidified my support in the department and neutralized any political interference to our investigations.

Being a police chief can be a thankless job, but knowing in your heart that you have done your best and always did what was right will lead you to a personal self actual- ization and satisfaction that the community, whose safety you were responsible for is better off because you were there. “Blessed are the Peacemakers.”

78 So, You Want to be a Police Chief So, You Want to be a Police Chief by Ruben B. Ortega

Experiences, observations and ramblings by a participant who ran the gamut, often referred to as Police Chief.

or some reason that I do not fully otherwise (for political expediency, to understand, I have been asked to share minimize criticism, to incur favorable Fsome thoughts and observations responses and/or employee acceptance) in (which may be helpful to others) by the the short run may seem to be the acceptable leadership of the National Executive thing to do, but in the long run will collec- Institute Associates, Board of Directors. tively minimize a successful tenure. The difficulty of such a request is how do you share your experiences without appear- Perhaps those of you who are currently ing condescending or superior? I’ll give it a Police Chiefs made the decision, like I did, try, but nevertheless, I ask for your forgive- because the satisfactions of being a police ness before you read on. chief are many and rewarding:

So, you want to be a Police Chief! More • You achieve your ultimate career goal, importantly, do you want to be a successful • You are in a position to effect positive police chief? Those of you who currently change, are not police chiefs, but aspire to hold the • You have opportunities to enhance law position, let me first share some observa- enforcement, tions with you before you finalize your • You will have the opportunity to decision. And for those of you who are showcase your management experiences current police chiefs, have you ever won- and skills, dered why you left the safe, secure, civil • Your position of leadership is service protected, “I’ll pass it on to the established, Chief,” sanctuary of Assistant Police Chief? • You will enjoy public tribute for the hard work that led to your selection, and To the first respondents, my advice is do • You and your family will benefit from not become a police chief unless you can the financial promotion, and, the list accept the probability you may not have the goes on. position beyond six months, a year or perhaps (if you are lucky) three years; or You cannot, however, lose sight of the unless your psychiatrist has said you are a factors that will work against you. Knowing hopeless case and you might as well seek the what these factors are and appreciating their job of police chief. If you need the pay- challenges, will enhance your ability to meet check, or if you cannot take criticism of the them, work with them to accomplish the magnitude of headlines and editorials, you responsibilities of the job, and overcome will not be a successful police chief who those which can be detrimental to carrying makes significant improvements to the out the duties of your position. community, to the Police Department and to law enforcement in general. You must be First and foremost, understand this—the free of the worry that you can lose your job average tenure of police chiefs of major whether voluntarily or involuntary. cities with populations of 500,000+ (and, I suspect, cities that fall into the population You must have the inner strength and self- 1/ range of 300,000 to 500,000) is 3 2 to 4 confidence that you will put forth efforts that years. The reasons for this are many and are based on the premise that your decisions varied and perhaps some day this phenom- and actions are the right thing to do! To do enon should be the subject of in-depth

79 To Lead, To Learn, To Leave a Legacy

research. I submit that one of the fundamen- advice. Honing my skills from the experi- tal problems of effective law enforcement in ences, teachings and guidance of those America today (as it has been for the past 75 more knowledgeable (about law en- years) is the lack of sustained leadership of forcement) was possible for me because police chiefs in cities of significant size. the more I was willing to listen and learn, the more my mentors were willing to share It is extremely difficult and, in some cases, their knowledge. impossible to institute sustained changes in the culture, character, practices and patterns In addition, the following traits were of police departments in four years which invaluable to me in enduring a longer than have been ingrained for decades. Therein normal term as Chief. lies the first challenge, if you conclude that critical change is needed. • The self-confidence that you are up to the task of being Police Chief, The opposition to change is a formidable • Freedom from the worry that you need foe. It will come from both within the the job, department and from outside. A common • Possessing skills of effective oral and theme of those who oppose is, “Let’s just wait written communication, political it out, he or she won’t be here long and it will persuasion, the art of compromise change back.” Unfortunately, they have been without compromising ethics, integrity proven to be correct too many times. and honor, and giving credit to others regardless of the level of their input. Oh, how I wish the old adage, “When the going gets tough, the tough get going!” was Following, in no particular order, are some more prevalent in efforts to create meaning- suggestions and observations that I feel ful change. Unfortunately, efforts to institute helped me to endure as Police Chief. needed changes often results in “When the going gets tough, the Police Chief gets The very first thing I did upon being ‘gone’!” There is no question that becoming selected was to sit down with my boss and a police chief can be the pinnacle of a law express my appreciation that he had selected enforcement career. Unfortunately, for too me. I told him “If the day ever comes that many, being a police chief and having to you feel things aren’t working out and you leave on others’ terms, sours what otherwise want to make a change, all you have to do is had been an enjoyable profession. pick up the phone and tell me you want to make a change. I’ll understand, you have The task of being selected as the Police that prerogative, and I’ll be grateful for the Chief among the many competitors is not as opportunity you gave me.” This laid the challenging as being, or having been, a groundwork of understanding between us successful police chief (as defined earlier), that and freed me from the anticipation that I is, if you have prepared yourself for this goal. I could get fired some day. am not talking about preparing for the competi- tion one year out from the selection process. I watched and learned from those I The preparation begins from the earliest years respected as effective leaders. I adopted of your career in law enforcement. traits and practices they used that made them good leaders, modifying them to fit me and Having served almost twenty years as a to establish my own leadership style. police chief of two major cities in America, I “Participatory Management” was the overall can look back and reflect on the fortunate style of management I practiced and I opportunities of having made positive believe it served me well. Encouraging my decisions that defined my ascension to the assistants and commanders to participate in top job. They were decisions that came the decision making process and many times about, for the most part, because of others adopting and giving them credit for their I admired and to whom I listened as they ideas, suggestions and opinions, cemented an shared their experiences, wisdom and overall effective management team.

80 So, You Want to be a Police Chief

I made sure that whenever I held subordi- your jurisdiction. Although not easy to do, nates responsible for given assignments, I establish a one-on-one relationship with also gave them the authority to carry out your mayor and each council member, those assignments. Awards and recognition without circumventing the primary relation- activities, frequently given, also helped ship with your immediate superior. establish loyalty to my management initiatives and goals. For example, every Swallow your pride, if need be, but create promotion to the rank of Sergeant and above or develop community advisory group/s or was always preceded by a short reception in committees that include some of your (or the the Chief’s conference room for family and department’s) most vocal critics. This close associates of the recipient. process helped me numerous times to deflect disruptive criticism resulting from police Establishing a firm but fair practice of shootings, use of force issues, arrest of discipline to encourage the adherence to protestors and/or rioting participants who policies, procedures and general orders, led broke the law. to a clear understanding of expectations. Eliminating all aspects of “good old boys,” Make presentations to business leaders and “who you know, instead of what you know,” groups. Join civic-minded organizations, in establishing processes for promotions, such as a rotary club or Chamber of Com- transfers and assignments eased confronta- merce. Develop your own support groups tions with employee groups. who will step forward in speaking out on your behalf when you implement new programs or Having a clear understanding with the initiatives, or when there is disruptive Police Union that their interests, requests criticism of you or the department. and input would be welcomed and accepted where applicable, but that the Police Be a team player when it comes to helping Department would be administered by the your city develop the budget. It is easy for Chief, City Manager/Mayor and Council, public pressure to force the Mayor or not the Union. Union leadership would be Council to fund public safety issues or held accountable for disruptive activities, programs, to the detriment of other depart- such as, “no confidence votes,” public ments. Make your share of cuts, if neces- derogatory comments toward the city or sary, without crying “foul.” Trust me, your department, “blue flu” and/or unlawful strike willingness to give and take will be re- activities. Early on, I operated from a warded when you really need it. position of not allowing myself to become too personally concerned about “no confi- As much as it pains us, you must have an dence votes,” this was perhaps because I open policy with the media, never mislead- endured and overcame five or six “no ing intentionally, or misrepresenting the confidence votes” during my tenure. facts. Agitation or anger toward the media will not serve you well in the long run. We took calculated risks in implementing Remember, “You cannot beat those who buy new anti-crime programs and initiatives. If ink by the barrel!” they were successful, I gave credit to my superiors and if they failed, or garnered Lead by example. Be uncompromising in criticism, I took the responsibility. developing a character of honesty, integrity, honor and fairness. The challenges you face The practice of keeping my boss/Mayor are enormous, especially with the added and Council apprised of major events or responsibility of homeland security issues. problematic issues, and especially eliminat- But you must take on one more challenge. ing any aspect of “negative surprises,” Police executives must change the pattern of served me well. It is important to quickly unsustained police leadership in America! It develop political acumen to aid in side- can be done through a plan mapping out the stepping political mine fields, but at the strategy, coordination, political acumen, same time to serve the political leadership of communication and persistent desire needed

81 To Lead, To Learn, To Leave a Legacy

to establish an acceptable process of sustaining good police chiefs by those making the selection. I would welcome the opportunity to assist in such an endeavor.

The legacy you leave will be defined by others. The degree of change for the betterment of your community and law enforcement you accomplish will also be interpreted by others. But in your heart and mind you will know you made a difference. Take the credit!

82 The Eight Habits of Creating a Legacy The Eight Habits of Creating a Legacy by Ron Palmer

ince leaving law enforcement in July, good or bad. I was lucky. My ten years in 2002 and starting my own security office in a major U.S. city is an accomplish- Sand media consulting businesses, I’ve ment in itself. I got to stand up at the start learned a couple of things. One is, if you line - got to do some things (viewed as not create a title or subheadings that are num- all good) in the next decade – and got to the bered, bulleted, or give people things to finish line on my own terms. For some NEI count, they are more likely to read the text for graduates, the echo of the starting gun has the instant gratification that numbered things barely faded before some volatile policing give us. Hence, the title – actually I don’t issue or politics wipe out their chance to know if I have eight habits of legacy creating leave a legacy at all. That is a sad documen- I can share with the NEI Associates. But I tary on the state of big city policing and have captured your attention if you’ve read politics, and does not lend itself well to this far. Mission accomplished at this point. legacy building.

The second thing I’ve learned (perhaps Had I sat down and written down a legacy more of an observation) is those of us who statement on day one (which I did not do), have been immersed in law enforcement for my number one thought as I remember it most of our adult lives usually end up would have sounded something like this: staying immersed or, as a second choice, end up having little interest in true law enforce- “O.K., so you are now Chief of Police. ment issues as time moves to the right. I’ve Don’t get too full of yourself hotshot. Both turned out to be the latter, sometime much to the cops and the citizens you are responsible my amazement. for have great expectations of you - which you may not be able to satisfy all the time. While in law enforcement and during my Remember your roots – you are a cop. (Albeit 12 years as a Chief of Police, I loved the four or five ranks removed from the beat, but job, the people, the strife, and the contro- still a cop.) You’ve learned to be an adminis- versy. In retirement, I have thought about trator. That learned skill will be tested. Let’s seeking the “perfect” Chief’s job – no crime, see how you do now balancing the cop / up-scale community, big salary, harmony in admin deal. Today, and the rest of the days diversity, fully funded, cutting edge equip- you are in office you will be judged by all ment, etc. etc. I haven’t found that yet and that you touch and all that you do. You will actually do not look too hard for that make history and you will leave a mark on opportunity. But, after 31 years, law this Department. Let’s make it a good run enforcement is what I found I knew and here and everyone will be better off when it is what I had my highest comfort level with. all said and done no matter how long it lasts.” So in 2005, I still dabble in the noblest of professions, but remain undaunted by not #2 Know Where Your being immersed. There is life after the P.D. Compass Needle Points Perhaps these legacy creating habits are better called lessons learned. I often thought about consistency of pur- pose, word, and deed, and tried to put that #1 Legacy Building thought into routine actions – a very difficult Starts Day One task indeed at times. Things happen that do make you change your mind or your stated I think I knew there would be a legacy of position. Or you can be told to change your some sort left in the wake as my tenure as mind by your superiors, a court, a union Chief. Everyone leaves something behind – contract, or binding arbitration (organized 83 To Lead, To Learn, To Leave a Legacy

labor’s best effort at paying you back for error, omission, or screw-up. Our infallible taking the Chief’s job, in my humble façade of Chiefly perfection may be tar- opinion). My thoughts on consistency were nished. Get over the perfection deal – you never really validated by anyone one way or aren’t perfect, nor are all your decisions. the other (bull headed or waving in the wind) until I had a chat with the local F.O.P. Sure, if one were to examine my police President one day in my office. legacy, I did upon occasion, send the messenger to be killed. That methodology I don’t specifically remember the issue, of delivery of bad news is really too easy, but do know it was about an Internal Affairs and, I might add, if used too often looks investigation where there was going to be cowardly to the troops, the media, your some discipline handed out. I was probably peers, and the citizens of your city or county. seven or eight years into my tenure. He “Chicken-something” I believe they call it came into my office to discuss the matter in here in the mid-west. You should know when part, and was also there to check the tem- to stand and deliver as Chief. Good news or perature in the Chief’s office on what might bad, you must develop a sense when your happen to the cops. The discussion was, in skills as a leader need to surface. If you fact, a discussion, but my position did not can’t take the responsibility for your actions waiver regarding the findings and the (and at times of those officers you com- discipline I thought was appropriate. mand), you, in my estimation, are not the leader you profess to be. In the light of day, At that point he said words to this effect, all will see you as the tortoise that creeps “Chief, you know we don’t always agree. back into their shell at the merest hint of And, of course I think you are wrong here. controversy or criticism. Be responsible for But, you know, I can come in here and most that which you are responsible. Change or always know where due North is. Your manage those aspects of individual responsi- compass needle rarely goes off the path that bilities you are uncomfortable with or turn you have set since you’ve been here and I’ve out wrong – that’s what they hired you to do. been President. At least we know where we stand and that is appreciated.” Needless to #4 Humble Yourself say, that exchange was the best validation of consistency I could have ever received. I’m undecided while writing this exactly what size a Police Chief’s ego should be. If a #3 Take Responsibility Chief, I believe it is universally accepted that When it is Yours you must have an oversized ego in order to:

Buck passing in government is commonplace • Believe you should try to do the job and has in some police departments becomes at all. an art form. I’ve seen many Chiefs or • Actually do the job well once in office. Sheriffs literally use the good cop/bad cop tactic in press releases, policy distribution, If this premise is agreed to, then the only budget hearings, and union negotiations. issue is how big that ego should be – bigger This drill is usually recognizable to all in a than a grapefruit - the size of small foreign car very simple critique of what is happening – as big as all outdoors. Who knows for sure? within the Department. The Chief stands up My thoughts on this issue (it is an issue - look and talks when there is good news. Some- around) center on the idea the Chief’s ego body else is assigned the chore of presenting must be large enough to have more than bad news. (i.e. Deputy Chief, P.I.O., adequate confidence in their abilities to lead, secretary, janitor, anybody but the Chief). manage, and articulate their vision. But Oh my! We certainly don’t want to associate somewhere less than the God-like, policing ourselves with the bad news now would we? Messiah, that demands that people bow down We might be criticized of how we do our and kiss the ring and continue to worship the jobs if something goes wrong, and God ground that they have touched in rising to the forbid, especially if we take credit for the top of their profession. 84 The Eight Habits of Creating a Legacy

To re-coin a phrase: “Size does matter!” you go about presenting new ideas, having The size of a Chief’s ego depends, in part, (in them accepted and finally adopted as the media terms) on the size of market you are new police culture for any Department of playing in. The Chief of “Middle of No- any size. If hired as a change agent Chief, Where America” will need to rely less on your boss will expect some immediacy of their ego and how that ego is perceived, than action – changes in policy, procedure, and the Chief of one of the ten largest cities in the most important, policing philosophy. You U.S. How that ego size “plays” out to those may be charged with an overall attitude around them matters as well. An ego maniac adjustment of a large number of people who is soon discovered to be just that by subordi- have an established way of doing things for nates and others that must work with them, perhaps decades. Not an easy task. Your and may quickly lose the respect of those they job then can become one of two things: wish recognized their “superior” talents. • A kick ass and take names autocrat. • A salesman. (not just an ordinary Which gets to the point of Habit #4 – you salesman – you will need to become the are human – you err – you can be self- proverbial “Selling Snowballs to effacing – you can give credit to those that Eskimos” salesman) deserve it. Nobody will be hurt. People will respect you for your expressed humility. My thought for long term survival is to Somebody, somewhere, will do something sharpen you sales skills. You must become better than you can do it. That person could very proficient, very quickly in selling your be within your department, be a citizen, be vision, your policy changes, and your another government official. It’s O.K. that attitude adjustment to a customer (the cops) person may not be you. that hate change and also may hate what you represent. The kicker is, you must “close” #5 Sell, Don’t Cram this sale as soon as possible.

In this day and age, most of us are hired to As a “stop the bleeding” Chief I had more be “change agent” Chiefs. Our predecessors time to do this than your average change have left office for a variety of reasons, agent Chief. I learned though that cramming many of them bad reasons. Even in those it down their necks won’t work in any time Departments where the Chief has left office frame. Fortunately for me, the troops in my due to his “many years of devoted service Department had already seen that attempted and well earned retirement”, the city/county and would not tolerate any approach that administrator is generally looking for resembled that. Cajoling is a good technique something new. You do not see want ads when properly applied. Sales is not an easy seeking a status-quo Chief. If status quo is a skill to develop, especially when you know stated goal, read between the lines, as that you are in charge and results are expected environment is usually short lived – progres- yesterday. Hey, how you get there is up to sive change is the current catchword you. This is not “Salesmanship 101”; it’s (whatever that means). What that might only Habit #5. mean is that we all have the opportunity to be change agents. How we go about this is #6 Stay Current imperative to how long we might survive before we are fired for not being progressive While on the job I loved having people work enough – not fast enough, or worse yet, for me that were smarter than I was, but I succumbing to a vote of no confidence for hated it when they started discussing trends being too progressive - too quickly. A in policing that I had no clue about. My classic “Catch 22” scenario to be sure. feeling of subtle (or not so subtle) ignorance of not being able to discuss this new idea Jokingly, people said I was a “stop the with them, left me empty and scrambling for bleeding” hire. Not a bad position to be in a Google search on the internet or calling the (you can only go up), but there are lessons IACP, MCCA, or NEI to find out what I was learned in this situation as well about how missing. The ignorant bliss I experienced in

85 To Lead, To Learn, To Leave a Legacy

these situations was exacerbated about a not risking their lives in doing so. Cops rule. hundred fold, when the Mayor or other city Remember those days? Of course you do – official started to discuss (read: “ask me”) that was just yesterday for some of us. about my thoughts on how they were dealing with police issue in such and such a place. Know this. As a Chief you work, live, exist Nodding knowingly and buying time by in a political arena. You may not like that, but stating I was still catching up on that issue if you didn’t know it before you took the job, was not a position I wanted to be in and you do now. In that arena, there are many made every effort to assure that I wasn’t players – some of them actually believing that there too often. Knowing only what I knew cops are no better than just overpaid security yesterday is never enough. guards. This makes us mad. We, as Chiefs, still hold onto the lingering mentality that the Despite busy schedules, demanding rest of the world (city /county government) personnel/citizens, grueling hours, and all are inferior to us and we should be getting the the other things that go into the thought that lion’s share of all the tax dollars available to we just don’t have time to read, listen, and our jurisdiction. Sorry, not the case. Public participate in additional training, just doesn’t works will always win this battle. Others (fire, work at the Chief’s level. Remember item parks, etc) will get their share as well. Look #4 about egos? Being smart/current and at your budget at 30,000 feet, not the three being able to speak and adopt current issues feet that it lays in front of you on the desk. If and philosophies is not about ego and you you can do this (some won’t get there), you just being cocky. It is about being profes- will better understand that you are in fact part sional – pure and simple. There is no other of a team that is, in total, attempting to way to put it – stay current in your profes- provide a vast array of city services, which sion and you will be perceived as a person just happen to include police services. who is knowledgeable, a leader, a progres- sive thinker, and also all the accolades you What a revelation. You just turn out to be need to feed that giant ego . . . and allow you a very integral part of this whole city/county to survive and thrive as a Chief. team. What would happen if I turned down the ego for a moment and maybe the holier- #7 There is No “I” in Team than-thou attitude and attempted to cooper- ate in this budget deal for a while? Not be Before you grab the closest waste can and pushed around (nobody’s going to do that, puke, let me explain the use of this piece of trust me), but maybe just offer up a bit on trite wisdom you may have heard while conciliation from time to time and try to getting the losing halftime tongue lashing work together as opposed to being high and from your junior high school football coach. mighty with your peers in government. I’ll My intention in promoting this thought to guarantee the boss will notice and appreciate you now is better understood in retrospect – your cooperation and attitude toward the since I left government in general and overall good you are promoting for the city. policing specifically. If the boss likes it and stays around, you stay around. Fight for what you believe is If you are a Chief you were likely once a rightfully your share of the budget pie, but street cop. If you were a street cop you understand that nobody wins the whole of learned (rightfully so) that the other city the pie itself. departments in your city were the enemy. They sapped precious dollars from the police #8 Expect the Race budget (and your paycheck) for the purpose Card to be Played of filling pot holes, building playgrounds, putting in sewers, and the other thousand I know of no major city Chief / Sheriff that things that cities do with their tax dollars. has not been touched in some manner during All you knew at that time was that you were their tenure (no matter how short or long) by under paid and over worked and others in the race relations in their jurisdiction. NONE ! ! city were making more than you and were

86 The Eight Habits of Creating a Legacy

In my career I’ve been honored by several Epilogue or Epithet? different minority groups in three different cities for exemplary diversity programs, Lessons learned (or legacies) need not be minority community policing efforts, and profound to be of value. As it turns out I did minority recruiting. As Chief I experienced find eight of these little pearls of wisdom to the heartfelt disappointment of being called share – which surprised me – I didn’t think I racist by both officer and citizen alike had it in me. Obviously the ego is still at despite my best efforts of creating non- work here (albeit it rests more frequently). disparate treatment on the streets and in the squad room. I have no habit to offer up in There is perhaps a 9th habit that could be this regard that one could turn to and say, considered as either the epilogue or a “Yea, this will work. I’ll try this because something that I would feel honored to have I’ve seen it work.” Sorry to disappoint you, put on my headstone at some future point but I just couldn’t find the solutions that (distant future). This is an easy one. I’ll ask were universal for everywhere I worked. you again to think back to your roots. Remember when the Chief showed up and Perhaps therein, is the answer. What you didn’t expect him. Wow! He just worked in Kansas City, Mo. may work in showed up. Showing up is important stuff to Portsmouth, VA., but doesn’t work in Tulsa, your subordinates. Dinners. Squad Meet- Ok., or vice versa. Every city I’ve worked in ings. Court. Managing by walking around. has brought its own individual perspective to Birthdays. Retirements. The list goes on racial issues. The solutions to these indi- and on. You don’t have to be invited. Don’t vidual and differing issues become situ- ational at best. At worst, they simmer and show up and boss folks around. Show up boil in an undercurrent of unrest and tension and enjoy the moment. These are real folks that often explodes into the streets in the that work for you, not just a payroll number, form of riots and civil unrest that expresses not just a nameless face. Be there for them the frustration of those police / race issues when they need you and also when they least that have been part of policing forever. expect you – then they will be there for you. This effort extends to public appearances as Fortunately, I personally never experi- well. Do the extra community meeting. Go enced the explosion of the race riot and the to a barbeque. Walk in parade. Participate. distrust of the police that follows those Be seen. situations. I know that many of my NEI peers have had to deal with those issues. Nothing is better than leaving the legacy Neither white, black, or Hispanic Chiefs of citizens and officers alike telling you that seem to have all the answers to this most you are missed and you did a good job. I important of police issues. I do know that like this. For me, these are a frequent the law enforcement professionals that have occurrence – which is a great personal participated in the Major City Chiefs legacy. For me, etch my headstone so it Association and NEI expect the race card to relates my legacy: be played at any time. They are correct. It can be played when you least expect it. Ron Palmer What I have observed and should continue Chief of Police (Retired) to be the prominent thought on this issue is 1950 - ???? that minority relations to police are vitally “He Showed Up” important. All people, regardless of race, having contact with the police should be treated with the dignity that they deserve and earn. And, lastly, it is my belief that my former peers will continue to search for the answers that resolve these troubling issues for the betterment of all in a manner that values equality, justice, and the civil rights afforded to all of us.

87 To Lead, To Learn, To Leave a Legacy

88 Legatus: Who and What We Are Legatus: Who and What We Are by Paul Pastor

Balancing Ego and Service Character Counts

The motivation to enter law enforcement I tell our new recruits that to be truly success- seldom starts with ego and ambition. It starts ful in law enforcement, they need to do two with a sense of service and obligation, or at things. First, they need to be stronger in least an intention to be part of something character than other people. Second, they bigger than ones self. When we enter the also need to maintain a sense of humility. profession, we get to realize this intention because we are afforded a tremendous oppor- Being of strong character – being tunity – the opportunity, in the course of our grounded in and focused on ethics and duties, to perform routine acts of heroism. values – can present a challenge in the This is not the kind of heroism which re- midst of America’s morally-subjective quires one to be “larger than life.” Rather, it popular culture. There are times when our is the kind of heroism which simply requires national moral compass seems to have been one to be larger than one’s own life. Thus, replaced by a weather vane. Sometimes it most of us enter the profession with a strong feels that we are swimming against the sense of duty and obligation, a sense of the current and policing against culture. dignity and worth which comes with serving Occasionally, we may have this feeling in the greater good, with being “larger than dealing with internal personnel issues. ones own life.” Setting and keeping to an ethical path is essential but difficult. A decision to seek advancement and promotion within the ranks of an agency may In 1991, I was Chief of Police in a city well have this sense of service as its primary which had experienced political turmoil in motivation. But ego and ambition are also its Police Department. The mayor and the involved. A decision to seek advancement to police union were in bitter conflict. As a the top rank certainly contains an element of young (plus relatively naïve and inexperi- ego and ambition. Ego is, of course, neces- enced) police manager, I took the Chief’s sary in our work. After all, policing involves position. Three Chiefs had preceded me in the direction and control of other people. It is rapid succession. I learned some things, but not surprising that those who enter the it was not enjoyable. Each side expected me profession must have fairly strong egos. to champion their cause. And each advo- Those who seek positions of command over cated questionable tactics. I managed to such people require an even stronger sense of upset both sides. Then, I received a vote of self and self-confidence. “no confidence” from the union when I would not sabotage the mayor at a city A key challenge those who lead this council meeting. Seemingly devoid of profession is to balance the value of service allies, I resigned rather than be fired. Later, I with the necessity of ego-strength. Self- found that I had plenty of allies. The people in confidence is a qualification. It is not a the community were tired of all the dishonor- sufficient qualification. It should never eclipse able shenanigans. Eighteen months later, the the idea that we exist to serve the agency’s mayor’s opponent won by a landslide. mission, the community and our personnel. What did I learn ? Several things. First, If we are to lead successfully, we cannot I learned that you always need to hire “check our egos at the door.” But we should yourself a good boss. Next, I learned that always keep them “in check.” Sometimes the when you go into a new agency, always get a ultimate indication of strength is humility. contract. I learned that by working hard and

89 To Lead, To Learn, To Leave a Legacy

cultivating the community, it is possible to Many of us who were not cautious enough become more popular than your boss. I also to seek the responsibility of top law enforce- learned that it is dangerous to become more ment posts were clearly not careful about popular than your boss. Finally, after a few what we wished for. Nonetheless, many of difficult months, I was able to pick up my us probably feel very grateful for the career and move forward. I learned that incaution we showed. Why grateful? friends in the business who will take time to Because of the opportunities which our support you are one of the most valuable positions afford us. They afford us the assets you can have. I decided that I owed opportunity to imagine change and then to some pay-back and that I needed be one of set about making it happen. They also afford those people when others were in the same us the opportunity to serve beside amazing kind of difficulty. people, people who have a sense of service and obligation, a sense of who they are As all of us know or rapidly learn, we do which goes beyond entitlement and personal not live very private lives. In the 21st century, advantage, a willingness to inconvenience there may be no such thing as a secret. But if themselves or even endanger themselves for you tell people where you stand, advocate for the benefit of total strangers. values and are seen to try to live those values, you may fall . . . and it may hurt . . . but you I am grateful for the people in my agency. won’t stay down. So, trying to discern and Not that I work with perfect people. They are then do the right thing counts. Character not “larger than life.” On occasion, they counts, but I wouldn’t discount timing, mess up. They can and do get things wrong. political sophistication and luck either. But day after day, call after call, chaotic situation after chaotic situation, they get a Risks tremendous amount right. And in doing so, they don’t just change the outcome of The minute you decide that you are going to incidents. They change lives. They change seek the top spot, you have entered on individuals, and families and communities. dangerous ground. We have all heard people They change things for the better; sometimes say that the best job in the agency is the in a big way but often in ways that are subtle “number two” spot – you have the power to but sometimes far-reaching. make change happen but you don’t have the same political target profile as the Sheriff or I suppose that there is a degree of ego and the Chief. It is important to the future of our even incaution in this viewpoint. But there agencies and the future of our profession that you have it. people serving under us are willing to step forward and increase their target profile. It Vision, Mission and Leadership is important that our people be willing to consider succeeding us despite the difficulty The Book of Proverbs tells us that “Where and frustration and risks of our positions. there is no vision, the people perish. . .” [Proverbs 29:18]. Our role, as leaders in law But what is more important, is that they enforcement, is to exercise vision: anticipate are willing to do so for the right reasons. the future, set a direction and then see that the Not for the deference afforded; not for the vision is shared, and implemented. By means power bestowed; and not for the ego boost. of vision, we provoke change. Leadership, at But for the opportunity to enable the good its core, is always about change. But leader- people who work for us to do their jobs. ship in law enforcement should not be limited to changing only our own agencies. We Caution and Gratefulness should also seek to transform our communi- ties and to transform our profession. Ulti- “Be careful what you wish for” is usually mately, we can and we should seek to bring good advice. While willingness to take risks about change on a larger scale. is an attribute of those who have ambition, a degree of caution is also an asset. 90 Legatus: Who and What We Are

It all starts with our mission. We have provide the platform for strong, effective three essential mission elements: protection citizenship and the potential for a more just of life and property, upholding individual society. That, in and of itself, is the most rights, and building stronger, more civil, powerful of legacies. communities. These mission elements not only describe the daily work and the general Legacy goals of our individual agencies. These mission elements also describe the essential The word legacy is derived from the same goals and the most vital work of our commu- Latin root as the word “legate” meaning nities and our nation. Safety and public “emissary” or “one who represents another.” order, rights and community engagement The meaning of the original root (legatus) is establish the platform for all other aspects of telling: a legacy is something which repre- civil society. They are the basis for strong sents who and what we are. It is something neighborhoods, strong cities, strong counties which stands for us and speaks for us even and a strong and prosperous nation. when we are absent. Our legacy to our agencies and to our profession, then, is The way we pursue our mission and the something which represents us. way our people pursue our mission is also important. We set a standard – we set an We are practical people. When we think example – not only in what we choose as our of legacy we often consider tangible things goals but also by the means we adopt to which our agency needs. We think of how we pursue those goals. Pursued within the can accomplish the task of delivering these context of core values such as integrity and things for those who succeed us. We think of responsibility and courage and compassion, what programs or what management systems our essential mission elements create the or what facilities we can obtain for our conditions under which a rare but essential people. There is nothing wrong with this. I kind of citizenship can thrive. have similar intentions. I want to leave my agency with more personnel, with a cadre of This is not citizenship based exclusively well-prepared leaders, with a functional on rights and entitlements. Neither is it doctrine of information-based policing and citizenship as a kind of civic consumerism with greater diversity within the ranks. where citizens seek to get plenty of govern- ment services and benefits at bargain prices These are all laudable goals. But there are – as if citizenship were modeled on some more important things to leave behind, discount warehouse store. Instead, citizen- things less tangible but more vital. Today’s ship essential to the well-being of the nation cutting edge systems and programs will combines a strong sense of responsibility for eventually become obsolete and will be one’s own actions coupled with a strong abandoned. The tangibles all pass away. sense of obligation to community institutions and to other citizens. It is a kind of citizen- But what an agency is, what an agency ship which moves us closer to an ultimate means – its mission and its culture and its goal which we, being practical people, values, the way it pursues its mission – seldom permit ourselves to talk about – a these things do not readily pass away. more just society. If we wish to leave a lasting legacy, we This vision is admittedly idealistic. It will work to impact the culture of policing in goes way beyond the real and immediate and our agencies and in our profession. If we difficult task running an effective law want a truly lasting legacy, we will work to enforcement agency. But in the midst of leave an indelible imprint of core values budgets and personnel issues, labor negotia- such as integrity and dignity and responsibil- tions and politics and the crisis of the week, ity on our systems and our people and our we may need to occasionally remind agency’s culture. ourselves that we do more than strive to effectively deliver safety and security. We

91 To Lead, To Learn, To Leave a Legacy

Because of the essential nature of our mission and because of the position which this affords us within our communities we have potential to have an impact that goes beyond the agencies we lead. This is possible only if our legacies strengthen the ability of our agencies to pursue their mission conscientiously and ethically.

As for me, I want to pursue one additional, fairly simple and modest legacy. I want the next Sheriff to be better that this Sheriff. Furthermore, I want the one after that to be better still. As legacies go, I could do worse.

92 Public Service is a Virtue Public Service is a Virtue by Joseph Polisar

stop and think about those important and hence gravitated to those who shared lessons that helped to shape my career. these beliefs. I was able to seek out and I First, it began long before I became a benefit from officers and supervisors who police officer. I was influenced most by my were able to mentor me. I was a quick study father, an accomplished surgeon with a and tried to sponge up everything I could thriving medical practice in Brooklyn, N.Y. from these individuals. He was a Type A personality who was driven to perfection. He demanded nothing less from Lesson learned: Mentors are critical to his three boys, of who I was the oldest. helping guide you in your leadership journey. Pick wisely. Although my father could have made considerably more money than he did, he Education is a never-ending journey. was dedicated to his profession and believed Although I waited too long to finish my in giving back to the community. I watched degree, it is better late than never. The fact is him take care of patients who could not that this world has no mercy on the unedu- afford to pay for his services and were not cated. Our profession has changed drasti- covered by any type of insurance. He would cally in the almost thirty years that I have treat these patients with the same respect and been involved and a formal education is courtesy as those who could pay. I watched critical to be successful now. You must be on him accept payments of homegrown a constant quest to educate yourself, in the vegetables, baked goods, homemade jellies classroom, on the streets and by seeking out and the like, in lieu of money. He felt this training and educational opportunities was a part of his duties to his fellow man whenever possible. and looked at this as a public service. His lesson to his three sons was Public service Lesson learned: Education, education, is a virtue. education!

The next most important lesson I have I learned early on that rules and regula- learned is for Chiefs and Sheriffs to pick the tions couldn’t cover everything that a leader right people to be field training officers or will ultimately be faced with. There has to FTOs. It cannot be stressed enough just how be something else than that can guide you in important it is for your FTOs to be the cream these instances. Although I think I practiced of your agencies as their impact on young this all along I never heard it described rookie officers is immense. better than by one of the finest in our profession. This goes to my previous I was blessed in that I had two class act paragraph on education, as I’ve heard this FTOs upon graduation from the Albuquer- gentleman lecture on leadership on numer- que Police Academy in April 1977. Their ous occasions. He said, “There is no right impact on me was enormous and I must give way to do the wrong thing.” these two fine gentlemen their due. They set me on a course early on that followed me Lesson learned: Do the right thing. throughout my career. We all have philosophies or mindsets that Lesson learned: FTOs are critical to the help us through those difficult times in our future of our agencies and profession. careers. A time that comes to mind was when I was notified that I was not going to I believed that I was answering a calling be retained by the new mayor elect. I could to public service from the very beginning have very easily been goaded into a public

93 To Lead, To Learn, To Leave a Legacy

debate about my dismissal, and in fact the area commands. I asked them to agree to this media tried very hard to get me to do just in an addendum to the current contract. They that. Although the temptation was there, I refused, smiting advise from their attorney chose the high road and refrained from any that this should be done during the next negative comments whatsoever. In fact I negotiations. I asked them to please recon- focused on my staff and challenged them to sider this position, as we would not be sitting rise above any negative feelings they may down to negotiate a new contract for well have about the new Mayor or how he chose over a year. They still refused. I believed the to replace me. Instead I encouraged them to union was getting bad legal advise and felt put any personal feelings aside and to make they left me no choice but to return the entire sure the troops stayed focused on keeping patrol to a traditional 5/8 schedule. our citizens and each other safe. In the long run this served me well and allowed me to This became a major debate during the retire with my dignity and even admiration mayoral election with the union offering from long time critics. $50,000 in soft money to any of the eight to ten mayoral candidates who would either Lesson learned: Never speak or write force me to give them back the 4/10 sched- anything when you are upset. ule or in the alternative get rid of me and put someone in as chief who would. I would have to say that having a vision of where I wanted to go or be in the future was In hindsight, I moved too quickly in critical for my career. I knew that I wanted to implementing the 5/8 schedule. I should have be a detective and I set out to realize that asked for a sit down with the union leader- vision. The same held true for my desire to ship and their attorney to try and work get promoted to various ranks and other through their concerns and possibly create a assignments. I had a vision and I set out to win-win for everyone. It wouldn’t have made accomplish it. a difference in the outcome of the mayoral election or my tenure as chief of police. Lesson learned: Good leaders have the However, it would have saved my depart- ability to envision the future. ment from a great deal of angst at a time when it could have done without it. As a As it related to my personal journey, I direct result of this I now have a labor/ knew clearly where I was headed and set out management group that meets regularly on a to get there. Similarly, I was able to do the quarterly basis to discuss labor/ management same in the various ranks and positions I issues. We stay on top of issues before they held. I was able to articulate the vision well become issues. enough so that my troops knew what we were doing and where we were going. Lesson Learned: You get the union you deserve. Maintaining good labor-manage- Early on in my tenure as a chief I had ment relations is a constant challenge. You occasion to come into conflict with my union. must take the initiative. What I wanted to do was to come to an agreement on testing an alternative work The thing I have come to realize over time schedule, because the current schedule was is that the one group of people in any law not working well at all. In fact, due to staffing enforcement agency, who have the ability to shortages, this schedule was having a negative affect morale more than any other, is the impact on our overtime usage not to mention sergeants. Due to staffing issues at the agency the health and well being of the troops. Per I now lead, they did away with lieutenant our contract with the union the only two work watch commanders over ten years ago. schedules I could implement were a 4/10 (the one we were on that was not working) or a When I took over as chief of police I was traditional 5/8. I approached the union very concerned about this situation. It has leadership and asked them to consider testing been my experience that you cannot expect a an alternative work schedule in one of our sergeant to be both a front-line supervisor

94 Public Service is a Virtue and a mid-manager at the same time. How- officials. It worked very well for our depart- ever, that is exactly what my department ment in a number of ways. had done. First, after I articulated my vision for the Due to financial issues I chose not to department, it provided a mechanism for the address this issue, believing we would employees to roll up their sleeves and help manage this problem another way. I asked create a road map for where we wanted to be my division commanders (lieutenants with in three to five years. It also outlined where area command responsibility 24/7) to be as the resources would come from and who visible after 1700 hours as was humanly internally would be responsible for steward- possible, so as to have a management ing each issue through to conclusion. presence whenever possible. This proved Second, it provided the city manager with a inadequate over time. We began to have long-term idea of what his police department problems that could be directly attributable needed financially to succeed. It also helped to the fact that our sergeants were not getting other city departments with understanding how the guidance and wisdom they deserved they fit in to the police department strategic from lieutenants who were regularly working plan and how the police department could be after 1700 hours and on weekends. of service to their departments. The city finance officer welcomed this plan with open Because the city was trying to balance an arms as it helped him understand future needs ongoing structural deficit in the budget, by of the police department and the financial cutting positions wherever possible, I did implications to the overall city budget. not pursue addressing this problem for several years. The result was we were Lastly, it educated our elected officials becoming dysfunctional as an organization, about their police department and the our sergeants were not developing as leaders resources needed for allocation by council and morale issues were becoming apparent over a three to five year period. Once throughout the organization. To make my approved by the city manager and then city point, the entire Board of Officers for our council, the police department strategic plan police association is made up of sergeants. was in fact our continuing budget-guiding document each year. No longer did we have Knowing what I know now, I would have to create wish lists year after year. We knew pulled together my command staff and where we were going, how much it was developed a way to create a few more going to cost, where the money was coming lieutenants at minimal cost to the city so that from and who was responsible for getting we could have a consistent management each issue accomplished. presence after 1700 hours. We are currently doing this now however, we could have saved ourselves years of grief had I pursued this avenue then.

Lesson learned: Don’t be afraid to brain- storm ideas with your staff or even a kitchen cabinet. Learn to trust your instincts. Your sergeants play a key role in your organization. Do not ignore them.

Finally as I reflect upon various challenges in my career, I recall a functioning style that enhanced my ability to achieve goals. The thing I can point to most recently is the use of a strategic plan to create a vision, not only for the men and women of my department, but for my city administration and our elected

95 To Lead, To Learn, To Leave a Legacy

96 Learn and Adapt From the Best Learn and Adapt From the Best by Matt L. Rodriguez

t began for me with the strongest desire, being a finalist for three (83’, 87’ & 92’) interest and enthusiasm in becoming a national searches for the position of chicago Ilaw enforcement officer. If you asked Police Department Superintendent, I was those in the ranks why they joined, I’m sure appointed to Superintendent of the Chicago you would get responses such as: “To put Police Department, on April 13, 1992. I away the bad guys”;” for the excitement”;” resigned on December 1, 1997. During this because it’s a steady job”, etc. If you period, I was fortunate to have been elected and thoroughly delved into each, you would served as Chairman of the Major Cities Chiefs likely find as unsaid, a real interest in Association for several years. It continues as helping others or being one of the good one of the premier professional police guys. It then evolves into a life interest that organizations in our country. becomes one of the most demanding because of its daily challenges, its numerous I have frequently been asked for advice by facets, and the opportunities to meet and officers, who are anxious to succeed in law work with the entire spectrum of society, i.e. enforcement. I’m sure if you asked the same People of all backgrounds. question of a hundred law enforcement leaders, you would likely receive a hundred There are those who come to this profes- different responses, with some repetitious sion with a dream of being the chief or a high listing of certain talents or characteristics. ranking officer. I felt, however, that becom- There are no set formulas. ing a detective would be the most satisfying of objectives. When I achieved that rank, I If one is to succeed personally and/or realized that an attitude I had as a patrol professionally, there is one talent that will be officer became prominent in my approach to of immense value, not only to achieve detective investigations, i.e., I wanted to be success, but to realize and appreciate it. I refer to an ability to see things conceptually the best or considered one of the best or as might best be exemplified by: The detectives in the unit. I looked to whom that ability to step back from the day’s demands person might be, then watched and learned or immediate problem(s), and see where we from that person and others. This eclectic have been; where we are; and where we are approach became part of my nature through going. If done with integrity and insight, it my career. Learn and adapt from the best, but may require that we modify what we are also, from the best of the rest. doing because we’re apparently not going where we intended. I respected and learned from most of my supervisors, but increasingly found myself Many of us go through our lives and our asking how I might handle a current situa- careers on a day-in day-out basis. Superim- tion if I were in charge. Thus began a strong pose “computer driven” and “information personal incentive to seek to become a su- laden” on the full plate of law enforcement’s pervisor and subsequently, an adminstrator. vital resposibilities. Then consider the I wanted to be able to make a difference. constantly changing demands of law enforcement, the rapid changes of technol- These thoughts and ambitions led to my ogy, the fluctuating availability of resources, career path through the ranks, by competi- and there appears to be little time for tive examination processes, to the rank of conceptual overview. If one is to be captain. I also served as deputy superinten- successful in law enforcement, or for that dent for 12 years, through the administra- matter, in any endeavor, this step back, to tions of three superintendents , as well as see and attempt to weave the whole picture four chicago mayoral administrations. After must be taken periodically.

97 To Lead, To Learn, To Leave a Legacy

My purpose is not to offer platitudes, but to conceptual perspective the direct and inform, as best I can, what aided me in my indirect impact on law enforcement of the four decade law enforcement career. I had following representative occurrences: not yet completed recruit training in early 1960, when a major police scandal resulted in • The extension to the states of the exclu- the appointment of O.W. Wilson as Superin- sionary rule which established some tendent of Chicago Police. He was one of the boundaries of legal/illegal search and major criminologists in the country. At a time seizure; other decisions of the warren many would agree to be a most important court which brought “bill of rights” segment of a law enforcement career (the provisions to the states through the “due formative years), I personally experienced process model”, such as the cases of and benfited from his total reorganization of Miranda and Escobedo and their impact the Chicago Police Department. His policies on police interrogations. and actions in Chicago, the second largest police department in the country, had • The ghetto riots in the early 60s at New reverberations throughout the nation. York’s Brownsville and Harlem areas, fol- Wilson literally changed the face of lowed in August, 1965 by a riot in the Watts policing in Chicago. He created the exempt Section of Los Angeles, and the over 160 rank, providing him with the ability to appoint such disorders in first nine months of 1967. the entire command staff (approximately 100), ensured appropriate promotional • The civil rights movement with its strategy examination processes, then promoted 1,000 of non-violent civil disobedience and its sergeants, and relatively lesser number of demands for equity, and whose reverbera- lieutenants and captains. He completely tions have included women, homosexuals, motorized a formerly mainly immobile and other classes considered minorities. department, designed and built a “state of the art” communication center, and provided all • The wave of assassinations that began with foot and motorized personnel with personal the shooting of John F. Kennedy, followed police radios. Wilson initiated a model citizen by that of Lee Harvey Oswald, then the complaint process and a well staffed and assassinations of Malcolm X, Dr. Martin competent internal investigation process. Luther King Jr., and Senator Robert F. Kennedy. Include the near assassinations These are only exemplars of his actions in of President Ronald Reagan and Pope the seven years he was superintendent of the John Paul II. Chicago Police. What I never forgot through this period was that it was accomplished • The 60s were also marked by an escalation when all others were doubting he would of the drug culture that has insidiously convince the “body politic” to provide the woven its way into the core of criminal necessary resources, or that the police were justice problems to this day. There was prepared to carry out his changes. He more the development of what was called a than succeeded. He excelled. I gratefully counterculture, which affected family, carried these experiences with me through morality, country. my career. As with many major innovators, those who follow have a tendency to commit • The start of the 70s, also called the to the status quo, irrespective of the demands “Nixon-Mitchell Years” by some, brought of new issues and a changing environment. I with it the “Watergate Era”. The overall also observed this practice throughout law concern about crime did not diminish. enforcement, and gratefully learned from it. President Nixon continued Lyndon Johnson’s war on crime. Frankly, how- My career extended from the decades of ever, crime rates, especially violent crime, the 1960s through the 1990s. Consider, if continued to soar. you will, not so much from a purely historical point of view, but from an • The social upheaval brought about by U.S. administrative, legal, social, and importantly, participation in Vietnam polarized large

98 Learn and Adapt From the Best

segments of the population and that many of you will have similar or even precipitated violent confrontations, such as more significant events in your respective the 1968 democratic convention in Chicago careers. Importantly, they must not be and the ugly incident at Kent State. The viewed as snapshots in a photo album. As consequences spilled over into the 80s. stated earlier, we must look back to see, and attempt to weave a whole picture to see • Through the 80s, add to the Cold War, where we were, truly examine where we are, wars on poverty, war on crime, the yet and project where we are going. unfinished war on drugs. Crime realized no major reductions and the violence I have indicated my thoughts and experi- escalated in the localized fights for dom- ences with the changes in Chicago Police inance of drug selling territories. Police directed by O.W. Wilson. I then fortunately were at the drawing boards seeking appro- completed my undergraduate and graduate priate strategies and tactics in practices degrees, while serving as an active police such as regionalization, team policing, etc. officer. Though this elongated my formal The latter segment of this decade brought education, it kept me abreast of current the beginnings of the use of DNA for managerial and criminal justice changes. police purposes and community policing. And very importantly, a law enforcement leader should actively become involved with • The 90s brought the end of the Cold War. progressive professional organizations such Think about it. Up until the 1990s, the as the I.A.C.P., P.E.R.F., State Chiefs greatest fear in our nation was probably Associations, F.B.I. Academy, N.E.I., the fear of nuclear warfare, with a well National and State Sheriff Associations, defined enemy within specific locations. Regional Police Associations, etc. It is vital Then came Oklahoma City and the first that your perspective not be parochial. The attack by terrorists on the World Trade advances of technology and abundance of Center. These were acts by national and information amplify the necessity of this international terrorists. Before these active participation. radical acts, most local law enforcement executives, and in particular, the police I have a firm opinion that much of what is officers out on the street had the luxury of considered new and innovative in manage- “not” having to make room on the already ment and law enforcement is, in fact, new ample platter of problems we were and innovative. But it is based in sound handling. These events, and of course management principles and sound law September 1, 2001 permanently changed enforcement theory, modified for today’s our country. and tomorrow’s environmental demands and opportunities. This again demands that you • The 90s also brought major changes to be well read, well informed, and conceptual police strategies, including reorganiza- in your perspectives. tions to community oriented policing and regular strict command accountability During the mid 1980s I was the Deputy processes; the new availability of federal Superintendent of Technical Services. The community policing resources; a presiden- Chicago Police Department had 23 local tial impeachment procedure; the continua- district stations, with lockup facilities. We tion of application by law enforcement to were experiencing difficulties with the rapidly ever changing technology; the transmission of fingerprints, suitable for establishment of new DNA collection and comparative analyses and backlogs of analysis techniques with computerized fingerprints at our centralized identification data banks. section. Automated fingerprint identifica- tion systems (AFIS) were beyond the My purpose in this brief historical sketch nascent stage and had viable systems of some events directly and indirectly available. I organized an excellent team to impacting law enforcement in just one initiate research in the technology and individual’s career is to accentuate the fact sought support for a project that would cost

99 To Lead, To Learn, To Leave a Legacy

Chicago millions of dollars. We were to the older (in terms of average age) depart- become the largest city with an AFIS. I was ments in the nation. This was a major told by our finance division that there was undertaking. Throughout this project and all little to no chance the city would expend of any I write as being of my initiative, I had those resources. Below the obvious interests the extreme good fortune of being able to of police, a potential major problem in rely upon significantly competent depart- liability issues existed, regarding excessive ment talent. This was particularly true with “holding time” for prisoners in our outlying the Chicago Alternative Policing Strategy districts. This concern and my firm convic- (CAPS) team I was fortunate to organize. tion of its appropriateness, especially We began with a pilot project in several precipitated by my experience with the districts, in 1993. We then moved to full O.W.. Wilson administration prevailed. implementation throughout the city. The entire strategy relied upon community In addition, our fingerprint image trans- participation, and its reception by the mission via telephonic medium resulted in an community was outstanding. The continuing over-abundant number of fingerprint cards process has been researched and evaluated that were not suitable for analyses due to by an independent consortium of university lack of clarity. This was a problem with , scholars whose progress reports have both, the non-automated process, as well as mapped the CAPS program. CAPS remains the new AFIS. Again, vendor after vendor, the official Chicago Policing Strategy in including major international companies, 2005, and now includes innovative targeting provided no solution. Finally, a small of high incident crime locations, acquisition Minnesota firm responded with a digital and highly competent application of the most transmission process that provided the advanced technology, and increased com- sought after clarity for analyses. Chicago mand accountability sessions. Police Department was the first agency to transmit digitized fingerprints. Again there I would be remiss if I didn’t include my was reliance on O.W. Wilson methodology experiences as a member of the Major Cities and the sum of my experiences. Chiefs Association. I think I can best exemplify the eclectic/conceptual applica- When I was appointed Superintendent, in tions I addressed earlier in this document, by 1992, our department was routinely involved articulating how I learned – by being active in responding to over 60% or more than a in this esteemed organization. It is an million calls for service, per year. While I organization of chiefs and in some instances, was a Deputy, I had initiated a “call back” sheriffs, of the most populated cities in this service in the communications division. I nation and those of Canada. Their meetings firmly believed in the applicability of are generally closed or attendance is community policing to modern law controlled, thereby creating an atmosphere enforcement’s procedures, which were that provides a free exchange of ideas and causing a major lack of contact with the experiences. It is essential that successes general public, by our constantly traveling and failures are discussed so that all might police. And very briefly, the community is benefit from the experiences. I found that very interested in the kind of partnership attitude preponderant throughout my community policing requires, because their participation. Because of the commonality very lives are based in the community. The of our responsibilities, the mutual benefit police cannot be in all places, but the should be obvious to all. I listened and community is everywhere. These are factors learned well not only from successes, but that I hope Homeland Security officials also from failures. The latter provided consider in their future planning of preven- concerns to be wary of, but also fueled ideas tion strategies for our collective security. that appeared to be doable in our department and in our city with some change(s). Again, What I proposed to do was to implement I feel strongly in an eclectic approach, community policing in a police department i.e.,using the “best” or the “best of the rest.” of 13,400 sworn personnel that was one of

100 Learn and Adapt From the Best

Finally, as in so many other professions or life styles, you benefit according to the quality and effort you provide. It is impera- tive that you carefully choose your com- mand and other important supervisory positions. Consider the responsibilities and demands of the assignment and the compe- tencies of the individual. Always be aware of your responsibility to prepare those who will be considered to replace you or your command and supervisory choices. Look for those who ask themselves “how they might handle the present situation”, and sincerely encourage that input.

101 To Lead, To Learn, To Leave a Legacy

102 Balanced/Shared Leadership Balanced/Shared Leadership by Fred Taylor

very new chief, whether he comes In the aftermath of the 1968 riots in up through the organization or from several major cities it was evident that Ethe outside is faced with the important success in dealing with those events would issue of leadership. If one is fortunate require intensive officer and supervisory enough to have taken over an organization training. To that end I was one of several that has a common definition of leadership sergeants from my department scheduled to and well developed training programs, attend training sessions designed to enhance assessment tools and evaluations to identify supervisory competence and control. and reward appropriate leadership styles and performance, the task is then to use these One of the training sessions turned out to tools to facilitate organizational goals and be probably the most important in my career. needs. Unfortunately, too often the organiza- A group of us were tasked to try to identify tion is not where it needs to be in terms of the three most prominent leadership styles of balanced and shared leadership and therefore the lieutenants that we had worked for, and development is needed. to develop a “model” lieutenant style of leadership. Basically we came up with the Organizational leadership development following: is not an easy task. It takes time, resources, and a will to accomplish. While new hires • The “invisible” leader - came to work but and promotees are more prone to benefit left everything else up to subordinates and from training programs, every organization you could depend on them not showing up has a cadre of seasoned veterans who have when needed. learned to survive with leadership styles that may not be a good fit for the new • The “I’ve got it” leader - tried to do chief, or the new direction the department everybody’s work, including the is headed. The new chief may not have supervisors who worked for them. the luxury of time or resources to develop such programs if much is expected or • The “shared” leadership model - the lieu- needed immediately to facilitate change tenant who came to work, did his job and in the organization. The smaller the allowed others to do theirs within reason. agency in size, the more critical the need for immediate action, yet the less options Of course, through higher education and you have. advanced managerial schools and training, we later learned that those leadership traits One of the biggest obstacles is how to or lack of, have several labels and defini- deal with the cards you’re dealt. It’s not tions. We then developed our “model” enough just to try to place some in assign- lieutenant, who of course in addition to ments where they can do you the least “shared leadership” could be identified as a harm. It’s more important to put them where democratic leader with good interpersonal they’ll do the most good. Balancing skills, with a firm but fair style of discipline. leadership styles is one way to ease that The training class of course unanimously burden. It may help you last long enough picked this style of leader as the one to work to see to it that leadership is developed for and to achieve ourselves. throughout the organization, that hiring and training are improved and that your However, it soon became apparent to me staff fits your needs. Balancing leadership through conversations with my fellow styles are the true keys to tenure and sergeants and observations of their real life organizational development. behavior, that maybe the “model” lieutenant

103 To Lead, To Learn, To Leave a Legacy

wasn’t the one they necessarily wanted to work If good matches were not already in place, I for. Some really wanted the “invisible” boss so sought to assign supervisors and managers that they could have total control of their together based on their leadership styles. officers and basically run things any way they wanted or to be “invisible” themselves. Others As with any policy, there were some wanted the “I’ve got it” boss so they had no exceptions. You need your “model” responsibility if anything went wrong or supervisors, officers and senior managers in preferred not to work too hard themselves. It assignments where the complexity or also became apparent their real life behavior technical nature of the work is critical to the affected the productivity of every officer. If organization’s success. Even then, rotation they worked for a sergeant whose leadership between those assignments was made. It style conflicted with their work ethic, discipline was a lot simpler to decide the next step in a or productivity became an issue. When you manager’s career then it was to match them throw in the interaction of the lieutenant in the with other mangers that were being rotated. scenario it really got complicated. More time was spent matching leadership styles between officers/detectives and their When promoted to lieutenant and assigned supervisors and managers in a manner that a platoon of squads in a highly active would facilitate productivity and work District Station, I started tinkering with a satisfaction. Another exception was not method of assignment that followed me the placing a “model” manager in an assignment rest of my career. To the limit allowed by where they were the only one with that scheduling restraints, I tried to first identify leadership trait. It always facilitated the maturity and work ethic of each squad, mentoring and productivity if more than one match them with a sergeant with a compat- “model” leader was present. ible style and then supervise each sergeant based on their leadership style and ability. One evening at dinner with a Chief from a “Invisible sergeants” did not get assigned to large department I was sort of amazed by his squads with “invisible” informal leaders and method of insuring his tenure. It seemed “I’ve got it” sergeants did not get squads that to become Chief you first had to be an with excellent work ethics. Assistant Chief. This Chief surrounded himself with assistants that posed little or no Now I know that many will say that you threat to replacing him. I questioned should identify and try to eliminate undesir- whether that made him a kind of one man able behavior through counseling, training band who had to do everything and watch and responsible supervision or management. everybody and the effect that had on running Certainly that should be your long range goal. the department. He stated that he had to be But when you are faced with the task of in constant control and never left anyone in getting the job done with the resources at charge when he was gone. Of course any hand you need another plan. Balancing lead- style of leadership will work for a while, but ership styles wasn’t perfect but it achieved far I wondered how that department would fare better results than I originally thought it upon that chief’s departure – would there be would, not only in productivity but also in a leadership vacuum? As it turned out, as fewer discipline problems and grievances. competent as that chief was, the department suffered a leadership crisis for several years. Our organization already had a policy in place that rotated mid and senior managers Every chief wants to achieve their goals every three or four years through different and benchmarks – to leave the organization a assignments within the organization to little better than it was, to reduce crime and develop their careers. I certainly benefited increase productivity. For me the fact that from that policy by gaining experience as a the organization didn’t miss a beat when I supervisor or senior manager in all of the was away participating in the work of state major organizational components as I rose and national police organizations, on through the ranks. As the new chief I stuck to vacation or when it was time to move on, the policy of manager and supervisor rotation. was the best legacy I could leave.

104 Credibility is Everything Credibility is Everything by John F. Timoney

Lesson One: Meanwhile, the media, especially television, Never ask someone to do a task is sitting by ready to record and play, and replay, the actions of police officers re- that I would not do myself sponding to unbelievable provocation. It is a recipe for disaster. Coming up through the ranks in the NYPD I tried to live by the above mantra. I was a very There is a need for very strict control of active and productive police officer and officers and their tactics. They must be investigator making hundreds of arrests, properly trained and supervised with a very including one that resulted in a shootout where low supervisor-to-officer ratio. However, that my partner was shot. As a result, I often had is not enough. You must convince officers the automatic respect of those officers who that for a whole variety of reasons, including served under me. Thus, as a sergeant, television, they must be so restrained that in lieutenant, and captain it was often easy to get fact they may be required to stand there and officers to follow my orders or direction take the first strike, before they can react. It based upon my past record. However, as I requires a great deal of courage and disci- rose through upper management, my exploits pline. I believe that in order to ask a police as a police officer would not suffice to get officer to be willing to make such a sacrifice, tasks done. This was especially true in the the police chief and his top command must be area of the issuance of a new controversial willing to do likewise. policy or policing a major event with large media interest. Lesson Two: Whenever I issued a new or controversial Create a positive, energetic policy, I made it a point to go to roll calls to atmosphere to work, encouraging explain the rationale for the change and creativity, initiative and risk-taking encouraged officers to ask questions, if they desired. I found that this method, while time In my career I found that if the team or unit consuming, reduced rumors and often leader was a dour personality, the entire unit resulted in greater buy-in by police officers. took on such an attitude. Work was misery Sometimes the questions were tiresome, or and people dreaded coming to work. I also an officer with another agenda used the had supervisors who exuded confidence and opportunity to settle an old score. However, enthusiasm, which showed how work could I never regretted using this method and I be enjoyable and risk-taking rewarded. The found it quite valuable on a variety of levels. expression most officers used to describe such a supervisor was that “officers would Policing major events, in a post-Seattle go through a wall for such a person”. In this world, can be a huge challenge for any business, as in the military, it is the police executive. The eyes of the world are penultimate compliment. on your department and there are more than a few people hoping for you to fail. The Lesson Three: reputation of the city and your department is on the line. While you can train your Take the time and responsibility to officers till the cows come home and train future leaders provide them with the best equipment, this is simply not enough! Outside agitators are I often found that this was an area that did willing to come into your city, engage in not receive enough attention. Supervisors assaults on police officers and wanton didn’t practice this either because they didn’t property damage and face arrest. understand or appreciate how important it is 105 To Lead, To Learn, To Leave a Legacy

or they were simply too lazy or self centered. Lesson Seven: Also, there were some who felt that training You have to be able to shave subordinates to be better managers or chiefs could lead to these subordinates maybe every morning someday replacing the supervisor or chief. Quite simply, they viewed those directly Every once in a while you will be faced with under them as direct threats! a difficult decision and you know exactly what the right decision is. However, there may be political or media pressure to make a Lesson Four: different decision. And sometimes nobody Delegate Responsibility for a task will know the difference, whatever decision and allow the individual to carry you make. In fact, making the right decision out the task or mission will cause you great grief and consternation. So, since nobody will really know, there is the Resist the temptation to interfere, unnecessar- temptation to make the easy decision, or not ily suggest ways the job should be done, or the best decision. It is at that point that I give direct line-by-line instructions on how to remind myself of an old saying one of my do the job. People hate micromanagers and Irish lieutenants use to utter when faced with will rebel by doing only what they are told to such a dilemma: “I still have to look at myself do and nothing more. It stifles creativity and in the mirror every morning when I shave”. initiative. However, once you have delegated the responsibility for the task, you must be Lesson Eight: quite clear that you will hold the individual Keep the Door Open accountable for its completion. Many supervisors will say they have an Lesson Five: “Open Door Policy” but seldom really mean The “Vision Thing” is important! it. Rising through the ranks I actually had and practiced an “Open Door Policy”. When I was a junior officer I really didn’t Often, I asked myself, “why bother” since it appreciate the whole notion of vision. I felt it seemed that the only people who came was too idealistic or far-fetched. However, as I through to door were those with gripes and moved up the chain of command, it became grievances. Many times, these visits increasingly clearer to me that you needed to degenerated into a crybaby session. I create a picture or show subordinates what the thought about closing the door and ending final product or end game would look like. This the policy on many occasions. However, not only created a picture, but also reinforced upon reflection, I realized that I often found the confidence subordinates had in me that I out things about people and the organization knew what I was doing! Not a small point. that I could never have found out otherwise. So, while the policy was a pain and very time Lesson Six: consuming, in the end it was beneficial to the organization and me. Go with your Gut Instinct On a similar vein, I made it a point to I have found that when I made mistakes (and continue to do roll calls even though I was who hasn’t), often I went against my gut the chief and the roll call process is very instinct or I allowed someone to talk me out time consuming. But I learned a lot from the of an intended decision or action. Or on a questions from the troops and also it gave similar note, sometimes I allowed sentimen- me an opportunity to sell and explain new tality or old loyalties to cloud my decision- policies, especially those policies that were making. In many of these situations I wound viewed as affecting “officer safety”. I had to up getting burned or embarrassed. stand there and defend my policy, often from

106 Credibility is Everything heated attack, particularly from union officials. However, I believe the policies were more readily accepted and I received kudos for taking the heat from the troops and willingness to answer questions.

Lesson Nine: Be bold in implementing plans or policies that are radical or controversial

Often police chiefs know what has to be done but resist doing it because it may rock the boat or infuriate politicians or, especially, union officials and the people they represent. While there is never a perfect time for radical/controversial change, the best time is when a new chief takes over a department. It is at that point that people, public and police, are expect- ing change, even though they are not sure what change will take place. DON’T DISAPPOINT THEM! Controversial change is always easier at the beginning and not at the end, after some crisis has occurred, such as a bad police shooting or tragic incident after a police chase.

Lesson Ten: Confront bad news head on

Many chiefs resist going public with bad news or they will attempt to spin it or blame others. In the long run, it is easier to confront it head on and manage the issue. If nothing else the chief will be given credit for guts and openness. Above all, NEVER LIE TO THE PRESS! If a Chief lies to the press and is found out, he/ she is finished. At the end of the day, credibility is everything.

107 To Lead, To Learn, To Leave a Legacy

108 The Executive’s Role: The Care and Feeding of the Troops The Executive’s Role: The Care and Feeding of the Troops by Thomas H. Wells

he lessons I have learned from my entity could be the most challenging and fifty years of criminal, civil, regula- probably the least supportive if an executive Ttory and military/maritime enforce- fails in this leadership quality. One of the ment in both federal and state governments are best examples of this principal, and several too numerous to discuss or detail in this brief others mentioned herein, is the leadership of synopsis. However, the baseline or core General Dwight D. Eisenhower during the ingredients and principals of a successful planning and execution of the Allied forces leadership journey include many well known D Day invasion of France. and consistently taught principals that apply to most all operational executive philosophies, One of the oversimplified explanations of managerial mindsets and leadership develop- the role of a military general in war and ment. I tried to adhere to these many principals peace time, that transcends the role of the and apply them continuously to all manage- law enforcement executive is “the care and ment challenges and decisions as well as my feeding of the troops.” This oversimplified providing leadership to my agency and its statement covers many areas of leadership personnel. Listed herein are the most important that not only includes communications with ingredients that I believe are necessary for your agency staff, but also having and future law enforcement executives (CEOs) to exhibiting an in-depth knowledge of the equal or achieve greater successes than I agency and its mission, goals and objectives. attained over my career. It also includes the absolute need for honesty and being genuine in your dealings The basic attributes of character, with all persons as well as the ability to not morality, integrity, honesty, good citizenship only identify with your personnel but also to and patriotism are givens and must always serve their needs. form the foundation for the development, and the performance, of successful leader- The larger the agency the easier it is for ship qualities. A law enforcement executive the CEO to lose valuable contact, feeling must always identify the true mission of his and identification with the rank and file. or her agency as well as the executive’s role This cuts through several principals needed in leading that agency. To overlook this with to be a successful leader including the a mindset of the “Law Enforcement CEO” as principal of leading by example. I have seen being generic is to court mediocrity or executives so caught up with their responsi- possible disaster in the executive’s tenure. bilities that they were totally oblivious to the Also important in this regard is to learn, world around them including the agency’s understand and hopefully be able to appreci- physical properties, equipment, work ate the agency’s legacy. This is paramount to conditions and sometimes even the morale communicating with and leading the of the personnel. The old adage of MBWA agency’s personnel. (Management By Walking Around) is not a bad sidebar to all management and leader- The role of the executive as a communica- ship philosophy as it contributes to the tor is critical in providing leadership to the leadership principals of being informed and agency and goes beyond the critical neces- knowledgeable of your personnel, up and sity of internal communications within the down communications and also compliments organization. A successful executive must the principal of leading by example. also maintain external communications with the public and/or specific population group A legitimate and appropriate agenda you being served as well as the governing body believe in, whether it be personal or agency to which the executive reports. This latter dictated, should always be addressed in an

109 To Lead, To Learn, To Leave a Legacy aggressive and professional manner based on logical and informed decisions.

None of the above will contribute to being a law enforcement executive, a leader, who makes a difference in their agency or the profession, if you do not have the courage to carry out your convictions. You must be courageous in protecting your ethics, preserving your agency’s reputation and its ability to perform its mission as well as staving off attacks of politicals attempting to use you or your agency to further their agenda. You must also be courageous in the execution of that all inclusive descriptive term and leadership principal, “the care and feeding of the troops.”

The universal ingredient of all successful leaders and law enforcement CEOs is sacrifice. Without this unscheduled, un- planned, non-programmable ingredient, one finds that adherence to all known leadership principals will not be attainable if the need of satisfying personal needs is not removed from the forefront of your decisions and actions.

All of the above, plus many other factors, including the valuable assistance of contem- poraries and leaders in the law enforcement profession, contributed to my many suc- cesses over the fifty years of my career in military, federal and state enforcement arenas. These resources provided me with the tools needed to be successful in my many years of supervisory, managerial and executive positions. This included taking a major state law enforcement agency that had become stagnant, with low morale resulting from federal litigation that virtually locked up all personnel and developmental training actions, to a vibrant and progressive agency with high moral and a newly discovered dedication to mission accomplishment.

I thank you for your interest and dedica- tion to the development of future law enforcement executives.

110 Conclusion Conclusion

hose of us who have had the unique oneself with competent people while privilege of being included in the NEI providing them with continuous learning Tprogram since its inception almost opportunities. thirty years ago have observed, listened to and learned from many of the “giants” of the Finally, the legacies reflect the leaders’ law enforcement profession as they partici- determination to achieve significant goals, pated in this annual conference in Sun both personally and for their agencies—to Valley. As our admiration and respect for make lasting contributions—positive them has grown, so has the realization that differences in their communities and in these local, state, federal and international people’s lives. law enforcement agency executives repre- sent a critically important body of knowl- An entire leadership book could be edge that should be captured for the next written and an entire course taught based on generation of law enforcement leaders. these legacies. The real value, however, is in simply reading each one, absorbing the This project is an attempt to do just that: lessons and experiences presented and to examine the experiences and events to focusing on the person telling the story. which these exceptional executives attrib- There is no need to paraphrase what they uted their successes, and to help others learn have said, for they have said it best. from the leaders’ acknowledged mistakes. One thing is certain: all those who shared Ranging from thoughtful and insightful to their legacies are people who care—care moving and inspirational, these legacies about their employees, about achieving their reflect certain basic themes, revolving law enforcement missions, and about serving around personal characteristics as well as the community and improving its quality of professional goals and objectives. life. Collectively, they are likely to agree that it is how you treat other people—not For example, as revealed in many of the your wealth, your title or professional legacies, the successful law enforcement accomplishments—that will have the most executive possesses a strong set of core enduring impact on your legacy. beliefs, including the belief that character counts—and that people need to know that the leader stands for integrity, respect, fairness and compassion. According to these legacies, the successful leader also demon- strates: a determination to do the right thing, the right way, for the right reasons, a keen sense of duty and obligation, and a sense of dignity and worth that comes from seeing the greater good.

Further, the successful executive acknowl- edges the need to ensure ongoing personal growth and development (one chief noted that you enter the profession as a student and end your career as a student). Many of the legacies also cite the importance of having a mentor, being a mentor, and surrounding

111 To Lead, To Learn, To Leave a Legacy

112