Police-Community Relations Programs

   

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Advancing  21st  Century  Policing:   Exploring  the  Phoenix  Police   Department’s  Best  Practices  for  Building   Community  Engagement  

Northern Arizona University, Justice Studies Faculty

Dr. Cindy Scott, Dr. William Crawford and Commander Joe LeDuc

October 2016

   

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Bios  

 

Dr. Cindy Scott holds the position of Associate Clinical Professor and Lead Faculty for the Justice and Intelligence

Studies programs at Northern Arizona University (NAU). As the program leader, she is charged with developing

undergraduate and graduate degree plans and building education/community partnerships that support practitioners in the

criminal justice field. In this capacity, Dr. Scott launched NAU’s Justice and Intelligence Studies programs by building a

comprehensive development team, which was tasked with creating over 30 new undergraduate and graduate courses. Prior

to joining the faculty at NAU, Dr. Scott worked as a detective with the Phoenix Police Department, specializing in

undercover narcotics, media relations, and community-based policing. In addition to her work at NAU, Dr. Scott assists

law enforcement’s Women’s Initiative Network (AZ WIN) with evaluation research, acts as a crime prevention specialist

for Channel 15 news, and serves as the President of the Arizona Justice Educators Association. Cindy Scott holds a

Doctorate degree in Educational Leadership, with an emphasis in Criminal Justice from NAU, as well as a Master’s

degree in Criminal Justice and a Bachelor’s degree in Communications, both from Arizona State University.

Dr. William H. Crawford III serves as the Senior Vice President of Chandler-Gilbert Community College, one of the

Maricopa Community Colleges. Dr. Crawford’s experience in higher education also includes serving as Chair of Mesa

Community College’s Administration of Justice Studies Department, ten years as a residential (tenure track) faculty

   

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member, and seven years as adjunct faculty. Additionally, Dr. Crawford currently serves as an adjunct professor with

Northern Arizona University, where he teaches Justice Studies courses. Prior to serving the Maricopa Community

College District, Dr. Crawford was employed by the Phoenix Police Department where he held numerous leadership

positions and served with distinction for over 23 years as a career employee and 10 years in a volunteer capacity – totaling

more than 33 years of sworn law enforcement service to the Phoenix community. During his many years of service, he

was assigned to a variety of bureaus and departments, including: patrol, detectives, community relations, personnel, and

training. William Crawford holds both Doctorate and Master of Education degrees from Northern Arizona University and

a Bachelor of Science Degree in Justice Studies from Arizona State University.

Commander Joseph LeDuc has worked for the Scottsdale Police Department for over 25 years and currently commands

one of his Department’s four police districts. Early in his career, Commander LeDuc helped to spearhead the effort to

bring Community Policing concepts to his organization and implemented one of the City’s first neighborhood police

offices. Commander LeDuc has worked as a Homicide Detective and Drug Enforcement Administration Task Force

Officer; supervised the Special Victims Unit and Internet Crimes Against Children function; and commanded the Special

Investigations Section, which included the Intelligence and Drug Enforcement Units. Commander LeDuc develops

curriculum and teaches for Northern Arizona University in the Justice and Intelligence Studies programs. Commander

LeDuc also presents for Not My Kid, a not-for-profit drug-education organization, and chairs the Arizona State

Governor’s Parent’s Commission on Drug Education and Prevention. Commander LeDuc holds a Bachelor of Science

Degree in Business Management from the University of Phoenix and a Master of Education degree from Northern

Arizona University.

 

   

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Introduction   In light of recent conflicts between law enforcement and community members, particularly in communities plagued with a

high crime rate and a large minority population, President Obama ordered the 21st Century Policing Task Force to identify

strategies for promoting crime control while simultaneously building trust between law enforcement and the community

(President’s Task Force, 2015). Based on their findings, the Task Force outlined six main pillars that will foster a positive

police and community relationship (i.e., advance 21st Century Policing).

While each of the six pillars focuses on an area vital to the successful implementation of 21st Century Policing, evidence

suggests that pillars 1-4, which promote community engagement, form a vital foundation from which the other pillars can

grow. The development of community engagement rests upon the trust and legitimacy a police department establishes

with its community. As such, effective police departments must pay particular attention to community perceptions (i.e.,

how the community views its police department), for community members must believe the officers serving the

community are doing so with legitimacy and honesty.

Following the recently publicized, nationwide police shootings involving African American community members, many

police departments have experienced troubling community conflicts. However, the Phoenix Police Department (PPD),

which serves a large diverse community (U.S. Census Bureau, 2010), has been able to maintain collaborative police-

community dialogues and facilitate peaceful community protests, even when its officers engage in questionable activities.

To assist police departments throughout the country build similar relationships with their respective communities, this

White Paper will highlight some of the PPD’s noteworthy community engagement strategies.

Background  of  the  Problem   The nature of police work, including the constant human interaction with various populations, sometimes results in

conflict, which may or may not be attributable to officer misbehavior or unsubstantiated claims of officer misconduct.

Another way of thinking of this is that police practices are occasionally controversial, and law enforcement’s failure to

recognize cultural diversity may be a contributing factor. “Some of the most problematic encounters involving the police

occur between white police officers and minority citizens. Encounters between the police and Blacks, Hispanics, Native

Americans, and Asians indicate that a good deal of hostility remains as a result of racist attitudes, historical distrust, and

past discrimination” (McCamey, Scarmella, & Cox, 2003, p. 150). Law enforcement officers are policing ever increasing,

diverse communities. The citizens of those communities expect their officers to, at a minimum, possess a base-level

recognition and understanding of cultural differences to ensure justice and provide for the safety of the community.

   

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The police are the primary agents of social control in our society, and they are charged with the responsibility to “serve

and protect.” Therefore, it is incumbent upon the police community to find a balance between controlling and preventing

crime while preserving individual rights. Inherent in finding this balance is the recognition that community trust in the

police plays a significant role (President’s Task Force, 2015).  

Best  Practices   Similar to other metropolitan police departments, the PPD struggles with community divisions based on race and religion.

In spite of rigorous hiring standards, it also employs officers who occasionally make poor decisions and engage in

unethical actions. However, the PPD is unique in its ability to foster productive dialogues with all community groups, and

to avoid violent community protests, even when faced with controversial actions by its officers.

The PPD’s leadership, community policing detectives, community leaders, and media personnel all attribute the

Department’s success to its deep-rooted commitment to community engagement. To achieve this level of community

collaboration, the PPD employs a multifaceted approach focused on developing a trusting relationship with the

community.

Figure 1: PPD’s Strategies for Promoting Community Engagement

Commitment to Community-Based Policing Development of positive police-community partnerships takes effective leadership and dedication, qualities that have been

embedded in the culture of the PPD for decades. Beginning with the adoption of community-based policing in the 1980s,

Phoenix communities were served by a more collegial police officer. As opposed to acting as the sole guardians of law

and order, PPD leadership focused on training officers to work collaboratively with community members to address issues

identified by the community, not solely law enforcement (M. Kurtenbach, personal communication, August 11, 2016).

This new policing strategy helped build community trust in police officers, a sentiment that was deeply shaken following

the violent police-community confrontations of the previous decades (Bureau of Justice Assistance, 1994).

Like most police departments, the PPD started community policing with the proverbial “walking-beat officer.” However,

unlike other police departments, the PPD’s commitment to serving the community through police-community

Commitment  to   Community-­‐Based  

Policing

Development  of   Collaborative  

Relationships  with  all   Community  Groups

Cultivation  of  a  Trusting   Police-­‐Community   Relationship  through   Transparency  and   Communication    

Promotion  of  Positive   Police  Stories  through  

Social  Media

   

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collaboration never waivered; conversely, it evolved and expanded. Even during the recent years of budgetary austerity in

Phoenix, PPD’s Assistant Chief Kurtenbach, who serves as the Department’s leader over community programs, ensured

the Department maintained its commitment to cultivating police-community relationships, arguing that these programs are

essential to the Department’s ability to effectively protect and serve the community (personal communication, M.

Kurtenbach, August 11, 2016). The PPD currently supports more than twenty different programs (e.g., School Resource

Officers, Abatement, Citizen Police Academy, Getting Arizona Involved in Neighborhoods (G.A.I.N.), Safe Business

Network), each designed to foster a positive police-community relationship (“Community Relations Bureau,” 2016).

Developing Collaborative Community Relationships PPD Assistant Chief Kurtenbach suggests that community engagement begins by cultivating relationships with

community leaders. He personally fosters these relationships by meeting with community leaders, formally and

informally. Even during times of police-community discord, when community leaders favor division over collaboration,

he takes the time to extend an “olive branch” by meeting community leaders for dinner or coffee—anything that opens the

dialogue. Kurtenbach stresses that these interactions demonstrate to the community the PPD’s genuine commitment to a

collaborative partnership (M. Kurtenbach, personal communication, August 11, 2016).

For Kurtenbach, collaboration does not denote pandering. He suggests that the development of a positive police-

community relationship is dependent upon the leadership’s willingness to listen to the community and create open

dialogue, but not to pander or concede to all of the community’s demands. Violence, in his experience, is not diffused by

giving-in, it is reduced by communities and law enforcement working together to solve problems the community views as

important (M. Kurtenbach, personal communication, August 11, 2016).

PPD’s Community Relations Bureau (CRB) Lieutenant, Dennis Orender, shares Assistant Chief Kurtenbach’s views on

the power of community relationships. He suggests that the Department is able to diffuse emotionally charged police-

community conflicts, because of its heartfelt commitment to developing relationships with all of the City’s community

groups. In his Bureau, these relationships develop as a result of CRB’s commitment to continuously working with leaders

of every community group (e.g., African American community, Muslim community, Jewish community, Hispanic

community).

We need to get to know each other. It is all about the relationship and meeting in the middle to solve community problems.

~Assistant Chief Kurtenbach, Phoenix Police Department

   

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The community leader is able to call the [CRB] detective at any time. They share information back and forth. Just because

we are cops and we have been around for 20 years, we don’t know everything. I sit down with a lot of community members

and listen to their suggestions. It makes the community members feel like they have a voice, and I listen.

~Lieutenant Dennis Orender, Phoenix Police Department, Community Relations Bureau

Comments from Phoenix’s African American, Faith-Based Community Pastor Warren Stewart Jr., who serves as a community leader in Phoenix’s African American, faith-based community,

believes the collegial relationship he shares with the PPD’s leadership fosters collaborative problem solving, which leads

to peaceful protests. Of particular significance is the PPD leadership’s history of engaging in open communication with

community leaders following questionable police actions. For example, in 2014, after a PPD officer shot an unarmed

African American man, the Department’s leadership reached out to Pastor Warren so they could collaborate on a plan for

addressing the needs of Phoenix’s African American community. When this same type of incident occurs in other cities,

violent protests and riots often occur. PPD achieved a different result, because its established community relationship

allowed a productive dialogue to take place (W. Stewart, personal communication, September 16, 2016).

Chief Yahner is for the community. He takes a lot of time to listen to the community. During protests, they [police officers]

come out and protect us. People can be as mad as they want, but the police are there to protect us. Chief Kurtenbach

[Assistant Chief of Community Services] and Marchelle Franklin [Director of Police Community Affairs] go to the people.

They are humble enough to help. Chief Yahner walked in a protest. I’ve never seen another chief in the nation walking in the

protest. I can get with them, if they are going to do that, to be so humble.

~Pastor Warren Stewart Jr, African American Community, Faith-Based Leader

Cooperative Relationships Lieutenant Orender suggests that the PPD avoids violent protests, because CRB detectives have relationships established

with community groups long before a contentious incident occurs. As such, when an emotionally charged police action

takes place, the respective CRB detective can reach out to the community group leader, analogous to a friend talking to

another friend during a time of crisis. These two “leaders,” one from the community and one from the police department,

are then able to work together to facilitate a peaceful outcome. And, as with any good friend, the police representative

listens to the concerns of the community and works diligently to ameliorate the situation, to facilitate peace (D. Orender,

personal communication, September 16, 2016).

The Phoenix Police Department is successful in avoiding violent protests, because we have relationships in place long before

something bad happens. We have liaisons established with protest groups, community groups, [etc.]. And when they want to

protest, we work together to help facilitate a peaceful protest. We close [traffic] lanes and we march in plain clothes along

with them.

When an unofficial Black Lives Matter group, with 1200 protestors, marched through Phoenix, we helped them organize. We

did everything possible to accommodate their requests. Then the leader decided to take the protest to the freeway. We told

   

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them repeatedly we could not allow the protestors on the freeway. So, when they turned to go on the freeway, we had to act

and there was a clash; we had to keep them off the freeway. We did not end up like Ferguson, because we had those

relationships established. The protestors saw how accommodating we were, so when the clash took place, the community

understood why.

~Lieutenant Dennis Orender, Phoenix Police Department, Community Relations Bureau

Cultivating a Trusting Police-Community Relationship Interactive Department Website The PPD’s Public Affairs Bureau (PAB) Lieutenant, Paul Taylor, believes that, through honesty and transparency, the

PPD develops a trusting police-community relationship. One of the tools the Department uses to promote transparency is

its interactive website. On the site, the Department lists important contact information, creates an easily accessible process

for submitting citizen complaints, provides community outreach information, and shares updates on positive initiates

occurring within the Department. The goal of the website is to create a forum for the community to learn about and

communicate with their police department. In true collaborative fashion, the PPD’s leadership listens to feedback from the

community, evaluates the comments, and implements needed changes (P. Taylor, personal communication, September 15,

2016).

On-Body Cameras The Department’s community involvement led to the realization that the police-community discord in other cities caused

its own community members to lose trust in the PPD. To reinforce the police-community relationship, the community

needed more than just internal and external police oversight. In response, the PPD initiated a pilot-test to determine the

feasibility of an on-body camera program. Their findings revealed that, for body cameras to truly promote community

trust, the Department must be willing to share the good videos with the bad, a finding the PPD was prepared to

accommodate. In light of the results, the PPD made the decision to implement a 3-year plan to equip all officers with on-

body cameras (P. Taylor, personal communication, September 15, 2016).

I attribute our community success to transparency. We stay engaged and get involved with the community.

~Lieutenant Paul Taylor, Phoenix Police Department, Public Affairs Bureau  

[For body cameras] to build trust, true transparency must exist. You cannot just highlight those incidents that showcase positive

police-community interactions. You have to release the good [video] with the bad.

~Lieutenant Paul Taylor, Phoenix Police Department, Public Affairs Bureau

   

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Effective Communication with the Media To further promote transparency, the PPD expeditiously responds to media requests and releases as much information as

possible. According to Lieutenant Taylor, the Department’s leadership believes successful community engagement is

dependent upon community trust, and community trust is dependent upon transparency. As such, transparency is the

building block from which community engagement can develop. As opposed to hiding from negative stories, the

Department brings the information to the community’s attention as quickly as possible, through the mainstream media (P.

Taylor, personal communication, September 15, 2016).

Figure 2: Transparency as the Building Block of Community Engagement

Lieutenant Taylor notes that the PPD followed its transparent, honest, and upfront strategy when it advised the media, in

2016, that three officers were accused of forcing a man to eat marijuana in lieu of going to jail. The PPD’s response

focused on proactively releasing the truth, as opposed to hiding from such an explosive story (P. Taylor, personal

communication, September 22, 2016). The Department immediately shared information with the media, summarized the

accusations, advised the community through the media that these actions were not reflective of nor supported by the PPD,

and promised the community that swift justice would prevail. In a true example of honesty and transparency, the

Department expedited the investigation, the accusations were confirmed, and the officers involved elected to resign in lieu

of termination (Frank, 2016).

Comments from the Media To collaborate the strategies the PPD purports to use, this White Paper also includes comments from individuals, outside

the Department, who have experience with the PPD’s honest and transparent communication. In addition to corroborating

the PPD’s comments with Pastor Stewart, Jr., interviews were conducted with two reporters: Andrew Blankstein (NBC

News) and Mike Broomhead (KFYI Radio).

NBC News Reporter Blankstein, who has over 25 years of media experience, notes that effective police departments in the current environment

quickly comment on issues. Before the era of social media, a police department could take hours if not days to comment

on a contentious story. In today’s world, departments are not afforded that time; to control the dialogue, they must offer as much information as possible to the community, as quickly as possible, or risk the community creating a story on its own

(M. Blankstein, personal communication, September 20, 2016).

Transparency   Community  Trust   Community  Engagement  

   

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To effectively release information to the media in the current environment, Blankstein offers the following suggestions: Ø Identify stories that will draw press attention (e.g., officer involved shootings, multiple shooter cases/serial

shooter, celebrity cases)

Ø Quickly decide what information can be released, facts that will not compromise a case. It is a mistake to

withhold basic facts.

Ø Quickly release basic facts.

Ø Avoid holding information from the onset; it leads to the media wondering what you are hiding.

Blankstein agrees with Lieutenant Taylor’s assertion that the PPD quickly and transparently releases information to the

media. He points to the Department’s release of information related to the 2016 Maryvale serial shooter case. In response

to these crimes, the PPD promptly shared as much information as possible with the media. He believes the Department

employed strategies that preserved the integrity of the investigation while simultaneously sharing enough information

with the community to negate a need for social media to create an independent story (M. Blankstein, personal

communication, September 20, 2016).

KFYI Radio Reporter Mike Broomhead, from Phoenix’s KFYI radio, offers similar comments regarding PPD’s transparency. He believes that

PPD’s commitment to getting out in front of negative stories helps to promote trust and transparency. Moreover, the

professionalism displayed by the PPD’s public information officers enables him to quickly learn the facts on stories,

allowing him to go on air in a timely manner and report the facts (M. Broomhead, personal communication, September

20, 2016).

Police departments can lose the publicity battle within 3 hours. When they sit on it [the story], people are

going to start drawing their own conclusions. If the department comments or not, people are commenting. Then the department

is forced to react to a reaction.

~Andrew Blankstein (NBC News Crime Reporter)

They [PPD PIOs] are very good at maintaining professionalism. And when someone does something wrong, they get out in

front of it. They do not hide or force [me to use] FOIA [Freedom of Information Act].

~Mike Broomhead, Reporter, KFYI Radio, Phoenix

   

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Effective Use of Social Media The PPD was one of the first police departments in the nation to devote resources to promoting a positive image of the

department to the community, through the mainstream media (e.g., TV, radio, newspapers). Through the creation of a

“good news public information officer (PIO),” the PPD became committed to sharing stories that showcased the great

community work routinely preformed by its police officers. The Department’s focus on promoting “good news” stems

from the theory that mainstream media acts as the “watchdog” of government, and thus, primarily focuses on investigating

and sharing negative police stories. As such, unless a police department actively shares the positive work by its officers,

positive police stories will largely go unnoticed by the greater community.

The PPD continues to share positive police stories with the community, however, it is no longer reliant on the mainstream

media to “pick up” stories. Instead, the Department uses social media platforms, such as Facebook, Twitter, and

NextDoor, to directly engage the community. Lieutenant Taylor suggests that social media is most effective when the

Department uses it to share positive news stories or positive police-community events. He refrains from posting negative

or controversial stories on social media, because they tend to spark pro-police versus anti-police debates, as opposed to

facilitating positive police-community exchanges (P. Taylor, personal communication, September 22, 2016).

Lieutenant Taylor notes that social media alone will not create a positive image of a police department to the community.

Instead, social media must be part of a larger strategy. For the PPD, this approach includes using multiple forums for

creating collaboration with the community, employing effective training that produces professional officers, and executive

and line leaders who emulate positive community engagement (i.e., adopt community policing strategies, promote trust

and transparency).

Community  Engagement  Training  and  Hands-­‐On  Leadership   In addition to the community engagement strategies previously highlighted, the PPD also promotes the development of

positive police-community relationships by training new officers on the importance of positive police-community

interactions, and ensuring supervisors mentor and mirror the Department’s focus on building a respectable relationship

with the community. Assistant Chief Kurtenbach personally speaks to all new officers and shares stories to showcase the

importance of maintaining professionalism and embracing a positive relationship with the community. Moreover, the

PPD’s Executive Staff purposefully exemplifies community engagement at every opportunity and devotes resources to

ensuring its organizational leaders support the Department’s positive police-community organizational goals (M.

Kurtenbach, personal communication, August 11, 2016).

   

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The PPD’s focus on using effective training and hands-on leadership to promote ethical officers is in line with the

scholarly research. According to White and Escobar (2008), effective officer training is paramount to the successful

implementation of progressive policing strategies, such as community-oriented policing. However, officer training alone

will fail if it is not supported and mentored by leaders and administrators. As such, the entire organization needs to foster

a culture that promotes positive and collaborate police-community interactions. Ashcroft, Daniels and Hart (2003) argue

that, for supervision to effectively promote organizational goals, such as community-oriented policing strategies,

administrators must encourage field supervisors to actively observe their officers’ interactions and model the

organizational goals.

Recommendations To advance 21st Century Policing, police departments can look to the PPD’s community engagement strategies for

guidance. The PPD’s multifaceted approach produces positive results for the Department and the community, and its

strategies can be adapted to the cultures of other police agencies. However, it is important to note that the PPD cultivated

positive and trusting police-community relationships over several years; therefore, to achieve similar results, agencies

should expect a long-term commitment.

To promote community engagement, police agencies should consider the following:

1. Commitment to community-based policing through the adoption of police-community partnerships and programs.

2. Development of collaborate relationships with all community groups.

3. Promotion of honesty and transparency through open police-community communication, effective use of

technology, and responsiveness to the mainstream media requests.

4. Sharing of positive police-community stories through social media.

Conclusion For a police department, the development of trust and legitimacy does not rest solely on the implementation of internal

rules, policies, and oversight. Instead, it develops when rules, polices, and oversight are coupled with transparency,

honesty, and positive police-community relationships. The PPD’s long-lasting dedication to community engagement, as

well as evolving policies, community-based programs, and the promotion of positive news stories through social media,

has allowed the PPD to develop and maintain these necessary community traits. The effectiveness of its strategies has

been demonstrated through its positive police-community relationships in this era of police-community discord, as well as

feedback from members of the community and the media. As such, police departments throughout the nation, which are

committed to advancing 21st Century Policing, can gain considerable insight by examining the PPD’s community

engagement strategies (pillars 1-4 of 21st Century Policing).

   

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References Ashcroft, J., Daniels, D. J., & Hart, S. V. (2003, June). How police supervisory styles influence patrol officer behavior

(NCJ 194078). Washington, DC: U.S. Government Printing Office.

Community Relations Bureau. (2016). Retrieved from https://www.phoenix.gov/police/community-relations

Bureau of Justice Assistance. (1994, August). Understanding community policing: A framework for action (NCJ 148457).

Washington, DC: U.S. Government Printing Office.

Frank, B. (2016, Sept. 23). Phoenix police officer accused of forcing a man to eat marijuana. Retrieved from

http://www.azcentral.com/story/news/local/phoenix-breaking/2016/09/22/phoenix-police-officers-under-criminal-

investigation-over-marijuana-allegations-joe-yahner-chief/90846180/

McCamey, W. P., Scarmella, G. L., & Cox, S. M. (2003). Contemporary municipal policing. Boston: Ally & Bacon.

President’s Task Force on 21st Century Policing. (2015). Final report of the President’s Task Force on 21st Century

Policing. Washington, DC: Office of Community Oriented Policing Services.

U.S. Census Bureau. (2010). Quick facts: City, Phoenix, Arizona. Retrieved from

http://www.census.gov/quickfacts/table/PST045215/0455000

White, M. D., & Escobar, G. (2008). Making good cops in the twenty-first century: Emerging issues for the effective

recruitment, selection and training of police in the United States and abroad. International Review of Law, Computers

and Technology, 22(1-2), 119-134.