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Home My WebLink AboutItem 6: Report to City Council from Police Auditor ECC UGENE ITY OUNCIL AIS GENDA TEM UMMARY Briefing: Report to City Council from Police Auditor Meeting Date: June 10, 2013 Agenda Item Number: 6 Department: Office of the Police Auditor Staff Contact: Mark Gissiner www.eugene-or.gov Contact Telephone Number: 541-682-5005 ISSUE STATEMENT The Chair of the Civilian Review Board and the Police Auditor are appearing before the City Council to discuss the 2012 Annual Reports of the Civilian Review Board and the Police Auditor’s Office, respectively. BACKGROUND The Eugene City Council appoints members to the Civilian Review Board and is the hiring authority for the Police Auditor. On an annual basis the Civilian Review Board and the Police Auditor provide and discuss their respective annual reports. RELATED CITY POLICIES Eugene Charter and Police Auditor Ordinances. COUNCIL OPTIONS Offer comments and questions. CITY MANAGER’S RECOMMENDATION Not applicable. ATTACHMENTS A. 2012 Civilian Review Board Annual Report B. 2012 Police Auditor Annual Report C. Selected PowerPoint Slides from Annual Reports FOR MORE INFORMATION Staff Contact: Mark Gissiner Telephone: 541-682-5005 Staff E-Mail: mark.a.gissiner@ci.eugene.or.us S:\CMO\2013 Council Agendas\M130610\S1306106.doc 2012 ϭ EUGENE CIVILIAN REVIEW BOARD 2012 ANNUAL REPORT Introduction Mission and 2012 Overview Case Review Summaries Civilian Review Board Training.. Identified Policy, Procedure and Training Concerns Evaluation of the O Conclusions Ϯ Introduction , requires the Board to and present an annual report to the city council that: (a)Summarizes the civil the preceding year; (b), (c)e, including whether the office is functioning as intended. [ORD 20374; 2.246 (7)] (CRB) is designed to provide transparency and help ensure public confidence in the police complaint process. The Board evaluates the work of the independent Police Auditor, and reviews complaints to provide a community perspective about whether complaints are handled fairly and with due diligence. During case reviews, Board members discuss, deliberate and analyze the Internal Affairs investigation, Auditors monitoring of the Eugene Police Department internal administrative investigations and have the opportunity to discuss, agree or disagree on the n. The review of the investigations may include, but are not limited to: reviewing investigative files, listening to digital recordings of interviews and live audio from the scene of an incident, and observing videos related to complaints. We decide whether we agree with the classification of the complaint and have the opportunity to review policy and service complaints classified as something other than an allegation of misconduct. Service Complaints are complaints aboutolice employee performance or with both the complainant and the officer. The supervisor prepares a memo detailing their review of the complaint and contact with the involved parties. The OPA reviews the materials for completeness and thoroughness, and then contacts the complainant for a follow-up and a survey. CRB reviews of service complaint files do not contain the same level of detail found in the investigative files related to allegations of misconduct. Nonetheless, we try to make a practice of reviewing service and policy complaints during at least one meeting per year. Further, each month we receive information regarding all complaints received by the OPA (including inquiries, service complaints, and policy complaints). Questions regarding the classifications of such complaints are posed to the Auditor during board meetings. Our meetings are open to the public and provide an opportunity to learn about the complaint process. While we are committed to maintaining the confidentiality of the involved parties, discussing complaints in public allows the community to learn about the complaint intakes, classifications, investigations and determinations as they are discussed openly and critically. In addition to case reviews, the CRB engages in continuous learning associated with police practices, civil rights, constitutional based policing practices, and interactions with vulnerable communities. The efforts in continuous learning prove beneficial to the Bto its mission by ensuring a comprehensive understanding of relevant processes and community factors influencing various decision makers and affected parties. ϯ Finally, the Board also considers and discusses current policies and practices and whether or not revisions seem appropriate. These policy recommendations are channeled to the Police Commission and the Police Chief throuAs a by EPD over the years. Please allow us to express our appreciation to the City Council, the Police Auditor, the Eugene Police Department, and the larger Eugene community for the confidence entrusted in us. All of us on the Board are proud to participate because we believe in the strength and the potential of Eugene. Thank you for the opportunity to be of service. Sincerely, Steve McIntire Bernadette Conover Board Chair Board Vice-Chair ϰ Mission Statement It is the mission of the Civilian Review Board to provide fair and impartial oversight and review of internal investigations conducted by the City of Eugene Police Department into allegations of police misconduct, use of force and other matters that have an impact on the community. The Board will strive to build trust and confidence within the community and to ensure that complaints are handled fairly, thoroughly and adjudicated reasonably. The Board will encourage community involvement and transparency in order to promote the principles of community policing in the City of Eugene. 2012 Overview The CRB is required to meet four times a year. The CRB met twelve times in 2012. There were ten public meetings, one exclusive tour of the Forensics Section and Property Control Room that was not open to the public, and one meeting in which the CRB reviewed the performance of the allegations fice. The CRB reviewed thirteen case files involving of use of force, constitutional rights violations, courtesy, misconduct, truthfulness, judgment, abuse of position, insubordination, a service complaint related to officer performance, two policy complaints, one complaint regarding the use of pepper spray and one complaint regarding a vehicle pursuit. Some cases involved multiple allegations and/or multiple officers. The Board (with the help of the Office of the Police Auditor) identified policy concerns to be communicated to the Police Commission and the Eugene Police Department. Case Review Summaries In preparing for a case review, Board members have complete access to the Internal Affairs investigative file. These materials include call logs, correspondence, in-car videos and digitally recorded interviews of complainants, officers, witnesses and others with potentially relevant information. Board members review file materials, the fact-finding report prepared by the Internal Affairs investigating officer, along with the Adjudication recommendations of the Auditor, the Supervisors and the Chief of Police. During our reviews the IA investigator is available to answer questions about the complaint investigation. The Lieutenant who supervises Internal Affairs is also available to answer questions regarding department practices, policies and procedures. The Board follows a case review process delineated in its Policies and Procedures Manual. The Board reviews each case by evaluating and commenting on the complaint handling through the following steps: 1. 2.Complaint intake and classification, 3.Complaint investigation and monitoring, 4.Relevant department policies and procedures, 5.Policy and/or training considerations, 6.Adjudication recommendations, and 7.Additional comments and/or concerns. A brief summary of the 2012 individual case review follows. ϱ January 2012: The Board reviewed an allegation of use of force, courtesy, unbecoming conduct and truthfulness relating to a complaint that an officer unnecessarily leg swept an arrestee just prior to lodging at the Lane County Jail. The complaint was . Upon careful review of the evidence, it was determined the arrestee was not leg swept. EPD adjudicated the matter as unfounded. The Auditor agreed with the adjudication as did the CRB. February 2012: A resident initiated an allegation that an officer violated his constitutional rights when he was arrested by not having reasonable suspicion to stop and detain him and used excessive force when effecting his arrest by using pepper spray and by causing a head injury. EPD adjudicated the allegations as either unfounded or within policy as to the constitutional violation and within policy as to use of force. The Auditor concurred with the adjudication as did the CRB. It was determined that the head injury occurred when the citizen fell down while in custody of the Lane County Jail. There was additional discussion about the experiences of the CRB with regard to operational issues involving In Car Videos (ICV). While it was recognized that the devices are not the only evidence to consider, often times they do provide evidence of value when adjudication decisions are reviewed. Lt. Fellman of EPD indicated that new units are on order. March 2012 :The CRB reviewed a complaint from a resident who alleged that officers used excessive force against him. The Auditor added an additional allegation that the officer failed to properly care for his arrested person when the officer removed the man from the car to better restrain him and tipped him over causing the man to strike his head on the pavement. Officers arrested two men who were brawling at Kesey Square. One of the arrested men complained that officers used excessive force to effect the arrest. When placed in the patrol vehicle, that man intentionally and repeatedly hit his head against the plexiglass divider. Officers removed him from the vehicle to better restrain him. Once outside the cruiser, the reporting party, while on his knees, was ordered to the ground and given a slight push to the shoulder area. This caused the handcuffed reporting party to fall forward, striking his head on the sidewalk, and causing a contusion. The portion of the complaint involving excessive force was unfounded. The issue of performance with regard to the care of the arrested was adjudicated by all parties as sustained as the officer was held accountable for the safety of his prisoner. While the push to the shoulder was light, and it is possible that the reporting party assisted in his own fall, the officer has responsibility for ensuring the safety of his arrestee. The CRB agreed with the adjudication recommendations. The CRB did observe and discuss the Reporting Party injuring himself by banging his head violently against the Plexiglas divider while seated in the patrol car and what could be done to minimize self-injury in such situations. The CRB was assured command staff discussed this concern at defensive tactics training. April 2012 :A complaint was filed concerning alleged racial profiling resulting in a traffic stop. The Auditor classified the allegation as one of misconduct, constitutional rights/discrimination and IA investigated the complaint. The driver could not be seen from the ICV within the patrol car and it was determined the driver was speeding in a school zone. The investigation included a time/speed that officers have discretion in issuing a citation. Once approaching the vehicle, there is no way to determine whether the discretion to issue the citation was based on any other factor other than probable cause existed that a speeding violation occurred. The matter was adjudicated as unfounded May 2012 : The CRB reviewed two separate cases involving allegations of misconduct. One regarding the treatment of a DUII resident in custody and one officer involved automobile pursuit. ϲ 1.A resident complained that she was denied the opportunity to use the bathroom when she was in custody of a male officer on a DUII arrest, causing her to urinate in her pants while handcuffed. The specific allegation was performance judgment: that the officer failed to take proper care of a subject in his custody. The supervising sergeant recommended that the complaint be unfounded, the supervising lieutenant recommended a finding of within policy, and the supervising captain recommended a sustained finding. The Auditor and the Chief agreed that the allegation should be sustained. While the officer reassured the complainant that after he concluded the DUII processing she could use the bathroom, and after receiving advice from a fellow officer, he continued to process the DUI. It was recommended by the Auditor and decided by the Chief that the officer needed to make reasonable accommodation to the complainant to use the bathroom when her need was clearly articulated and there were options available to the officer. After a lengthy discussion, the majority of the CRB (in a 3-2 vote) agreed with the sustained finding. A concern of the Board was the officer conferred with a more experienced peer officer and did not appear to act with malice. The IA representative shared there was much discussion among EPD employees and opinions varied greatly, thus needing attention by command staff. The Board suggested this issued be studied by command staff to see what changes to policy would be appropriate. 2.The CRB also reviewed a pursuit (internally reported) which was found to be a violation of policy. Two officers were dispatched to a call of a vehicle with stolen plates leaving a store; the officers initiated and continued the pursuit despite poor conditions and an identified suspect. Several violations of the pursuit policy were alleged, including initiating in violation of policy, continuing after the suspect began driving dangerously, failing to broadcast critical information, and broadcasting inaccurate and inadequate information. The case also included allegations of poor judgment (for engaging in the pursuit) and pursuit). The Auditor and the EPD chain of command agreed that the pursuit policy violations were sustained and the insubordination allegation was unfounded. On the judgment allegation, the supervising sergeant recommended that the allegation be unfounded; the command staff, and Auditor recommended sustained, the Chief concurred with the sustained allegation. July 2012 : The CRB reviewed two cases in July: 1.The CRB reviewed a case alleging an officer violated the abuse of position policy. The case concerned an allegation that an arrest was made for a noise violation when no noise was occurring when the officer arrived and that the officer had a personal relationship with the neighbor, an employee of the Eugene Fire Department. The Board discussed at length the policy surrounding arresting someone for noise based on a complaint when the noise is not present upon officer arrival. In this particular matter, the board concluded there was no abuse of discretion but a number of board members questioned whether the arrest made sense under the totality of the circumstances with so little investigation and lack of observed noise at time of contact and whether command staff should consider a policy that would require observed violation as a condition to arrest for low level misdemeanors. The Board also discussed classification and that if the matter had been classified as judgment rather than abuse of position, the outcome might have been different. Finally, the Board ϳ noted there was a language barrier between the arrested party and the officer and suggested it 2.A second reviewed complaint was received from a reporting party who had been protesting outside of a social service agency. An officer responded and tried to direct the reporting party away from where he was protesting under threat of being arrested for trespassing. There was some discrepancy as to whether the officer told the reporting party he could not protest where he was standing. By law, since the man was standing on a public easement, he was permitted to protest there. The reporting party complained that the responding officer was discourteous during the contact. The discussion between the Officer and the complainant was heated and loud. Eventually, the complainant left the scene. It was later determined by the second officer that the complainant had a lawful right to protest in that location because it was City property. recommended that the allegation be sustained, and the Chief concurred. The CRB also concurred with the sustained finding. September 2012 : In September, the CRB held a joint meeting with the Police Commission and reviewed a case wherein a complainant alleged that an Officer lacked reasonable suspicion to detain her and lacked probable cause to charge her with trespassing. The matter was classified as a constitutional rights violation as well as report preparation and submission. The reporting party alleged that her constitutional rights were violated and that the officer falsified information on his police report. complainant placed her foot on a wall while observing a protester being arrested. The complainant was told to move along and was eventually arrested for trespassing. The Board discussed the reasonableness of the arrest under the circumstances and the inconsistencies of the various reports filed by witness officers. On the first allegation, the Auditor initially recommended a finding of sustained, as his office did not find that the officer had reasonable suspicion to detain the subject for the crime. However, the prosecutor reviewed the case and found that the officer had probable cause to arrest for trespass (which is a higher standard than reasonable suspicion). Following the prosecutor recommended a finding of within policy and EPD chain of command recommended unfounded. The Chief adjudicated the allegation as unfounded. The Auditor and EPD chain of command concurred that the second allegation be adjudicated as insufficient evidence (the investigation, while thorough, did not uncover sufficient evidence to support any other adjudication). The CRB concurred with the . A number of the members of the Board felt that the situation could have been deescalated through dialogue rather than resulting in arrest. In fact, at least one Board member opined that while the arrest was technically lawful, the complainant meet the standard for enforcing the law. Ultimately, the Board agreed with the recommendation of within policy and unfounded as to the report writing. October 2012: The CRB reviewed an allegation and a policy complaint, respectively. 1.The allegation arose out of a pedestrian violation. The reporting party alleged that an officer racially profiled her daughter by stopping her and issuing a citation; she also alleged that the officer was discourteous to both of her daughters. On the first allegation, the Auditor recommended a finding of insufficient evidence; the EPD chain of command recommended unfounded. The Chief adjudicated the allegation as unfounded. On the allegation of ϴ discourtesy, the Auditor, EPD chain of command, and Chief Kerns agreed that the allegation was unfounded. The CRB agreed with the adjudication recommendations. 2. Investigation showed that incident could have been handled better but was handled within response conformed with EPD policy. November 2012: The CRB reviewed an Auditor initiated investigation into the use of physical force and OC spray during the arrests of two women after a demonstration. The allegations included: use of force: a violation of the OC spray policy, violation of the Taser policy (threatened), and a violation of the use of Taser policy (threatened). One of the arrestees had a mild confrontation with an officer who was handing out police stickers to children. One of the arrestees told the officer not to hand her child a sticker and slapped the o hand away when he tried to hand her child a sticker. The two women left the park blocks and were confronted by officers whereupon they were eventually arrested. The investigation and adjudication were complicated by the involved officer retiring before completion of the adjudication. Members of the Board noted there was an opportunity to deescalate this matter, which may have very well resulted in a different conclusion. At least one board member opined the lesson to be learned was not what the officers did after they got to the scene, but how they could avoid the use of force in the future. The Board also discussed the problems associated with the use of ICVs or the lack thereof. At least s on and ask whether or not he should turn his ICV off. Several officers responded that he should leave it on. The Board noted there have been some inconsistencies with use of the ICV. Consistent use and functionality can go along way in resolving complaints including exonerating officers wrongfully accused or identifying misconduct. We remain appreciative that it is one piece of evidence, rarely all inclusive in adjudicating complaints. The Board commended Chief Kerns on his observations that EPD missed an opportunity to successfully manage a challenging group of protestors. The Board agreed with the adjudication recommendation of within policy; however, a majority of the Board members agreed with reservations and discussed how the officers missed an opportunity to improve community relations with this particular group of residents. December 2012: The CRB reviewed an internally generated (a sergeant) complaint alleging unbecoming conduct and improper use of force by an officer during his detention of a juvenile related to a burglary. The allegations included unbecoming conduct and use of force. During the arrest of a juvenile, the juvenile became antagonistic and the officer lifted him up from a seated position in an aggressive manner. The Board agreed with EPD and the Auditor sustaining the allegations of unbecoming conduct and use of force. initial adjudication memorandum was not credible and was discredited by command staff. The Board and the Auditor were confused and disappointed that ϵ overwhelming evidence and suggested there be some training discussions surrounding adjudication memorandums. Civilian Review Board Training Members of the Eugene Civilian Review Board have differing life, cultural, professional and educational backgrounds and varying degrees of exposure to law enforcement and corrections professionals, municipal government operations, the criminal justice system, and the full and diverse range of communities served by local law enforcement agencies. The Board recognizes it is important to receive balanced training from a variety of sources both inside and outside the law enforcement. In 2012 our training came from a variety of sources including social service agencies, mental health professionals, outside consultants and the Eugene Police Department. Generally a training session occurs at regular meetings and the topics and presenters are selected by the Board in advance. The training sessions included: February: Kids First presentation (D) March: 1. Eugene Mission tour with Mission staff. 2. CRB policy discussion persons are refus June: Tour of the Forensics Unit and Property Control Rooms September: Discussion of the annual reports of the Police Auditor, Internal Affairs and Police Commission. October: Tour of the new EPD facility. November: Report by the Auditor on the National Association for Civilian Oversight of Law Enforcement (NACOLE) annual conference. Identified Policy, Procedure and Training Concerns CRB as a quality assurance oversight body to evaluate and comment on the work of Office of the Police Auditor and review and comment on some Internal Affairs investigations arising out of complaints and allegations of misconduct. It also includes providing a CRB as a representative to the Eugene Police Commission as a policy body to evaluate and address policy concerns, some of which have been identified by the CRB arising out of its work. The CRB has a representative on the Human Rights Commission. In 2012 s office and the department helped the Board identify concerns that were passed along to the Police Commission and the Chief. Protection from self-inflicted injuries s it was observed that an arrestee was banging his head violently into the plexi-glass of the patrol car and it was suggested the policy be reviewed. Use of Facilities The Auditor and the Board requested EPD review its approach to arrestees in distress and needing the use of restroom facilities, particularly female arrestees in the custody of male officers. Arrest for low-level misdemeanor without observed violation The Board suggested that EPD consider the appropriateness of arresting or citing someone for low level misdemeanors where no violation is observed by the officers. ϭϬ De-escalation The board continues to suggest that EPD work to improve de-escalation as a tool over escalation. In addition to those mentioned above, the Board regularly seeks clarification regarding procedures and practices that evolve out of case reviews and training discussions. On occasion these result in suggestions to the department for improving services. Evaluation of the Office of the Police Auditor By ordinance, the CRB Six members of the CRB completed written reviews of the police auditor and the work of the Office of the Police Auditor, as did Lieutenant Fellman and Nate Reynolds of the EPD Office of Professional Standards and the Chief of Police. At a special meeting the Board discussed those evaluations with Mr. Gissiner in executive session. The evaluation criteria were along seven dimensions. The performance were rated in each dimension and individual comments and suggestions for improvement were included in the evaluation. The 2013 evaluation is included in the evaluation for Council in its evaluation scheduled for June 2013. The Board previously sent the information to the Council in its performance evaluation packet in June 2012. The entire package is available upon request. Overall eight dimensions were evaluated. expectations. Points of emphasis include continued efforts to strategize how to get additional community engagement in the processes. Conclusions We have an engaged and thoughtful civilian review board that invests considerable personal time to participate in and evaluate the police oversight processes in Eugene. They are the communit representatives in analyzing the internal administrative personnel processes of EPD and the external The CRB conducts open and transparent public meetings on case review, policy considerations and training issues. As one example of their dedication, in 2012, the CRB met eight more times than the minimum requirements of the Ordinance. At most meetings, the entire board is present. The CRB must evaluate difficult personnel and policy issues that impact community members and sworn police personnel. They have been complimentary, critical, inquisitive and decisive. It is an honor and privilege to serve the community of Eugene. of civilian oversight continued to evolve and develop. We look forward to continuing our work and we are committed to improving our processes in service of the community. ϭϭ CITY OF EUGENE Office of the Police Auditor 2012 Annual Report Mark Gissiner, Police Auditor 5/30/2013 4A� A " EUGENE MAYOR AND CITY COUNCILORS MAYOR: KITTY PIERCY Ward One: George Brown Ward Two: Betty L. Taylor Ward Three: Alan Zelenka Ward Four: George Poling Council President Ward Five: Mike Clark Ward Six: Greg Evans Ward Seven: Claire Syrett Ward Eight: Chris Pryor Council Vice President City Manager: Jon Ruiz May 30, 2013 Honorable Mayor Kitty Piercy Council President George Poling Council Vice - President Chris Pryor City Councilors I am honored to present the 2012 Annual Report of the Office of the Independent Police Auditor (OPA). This report covers the period from January 1, 2012 — December 31, 2012. This report highlights our accomplishments and challenges during the sixth year of operation. 2012 was marked by a stable, dedicated and hardworking Civilian Review Board (CRB), excellent investigative work by EPD's Internal Affairs Section and decisive actions on sustained complaints. With minimal impact caused by personnel changes, all entities were able to focus on the work that needs to be accomplished to meet Council and community goals. We remain confined by Oregon Public Records laws that severely restrict our ability to communicate with optimal transparency to the community about important issues. We do our best to push out as much information as possible with our weekly newsletter and annual report. The keys to building and maintaining community trust are transparency and open government. Laws that shield the public from openness and transparency feed the portals of distrust and discontent and also block the opportunities to promote great work done by many employees. This report includes analysis of complaints and trends, decisions on classifications of complaints, policy and adjudication recommendations, the work of the Civilian Review Board (CRB), community outreach and education, and discussion of major cases. Statistical profiles of complaints, allegations and findings are provided with commentary. Beyond complaint resolution, we work with the Police Commission and EPD to promote policy improvements, emphasize training and skills necessary to enter into the daily encounters that occur with the EPD. The OPA and the CRB meet and work with external groups to learn about their interests and the services they provide. I wish to thank the Mayor and City Council for their support in actively and vigorously participating in the oversight process. Also, we wish to thank the City's Executive Team, and other support staff for all of the "back room" functions they provide including but not limited to finance, budget, information technology and human resources. Without them, we would have a more difficult time providing customer service to our community. Staff work from Deputy Auditor Leia Pitcher and Senior Administrative Specialist Vicki Cox has been nothing short of exemplary. Finally, my congratulations to the members of the CRB chaired by Tim Laue and Steve McIntire for their hard work on difficult issues and their tireless volunteer efforts to the community to assist us with this process. They take valuable time from their personal and professional lives to give back to the community under circumstances that at times can be stressful and controversial. Mr. Laue will be stepping down as a member this year to focus on other community activities. Mr. Laue showed outstanding leadership during early growth stages of the CRB. We welcome your comments and suggestions regarding how we can improve this report. Respectfully submitted, Mark Gissiner Police Auditor Our Mission To provide an accessible, safe, impartial and responsive intake system for complaints against Eugene Police Department employees and to ensure accountability, fairness, transparency and trust in the complaint system. Our Purpose The Police Auditor has three broad mandates: 1) to receive and classify complaints of police misconduct; 2) to audit the investigations based on these complaints; and 3) to analyze trends and recommend improvements to police services in this city. In addition, the Police Auditor supports a Civilian Review Board which provides valuable input about the fairness and diligence of the investigation process. Ultimately, the goal of the Civilian Review Board is to make the system of police accountability more transparent and increase public confidence in the manner that police conduct their work. Contact Information Mark Gissiner, Police Auditor; Leia Pitcher, Esq., Deputy Police Auditor, and Vicki Cox, Senior Administrative Specialist Office of the Independent Police Auditor City of Eugene 800 Olive Street Eugene, OR 97401 Phone: 541 - 682 -5016 Fax: 541 - 682 -5599 Email: policeauditor @ci.eugene.or.us Website: http: / /www.eugene- or.gov or http: / /www.ci.eugene.or.us Staff Mark Gissiner, Police Auditor- started as Eugene Police Auditor June 2009. He brings approximately 25 years of experience and consulting in the field of external oversight of law enforcement. Mr. Gissiner worked 21 years for the City of Cincinnati. He previously worked for Cincinnati, Ohio as Assistant Commissioner of Health from 2004 -2007; responsible for business operations of the $40 million a year organization. In his career with Cincinnati, Mr. Gissiner served in the City Manager's Office as Director and Investigator of the Office of Municipal Investigation (OMI) and worked in the Department of Human Resources. He helped develop Cincinnati's Collaborative Agreement and the Memorandum of Understanding with the United States Department of Justice. In many oversight circles, these agreements remain blueprints for success. Mr. Gissiner was the first two- term President of the International Association for Civilian Oversight of Law Enforcement (IACOLE). Mr. Gissiner's writings on issues of government accountability, government reform and human rights have been published in 14 languages. He consulted for the United States Justice Department and governments including South Africa, Brazil, Northern Ireland, Portugal, Hungary, Australia, China, Hong Kong and Spain. He was a keynote speaker at the 50 Anniversary of the European Declaration of Human Rights in Evora, Portugal. Deputy Auditor — Leia Pitcher began working as the Deputy Police Auditor in November 2010. She came to Eugene in 2003 for law school, and after obtaining her J.D., she clerked at Division Two of the Washington Court of Appeals for two years before returning to Eugene to work in private practice. She recently finished her tenure as a member of the Advisory Council to Community Health Centers of Lane County, and currently serves as a member of the board for Oregon Research Institute's Community and Evaluative Services. Vicki Cox, Administrative Assistant — Ms. Cox has worked for the City of Eugene for 7 years, beginning in the City Manager's Office as receptionist, the last 5 years as Administrative Assistant to the Police Auditor's Office. Vicki is the front door to the Auditor's office. She organizes all administrative functions, coordinates information flow to the civilian review board and the public, maintains files, data entry and is the first point of contact for complainants or others in need of services, including services not provided by the Auditor's Office. iv Table of Contents Section Page ExecutiveSummary .................................................................................. ............................... 1 Intake Processes and Accomplishments .................................................... ............................... 2 Investigations........................................................................................... ............................... 3 BlueTeam ................................................................................................ ............................... 3 Performance and Policy Impact ................................................................ ............................... 3 Communications...................................................................................... ............................... 4 OtherAccomplishments ........................................................................... ............................... 4 Evaluationof 2012 -2013 Goals .................................................................. ............................... 4 Goalsfor 2013 -2014 ................................................................................. ............................... 7 Complaint Process Flowchart .................................................................... ............................... 9 RelatedData ............................................................................................ ............................... 10 2012 Complaints: Statistics and Review .................................................... ............................... 11 Allegations............................................................................................... ............................... 16 Service Complaints and Surveys ................................................................ ............................... 22 Policy Complaints and Inquiries ................................................................ ............................... 25 VehicleRelated Incidents ......................................................................... ............................... 27 Commendations....................................................................................... ............................... 27 Community Impact Cases ......................................................................... ............................... 28 CriticalIncidents ....................................................................................... ............................... 28 Appendix A: 2012 Allegations of Misconduct and Criminal Conduct Appendix B: 2012 Service Complaints, Policy Complaints, and Inquiries Executive Summary This is the Office of the Independent Police Auditor's annual report to the City Council covering January 1, 2012 to December 31, 2012. For detailed information about all aspects of our office, please visit our website at: http: / /www.eugene- or.gov /policeauditor The Office of the Independent Police Auditor (OPA) was established by charter amendment in 2005 to provide an external mechanism for the independent receipt, classification, and routing of complaints against sworn and non -sworn employees of the Eugene Police Department (EPD); contract for outside investigations when necessary; and provide monitoring of the EPD internal investigations of allegations of misconduct and supervisors' investigations of service complaints. The Charter Amendment also authorized the auditor to: make recommendations regarding adjudications, policies and training to the Police Chief; prepare reports concerning complaint trends and police practices; and act as a liaison and staff support for a civilian review board. The Police Auditor is hired and supervised by the Eugene City Council. Eugene has an oversight system based on the parliamentary model of oversight, in which a professional and experienced police oversight auditor is employed by the legislative branch, the City Council. Under the "parliamentary model," a greater separation of powers occurs, which is healthy for the oversight process. To enhance the system, Council appoints a civilian review board which gives a community perspective on the police complaints process. This combination creates a sound structure for police accountability when implemented effectively, fairly and without bias. What I think takes some complainants by surprise is that what starts as a community member complaint, becomes, in fact, an administrative investigation where the focus turns to the conduct of the involved officer. This shift is confusing to some as there is sometimes an expectation that the Auditor's office will be an advocate. This further emphasizes the need for all systems to be effective and vigorous, including but not limited to, attorneys, the courts, ACLU and other advocacy groups. We intake all complaints against police employees, including complaints generated internally. We independently, impartially and thoroughly monitor the investigation process; identify ways to improve the complaint process; provide recommendations to the police chief and police commission on policies, training and trends; and provide staffing and counsel to the civilian review board on cases and policy issues. Our office monitors the overall integrity and fairness of the administrative investigative process, and in the course of such examination, reviews how citizen complaints are investigated and resolved. Ordinance 20374, which enables Eugene's Civilian Review Board, requires the Board to "...prepare and present an annual report to the city council that: (a) Summarizes the civilian review board's activities, findings and recommendations during the preceding year; (b) Assesses the performance of the police auditor...; and, (c) Evaluates the work of the auditor's office, including whether the office is functioning as intended." [ORD 20374; 2.246 (7)] Eugene's Civilian Review Board (CRB) is designed to provide transparency and help ensure public confidence in the police complaint process. The Board evaluates the work of the independent Police Auditor, and reviews complaints to provide a community perspective about whether complaints are handled fairly and with due diligence. Their annual report is also available on the Police Auditor's website at: httr): / /www.eu2ene- or.2ov /policeauditor Office of the Police Auditor 2012 Annual Report 1 1 The Civilian Review Board membership has stabilized, and they provide a thoughtful, frank and representative mix of community members dedicated to improving policing in the community and gaining community trust. While only required to meet 4 times a year, 12 public meetings were held in 2012. Many involved case reviews of delicate matters with a significant width of issues; whether based on the conduct of individual officers or those that had significant policy implications. They are the community's voice on police accountability issues. Given the restrictions of the Oregon Public Records law, their case discussions and reviews are the community's window to concerns about police misconduct. We continue to strive to bring about a sense of understanding, consistency and normalcy to the process. We recognize that customer service and resolution of citizen complaints through thorough, fair and complete investigation and monitoring of allegations; and resolution of service and policy level complaints are the cornerstones of our existence. The customer service aspect of our responsibilities consumes a significant portion of our workload. We spend hours working with complainants to navigate and understand the complaint process; and assist them in understanding the roles of the courts, their attorneys and how their roles differ from the auditor's office. We serve as listeners for people with problems that have nothing to do with the police. At the same time, identifying and advocating for structural changes in EPD policies, supervision and police interactions has been a priority for us. This year our complaints dropped slightly. Our classifications of complaints as allegations dropped. However, our view is that the depth of investigations in the allegations expanded tremendously. Allegations are those cases which are investigated by the Internal Affairs Section of EPD and usually require far more comprehensive investigations and time. The balance of cases, called service complaints, policy complaints and inquiries, are handled through an alternate dispute resolution process (ADR); most often with supervisors discussing these issues with the complainants and officers. Intake Processes and Accomplishments: The Auditor's Office was constructed primarily as a citizen complaint -based model. While there is a brief portion of the legislation and protocols that gives the Auditor some latitude to initiate a complaint, the primary focus is on citizen complaints. A complaint process under this design has the potential to leave gaps without Eugene Police Department (EPD) internally generated cases or ones discovered by my office. I believe that the design gaps are closing as a result of improved supervisory efforts in EPD, technology upgrades to the data tracking system, and open and honest communication about individual behavior issues, systemic enhancements and policy weaknesses. Intake consumes a significant amount of staff time. We remain pressed in our activities as we manage nearly 400 complaints a year. (For comparison purposes, Boise, population 210,000 with 312 sworn officers, received 149 citizen complaints and 33 internally generated complaints.) I believe we spent considerably more time this year with individuals suffering temporary or permanent diminished mental capacity. We spend hours working with complainants to navigate and understand the complaint process; and assist them in understanding the roles of the courts, their attorneys and how their roles differ from the auditor's office. Returned survey data indicates a high satisfaction level with the intake and explanations received from the Auditor's office. We also see a steady increase in internally generated investigations and "complaints." I believe this is indicative of the oversight process, at least to some degree, bringing EPD supervisory expectations to a higher level. Also, I think more so than in the past, 2 1 Office of the Police Auditor 2012 Annual Report people who receive traffic citations and appear or are scheduled for municipal court believe that the Auditor's office is an alternative to a judicial decision regarding their guilt or innocence of a violation. Even with explanation, often times the expectation remains that our role is considered court advocate, rather than a neutral evaluator of police conduct within the context of police policies and procedures. While I believe that our classifications are fair and neutral, some concerns are expressed about the classification of some cases. I will admit that we do hold officers to high standards and probably identify cases as allegations where in many jurisdictions they may not reach the level of an allegation (such as use of pepper spray, which is considered a rather benign use of force in most policing jurisdictions). However, I believe that these classification standards are in line with community expectations and efforts to build trust in the community. We recognize and appreciate the impact of our decisions on complainants and their families, community, officers, their families and the other interested parties. We make these decisions with careful consideration based on our experience, training and policy evaluations, with recognition that our decisions are not always going to please others. Intake accomplishments include: fast turnover rate /referral for ADR or investigations; patient and compassionate concern for individuals who are experiencing mental illness and social interaction difficulties; comprehensive explanations of our role and the roles of other agencies. Investigations: The quality of internal investigations has been excellent. In addition, most allegations of criminal conduct are turned over to an outside agency, to avoid any perceptions of bias or favoritism. Many have returned for adjudication in the administrative process. I have found no evidence of interference with Internal Affairs investigators by command staff in fulfilling their duties of conducting a fair and objective investigation. Blue Team: Blue Team gets its own paragraph because of the impact it will have toward a philosophy of constitutional policing. Blue Team is a data tracking system with the EPD and Auditor shared database system that tracks uses of force, pursuits, vehicle accidents, bias complaints and other allegations and major issues. It has been online only a few months in 2013 but the changes are remarkable. With EPD command staff agreeing that full access for my office is important for the success of Blue Team, we are now able to look at all uses of force. We look forward to conducting analysis as the raw data grows. With our current system we have identified those officers with the highest number of complaint involvement. The best measure in these circumstances is a sustained rate; however, a higher complaint rate does generate supervisory review as discussed at the weekly Internal Affairs /Command staff meeting. Several past and current investigations are identifying sworn and non -sworn employees who have exhibited policy violations. Performance and Policy Impact: For EPD, approximately 31% of allegations were sustained based on 35 cases with 77 allegations, resulting in some form of discipline. With regard to allegations, my office makes an adjudication recommendation to the Chief, who then makes a final decision. The Chief agreed with all of our office's sustained findings. This matches up favorably or better with similarly structured oversight organizations. (For comparison purposes, Boise had 37 allegations with 6 sustained by the Ombudsman, of which the Chief agreed with 3.) We (Auditor and CRB) have advocated, with varying degrees of success for some policy improvements in search and seizure, canine use, vehicle pursuit, Brady issues, use of force and response to unusual Office of the Police Auditor 2012 Annual Report 13 behavior by arrested subjects. We are in the process of asking for policy reviews generally on the handling of arrested subjects at jail intake including but not limited to medical evaluations and bathroom needs. I continue to struggle with Lexipol being the primary policy tool, even though it is widely used across the nation. My preference is more detailed and restrictive policy language in areas I consider high risk. Communications: We work to foster positive and constructive relationships and partnerships with Council. This occurs through monthly meetings with the Mayor, Council President and Council Vice - President, respectively; in addition to written and oral reports to Council. Beyond the public civilian review board member meetings, we reached out with seminars on force and search and seizure. Attendance was sparse. We also attended some community and neighborhood association meetings. CRB members have also offered to expand their availability to the neighborhood associations. Absent hot button issues, given the broad range of community issues, we do not stand out above other city issues. We are scheduled to have a joint community forum on policing with the Police Commission and we are working with the Human Rights Commission staff about coordinating more community activities. Many oversight agencies have full time community outreach coordinators and we have discussed partnering with HRC staff. Another item of interest, based on newer consent decrees that we study, is the direction to cities about protecting the neutrality of an auditor type system and placing greater emphasis on community outreach to groups with police commission type organizations. We will work with them and HRC to broaden the knowledge range about the complaint process as well as the roles of each element of the criminal justice system. Other Accomplishments: returned budgeted funds to the general fund; initiated several investigations of allegations of misconduct; provide staff support and training initiatives to the CRB; provide timely service to the CRB; spend many hours assisting community members with problems unrelated to police officers; attend public meetings in the community; available to the media; build a better partnership with the University of Oregon by serving on a committee related to their effort to establish a police department; publish a thorough and transparent annual report that captures the work and analysis of our office; and providing critical training opportunities for the office. Evaluation of 2012 -2013 Goals 1. More use of mediation as a complaint resolution process. Mediation is an alternative to a formal complaint process. Its value is to bring together those individuals who file allegations against police and the involved officers. The mediation takes place with the officer in a neutral setting to resolve difference perspectives of the incident. At the outset, success was limited due to hesitancy primarily on the part of police officers because the Ordinance and protocols were being misinterpreted as to whether a formal investigation could follow a mediation participation agreement. That issue was resolved. The number of formal mediations remains limited when there are allegations of serious misconduct. One mediated allegation involved force used on a juvenile that rose above the level of non - resistive handcuffing force, but not a high degree of force. The parents were part of the consent process, and it appeared the mediation worked out very well. We also had a mediated service complaint where all parties appeared satisfied. In several other instances, most often with the complainant, mediation was offered but declined. In more serious cases, I chose not to offer mediation 4 1 Office of the Police Auditor 2012 Annual Report as an alternative because of what I considered to be a higher valued outcome with a full internal affairs investigation. A hybrid of the mediation process is alternative dispute resolution or facilitated conversation. It occurs frequently with the service, policy and inquiry complaints. In these situations, supervisors interact with the complainant to attempt to discuss and resolve the issues. Often times these occur with traffic stops or if people believe they are not getting an adequate level of service when they report a crime. As part of this process, we added a question to our survey about whether the person would prefer to talk to the officer or the supervisor. Out of 35 responses, 24 said they preferred talking to the supervisor. While the number remains limited, facilitated conversations between community members and supervisors seems to be working well. 2. Continue to develop strategies for educating the community about the responsibilities of the OPA, OPA operations and EPD practices. Beyond the public review board member meetings, we reached out with seminars on force and search and seizure. Attendance was sparse. We also attended some community meetings. Absent hot button issues, given the broad range of community issues, we do not stand out above other issues. We are scheduled to have a joint community forum on policing with the Police Commission and we are working with the Human Rights Commission staff about coordinating more community activities. We will continue to work with the HRC to broaden the knowledge range about the complaint process as well as the roles of each element of the criminal justice system. The recent "ambassador" study done by HRC demonstrates that the need continues to exist, particularly when language barriers are present. 3. Work with EPD to improve our monitoring and investigation planning methodology and developing and implementing a framework for investigations performance measurement and perfecting the data collection systems. The introduction of the Blue Team, a tracking system for moderate to major incidents, is a shared EPD and Auditor database system. It is a quantum leap forward in tracking uses of force, pursuits, vehicle accidents, bias complaints and other allegations and major issues. It has been online only a few months in 2013 but the changes are remarkable. Prior to this system, officers were responsible for reporting their own uses of force and it was difficult for supervisors and command staff to track this information unless they went to the Records Section and asked for written reports. With Blue Team, sergeants, as first line supervisors, are responsible for reporting incidents of force, usually anything above non - resistive handcuffing. The opportunities for supervision, early intervention, and trend analysis are significant. This tool now provides a proactive measure to assist supervisors and officers in meeting organizational expectations. Even though our "design" was primarily a community complaint intake system, with command staff agreeing that full access to my office is important for the success of Blue Team, we are now able to look at all uses of force. As appropriate, many supervisors are initiating an investigation into an allegation of misconduct by employees. The Professional Standards Unit (Internal Affairs) takes a holistic approach in their investigation of misconduct, examining all actions of employees rather than simply the behavior identified in a complaint. Investigations have been objective, thorough and complete and with cases reviewed by the CRB, validated in the work done; not without critical review and corrective recommendations. Internal Affairs investigators have extended their efforts to work with complainants to help them understand processes, and even at times, brought in complainants after the conclusion of Office of the Police Auditor 2012 Annual Report 15 investigations to explain the investigations, show them video and audio and related reports. They have exhibited customer service in assisting complainants understand outcomes. Internal Affairs case files are organized in a logical manner and maintained in a secure environment as required. Weekly meetings are held with the Auditor's office, command staff and Internal Affairs staff to ensure that timelines and investigative courses are followed and reported. We found no evidence of interference with IA investigators in fulfilling their duties; IA investigators are sensitive to the concerns and cultural needs of complainants and witnesses; they provide all reasonable administrative rights of employees; command staff does not attempt to steer or guide the investigative path; with the implementation of Blue Team, the department is holding supervisors accountable for their oversight responsibilities; IA investigators are receiving appropriate training in the specialized field of administrative investigations; and the Professional Standards Lieutenant has taken the lead role in policy improvements. I remain concerned that higher risk policy and systemic issues identified by my office have not met the pace or language as recommended. 4. Benchmarking investigative outcomes with like organizations. We continue to obtain, compare and track other oversight agencies in the U.S., consent decrees and policy recommendations. We remain in the upper percentiles for sustained allegations and also review uses of force and other major incidents. While a smaller city, per capita statistics in various categories remain favorable. No two oversight groups work alike. There is no one blueprint for agencies in the U.S. The model in Eugene has a depth far beyond many cities in the U.S. We believe it is necessary and effective. We wish that the Oregon Public Records law more broadly allowed for the disclosure of personnel matters in government. 5. Enhance training for CRB members. Not only did the CRB vigorously take on case reviews, they engaged in a variety of training that appreciated the differing life, cultural, professional and educational backgrounds and varying degrees of exposure to law enforcement and corrections professionals, municipal government operations, the criminal justice system, and the full and diverse range of communities served by local law enforcement agencies. 6. Communicate outcomes more effectively. Our newsletter stretched the parameters for providing the community, stakeholders, media and interested parties with as much information as possible regarding complaints, outcomes and focus topics. I am not aware of any oversight agency with our volume of complaints that provides this service to the community. As indicated above, the next step is working with other city boards and commissions to better coordinate information to the public, particularly when English is not their first language. 7. Advocating for the CRB to review difficult (where adjudication recommendations are "close" calls) cases. I believe the CRB (unfortunately with little media coverage or public attendance) heard difficult cases involving many different policies and policy implications. These ranged from a serious use of force to accommodating a woman's need to use a bathroom while in custody. Search and seizure cases and bias policing allegations were also explored. Even though they are only required to meet four times in a 6 1 Office of the Police Auditor 2012 Annual Report year, they met 12 times. It was clear that the CRB members took their responsibilities seriously and with enthusiasm to serve their community. Goals for 2013 — 2014 I'm going to try to simplify this year. I thought that there were many improvements in 2012 -2013 but more work needs to be done. 1. Promote constitutional — based policing as the foundation for law enforcement in Eugene. This includes promoting the concept that people should feel safest when they are with police, even those who have been arrested. It is expected that a new EPD records management system (RMS) will be of significant value in tracking demographic data to better capture opportunities to identify bias -based policing. 2. Work with the Police Commission, Human Rights Commission and Municipal Court and partner with community agencies to broaden the understanding of the services provided in each venue and how those services interact with police actions, particularly with segments of the community in which English is not a first language. Given the current workload, taking on this task alone may fall short for each agency unless we collaborate while respecting the neutrality of the Auditor's office and the courts. 3. Identify and evaluate weaknesses in high risk policies and practices. 4. Ensure that supervisors are meeting their Blue Team responsibilities. Conduct trend analysis based on Blue Team data. 5. Maintain the outstanding performance of staff and the CRB. Complaint Process: Within an administrative complaint process, what remains problematic, and is often a major concern for a complainant, is a complaint that they are not guilty of an offense, that the facts as stated by the officer are not accurate, that others allegedly committing the same offenses are not arrested or charged, and that the time and expense to defend oneself is onerous. Within the criminal justice system of the U.S., a heavy burden remains with the courts, prosecutors and defense attorneys to ensure that justice is served when someone is charged with an offense. Any failures in these systems place additional burdens on individuals and agencies like citizen complaint avenues. The diagram on the next page captures the flow of complaints, whether generated by the community (external complaints) or generated internally from the police department. It does not include community impact cases. As the diagram /flow chart illustrates, complaints are handled thoroughly and completely. Many variables exist that set the course for complaints. The City Ordinance for the Auditor's office, the Charter Amendments, union contracts and labor /management negotiated protocols all factor into the path of a particular complaint. The following diagram is an excellent illustration of the volume of work and number of decisions that are made throughout the complaint process. It is indicative of the need to have experienced professionals with knowledge of administrative, and at times, criminal processes. One of the most difficult aspects of the process is the classification of the complaint. City Council legislated that this is a function of the Auditor's office. The decisions are not always easy and never made hastily. The Auditor must evaluate Office of the Police Auditor 2012 Annual Report 17 information at hand which rarely if ever provides all of the facts at the intake and classification stages. Sometimes, a classification may change one or more times as additional facts are received. It is important to note that, as the hiring authority (as delegated by the City Manager), the police chief is the person who makes the final decision on discipline. The Auditor's office is permitted to evaluate discipline trends. The chart on the next page indicates that we take the complaint process seriously and invest a significant amount of time trying to resolve the issues presented to us by the community members through the complaint process. 8 1 Office of the Police Auditor 2012 Annual Report Complaint Process r Eug®nR:1+$ $or Cummuniry AudlkDt'g FP' @and AUdIWI Investd aeons Mcdiwwien Diswrlcw Aitgr�: Diva ipn s OSP 5" iL u pdsted June 2e I2 Office of the Police Auditor 2012 Annual Report 19 i` [losing �ccxer Kn, Conrplainant wlth', � Survey Related Data* *(At times complaint numbers may not match up exactly, particularly in cases where the date of the incident occurred in a year prior to the deposition: i.e.: complaint filed in December but adjudicated in February.) 2012 total police calls for service (where police responded including officer initiated): 114,500 (an increase of over 9% from 2011). 2011 Year Total Calls for Service 2012 114,500 2011 104,660 2010 97,277 2009 98,796 2011 total custody arrests and misdemeanor citations including DUII arrests (596 DUII arrests): 15,614 Year Total Custody Arrests and Misdemeanor Citations 2012 15,614 2011 15,471 2010 14,626 2009 16,358 2012 custody arrests and misdemeanor citations including DUII arrests per capita arrests (based on estimated population of 158,335) rate: 0.099 Total Uniformed Traffic Citations: 15, 170 Year Total Uniform Traffic Citations 2012 15,170 2011 13,133 2010 16,670 2009 18,299 2008 15,282 In past years, we have also included EPD's data on Taser discharges and warnings. The 2012 Taser data is being entered into BlueTeam (as well as ongoing 2013 data) and will be reported when it is compiled. 10 1 Office of the Police Auditor 2012 Annual Report 2012 Complaints: Statistics and Review The Auditor's Office received 341 total complaints in 2012 — a decrease of 5% from 2011 (when we received 361 complaints), but an increase from 2010 (when we received only 326 complaints). As in previous years, the majority of the complaints (170) were classified as service complaints. Classification Allegation of Criminal Conduct Allegation of Misconduct Inquiry Policy Complaint Service Complaint Number of Complaints 8 35 93 35 170 2012 Total Complaints °' 'nquiries (93) 10% AlIej of Misco (35 3% Allegations of Criminal Conduct(8) LA 10% Policy Complaints (35) 50% Service Complaints (170) Allegations of misconduct dropped from 62 in 2011 to only 35 this year; however, 2010 saw a similar number of allegations of misconduct at 40. Inquiries continued to rise — 93 in 2012 compared to 54 in 2011. These trends will be discussed in further detail below; our increased focus in performing a thorough preliminary investigation appears to be the likely cause. Office of the Police Auditor 2012 Annual Report 111 Complaints by Classification, 2008 -2012 400 - 350 300 250 200 150 100 50 0 Similar to 2011, we did not see a monthly trend to our complaint numbers. 2012 Complaints by Month 45 40 35 30 25 20 15 10 5 0 361 Kati ■ 2008 2009 2010 2011 2012 Service Complaint Policy Complaint Inquiry • Allegation of Misconduct • Allegation of Criminal Conduct 12 1 Office of the Police Auditor 2012 Annual Report Allegation of Allegation of Inquiry Policy Service Total Criminal Misconduct Complaint Complaint Conduct Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec However, when the data is combined from the past three years, it is clear that we generally experience a sharp increase in March and a slightly higher frequency of complaints in the spring and summer months (May - July). Complaints by Month, 2010 -2012 120 100 80 60 40 20 0 2012 Total Complaints 2011 Total Complaints ■ 2010 Total Complaints We received complaints from a variety of sources, but the telephone was our most popular option (165 complaints received over the phone, or 48 %). 2012 Source of Complaints US Mail, 5 Walk In, 60 Auditor, 5 Claim Form, 1 Complaint Form, 19 The telephone has consistently been the most common way for us to receive complaints. Methods such as referrals from the Equity and Human Rights office, submissions of EPD's "Tell Us About It" (TUAI) Office of the Police Auditor 2012 Annual Report 1 13 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec form, fax, referrals from the City's Public Service Officer, and submission of risk claim forms, have remained consistently low over the years. 200 180 160 140 120 100 80 60 40 20 0 All Complaint Sources, 2008 -2012 L o ■ 2008 ■ 2009 ■ 2010 2011 2012 Q , �e�� However, the number of internal complaints has increased greatly over the years; internally reported complaints consisted of 2 -4% of the total complaints in 2008 -2010, but in the past few years, 9% (2013) and 7% (2012) of our total complaints were received from within EPD. Auditor - initiated complaints have remained steady at about 1% of total complaints. We have seen an increased percentage of complaints from walk -ins, and an overall decrease in complaints received through the mail. Selected Complaint Sources, 2008 -2012 20% 18% 16% 14% 12% 10% 8% 6% 4% 2% 0% tAuditor — Complaint Form —0--Email --+— Internal US Mail Walk In 14 1 Office of the Police Auditor 2012 Annual Report 2008 2009 2010 2011 2012 Complaints were distributed among 149 employees. 41% of those employees (62 employees) had only one complaint levied against them. One employee received 10 complaints, and one employee received 8 complaints. 70 60 50 40 30 20 10 0 # of Employees Our office is the intake point for complaints for all employees of EPD, including sworn and non -sworn employees (a total of 306.75 FTE, as of May 2013). The 149 employees with complaints represent 48.6% of the employees at EPD. Table 1. 2012 Complaints by Number of Employees Complaint Distribution Office of the Police Auditor 2012 Annual Report 115 10 8 7 6 5 4 3 2 1 # of Complaints Number of Number of Percent of All EPD Employees Complaints Employees Received Employees with Complaints 149 341 48.6% 62 1 20.2% 35 2 11.4% 24 3 7.8% 5 4 1.6% 12 5 3.9% 6 6 1.9% 3 7 1.0% 1 8 0.3% 0 9 0.0% 1 10 0.3% Employees with No Complaints 157.75 0 51.4% Total 306.75 341 100% Complaint Distribution Office of the Police Auditor 2012 Annual Report 115 10 8 7 6 5 4 3 2 1 # of Complaints The distribution of sustained allegations of misconduct among employees, as opposed to complaints (which may be unfounded) is addressed below. Allegations A complaint is classified as an allegation if it alleges serious misconduct. There are two main categories of allegations: allegations of criminal conduct (where the actions alleged, if found to be true, would constitute criminal conduct by an employee) or allegations of misconduct (where the actions alleged constitute a major rules violation, including excessive force that causes physical injury or egregious acts of disparate treatment). Criminal Conduct During 2012, the Auditor's office received eight complaints that were classified as allegations of criminal conduct. Five of those investigations are still ongoing; as ongoing criminal investigations, we cannot comment on them here. One complaint alleged that a former employee was involved in a crime several years ago. As the employee is no longer an EPD employee, we were required to dismiss the complaint. However, we forwarded the complaint and information to the District Attorney for follow up. Another complaint was forwarded to our office from the Lane County jail; an inmate there alleged that EPD employees used excessive force against him and touched him inappropriately. The complaint was investigated by an EPD supervisor; our office reviewed the investigation to ensure it was thorough, fair, and complete. The investigation uncovered no evidence to support the allegation that officers committed any criminal acts against the reporting party. Our office agreed with EPD that no further administrative investigation was necessary. The investigation was also reviewed by the District Attorney, who declined to prosecute based on the lack of evidence. The District Attorney further elaborated that "all indications are that [the officers] performed their duties with the professionalism we expect of all our law enforcement." A third complaint was received by EPD, who notified our office and assigned the case to Oregon State Patrol to investigate. Our office reviewed the investigation to ensure it was thorough, fair, and complete. The investigation revealed nothing to support the claim that the employee had committed any criminal act. Our office agreed with EPD that no further administrative investigation was necessary, and the complaint was closed as unfounded. Misconduct In 2012, the Auditor's office received 35 complaints (from both internal and external sources) alleging serious misconduct. Most allegations were related to use of force, followed by conduct, performance, 16 1 Office of the Police Auditor 2012 Annual Report constitutional rights, and courtesy (in decreasing order). Allegations of misconduct are investigated by Internal Affairs sergeants, and the Auditor's office participates in and oversees those investigations. The 35 complaints alleging serious misconduct included 77 specific alleged policy violations by EPD employees. 2012 Allegation Cases by Classification* Criminal Misconduct 12 10 8 6 4 2 0 Misconduct 1 8 7 7 6 s ' a� a Cow �. 0 a� s�ot� o� L CP � L o * In the graph above, only the primary allegation is indicated. 10 of the 35 complaints were sustained — about 29% of the complaints. This is consistent with 2011's sustained rate of 30 %. Only two complaints were dismissed (one was outside of jurisdiction, and one was dismissed for timeliness), which is a sharp decrease from the 17 complaints dismissed in 2011. In addition, the number of complaints dismissed for timeliness decreased from 8 in 2011 to 1 in 2012, which seems to indicate that the community is becoming more cognizant of our time limits. The following table and graph illustrate in further detail the types of allegations we received in 2012 and their outcomes (instead of addressing only the primary allegation). The primary allegation is designated within the Internal Affairs database that we share with EPD, using the primary of what may be several allegations against several officers. Office of the Police Auditor 2012 Annual Report 117 o * In the graph above, only the primary allegation is indicated. 10 of the 35 complaints were sustained — about 29% of the complaints. This is consistent with 2011's sustained rate of 30 %. Only two complaints were dismissed (one was outside of jurisdiction, and one was dismissed for timeliness), which is a sharp decrease from the 17 complaints dismissed in 2011. In addition, the number of complaints dismissed for timeliness decreased from 8 in 2011 to 1 in 2012, which seems to indicate that the community is becoming more cognizant of our time limits. The following table and graph illustrate in further detail the types of allegations we received in 2012 and their outcomes (instead of addressing only the primary allegation). The primary allegation is designated within the Internal Affairs database that we share with EPD, using the primary of what may be several allegations against several officers. Office of the Police Auditor 2012 Annual Report 117 Table 2. 2012 Specific Allegations 18 1 Office of the Police Auditor 2012 Annual Report # of Dismissed Mediated Unfounded Within Insufficient Sustained Allegations Policy Evidence Abuse of Position 2 0 0 1 0 0 1 Automated Records System 1 0 0 0 1 0 0 Constitutional Rights 1 1 0 0 0 0 0 Constitutional Rights/ Discrimination 10 0 2 4 3 0 1 Courtesy 4 0 0 2 0 0 2 Judgment 7 0 0 1 0 0 6 Lack of Knowledge of the Law 2 0 0 0 0 0 2 OC Spray 1 0 0 0 1 0 0 Person Stops and Contacts 1 0 0 0 0 0 1 Report Preparation and Submission 1 0 0 0 0 1 0 Unbecoming Conduct 6 0 0 4 0 0 2 Unsatisfactory Performance 10 1 0 4 0 0 5 Use of Force 27 0 2 7 16 0 2 Use of Taser 2 0 0 0 2 0 0 Vehicle Pursuit Policy 2 0 0 0 0 0 2 TOTAL 77 2 4 23 23 1 24 18 1 Office of the Police Auditor 2012 Annual Report . H CL N m H . m OA Q �U CL U GJ N O ro N O rr-I a1 C a, U C a1 W C a1 U 4= 7 u U � 0 a a1 +�+ �O "a E Ln t a 1 11 NI 1� I o Ln o - fo '� , as � h da /J' a a s h � J� ° .Y a aJ4 s� ,gy J 7 O jsS � 00 a P i el o P a1 J sip mad O �s o � �os�d gab a Z 0 As -o ell, 4' �' a '� s 7 T 5 s %sdp baa�a� as2, p��b It is clear that a high proportion of our complaints are related to EPD uses of force. Generally, when we receive a complaint alleging use of force and there is an injury, a thorough internal investigation is the most responsible way forward, even when it appears that no policy violation occurred. The majority of the use of force allegations (59 %) are found to be within policy. The highest number of specific sustained allegations were for violations of the policies forjudgment and performance (6 and 5, respectively). EPD policy requires that employees use good judgment at all times; "good judgment" is determined using a standard of a reasonable employee in similar circumstances. EPD policy also requires employees to perform all aspects of their job as well as they reasonably can. Examples of poor performance include lack of knowledge of the law, unwillingness or inability to perform assignments, failure to conform to standards established for the employee's rank or position, failure to take appropriate action, and failure to perform professionally. In addition to performance and judgment, there were sustained allegations for abuse of position, constitutional rights /discrimination, courtesy, lack of knowledge of the law, person stops and contacts, unbecoming conduct, use of force, and the vehicle pursuit policy. (stained Specific Allegations Abuse of Position, 1 Constitutional Rights/ scrimination, 1 Vehicle Pursuit -- , Policy, 2 rce, 2 --ourtesy, 2 Judgment, 6 ibecoming ? Lack of onduct, 2 nowledge of the Law, 2 Person Stops and Contacts, 1 20 1 Office of the Police Auditor 2012 Annual Report Discipline for specific sustained allegations was varied. The purview of our office is limited to the investigatory process; we are excluded from commenting on discipline. However, in the interests of transparency, discipline information is provided below. 2012 Disciplinary Action for Sustained Specific Allegations 5 4.5 4 3.5 3 2.5 2 1.5 1 0.5 0 o -N eye \ � e ,R ° o° Q�ao . \°� o� �o 1 Allegations were distributed among 14 employees, or 4.6% of EPD employees. Two sustained complaints, including five separate policy violations, involved the same employee. All other sustained allegations (13 complaints including 21 separate policy violations) involved different employees. Table 3. EPD Employees with Sustained Allegations of Misconduct # of Sustained Policy Violations # of EPD Employees % of EPD Employees 5 1* 0.3% 4 0 0.0% 3 1 ** 0.3% o� 6 ** 2.0% 1 Q ty 2.0% te a Allegations were distributed among 14 employees, or 4.6% of EPD employees. Two sustained complaints, including five separate policy violations, involved the same employee. All other sustained allegations (13 complaints including 21 separate policy violations) involved different employees. Table 3. EPD Employees with Sustained Allegations of Misconduct # of Sustained Policy Violations # of EPD Employees % of EPD Employees 5 1* 0.3% 4 0 0.0% 3 1 ** 0.3% 2 6 ** 2.0% 1 6 ** 2.0% * The five sustained policy violations arose out of two separate complaints. ** These employees each had only one sustained complaint; the number of policy violations in each complaint varied. Office of the Police Auditor 2012 Annual Report 121 Service Complaints and Surveys Service complaints, policy complaints, and inquiries are handled in a different manner than allegations of criminal conduct or misconduct. Service complaints are complaints "about police employee performance or demeanor, customer service and /or level of police service." E.C.C. § 2.452. Generally, service complaints are referred to the supervisor of the involved officer(s) for follow up with both the complainant and the involved officer(s). The supervisor will write a memo detailing their review of the complaint and contact with the involved parties, which the Auditor's Office reviews for completeness and thoroughness. The Auditor's Office then contacts the complaining party for a follow up survey. 2012 Service Complaints by Sub - Classification 1% Use of Force, (1) �7 % Conduct (11) 10% Service level (17) 24% Courtesy (41) 56% Performance (96) 1 %Disputed Facts (2) 1% Other (2) We have seen an overall decrease in conduct- and service level- related complaints, but we have seen an increase in performance - related complaints. At the same time, courtesy - related complaints have remained relatively steady (though they have decreased to only 41 this year after last year's high of 64). 22 1 Office of the Police Auditor 2012 Annual Report Service Complaints by Sub - Classification, 2008 -2011 100 90 80 70 60 50 40 30 20 10 0 Service Complaint Surveys ■ 2008 ■ 2009 2010 2011 2012 We received 37 returned surveys in 2012 from 170 total service complaints, for a response rate of 21.8 %. This is slightly down from 2011's rate of 23.9% (44 of 184 returned), but slightly improved from our 2010 rate of 21.5% (46 of 214 returned). The questions on the surveys are as follows: 1) Staff member(s) at the Office of the Police Auditor was /were helpful in taking my complaint. 2) Were you contacted by the EPD employee's supervisor? 3) If yes to #2, my concerns were addressed by the supervisor. 4) The supervisor listened to my concerns. 5) I am satisfied with the outcome of the complaint investigation. 6) Would you have preferred to speak with the involved officer rather than the supervisor? Questions #1, #3, #4, and #5 are answered with a ranking: Agree, Agree Somewhat, Disagree Somewhat, and Disagree. Question #2 is a yes or no question. We received 31 "Yes" answers (83.8 %) and three "No" answers — two respondents had been contacted by the supervisor but still disagreed with the response, and one believed she was contacted by the involved officer (it was a supervisor) and appreciated the follow up. We also received one "N /A ", one " ? ", and one blank response (our records showed that in all three cases, the respondent was in fact contacted by a supervisor). Office of the Police Auditor 2012 Annual Report 123 o� aka` � �� G Ka 0 � tom° Question #6 was added to the survey during 2011; it is a yes or no question and includes a space for comments. Of the 34 surveys that answered this question, only 8 would have preferred speaking with the officer (one of those would have preferred speaking with both the officer and supervisor); 26 preferred speaking with the supervisor. For comparison, in 2011, 18 of 20 respondents preferred speaking with the supervisor. Question 1 : Helpfulness of the Auditor's Office 3 Agree Somewhat ,8% 1 Disagree Somewhat ,3% 2 Disagree, 5% Question 3: Supervisor Addressed Concerns Question 4: Supervisor Listened to Concerns 4gree iewhat 8% Disagree )mewhat 3 0% agree, 9% 5 Agree iewhat 16% 2 Disagree Somewhat ,7% 1 Disagree, 3% Question 5: Overall Satisfaction with Outcome 5 Agree rpw Somewhat 15% . Ag ree, 9 Disagree Somewhat 27% 3 Disagree, 9% In 2012, 92% of respondents agreed or somewhat agreed that the Auditor's Office was helpful in taking their complaint (Question 1). This is a slight increase from 2011, when 89% answered the same. Overall satisfaction with the process (Question 5) increased slightly to 64% from 62% in 2011 and 2010. A 24 1 Office of the Police Auditor 2012 Annual Report Service Complaint Surveys, 2009 -2012 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% I_II11_ —IY.. � r r r � P e� e� h a ¢ O P e e, h a ¢ O P e� e� h a ¢ O P e d h a ¢ O O o� o' , o� o" O� O� o� o� 5 ti 5 3 1 5 5 h PO3 a¢Oee P¢Oee a¢Oe O PaOee a¢Oee P¢Oee a¢Oe O O� Q�5 O� Q�5 Oh Q�5 oti C' U ■ 2009 ■ 2010 2011 2012 As shown above, the percent of respondents who agree that the Auditor's Office was helpful has steadily increased, as has the percent of respondents who agree that the supervisor addressed their concerns. The percent of respondents who agree that the supervisor has listened to their concerns has increased greatly, from about 60% in 2009 -2010 to 78% in 2012. Policy Complaints and Inquiries Complaints are classified as policy complaints where the complainant "is dissatisfied with current policies or established procedures." Civilian Oversight Protocols, Classification of Complaints 1.d. These complaints are referred to either a supervisor (where appropriate) or an Internal Affairs sergeant. For example, a policy complaint may be investigated by a supervisor where a particular officer, division, or program is the focus of the complaint. Similar to a service complaint, the investigator will contact the complainant, as well as any involved officer(s), and write a memo detailing their resolution of the complaint. The Auditor's office reviews the memo and follows up with the complaining party. A complaint may be classified as an inquiry where it involves a "question about the propriety of an employee's actions or a department policy, procedure, or regulation in a manner which indicates dissatisfaction, but which does not necessarily constitute or imply an allegation of misconduct." EPD Police Operations Manual (POM) 1102 -3, Part I.A.I. An inquiry may be investigated by a supervisor, Internal Affairs sergeant, or the Internal Affairs coordinator, as appropriate. The Auditor's Office is kept Office of the Police Auditor 2012 Annual Report 125 informed regarding the progress of inquiries and may reclassify the complaint if warranted. The Auditor's Office contacts the reporting party with a resolution. While policy complaints decreased in 2012 (down to 35 from 53), they were comparable with 2010 levels. Inquiries, on the other hand, sharply increased — 93 in 2012 compared to 54 in 2011. This appears to be likely related to classification processes; our office has focused on improving our preliminary investigations of complaints, and often complaints are classified as inquiries until the preliminary investigation has developed. Often, inquiries will be reclassified to allegations, service complaints, or policy complaints depending on what is discovered in the preliminary investigation. This theory is supported by the decreased number of allegations for 2012, as well as the dramatic decrease in dismissed allegations from 2011. In 2011, 15 specific allegations of misconduct (from several different complaints) were dismissed for various reasons. As stated above, in 2012, only two specific allegations (from two different complaints) were dismissed. Inquiries and Policy Complaints, 2008 -2012 100 90 80 70 60 50 40 30 20 10 0 ■ Inquiry Policy Complaint 26 1 Office of the Police Auditor 2012 Annual Report 2008 2009 2010 2011 2012 Vehicle - Related Incidents Vehicle pursuits continued to decline in 2012; EPD conducted 16 pursuits in 2012, down from 21 the year before. In comparison, EPD conducted 27 vehicle pursuits in 2008— a decrease of 40 %. Vehicle accidents remained steady (38 in 2012, compared to 37 in 2011). Vehicle Accidents and Pursuits, 2008 -2012 50 45 40 35 30 25 20 15 10 5 0 2008 2009 2010 Vehicle Pursuits Vehicle Accidents 2011 2012 Commendations The Auditor's Office and EPD continue to intake commendations, a total of 371 in 2012. This was a slight decrease from 2011, but the overall trend over the past 10 years is a slight increase. Commendations 2002 -2012 500 450 400 350 300 250 200 150 100 50 0 Commendations Linear (Commendations) Office of the Police Auditor 2012 Annual Report 127 OL O O O� O z O O� N b y ti ti , , , , , , , , , , ,LO Commendations continue to outpace complaints, as has been the case since 2008. Complaints and Commendations, 2008 -2012 500 450 400 350 300 250 200 150 100 50 0 Community Impact Cases The Auditor did not receive any complaints in 2012 that were designated as a community impact case. Critical Incidents There was one critical incident in 2012, an officer - involved shooting. The Auditor's Office was notified of the incident in a timely manner, and our office participated in the Deadly Force Review Board which was convened to analyze the use of deadly force. In addition, there was one incident later classified as a use of deadly force; no serious physical injury resulted from the use of deadly force, so it was not designated as a critical incident. Regardless, the Auditor's Office was notified of the incident by EPD command staff. The Auditor's Office also participated in the Use of Force Review Board that was convened to examine that use of deadly force. 28 1 Office of the Police Auditor 2012 Annual Report 4 U 7 C U a m a m a v v 0 a � 3 z z z ¢ z w c w z m m m m m E m z V ae V V ae V z V a -o v z V N o o o 0 o n o 0 ° I lo 3 n o M. O ~ a o 0 H Z 0 `v o Q H 10 10 M. 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