HomeMy WebLinkAbout2019-11-12 City Council Workshop PacketPLEASE NOTE START TIME
AGENDA
MAPLEWOOD CITY COUNCIL
MANAGER WORKSHOP
6:00 P.M. Tuesday, November 12, 2019
City Hall, Council Chambers
A. CALL TO ORDER
B. ROLL CALL
C. APPROVAL OF AGENDA
D. UNFINISHED BUSINESS
None
E. NEW BUSINESS
1. Proposal to Transform the Police Advisory Commission to a Multicultural Advisory
Committee
F. ADJOURNMENT
A quorum of the Police Advisory
Commission may be in attendance
RULES OF CIVILITY FOR THE CITY COUNCIL, BOARDS, COMMISSIONS AND OUR COMMUNITY
Following are rules of civility the City of Maplewood expects of everyone appearing at Council Meetings -
elected officials, staff and citizens. It is hoped that by following these simple rules, everyone's opinions can be
heard and understood in a reasonable manner. We appreciate the fact that when appearing at Council
meetings, it is understood that everyone will follow these principles:
Speak only for yourself, not for other council members or citizens - unless specifically tasked by your
colleagues to speak for the group or for citizens in the form of a petition.
Show respect during comments and/or discussions, listen actively and do not interrupt or talk amongst each
other.
Be respectful of the process, keeping order and decorum. Do not be critical of council members, staff or others
in public.
Be respectful of each other's time keeping remarks brief, to the point and non -repetitive.
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E1
CITY COUNCIL WORKSHOP STAFF REPORT
Meeting Date November 12, 2019
REPORT TO: Melinda Coleman, City Manager
REPORT FROM: Scott Nadeau, Public Safety Director
PRESENTER: Dan Busack, Police Lieutenant
Brian Bierdeman, Police Lieutenant
AGENDA ITEM: Proposal to Transform the Police Advisory Commission to a Multicultural
Advisory Committee
Action Requested: ❑ Motion ✓ Discussion ❑ Public Hearing
Form of Action: ❑ Resolution ❑ Ordinance ❑ Contract/Agreement ❑ Proclamation
Policy Issue:
The Police Department will provide a proposal to the City Council regarding transforming the Police
Advisory Commission to a Multicultural Advisory Committee.
Recommended Action:
No recommended action at this time, but staff seeks council feedback.
Fiscal Impact:
Is There a Fiscal Impact? ✓ No ❑ Yes, the true or estimated cost is $0
Financing source(s): ❑ Adopted Budget ❑ Budget Modification ❑ New Revenue Source
❑ Use of Reserves ✓ Other: N/A
Strategic Plan Relevance:
❑ Financial Sustainability ❑ Integrated Communication ❑ Targeted Redevelopment
✓ Operational Effectiveness ✓ Community Inclusiveness ❑ Infrastructure & Asset Mgmt.
The police department and the police advisory commission wish for the group's efforts to align with
the city's strategic priorities of operational effectiveness and community inclusiveness.
Background
In 2016, in response to the Philando Castille shooting, a Use of Force Workgroup was established
by the Maplewood City Council. Fourteen community members were appointed, which included
varied knowledge areas and persons of color. The group met nearly every week between
September 22, 2016 and February 22, 2017, addressing and developing policy on the use of force.
The group completed their review of the police department's policy manual and adopted a prologue
to the manual titled, "Community Guidance to our Police Officers" on February 22, 2017.
Prior to the resignation of Public Safety Director Paul Schnell, the group met 2 more times in May of
2017 to discuss the creation of an established commission to continue the efforts of the task force.
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The city council at Director Schnell's request created a Police Advisory Commission (PAC). The
purpose of this commission was to provide advice and support, and to review goals, policies and
statistics from the police department. Nine community members were appointed to the PAC, which
began meeting quarterly in October of 2017.
Through a series of quarterly meetings, the group provided their thoughts on issues ranging from
the police department's strategic plan, to community outreach initiatives, as well as reports such as
the 2017 & 2018 Enforcement Action Report. In November of 2018, Chad Weinstein was brought in
and facilitated a series of special meetings as the group seemed to struggle with direction and how
to best contribute thoughts and ideas to the police department.
The members of the PAC has never functioned like a typical city commission: they requested that
their meetings be held at the fire station instead of the council chambers and asked that their
meetings not be cable cast on the government access channel. In addition, the meetings were held
from 6- 8 pm and dinner was provided. Council Member Smith was appointed as the council liaison
to the PAC. It was also noted that the appointees to the PAC were not as diverse as the use of
force task force and that attracting a more diverse membership was difficult under the current
application and council appointment process required for commissions.
The PAC was originally project driven but over the course of the PAC's meetings there was some
concern that the commission model might not be the best fit for the type of work being requested by
the department and the city council.
One of the city's strategic priorities is community inclusiveness. It is the priority of the city council to
"strive to create a community that is engaged, tolerant and compassionate about everyone. To
further build a community that embraces and respects diversity and that uses different perspectives
and experiences to build an inclusive and equitable city for all".
In May of this year, Mayor Abrams, City Manager Coleman and Public Safety Director Nadeau
started a dialog with the PAC to ask for time to evaluate the effectiveness of the commission model
in addressing community inclusiveness and engagement. It was agreed that Police Lieutenants
Brian Bierdeman and Dan Busack would research what other communities are doing to address
community inclusiveness and support the public safety department. This research has been
completed and a report has been written and distributed to the members of the PAC, City Council
and the City Manager.
At the September 25, 2019 Police Advisory Commission meeting, the group discussed the research
proposal and approved a motion to support a transformation of the PAC to a Multicultural Advisory
Committee. This proposal of the group's new structure is being brought to the council for
discussion.
Attachments
1. Multicultural Advisory Committee Proposal
2. PowerPoint Presentation
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Maplewood
Forging Positive Collaborations
with the Community:
A Proposal to Develop a
Multicultural Advisory
Committee
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Maplewood Police Department I A Proposal to Develop a Multicultural Advisory Committee
Topic
ExecutiveSummary...................................................................................................................................3
DepartmentOverview...............................................................................................................................4
Racial Composition of City Employees......................................................................................................4
Race and the Community Served..............................................................................................................4
The President's Task Force on 21" Century Policing................................................................................. 5
Reviewof Past Practices............................................................................................................................6
TheJCPP Model......................................................................................................................................... 7
Evaluation of Select Multicultural Advisory Committees..........................................................................8
Conclusion................................................................................................................................................. 9
WorksCited.............................................................................................................................................11
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Maplewood Police Department I A Proposal to Develop a Multicultural Advisory Committee
Executive Summary
The use of citizen advisory committees and boards is becoming more common in modern policing.
Recommendations from scholars and practitioners report their formation to be best practice to improve
police -community relations. While positive steps are being made to address workforce diversity within
the agency, the City of Maplewood has a workforce that is not representative of the diversity of the
city's population.
The Maplewood Police Department formed a Use of Force Advisory Commission in 2015 to conduct a
complete review of the department's use of force policies and procedures. Upon completion of the
Commission's work, the former chief and council wanted to sustain the momentum achieved through
the citizen input and department collaboration. The Police Advisory Commission (PAC) was formed to
continue this cooperation. As a city commission, the PAC had to abide with rules that are specific to
commissions including open meetings, having to publish agendas and meeting times, and not being able
to meet in exigent times to give advice and support during evolving community events. Other issues
included being able to recruit a diverse group of citizens who represented the community and a
formalized process which required city council approval.
During the summer of 2019, at the request of Mayor Marylee Abrams and City Manager Coleman, the
Maplewood Police Department reviewed best -practices for citizen advisory groups employed by other
police departments in Minnesota. Also, we examined the recommendations of the Task Force on 21St
Century Policing and reviewed our department's strategic plan. The Task Force on 21ST Century Policing
directs all agencies to adopt mechanisms to provide equity in the representation of those who are of
non -majority populations and suffer from economic disparity. Additionally, the Maplewood Police
Department's Strategic Plan directs us to focus on involving community partners in our efforts to
provide successful communication and information sharing with an emphasis on underrepresented
populations.
After researching best practices and reviewing how the Maplewood Police Advisory Commission
operated, it is suggested that the Maplewood PAC be changed to a committee like that being used
successfully in other communities in Minnesota. Observing these other committees operate first-hand
and speaking with and listening to members, demonstrated that these committees had established very
positive relationships with the communities' citizens, including populations that are often under-
represented and difficult to engage. This change will be more conducive to fostering relationships with
those who live, work, worship, and visit our community, as these committees allowed for an honest,
open, and natural debate that differed from our experiences at the PAC meetings. It is recommended
this new committee be titled the Multicultural Advisory Committee.
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Maplewood Police Department I A Proposal to Develop a Multicultural Advisory Committee
Department Overview
The Maplewood Police Department is led by Public Safety Director Scott Nadeau and has a current
authorized strength of 55 sworn law enforcement officers, five full-time non -sworn support staff,
and five casual part-time Community Service Officers that serve the diverse policing needs of the
City. The police department is a full-service agency made up of three separate divisions, each with
their responsibilities.
In 2018, the Maplewood Police Department handled around 34,000 incidents, ranging from minor
crimes and citizen assists in federal narcotics trafficking cases. All of this is done in support of the
department's mission statement; "The Maplewood Police Department, in partnership with its citizens,
will work to solve problems relating to crime and the fear of crime, with an emphasis on meeting
community needs."'
Racial Composition of City Employees
As of August 12, 2019, the city employs 180 persons. Of those, 21, or 11.67%, are non-white.
Through intensive recruiting efforts focusing on non-traditional officers, 9 of the last 13 hires in the
police department have been women and people of color. These recent hires bring the police
department's total number of non-traditional uniformed employees to 19, which is 31.67% of our
uniformed workforce.
Race and the Community Served
As reported by the Maplewood Police Department in the Community Information report, the 2000
US Census Bureau reported about 27% of Maplewood residents were non-white. By 2017, that
number had increased to 34%. These numbers only reflect the reported population of persons who
reside in Maplewood and does not include statistics on those who work or worship here2.
According to the 2017 F.B.I. Uniform Crime Report, about 10.5 million adults, were arrested'. Also
in 2017, the Office of Juvenile Justice and Delinquency Program reports approximately 800,000
persons under the age of 18 were arrested 4. The US Census Bureau reports (2010) about 24% of all
US citizens are under the age of 185. While this indicates juveniles are less likely than adults to be
arrested, recent Maplewood Police Department statistics indicate otherwise'.
According to Wickersham', government bodies and organizations need to reflect the racial
composition of the citizenry it is to serve. She states, "The... inclusion of minority groups should help
ensure that their ideas, feelings, issues, and concerns are recognized in government." There is a
need to have a better representation of diverse communities in police advisory groups.
1 (Maplewood Police Department, 2019)
z (Maplewood Police Department, 2019)
' (FBI UCR, 2018)
4 (OJJDP statistical book, 2018)
5 (US Census Bureau, 2011)
e (Maplewood Police Department, 2019)
' (Public Management Magazine, 2016)
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The enforcement action reports in 20178, and 2018 shows that people of color are more likely to be
arrested, especially for non -discretionary arrests, and victims of crime in Maplewood.
The President's Task Force on 21s' Century Policing
In December of 2014, then -President Barack Obama signed an executive order which established
the Task Force on 21ST Century Policing. By May of 2015, a comprehensive report from the task
force was published9. There are 156 recommendations, many of which are based on community
engagement, trust, and relationship building. This report is a foundation for how police
departments should be approaching a variety of issues in our country. The report and its
recommendations have been adopted by the Maplewood Police Department.
In numerical order, some of these include:
1.8: Law enforcement agencies should strive to create a workforce that contains a
broad range of diversity including race, gender, language, life experience, and cultural
background to improve understanding and effectiveness in dealing with all
communities.
1.9: Law enforcement agencies should build relationships based on trust with
immigrant communities. This is central to overall public safety.
2.1: Law enforcement agencies should collaborate with community members to
develop policies and strategies in communities and neighborhoods disproportionately
affected by crime for deploying resources that aim to reduce crime by improving
relationships, greater community engagement, and cooperation.
2.8: Some form of civilian oversight of law enforcement is important to strengthen trust
with the community. Every community should define the appropriate form and
structure of civilian oversight to meet the needs of that community.
4.1: Law enforcement agencies should develop and adopt policies and strategies that
reinforce the importance of community engagement in managing public safety.
4.3: Law enforcement agencies should engage in multidisciplinary, community team
approaches for planning, implementing, and responding to crises with complex causal
factors.
5.2: Law enforcement agencies should engage community members in the training
process.
In 2016, the International Association of Chiefs of Police (IACP) published its recommendations
based on the Report in Blueprint for 21st Century Policing10. It further digested these
recommendations into a smaller document titled Starting with What Works: Using Evidenced
Based Strategies to Improve Community Relations. Of the immediate action items that are
$ (Maplewood Police Department, 2018)
9 (President's Task Force on 2111 Century Policing, 2015)
io (IACP, 2016)
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A Proposal to Develop a Multicultural Advisory Committee
recommended to be taken, one is to "Incorporate community collaboration and problem -solving
competencies into employee performance evaluations," and another to have some form of civilian
oversight of police events"
Review of Past Practices
Before 2015, the only civilian oversight of the Maplewood Police Department, other than city staff and
the city council, was the police civil service commission. While the commission did hold meetings as
needed, its only real function was to monitor the hiring of police officers and the promotional process.
According to Archibold (2012)
"The civil service movement, the political centralization that grew out of the Progressive
era, and the bureaucratization, professionalization, and unionization of police stand as
counterbalances to the possible recurrence of the corrupting influences of ward politics
that existed before the reform movement12."
Recognizing that there are other mechanisms as reported by Archibold, these mechanisms,
along with progression in employment case law, have largely eliminated the need for the use of
civil service commissions. In 2018, the city civil service commission was disbanded.
The Maplewood Police Department formed a Use of Force Advisory Commission in 2015 to conduct a
complete review and review of the department's use of force policies and procedures. Once this task
had been completed, it was recognized a continuation of this team could be beneficial in police -
community relations, and it was renamed the police advisory commission (PAC) which is a city
commission and subject to all rules and regulations surrounding public commissions.
A city commission has many open -meeting requirements: While open -meeting laws are critical to
democracy, these rules hamper open and honest communication between the police department and
the members of the commission, inhibit fluidity in recruiting new and diverse members and make a
rapid response in a crisis very difficult, if not impossible. The PAC strived to provide guidance and
support, but after working with a facilitator and meeting for a year, the group seemed to struggle to find
its purpose or otherwise provide meaningful assistance to the police department. The status of the
present PAC is under review, but the present model does not reflect the current best -practices as
outlined in this report.
According to REECE13, citizen advisory boards are becoming important components of most law
enforcement organizations and, when handled appropriately, will result in more democratic and
effective organizations. The design and implementation of citizen advisory boards can be vital to
accomplishing these goals.
11 (IACP, 2016)
12 (Policing, 2012)
13 (The Police Chief, 2015)
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viapiewooa i,oiice Depai . I A Proposal to Develop a Multicultural Advisory Committee
The JCPP Model
In 2005, the Brooklyn Center and Brooklyn Park Police Departments, along with social services agencies
from and within Hennepin County collaborated to form the Joint Community Policing Project (JCPP)14
Since the inception of this award-winning model, The Northwest Hennepin Human Services Council has
expanded this program into a total of seven Hennepin County agencies. These agencies are:
- Bloomington;
- Brooklyn Center;
- Brooklyn Park;
- Hopkins;
- Richfield;
- Saint Louis Park.
Each agency has an embedded Hennepin County social worker, whose job functions include
coordinating community outreach. According to the Hopkins Police15, funding for this program is
provided by Hennepin County. Partner cities provide in-kind support including but not limited to,
providing office space and equipment, supplies, and supervisory staff.
Another part of the worker's responsibility is to coordinate a Multicultural Advisory Committee (MAC).
Each participating agency has a MAC. The mission of each MAC is:
- Community building through fostering diverse relationships;
- Creating printed media for immigrant community members to better understand police services
and laws;
- Creating a safe platform to share community information and concerns;
- Facilitated discussions Organizing and presenting cultural training for police officers and
community;
- Representing a positive presence in our community;
- Community engagement16
Beyond the embedded social worker, each MAC is comprised of department officers, typically a member
of the command staff and a police officer or police sergeant who serves as a liaison. Its ranks also
include persons who live, work, worship, or attend school in the respective city. Other requirements
include:
- Be able to attend monthly meetings;
- Be accepting of persons different than themselves and respectful of different faiths,-
-
aiths;
- Be connected to the community with the ability to foster relationships;
- Be willing to cooperatively work with the police in enhancing relationships between all cultural
communities and police.
14 (citylab.com, 2016)
1s (City of Hopkins, 2019)
16 (City of Hopkins, 2019)
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Maplewood Police Department I A Proposal to Develop a Multicultural Advisory Committee
Evaluation of Select Multicultural Advisory Committees
In June and July of 2019, Lieutenants Brian Bierdeman and Daniel Busack conducted site -visits at two
police departments. The first was at Columbia Heights and the second in Hopkins.
The Columbia Heights Police Department adopted the MAC model in 2010. Its core principles are17:
- Moving Columbia Heights towards a future of tolerance and understanding through proactive &
community service, and by the building of trust through constructive working relationships
between police & public;
- Addressing social injustice and inequality through positive and honest dialogue and progressive
community interaction, programming, and outreach;
- Committed to understanding cultural differences and biases that are born of these differences
by proactively addressing them through positivity, critical reflection, and community discussion.
In June of 2019, Lieutenants Brian Bierdeman and Daniel Busack attended a MAC meeting in Columbia
Heights. At this meeting, the city manager was also in attendance. The meeting agenda, as is typical,
was set to discuss contemporary topics. The first section was the chief's update. This included a
briefing on perceived major cases, an update on staffing and hiring plans, and a discussion of personnel
matters. The next section dealt exclusively with marijuana legalization experiences in other states,
where Minnesota is trending, which was then followed by a vigorous discussion on systemic societal
racism.
The Hopkins Multicultural Advisory Committee (MAC) has been operating for over a decade. The
purpose of the Hopkins Multicultural Advisory Committee is:
"To advise the Hopkins Police Department on issues that impact local cultural
communities and to ensure these communities feel safe and informed about law
enforcement activities and engaged in the broader Hopkins community."
In July of 2019, Lieutenant Busack attended an informational meeting at the Hopkins Police Department.
This meeting was attended by several members of the Hopkins Police Department, the Hopkins Police
Department JCPP Community Liaison, the Hennepin County JCPP Supervisor, and members of the
Hopkins Multicultural Advisory Committee.
The members of the Hopkins MAC spoke about how the committee has created an environment where
there can be very open and honest communication between them and the police department and in
turn has led to a much greater level of understanding. They felt that the committee greatly aids the
positive relationship between the police department and the community they serve. Additional positive
aspects of the Hopkins MAC was the ability for non-residents to be members and have a voice. They
recognize that their community is made up of a diverse group of people who may work, worship, or
have children in the local schools and focus their recruitment to be all-encompassing.
Both site visits provided valuable organizational and operational insights. Each committee was
comprised of between 10 and 15 members. The Hopkins MAC encouraged having 15 members, as it will
typically ensure that you will have 10 in attendance at meetings. That committee additionally endorsed
the creation of a strategic plan for the committee. Recruitment into the group was conducted by the
1' (City of Columbia Heights, 2019)
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Maplewood Police Depar`n-en` I A Proposal to Develop a Multicultural Advisory Committee
police department and current MAC members in both cases, with an emphasis on ensuring that all
groups are represented. They furthermore emphasized the ability for their groups to recruit members
on an "as -needed basis," if they felt a particular group was not represented.
Conclusion
The mission statement of the Maplewood Police Department states that "in partnership with its citizens,
will work to solve problems relating to crime and the fear of crime, with an emphasis on meeting
community needs." We continue advancing this mission by having a strategy in the strategic plan
focused on involving community partners in our efforts to provide successful communication and
information sharing with an emphasis on underrepresented populations. While the Police Advisory
Commission had a place and provided value, we as an agency and community continue to grow, evolve
and seek opportunities to become better at achieving our goals.
The long-term successes of the Multicultural Advisory Committees, to include those we studied and
interviewed in Columbia Heights and Hopkins, show these are very effective models in bringing the
police department and community together, to better communicate, understand, and serve. Observing
the meetings first-hand and speaking with and listening to members, demonstrated that these
committees had established very positive relationships with the communities' citizens, including
populations that are often under -represented and difficult to engage. While the meetings were orderly
and respectful, the freedom of not being subject to open meeting law was evident and allowed for an
honest, open, and natural debate that differed from our experiences within at the PAC meetings. The
recruitment was done on an "as -needed basis" by the department and the MAC members and was more
inviting than a more formal city commission process.
Based on recommendations of the Task Force on 21" Century Policing, the Maplewood Police
Department's mission and strategic plan, and first-hand observation and testimonials, it is
recommended that the Maplewood Police Department form a Multicultural Advisory Committee to
enhance communication and understanding between our agency and all members of this community.
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Works Cited
Archbold, Carol A. (2012). Policing, pp. 42. Sage Publications.
City of Columbia Heights (2019). June 25, 2019, MAC Meeting Agenda.
City of Hopkins (2019). Joint Community Policing Partnership (retrieved 2019, August 12). Retrieved
from (httl)s://www.hol)kinsmn.com/454/Joint-Community-Police-Partnership/).
City of Hopkins (2019). Multicultural Advisory Committee (retrieved 2019, August 12). Retrieved from
(https://www.hopkinsmn.com/461/Multicultural-Advisory-Committee-MAC).
International Association of Chiefs of Police (2016). Staring With What Works. IACP Brochure. Web.
(https://www.theiacp.org/sites/default/files/all/s/StartingwithWhatWorksBrochureWeb.pdf).
Kolson Hurley, Amanda (2016). Why Brooklyn Park, Minnesota, Is the New Face of Suburbia. Retrieved
from (https://www.citylab.com/equity/2016/02/brooklyn-park-minnesota-suburbia-
afforda bl ehousi ng/461955/).
Lum, C., Koper, C.S., Gill, C., Hibdon, J., Telep, C. & Robinson, L. (2016). An Evidence Assessment of the
Recommendations of the President's Task Force on 21st Century Policing — Implementation and
Research Priorities. Fairfax, VA: Center for Evidence -Based Crime Policy, George Mason University.
Alexandria, VA: International Association of Chiefs of Police.
Maplewood Police Department (2019). 2018 Community Information Report.
Maplewood Police Department (2018). Analysis of 2017 Enforcement Action.
Maplewood Police Department (2019). Rental Licensing and Community Policing Coordinator.
Maplewood Police Department (2019). Review of Arrest Data at Three Large Retailers in Maplewood.
Office of Juvenile Justice and Delinquency Program (2018). OJJDP Statistical Briefing Book. (Retrieved
2019, August 12).(https://www.oaadp.gov/oastatbb/crime/ga05101.asp?gaDate=2017).
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.
Reaves, Brian A., Census of State and Local Law Enforcement Agencies, 2008 Bulletin (Washington, DC:
Office of Justice Programs Bureau of Justice Statistics, 2011), NCJ 233982.
Reece, John G., and Macy, Judy (2015). "Citizen Advisory Boards in Contemporary Practice: A Practical
Approach in Policing," The Police Chief, issue 82: web -only.
United States Census Bureau (2011). 2010 Census. U.S. Census Bureau. Web. (Retrieved 2019, August
12). (https://www.census.gov/prod/cen2010/briefs/c2010br-03.pdf).
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Maplewood Police Department I A Proposal to Develop a Multicultural Advisory Committee
United States Department of Justice, Federal Bureau of Investigation. (September 2018). Crime in the
United States, 2017. (Retrieved 2019, August 13). (https://ucr.fbi.gov/crime-in-the-u.s/2017/crime-in-
the-u.s.-2017/topic-pages/persons-arrested).
Wickersham, Mary Eleanor (2016). "Spotlight on Police Culture: Real Change in Policing can Derive from
Changes in Organizational Culture," Public Management Magazine.
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E1, Attachment 2
Workshop Packet Page Number 20 of 20