Implementing a Comprehensive Performance Management Approach 

in Community Policing Organizations: 

AN EXECUTIVE GUIDEBOOK

Shannon Branly, Andrea Luna, Sarah Mostyn, Sunny Schnitzer, and Mary Ann Wycoff
2 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations
Implementing a Comprehensive Performance Management 

Approach in Community Policing Organizations: 

AN EXECUTIVE 

GUIDEBOOK

Shannon Branly, Andrea Luna, Sarah Mostyn, Sunny Schnitzer, and Mary Ann Wycoff
This project was supported by cooperative agreement number 2011-CK-WX-K017 awarded by the Office of Community 

Oriented Policing Services, U.S. Department of Justice. The opinions contained herein are those of the author(s) and do 

not necessarily represent the official position or policies of the U.S. Department of Justice. References to specific agencies, 

companies, products, or services should not be considered an endorsement by the author(s) or the U.S. Department of 

Justice. Rather, the references are illustrations to supplement discussion of the issues. 

The Internet references cited in this publication were valid as of the date of publication. Given that URLs and websites are in 

constant flux, neither the author(s) nor the COPS Office can vouch for their current validity. 

Recommended citation:

Branly, Shannon, Andrea Luna, Sarah Mostyn, Sunny Schnitzer, and Mary Ann Wycoff. 2015. Implementing a Comprehensive 

Performance Management Approach in Community Policing Organizations: An Executive Guidebook. Washington, DC: Office of 

Community Oriented Policing Services.

All photographs © Police Executive Research Forum except where otherwise noted

Cover photo: Stuart Monk / Shutterstock.com

ISBN: 978-1-935676-79-9

Published 2015
Contents

Letter from the Director of the COPS Office . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

 . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

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 . v

Letter from the Director of PERF . . . . . . . . . . . . . . . . . . . . . . . . . . . vii

Acknowledgments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix

Executive Summary 

1

Community policing 1

Procedural justice . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

External and internal procedural justice . . . . . . . . . . . . . . . . . . . . . . . . 3

Part I. The foundation for a new performance management approach . . . . . 4

PART II. Recommendations for a procedural justice-infused approach to performance management 5

PART III. Moving from a traditional performance system to one based on principles of procedural justice: Practical 

considerations and next steps  

Conclusion 

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 

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11

Part I. The Foundation for a New Performance Management Approach . . . . . . . . . 17

Connecting community policing and procedural justice 17

The link between performance management and procedural justice 21

Project Approach and Methodology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

Project working group 23

Scan of the field and review of current practices 23

Working group meetings 25

Site visits to working group agencies—stakeholder focus groups . . . . . . . . . . . 25

Development of the comprehensive approach . . . . . . . . . . . . . . . . . . . . . . 26

State of the Field: Project Findings on Current Performance Management Approaches 27

Challenges with existing performance evaluation approaches . . . . . . . . . . . . . . 27

Where do we go from here? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management 31

Case example: Denver Police Department revamps evaluation system . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

Case example: Minneapolis Goals and Metrics program promotes regular conversations 39

Case example: Brooklyn Park Police Department debriefs after shifts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40

Case example: Los Angeles Police Department mentors potential hires . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
iv Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

PART III. Moving from a Traditional Performance System to One Based on Principles of Procedural Justice: Practical 

Considerations and Next Steps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Police chiefs can engineer their performance management systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Closing thoughts on procedural justice in police management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

Chiefs can be leaders in performance management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55

Why chiefs should use this guidebook 55

Institutionalizing change . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56

Procedural justice addresses the frustrations of our communities today . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57

Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59

Moving forward . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59

Summary. Recommendations for a Procedural Justice-Infused Comprehensive Approach to Performance Management . 61

Appendices 63

Appendix A. Working group members 63

Appendix B. Procedural justice in policing resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 64

Appendix C. PERF findings of police agency policy reviews June 13, 2012 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 73

Appendix D. COPS Office national webinar . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 74

Appendix E. Denver Police Department evaluation materials . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91

Appendix F. Brooklyn Park self-appraisal form . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .158

Appendix G. Materials from the Minneapolis Police Department goals and metrics program . . . . . . . . . . . . . . . . .159

Appendix H. Sample individual development plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .161

About PERF 163

About the COPS Office . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .165
Letter from the Director of the COPS Office

Dear colleagues,

In recent times, we’ve all seen how critical procedural justice is in effective law enforcement. A 

community that doesn’t believe that the police are procedurally just does not believe in the legitimacy 

of their authority—and will not be willing to cooperate, must less collaborate, in supporting peace 

and safety in their neighborhood.

This is not a new idea—the concept of procedural justice underlies the Peelian principles that most of us 

learned in our basic training. Written by Robert Peele, the 19th century Englishman who started the first 

municipal police department, they state that the police are citizens in uniform who carry out their duty with 

the consent of the people. 

Procedural justice is also a basic principle of community policing, a philosophy that requires fair and 

respectful treatment of all members of the community and procedures that are designed to build community 

relations and collaboration. 

But believing and speaking about procedural justice is not enough. This approach to law enforcement must 

be modelled by law enforcement leaders and incorporated into the workings of the department. The behavior 

of police officers on the streets more often than not reflects their internal working relationships.

To maintain public safety, today’s police chiefs must be more than tacticians or personnel managers—they 

must be leaders with vision who inspire as well as guide their staff and model the behavior they expect to see 

in the field. 

Performance management in police departments can indeed lead to financial savings and streamlined 

economies—but most important, it can lead to the rebuilding of broken relationships in the communities we 

serve. And that is where our performance matters most. 

Sincerely,

Ronald L. Davis, Director

Office of Community Oriented Policing Services

Letter from the Director of PERF

Over the last several years, police practitioners and researchers increasingly have been discussing “procedural 

justice.” This term refers to the extent that members of a community feel that they are receiving justice, based 

on whether the procedures of the criminal justice system seem fair, impartial, and respectful. Police are the 

most visible representatives of the justice system, even though many other entities are involved, including 

the court system, probation and parole, the correctional system, and juvenile justice agencies. Because police 

usually are the “face” of the justice system to the public, police actions have a significant impact on the 

public’s perception of fairness and equity.

Why is procedural justice important? First, it is a matter of principle. Residents of a community deserve to be 

treated fairly and respectfully by their police officers. Second, procedural justice is important because it can 

impact whether police will be successful with crime-fighting strategies and investigations. Police departments 

achieve more when they have the respect and trust of their communities. If residents trust their local police, 

they are more likely to report crimes they have witnessed, call the police when they are the victims of crime, 

and provide tips about crime in their neighborhood.

Police are more successful at creating partnerships with community organizations if the community respects 

the police department. This impacts how effective a police department is in fulfilling its mission. For 

example, targeted enforcement efforts in high-crime neighborhoods are compromised if residents of those 

neighborhoods see the police as aloof or disconnected from the community, or worse, as an “occupying 

army.” Crime-fighting is more successful if it is a joint effort by police and the community, and if residents see 

the police as partners who want to help improve the neighborhood and reduce crime. 

The results of research on procedural justice are surprising in some ways. Research has indicated that often a 

person’s feeling about an encounter with the police depends less on the outcome of the encounter than the 

process.1

 For example, when motorists are pulled over for a traffic stop, one would think that those who are 

“let off with a warning” would have a better feeling about the police than those who receive a citation and a 

fine. But research has demonstrated that people’s perceptions of the police are affected more by the process of 

the interaction than by the outcome.2

 Procedural justice is provided when an officer explains the reason for 

the stop, and gives the motorist an opportunity to explain any mitigating factors. These behaviors can have a 

bigger impact on the driver’s perception of police than the final outcome of the stop.

As procedural justice becomes a familiar concept in policing, many police departments are trying to 

operationalize the concept in their practices and procedures. It’s not enough for a police chief to simply tell 

the officers, “Go out there and treat everyone with dignity and respect.” 

Rather, police chiefs must put systems in place that consistently remind officers that the elements of 

procedural justice will improve the department’s relationships with community members, and that police 

employees are expected to use procedural justice principles in their interactions with community members.

1. Lorraine Mazerolle et al., “Shaping Citizen Perceptions of Police Legitimacy: A Randomized Field Trial of Procedural Justice,” Criminology

51, no. 1 (February 2013), 33–63.

2. Ibid.
viii Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Procedural justice starts with how the department operates internally, and extends out impacting how officers 

interact with the community. It is less likely that officers will treat community members with respect if the officers 

feel that they receive no respect in their jobs. We need to instill a commitment to service, not just compliance to rules.

As Public Safety Director Michael Davis of Northeastern University said, “You have to start at home.” In 

other words, if you want to influence the behavior of your officers, you need to first look at how performance 

management is conducted in your agency. What messages do you send to officers about whether you value 

and respect the work they do, and whether you care about them succeeding in their careers? How do you as a 

chief create an environment whereby everyone has the opportunity to do their best work?

The Office of Community Oriented Policing Services and the Police Executive Research Forum partnered 

to develop a performance management approach that will help police leaders to address these needs. This 

publication is intended to serve as a guide for police leaders on how to incorporate procedural justice 

principles into their current performance management systems to reinforce the importance of these 

principles, modeling how officers should interact with community members. 

The information provided will inform police agency leaders and managers as they consider changes in policy 

and practice with respect to performance management and evaluations. This guide also discusses a number 

of promising practices and provides examples of tools that first-line supervisors can use to better manage, 

lead, and develop the potential of officers. Although this publication focuses mainly on first-line supervisors 

and the management of officer performance, many of the practices mentioned can be used by any person in a 

managerial or supervisory position within a police agency.

This guide includes summaries of relevant research on employee management and procedural justice, 

general recommendations on how to incorporate procedural justice principles into an existing performance 

management system, and promising practices with implementation suggestions and sample tools.

Procedural justice should be a foundational principle of all of a police department’s operations. President 

Obama’s Task Force on 21st Century Policing recommended policing practices that promote effective 

crime reduction while building public trust. One recommendation encourages police to promote legitimacy 

internally within their organizations by applying principles of procedural justice. The task force calls on 

police agencies to involve employees in developing policies and procedures to help create a shared vision and 

mission for the department.3

The report you are holding is designed to help put that vision of the President’s Task Force into practice. We 

hope you will find it informative and useful.

Chuck Wexler, Executive Director

Police Executive Research Forum

3. President’s Task Force on 21st Century Policing, Final Report of the President’s Task Force on 21st Century Policing (Washington, DC: Office 

of Community Oriented Policing Services, 2015), http://www.cops.usdoj.gov/pdf/taskforce/TaskForce_FinalReport.pdf.
Acknowledgments

The Police Executive Research Forum (PERF) would like to thank the U.S. Department of Justice Office 

of Community Oriented Policing Services (COPS Office) for supporting this initiative to explore ways of 

incorporating procedural justice into performance management systems in police agencies. We are grateful 

to COPS Office Director Ronald L. Davis for his leadership in recognizing procedural justice as a strategy 

for achieving community policing goals. We are also grateful to our program manager at the COPS Office, 

Melissa Bradley, for her support and guidance throughout the project. 

We would also like to thank our Working Group members (see appendix A for a complete list) who provided 

us with valuable insight into the strengths and weaknesses of current performance management systems, 

especially at the first-line supervisor level, and who explained how procedural justice concepts can be applied 

to the everyday workings of a police department. We are especially grateful to Northeastern University 

Director of Public Safety Michael Davis and Mahogany Eller of Target Corporation for sharing their vision 

of developing personnel through innovative performance management; to Professor Tom Tyler for his 

expertise on procedural justice in policing, and to consultant Mary Ann Wycoff for her expertise on police 

performance measurement.

This publication would not have been possible without the information we received from the police agencies 

that invited us to thoroughly explore their performance management and evaluation systems, including the 

Arlington (Texas) Police Department, the Brooklyn Park (Minnesota) Police Department, the Denver Police 

Department, the Los Angeles Police Department, and the Minneapolis Police Department. These agencies 

allowed us to hold focus groups and interviews with their officers and other personnel, and facilitated our 

review of their policies on performance management and evaluations.

Finally, PERF staff members should be credited with the successful execution of this project. Chuck Wexler, 

Andrea Luna, Shannon Branly, Sunny Schnitzer, Greg Newman, Sarah Mostyn, and Balinda Cockrell 

and project consultant Mary Ann Wycoff organized and hosted Working Group meetings, collected and 

reviewed relevant research, conducted focus groups and interviews, and refined the final performance 

management approach presented in this publication. The authors thank Craig Fischer for his edits during the 

development of this document. Finally, a special thanks to our subject matter experts, Larry Moser (police 

leadership trainer), Timothy Dolan (retired Minneapolis police chief ), and Charlie Deane (retired Prince 

William County [Virginia] police chief ) for reviewing this document and providing invaluable feedback.
Photo: a katz / Shutterstock.com
Executive Summary

This guide provides strategies for police executives who wish to implement a comprehensive approach to 

performance management in their departments. Performance management is not merely about evaluating 

officers’ performance once a year for an annual review. Rather, performance management is about 

continuous efforts, day by day, to define what a community wants from its police department and then 

to build on community expectations by spelling out what police department leaders expect from their 

officers—what they should do, how they should do it, and the types of activities that should consume most 

of an officer’s time. 

Furthermore, performance management is about supervisors’ constant efforts to evaluate how well each 

officer is doing in meeting these expectations. Supervisors use performance management to help officers 

improve their skills so they can advance in their careers and perform worthwhile, fulfilling work.

More specifically, this guide provides recommendations for adopting a particular type of performance 

management—namely, one that is based on the principles of community policing (which have been 

developed over a period of decades) and that operationalizes more recent concepts of procedural justice 

in policing. 

Community policing

Community policing is grounded in the core elements of solving problems of crime and disorder in a 

community, creating partnerships with members of the community, and transforming the organization of 

a police agency in order to achieve the goals of reducing crime and improving the quality of life and the 

interactions of the community with the police. To achieve these goals, mutual trust is needed between police 

agencies and the communities they serve. 

Procedural justice

Research has found that increasing public confidence and satisfaction with the police can be accomplished 

by incorporating strategies that include the components of procedural justice, which are often summarized 

as fairness, respect, voice, and transparency.4

 In other words, police should treat people neutrally, without 

favoritism or bias (fairness); they should treat community members with dignity (respect); they should allow 

community members to express their views or tell their side of a story (voice); and they should be clear and 

open in explaining what they do and why (transparency). 

Because procedural justice describes the extent to which residents of a community believe the police treat 

them with fairness and respect, police leaders are finding that strategies based on the principles of procedural 

justice can increase the perceived legitimacy of police departments in the community. Perceptions of 

legitimacy, in turn, can increase the willingness of the public to assist, cooperate with, and otherwise support 

the police. 

4. Lorraine Mazerolle et al., Legitimacy in Policing: A Systematic Review, The Campbell Collaboration 9, no. 1 (2013), 

http://www.campbellcollaboration.org/lib/project/141/.
2 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Photo: Bennian / Shutterstock.com
3 Executive Summary

External and internal procedural justice

The concept of procedural justice as applied to relationships between the police and community is referred to 

as external procedural justice. The related concept of internal procedural justice refers to the extent to which 

officers feel that they are treated fairly within the department and are respected by their superior officers and 

their elected officials. 

Internal procedural justice is important not only because it represents the right thing to do but also because 

officers who experience procedural justice from their supervisors are more likely to understand those 

principles and use them in their interactions with the public. Essentially, police leaders who use procedural 

justice with officers are modeling the types of behaviors that they want officers to demonstrate in their 

dealings with community members.

Officer evaluations and performance management systems are important links between officers in the 

field and department leaders. When designed properly, performance management and evaluation tools 

provide important information to police leaders about whether agency policies, directives, and values and 

the department’s mission are being fulfilled. How a police agency handles performance management and 

evaluations can impact officers’ overall perception of the internal legitimacy of their own organization, their 

job satisfaction, and officers’ willingness to take the extra step to ensure community safety and satisfaction.

Police executives, academics, and others recognize that there is a significant gap between the widespread 

implementation of community policing and the slower progress in performance management. Community 

policing has been widely accepted in thousands of departments nationwide, but advances in police officer 

evaluation systems have been incremental at best, and many community policing agencies have not updated 

their formal systems to incorporate community policing concepts at all.5

 Police executives often report 

that their officers are working, but they are not necessarily focusing on the type of work that supports the 

department’s strategies and mission.6

 “Community policing has to happen at the ground level. It is not about 

the chiefs . . . understanding what it’s all about; it’s about how the officers do their jobs,” Philadelphia Police 

Commissioner Charles Ramsey said at a 2014 Police Executive Research Forum (PERF) conference.7

In many departments, antiquated systems for measuring performance are still based on negative indicators 

such as a lack of citizen complaints, which can have the unintentional effect of discouraging officer-initiated 

activity. Other performance indicators, such as issuing traffic citations or responding to radio calls promptly, 

may have little or nothing to do with problem solving or building partnerships with local residents. To truly 

implement community policing, agencies need performance evaluation systems that recognize competencies 

that support community policing approaches, such as ethics; problem solving; leadership; and interpersonal, 

technical, and communication skills.8

5. David Lilley and Sameer Hinduja, “Organizational Values and Police Officer Evaluation: A Content Comparison between Traditional and 

Community Policing Agencies,” Police Quarterly 9, no. 4 (December 2006), 486–513, http://pqx.sagepub.com/content/9/4/486.full.pdf; 

David Lilley and Sameer Hinduja, “Officer Evaluation in the Community Policing Context,” Policing: An International Journal of Police Strategies 

& Management 29, no. 1 (December 2006), 19–37.

6. Nancy McPherson, “Reflections from the Field on Needed Changes to Community Policing,” in Community Policing: The Past, Present, 

and Future, eds. Lorie Fridell and Mary Ann Wycoff (Washington, DC: Police Executive Research Forum, 2004), http://www.policeforum.

org/assets/docs/Free_Online_Documents/Community_Policing/community%20policing%20-%20the%20past%20present%20and%20

future%202004.pdf. 

7. Defining Moments for Police Chiefs (Washington, DC: Police Executive Research Forum, 2015), 31, http://www.policeforum.org/assets/

definingmoments.pdf. 

8. Community Policing: The Past, Present, and Future, eds. Lorie Fridell and Mary Ann Wycoff (see note 6).
4 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

This guidebook stresses the role of executive leadership within a comprehensive performance management 

approach. The emphasis of this work is centered on the role of first-line supervisors. 

Part I. The foundation for a new performance management approach

PERF and the Office of Community Oriented Policing Services (COPS Office) assembled a team of subject 

matter experts on these topics from academia, policing, and the private sector to identify promising practices 

in performance management and talent development. This guidebook presents a variety of strategies for 

police executives to consider to improve performance management and incorporate procedural justice 

components into an agency’s systems and processes. This guide also provides methods and tools for first-line 

supervisors (who typically are sergeants) to help them develop and assess the performance of officers. 

Project approach and methodology

The recommendations and practices highlighted in this publication were guided by a working group of 

representatives from the police departments in Arlington, Texas; Denver; Los Angeles; Brooklyn Park, 

Minnesota; and Minneapolis. These five agencies served as learning sites for the project team. Dr. Tom 

Tyler of Yale University, one of the nation’s foremost experts on the topic of procedural justice, and Mary 

Ann Wycoff, a researcher specializing in the implementation of community policing and the measuring 

police performance, served as consultants and participated on the project team. The project team also 

included several of Target Corporation’s top executives and talent development consultant specialists. 

Target Corporation is known for its assistance to local police agencies and for its sophisticated performance 

measurement and goal-setting system for its employees. Other working group members included additional 

police chiefs and representatives from other COPS Office-funded projects on procedural justice.9

 The project 

included a comprehensive literature review and a request for information from PERF’s member agencies. 

A major point of consensus during the first working group meeting was that performance management 

needs to focus on continuously developing officers’ skills and leadership rather than relying solely on written 

annual evaluations. PERF and the COPS Office were encouraged to broaden the project in order to address 

leadership development within performance management. 

PERF conducted site visits to all five working group departments in 2013 and held focus groups with a wide 

range of police personnel to collect feedback on current performance management practices and proposed 

alternatives. A preview of the findings and promising practices was presented in February 2014 through a 

national webinar. More than 200 individuals participated in the webinar, including police chiefs, command 

staff members, police researchers, and other criminal justice stakeholders. Feedback from that event was used 

to further clarify concepts, recommendations, and promising practices. 

State of the field: Project findings on current performance measurement approaches

Despite the theoretical advantages of having a strong performance management system, there has been a 

long-held perception in policing that evaluation systems are ineffective.10 This sentiment was echoed in the 

findings from PERF’s scan of the field and detailed interviews with police personnel in the five working 

group agencies. 

9. See appendix A for a full list of the working group members.

10. Timothy N. Oettmeier and Mary Ann Wycoff, “Personnel Performance Evaluations in the Community Policing Context,” in Community 

Policing: Contemporary Readings, eds. Geoffrey P. Alpert and Alex Piquero (Long Grove, IL: Waveland Press, 1998), 351–398.
5 Executive Summary

The key themes regarding performance evaluation systems are summarized here.

•	 Measures don’t match job expectations or activities. One of the most common complaints from the 

field was that officers and other police personnel felt they were not being formally evaluated on what 

they perceived to be their responsibilities. This disconnect has caused employees to view evaluation tools 

as invalid and unreliable. 

•	 City-wide generic forms do not reflect the nature of the police work. The working group found that 

many departments are required to use city-issued or standardized evaluation forms with measures that 

do not apply or are insufficient for assessing police work, either sworn or civilian. In addition, some 

police executives indicate that they have little control over the content of these forms and the personnel 

evaluation process set forth by the city.

•	 There is too much focus on quantitative measures. Police departments have long relied heavily on 

numerical data for evaluating the agency as a whole and for evaluating personnel.11 In discussions with 

police leaders, it became evident that this continues to be a weakness in evaluation systems. Qualitative 

evaluations provide a more complete picture of how an individual thinks, invests time and resources, 

and accomplishes change within the organization.12

•	 Evaluations don’t carry any weight. During conversations, police employees consistently said that 

evaluations have little impact because the results often are not tied to any meaningful outcomes for 

personnel, such as promotions, reassignments, etc. 

•	 It is difficult to provide honest feedback. During discussions, supervisors said that it was difficult 

for them to provide honest feedback. Reasons for this difficulty included not only a lack of proper 

tools (such as inadequate evaluation forms) but also the fact that supervisors lack the skills to deliver 

candid evaluations of their officers. Some police personnel noted that personal relationships between 

supervisors and employees can result in inflated evaluation ratings of officers. Conversely, lack of 

interactions between officers and supervisors can leave the supervisor with little information with which 

to formulate an evaluation.

•	 Employees have little or no input in the evaluation. Many evaluation processes do not provide an 

opportunity for officers to give their opinion of their own performance or to respond to the evaluations 

provided by their supervisors. 

11. Nigel Fielding and Martin Innes, “Reassurance Policing, Community Policing, and Measuring Police Performance,” Policing and Society

16, no. 2 (2006), 127–145.

12. Peter Yih-Tong Sun and John L. Scott, “Towards Better Qualitative Performance Measurement in Organizations,” The Learning 

Organization 10, no. 5 (2003), 258–271.

PART II. Recommendations for a procedural justice-infused approach to 

performance management

Recommendation 1. Assess the agency’s current performance management and evaluation systems. 

Promising practice: Review the purpose, processes, and content of the system.

A critical first step to determining how procedural justice principles can be best applied to existing 

performance management and evaluation systems is to examine the purpose, processes and content of those 

systems and ask several important questions. How is the system connected to the agency’s goals and mission? 

What tools or materials are being used? What training is provided to the evaluators? What are the outcomes 

of an evaluation? 
6 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

There should be connections between performance management, accountability, and disciplinary systems. 

The way in which discipline is administered is critically important to employee perceptions of procedural 

justice within a department. Discipline often is perceived as unfair largely because the process is a 

confidential personnel action in which transparency is not always possible. In many departments, the 

problem is even more basic; officers and even supervisors may not know how the disciplinary system 

is supposed to work. Police leaders at all levels should be responsible for educating their employees on 

the discipline system and whether or not evaluations have a role (either formal or informal) within the 

discipline system. 

Recommendation 2. Facilitate strong supervisor-employee relationships. 

A strong supervisor-employee relationship is particularly important in the context of police agencies, where firstline supervisors are responsible for ensuring that officers are acting within policy and procedures. The chief and 

top managers rely on first-line supervisors to apply policies and directives, and officers rely on their supervisors to 

tell them what is expected of them, to hold them accountable, and to lead them through each shift. 

Promising practice: Promote consistent two-way communication between supervisors and employees. 

Open communication builds rapport between supervisors and officers; teaches the supervisor about the 

strengths and weaknesses, preferences and aspirations, and personal concerns of officers; and provides 

supervisors with direct access to field information. Some police departments are taking steps to encourage 

more open communication between supervisors and employees. For example, the Minneapolis Police 

Department’s current “Goals and Metrics” performance review system formalizes monthly conversations 

among supervisors and between supervisors and their subordinates to improve the overall efficiency and 

effectiveness of the department. Another example is the Brooklyn Park (Minnesota) Police Department, 

which encourages sergeants to conduct end-of-shift debriefing sessions with the entire squad. 

Promising practice: Supervisors need to be visible to personnel, especially in the field.

While there are many competing demands for a supervisor’s time, sergeants should attempt to spend time 

in the field with officers as much as possible. Police executives and command staff should assess the daily 

responsibilities and tasks required of first-line supervisors to ensure that they have enough time to be 

available to employees. 

Promising practice: Emphasize the value of personnel. 

An agency following the principles of procedural justice will treat all employees fairly and with respect, 

allowing each to have a voice in the organization, and will be open and transparent in its processes and 

decision making. Implementation of these principles communicates the message that the department values 

its employees.

Promising practice: Recognize good performance.

A chief who routinely comments on exemplary officer performance is sending the message that he 

or she knows what is going on in the organization and expects to be informed. This, in turn, creates 

the expectation that managers and supervisors will be aware of employee activities and will relay this 

information to their supervisors.
7 Executive Summary

Recommendation 3. Performance management approaches should emphasize career development and 

talent development at all levels. 

Concentrating on the development of officers’ talents, leadership skills, and careers can produce a number 

of benefits. First, employee motivation and job satisfaction should increase as employees are able to improve 

their skills, meet goals, and perform better. Second, the agency is able to train and harness the talents of 

its employees to fill critical roles with the most qualified personnel, either to meet current needs or for 

succession planning. 

Promising practice: Teach supervisors coaching skills as part of their leadership development. 

Target Corporation, a partner in this project, has developed a collaborative coaching model to encourage 

supervisors (known as coaches) to help their employees accomplish their goals, meet business unit 

expectations, and develop competencies. A key skill that Target training emphasizes with its coaching model 

is listening skills (e.g., removing distractions, completing your current task in order to focus on listening to 

the employee, and providing parameters so the employee will know how much time the supervisor has for the 

discussion). 

Promising practice: Encourage mentoring to promote growth opportunities.

A mentorship program, pairing a new officer with an experienced officer, provides guidance on appropriate 

behaviors and department expectations and helps the less experienced officer develop the necessary skills for 

success and advancement. 

Promising practice: Use an individual development plan as a personalized tool for employees. 

An individual development plan (IDP) is a structured document used to identify employee goals and 

establish actionable steps for achieving them and a tool to facilitate ongoing discussions between supervisors 

and employees. The IDP instrument is personalized to fit the needs and wants of the employee and can be 

adjusted to address short-term goals related to employees’ current work and position or long-term career 

goals. The key is to treat the instrument as a living document that is constantly updated as goals are achieved 

or revised. If sergeants and other supervisors need a tool to help them initiate meaningful conversations and 

build relationships with employees, an IDP may be a structure for those efforts.

Promising practice: Explore the 360-degree evaluation process as a leadership development tool. 

In a 360-degree evaluation, multiple people within an organization provide input on the performance of an 

individual employee. By including more sources in the process, the agency potentially increases the credibility 

and accuracy of an employee’s performance evaluation. Some agencies may find that this tool may be more 

useful as part of the promotional process, rather than as a performance appraisal. 

Recommendation 4. Focus on the selection and training of effective supervisors.

During several of the project interviews, officers complained that the right people were not being promoted 

to sergeant in their organization. 

Promising practice: Actively recruit qualified supervisors.

Most departments assume that people who are interested in promotion will apply and go through the process 

if they feel they meet the qualifications. But organizations might end up with more effective supervisors if 

they consciously began to identify and encourage officers who have the desirable traits for the position. 
8 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Promising practice: Ensure the supervisor selection process is fair and valid.

There are a number of methods police managers use to select candidates for promotion, including various 

tests, assessment centers, and interview panels. Qualities such as leadership are often left out of the written 

exams common in police departments. Police executives should take the time to reevaluate the processes 

and outcomes of their promotion processes. In addition to promoting the right people, the process needs 

to be perceived by employees as fair and valid. Even if the process is fair but not perceived to be so, the most 

desirable potential candidates may decline to participate in the process.

Promising practice: Train sergeants on how to be effective supervisors.

New first-line supervisors require proper training to ensure that they fully understand their role and 

responsibilities and have mastered the skills to effectively manage and lead officers. Training should be 

routinely reviewed to determine whether it incorporates principles of procedural justice and effectively 

transmits the knowledge, skills and abilities necessary to be an effective community policing supervisor. 

PART III. Moving from a traditional performance system to one based on 

principles of procedural justice: Practical considerations and next steps

In this section, police chiefs provide insights from their own perspective on how to navigate introducing 

procedural justice into performance management and how to use this guidebook effectively. 

Police chiefs can engineer their performance management systems 

By Michael Davis, Director of Public Safety, Northeastern University

As chiefs, we need to acknowledge that the paramilitary police structure that we work within is not 

inherently set up to support this individualized approach to personnel development. Thus, the focus should 

be placed on relationships within the organizations, especially the quality of relationships at the first-line 

level. When people leave an agency, they often say, “I’m going to miss the people here.” You should also want 

them to miss the organization itself and what they were part of.

Create policies that mandate supervision practices

By Tim Dolan, Chief (retired), Minneapolis Police Department

If a supervisor has no real duties to supervise officers in the field, they will seldom be able to act as a 

supervisor in a performance rating. For example, I found that mandating a supervisor response to all vehicle 

chases and uses of higher levels of force changed the relationship between officers and sergeants. Sergeants are 

required to approve the continuance of a chase, to respond to the scene, and to make a preliminary report on 

the appropriateness of the chase. They also have to respond to any scene where deadly force was threatened 

or where someone was injured badly enough to need medical treatment. Those supervisors are then held 

accountable for the performance of their officers. It was tough at first, but supervisors soon became real 

supervisors, and I think officers changed what they were doing as well, because they knew the sergeant was 

coming to the scene. 

Chiefs can be leaders in performance management

By Chief Will Johnson, Arlington (Texas) Police Department 

After 21 years of experience in law enforcement, I have found that nothing has been more resolute in 

expressing the core values of the profession than procedural justice. It should be central to everything that we 

do, from the inside out. Many police departments may be locked in to the performance evaluations provided 
9 Executive Summary

to them through their city administration. But it is important to recognize that performance management 

is tied to every system within a police department. Police executives can be the leaders in performance 

management, and we should bring citywide human resources practices along with us.

Why chiefs should use this guidebook

By Chief Charlie Deane (retired), Prince William County (Virginia) Police Department

How do police leaders expect officers and support staff to accept new performance measures based on 

these broad concepts that can be difficult to articulate? It is fundamental that officers who are expected to 

treat others with fairness and respect receive that same level of treatment themselves. In that regard, open 

communications between officers and supervisors and fairness in assignments, promotions, and discipline can 

go a long way in establishing the necessary environment for change. And of course, front line supervisors are 

key players in implementing and maintaining the new expectations. 

Engage your supervisors and set the example

By Chief Janeé Harteau, Minneapolis Police Department 

Transforming performance management is a lot of work for a chief. You have to be engaged and leading the 

charge the whole way. But it can’t just be your executive team that is on board with changing performance 

management. Bring your lieutenants and sergeants into the conversation early on. By engaging them early, 

you make sure the message doesn’t get watered down. Make sure that all of your supervisors know why you’re 

implementing changes, as well as how the changes are being implemented and what’s expected of them. 

Procedural justice addresses the frustrations of our communities today 

By Chief Robert C. White, Denver Police Department 

Police are under a lot of scrutiny and are being criticized because many people think that officers are breaking the 

law and getting away with it. In some incidents, officers’ actions were legal, but they may not have been the best 

response. There is sometimes a disconnect between what is technically legal and what you should do as a person 

with authority. Citizens are asking if actions of the police were necessary. We need to take a closer look at how 

officers are making decisions and incorporating those decision-making skills into performance management. 

Conclusion

The recommendations presented in this guide are not meant to be quick fixes but rather methods to achieve 

lasting changes in police agency culture and attitudes. While some results may become apparent immediately, 

others will likely require months or years of effort. 

Ultimately, police leaders, supervisors, and personnel want a fair and open system that helps improve 

performance and cultivates talent within a department. The recommendations suggested in this guide can be 

tailored by police agencies to positively adjust behavior to the benefit of the employee, the department and 

the community.

Currently, there is a heightened awareness of the need for community policing and its role in building 

public trust, which has suffered greatly over the last several years as a result of perceived bias and first-hand 

reports (including video evidence in some cases) of injustice within policing and the criminal justice system. 

Re-engineering how we evaluate police officers using a procedural justice model is an essential step towards 

regaining credibility with the community. 
10 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

The key questions for every system and process, whether it be the promotional, disciplinary, training, or 

personnel system, include the following:

•	 Are the policies and procedures transparent? Are they published in a way that can be understood by 

employees? Are they accessible?

•	 Have employees had input and voice in their formulation?

•	 Are they administered fairly and consistently, in line with the organization’s values? 

•	 Do agency processes respect the dignity of employees?

•	 Is there an open and fair complaint process to address practices that employees do not consider just?
Introduction

“Performance evaluation remains an ineffective tool in the police management toolbox. Because 

the policing job is enormously complex, many departments still have not created performance 

evaluations that adequately reflect the work police do. The tendency is to measure that which is easy 

to measure, rather than what matters.”

—Chuck Wexler, Mary Ann Wycoff, and Craig Fischer, “Good to Great” Policing13

Since the 1980s, the shift to community policing has broadened the job of police officers to include engaging 

community members as active partners in proactive crime prevention and problem-solving initiatives. More 

recently, the application of the principles of procedural justice to policing has broadened the meaning of 

community policing. 

Procedural justice is a term used in policing to describe the extent to which residents of a community believe 

that they are treated with fairness, dignity, and respect.14 Police are the most visible representatives of that 

government, and the ways in which residents of a community perceive their local police officers and interpret 

police behavior are essential to the ability of the police to build community trust, establish partnerships, 

conduct targeted enforcement efforts, and address community concerns—all of which are critical to effective 

community policing.15 Police leaders are finding that strategies based on the principles of procedural 

justice can increase the perceived legitimacy of police departments in the community and can increase the 

willingness of the public to assist, cooperate with, and otherwise support police.16

Attention to questions of procedural justice and police legitimacy increased in 2014–15 in the wake of events 

in Ferguson, Missouri, and other communities across the nation. Some observers have said that American 

policing experienced the biggest crisis of public trust in decades. Certainly, communities are demanding 

greater transparency and accountability from their police departments than in the past.

For these reasons, police executives need a comprehensive performance management approach that 

incorporates principles of procedural justice and legitimacy.

13. Chuck Wexler, Mary Ann Wycoff, and Craig Fischer, “Good to Great” Policing: Application of Business Management Principles in the Public 

Sector (Washington, DC: Office of Community Oriented Policing Services, 2007), http://ric-zai-inc.com/Publications/cops-w0767-pub.pdf. 

14. A number of researchers, including Dr. Tom Tyler, Dr. E. Allan Lind, Dr. Stephen Mastrofski, Dr. Jeffrey A. Fagan, Dr. Tracey Meares, and 

others have studied and defined procedural justice in policing.

15. Tom Tyler, “Race, Legitimacy, and Cooperation with the Police,” presentation given to Legitimacy and Community Cooperation with Law 

Enforcement seminar of the National Institute of Justice, Washington, DC, August 25, 2009, http://www.nij.gov/multimedia/presenter/

presenter-tyler/pages/presenter-tyler-transcript.aspx; Dennis P. Rosenbaum, “Community Policing and Web-Based Communication: 

Addressing the New Information Imperative,” in Community Policing: The Past, Present, and Future (see note 6).

16. Jason Sunshine and Tom R. Tyler, “The Role of Procedural Justice and Legitimacy in Shaping Public Support for Policing,” Law & Society 

Review 37, no. 3 (September 2003), 513–548.
12 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Performance management in police organizations

Performance management is the means by which police executives define a department’s mission; develop 

measureable goals that are consistent with the mission; and build internal systems to ensure greater 

effectiveness, efficiency, and accountability in achieving results.17 For example, CompStat programs are a 

performance management strategy that many departments use to monitor progress in addressing their most 

critical crime issues.

While the vast majority of police agencies use a formal annual evaluation process, performance management 

systems are not limited to the one component of annual evaluations. Any practices or policies that help 

shape, develop, and monitor employee behaviors and activities can be considered part of a performance 

management system. In addition to policies, these practices would include all aspects of the personnel 

system from recruitment, selection, training, supervision, evaluation, mentoring, rewards, and discipline 

from the point of hire to retirement. Operational examples range from simple post-shift debriefs to 

structured programs for monthly conversations between supervisors and employees. Both of these examples 

are discussed in this guide, along with other illustrations of ways to change or supplement an agency’s 

performance management system to make it more comprehensive.

PERF’s prior work on performance measurement looked at the issue from an agency-level perspective. In 

2006, PERF released its findings from a National Institute of Justice (NIJ) study of agency-level performance 

management systems in policing. Through this project, PERF created a model comprising performance 

expectations for modern law enforcement agencies and measures and methods for helping departments meet 

these expectations. Recommendations were also provided for the organizational structures necessary to hold 

an agency and its employees accountable for their performance. This model focused on the collection and 

analysis of a broad range of performance measures, allowing agencies to measure their performance in many 

different ways. The model identified three major components of a comprehensive agency-level performance 

management system: (1) performance expectations, (2) performance measures, and (3) accountability 

structures.18 It is important to note that these model components operate on two levels: the agency level and 

the individual level. 

Achieving organizational goals demands a comprehensive approach to both agency-level and individuallevel performance management, and these two systems must be carefully linked. Just as the organization sets 

goals for its overall performance and how its performance will be measured and tracked, individual goals and 

measures must also be set for each employee. 

17. Stacy Osnick Milligan and Lorie Fridell, Implementing an Agency-Level Performance Measurement System: A Guide for Law Enforcement 

Executives (Washington, DC: Police Executive Research Forum, 2006), https://www.ncjrs.gov/pdffiles1/nij/grants/214439.pdf.

18. Ibid.

Why is performance management important?

Research has found that employees’ job satisfaction is positively correlated with productivity and with the 

financial and long-term success of an organization.19 Specific to policing, job satisfaction was found to 

increase productivity as well as quality of service.20 Improving and understanding job satisfaction is crucial to 

effective use of resources and officer retention and ultimately to effective policing. 

19. Adnan Aktepe and Suleyman Ersoz, “A Quantitative Performance Evaluation Model Based on a Job Satisfaction-Performance Matrix 

and Application in a Manufacturing Company,” International Journal of Industrial Engineering: Theory, Applications, and Practice 19, no. 6 

(June 2012), 264–277.

20. Serhan Ercikti et al., “Major Determinants of Job Satisfaction among Police Managers,” Southwest Journal of Criminal Justice 8, no. 1 

(2011), 97–111, http://www.swacj.org/swjcj/archives/8.1/Major%20Determinants%20of%20Job%20Satisfaction.pdf.
13 Introduction

Job satisfaction is defined as the collective attitudes that employees hold towards various aspects of their job 

and work context.21 A study of 16 police agencies in Alabama found that social contribution, pay, adventure 

and excitement, autonomy, peer respect, and job security were all related to job satisfaction.22 Another 

study found that an officer’s job tasks and support from peers and managers were important predictors of 

job satisfaction.23 Other research identified three main factors that affect employee job satisfaction: (1) the 

structure of the job and the extent to which tasks are clearly defined, (2) employee participation in making 

decisions, and (3) employee appraisals.24 These factors generally align with the principles of procedural justice 

(transparency, giving people voice by allowing them to tell their stories, and fairness, respectively),25 and 

supervisors can influence employee job satisfaction in all three of these areas. 

Research indicates that as brokers of change within a police organization, first-line supervisors who are 

innovative befriend officers more easily. This improvement in relations between supervisors and officers 

has a positive impact on job satisfaction. In addition, when supervisors are responsive to their officers and 

work to develop intrinsic reward systems, officers are more satisfied with their jobs.26 The supervisory role 

in an organization remains a vital mediator of job satisfaction within police departments. In fact, there is a 

positive correlation between consideration and support from supervisors and organizational commitment 

by patrol officers.27

21. Aktepe and Ersoz, “Quantitative Performance Evaluation Model” (see note 19).

22. Philip E. Carlan, “The Search for Job Satisfaction: A Survey of Alabama Policing,” American Journal of Criminal Justice 32, no. 1–2 

(October 2007), 74–86.

23. Richard R. Johnson, “Police Officer Job Satisfaction: A Multidimensional Analysis,” Police Quarterly 15, no. 2 (June 2012), 157–176, 

http://pqx.sagepub.com/content/15/2/157.full.pdf.

24. Milica Jaksić and Milos Jaksić, “Performance Management and Employee Satisfaction,” Montenegrin Journal of Economics 9, no. 1 (March 

2013), 85–92, http://www.mnje.com/sites/mnje.com/files/085-092_jaksici.pdf.

25. The principles of procedural justice are explained in more detail in the next section.

26. Yumin R. Wang, “Does Community Policing Motivate Officers at Work and How?” International Journal of Police Science & Management 8, 

no. 1 (Spring 2006), 67–77, http://www.vathek.org/doi/pdf/10.1350/ijps.2006.8.1.67.

27. Ibid.

The goal of this guidebook

Community policing is recognized as a best practice in policing, and this understanding is reflected in the 

mission and vision statements of progressive police agencies across the nation. Many agencies have also 

developed accountability systems and outcome measures for determining their progress in key operational areas 

(e.g., CompStat) and systems for investigating or flagging potentially problematic employees or issues. However, 

systems to monitor and evaluate the performance of police personnel have advanced at a much slower rate.28

Police executives, academics, and others recognize that there is a significant gap between community policing 

implementation and the ways officer performance is managed and evaluated. Community policing has been 

widely accepted in thousands of departments nationwide, but advances in police officer evaluation systems have 

been incremental at best, and many community policing agencies have not updated their formal systems to 

incorporate community policing concepts at all.29 Police executives often report that their officers are working 

but are not necessarily focusing on the type of work that supports the department’s strategies and mission.30

28. Fielding and Innes, “Reassurance Policing” (see note 11).

29. Lilley and Hinduja, “Organizational Values” (see note 5); Lilley and Hinduja, “Officer Evaluation” (see note 5).

30. McPherson, “Reflections from the Field” (see note 6). 

In 

many departments, antiquated systems for measuring performance are still based on negative indicators such as 

a lack of citizen complaints, which can have the unintentional effect of discouraging officer-initiated activity, 

or on performance indicators that have little or nothing to do with problem solving or building partnerships 
14 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

with local residents (such as issuing traffic citations or responding to radio calls promptly). To truly implement 

community policing, agencies need performance evaluation systems that recognize competencies that support 

community policing approaches, such as ethics; problem solving; leadership; and interpersonal, technical, and 

communication skills.31

Police agencies are struggling to balance effective crime control strategies with the need to be respectful 

of privacy, supportive of civil rights, transparent to the public, and accountable. It is critical that police 

departments strengthen internal management processes so that the daily work of police officers is perceived 

as fair and can be measured consistently in terms of how well it advances department priorities, including 

community policing principles. 

31. Ibid.

A comprehensive performance management approach is key

This guidebook encourages police executives to build a comprehensive approach to performance 

management. Building on the importance of agency-level performance management systems developed in 

previous work, this guidebook focuses particularly on how to supplement these systems with individual-level 

approaches that incorporate the principles of procedural justice and can be used by first-line supervisors and 

others to lead, mentor, and evaluate their personnel. 

While the chief executive is the leader and sets the tone of a police agency, it is the officers who have the most 

interactions with the public on a daily basis. Officer behaviors influence public perceptions of the police 

department, and first-line supervisors (often at the rank of sergeant) play a vital role in communicating the 

mission, values, initiatives, and policies of the department to officers and in supervising their actions in the field. 

This guidebook will assist police chiefs in focusing on the role of first-line supervisors as part of the agency’s 

comprehensive performance management approach and will guide these supervisors to the resources they 

need to develop the skills of their officers while promoting procedural justice principles. The guidebook 

includes a series of promising practices, practical examples, and tools from the field of policing as well as from 

the private sector to help agencies measure the right officer behaviors and activities to carry out its mission 

and to make the evaluation process itself more transparent and fair. The principles and resource templates in 

this report are also applicable to other supervisors and personnel throughout a police department.

One size doesn’t fit all

Each law enforcement agency is unique, and many agencies operate under policies and procedures, including 

labor agreements, that may limit the changes to the performance management or employee evaluation 

processes that a chief can make solely on his or her own authority. Therefore, the proposed approaches 

outlined in this report are meant to be flexible. Not all of the recommendations and promising practices will 

be appropriate for all agencies. Rather, agencies may adopt the recommendations and promising practices 

that align with their department structure and circumstances. Some agencies may decide that further 

tailoring of a recommendation is necessary to meet their needs.
15 Introduction

However, one theme of this guidebook that applies across the board is the need for a multifaceted approach 

to performance management. Employee evaluations are only one element of the approach. Performance 

management systems can include formalized strategies such as coaching, mentoring and talent development. 

In successful, results-driven organizations, these systems are thoughtfully planned and are used on a daily 

basis. This guidebook is designed so that the principles, practices and tools can be adapted and applied to 

existing systems in a relatively straightforward manner. 

The contents of this guide

Part I of this guide discusses the principles of community policing and procedural justice (as applied within 

a police agency and in police interactions with community members) and the relationship between the two 

types of procedural justice (internal and external). Relevant literature and findings regarding performance 

management and policing are presented, along with the project’s approach and methodology. Part I also 

includes a discussion of current practices and weaknesses in existing evaluation systems, as identified during 

the project research.

Part II presents recommendations for a procedural justice-infused approach to performance management 

within police agencies. In each area, the report describes the benefits and limitations of the recommendations, 

along with promising practices, examples, resources, and advice for the practical application of the 

recommendations.

Part III provides advice and insight directly from police chiefs on how to incorporate procedural justice into 

performance management and how executives should use this guidebook.
16 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Photo: Photographee.eu / Shutterstock.com
Part I. The Foundation for a New Performance Management 

Approach

Procedural justice has emerged as a major concept in policing since the 1990s. Many observers see procedural 

justice as an extension of community policing concepts that were developed a generation ago. This section 

discusses the origins and principles of community policing and its current status in the field. Procedural 

justice (both internal and external) is defined and discussed in relation to community policing. Last, this 

section discusses performance management systems in police agencies and the limitations of existing 

evaluation systems and models.

Connecting community policing and procedural justice

Community policing is aimed at improving police-community interactions and developing problem-solving 

partnerships between the community and police to reduce crime and disorder. To achieve these goals, trust is 

needed between police agencies and the communities they serve. Research has found that increasing public 

confidence and satisfaction with the police can be accomplished by incorporating strategies that include 

components of procedural justice.32

32. Mazerolle et al., Legitimacy in Policing (see note 4).

The community policing movement

The proactive problem-solving elements of community policing movement were initiated in the 1970s 

and expanded in the following decades. Police agencies recognized the limitations of traditional strategies 

of policing, in which officers focused on responding to calls for service while doing little proactive work 

to analyze crime patterns and develop relationships with community members.33 Research demonstrated 

that the traditional model was not as effective in preventing crime as previously believed and that overall 

satisfaction with the police was low.34 Police began to use approaches that would reconnect them and 

the communities they serve and to encourage collaborative and information-driven approaches to crime 

prevention.35 During the 1980s and 1990s, community policing became a predominant style of policing, 

changing the way many officers view and perform their jobs. In many departments today, police officers do 

not merely respond to 911 calls and investigate crimes; they are expected to engage community members as 

partners in proactive crime prevention and problem solving. 

33. Gayle Fisher-Stewart, Community Policing Explained: A Guide for Local Governments (Washington, DC: Office of Community Oriented 

Policing Services, 2007), http://ric-zai-inc.com/Publications/cops-p136-pub.pdf.

34. Matthew C. Scheider, Robert Chapman, and Amy Schapiro, “Towards the Unification of Policing Innovations under Community 

Policing,” Policing: An International Journal of Police Strategies and Management 32, no. 4 (December 2009), 694–718.

The core elements of community policing

The goals of community policing are to reduce crime and disorder, improve quality of life in communities, 

reduce fear of crime, and improve police-community relations.36 Community policing is a philosophy built 

on three core elements: problem solving, community partnerships, and organizational transformation.37

Police departments and communities develop policing strategies to fit their own unique needs.

35. Ibid.

36. Community Policing: The Past, Present, and Future, eds. Lorie Fridell and Mary Ann Wycoff (see note 6).

37. Community Policing Defined (Washington, DC: Office of Community Oriented Policing Services, 2014), http://ric-zai-inc.com/

Publications/cops-p157-pub.pdf.
18 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Problem solving involves proactive and systematic examination of problems and an evaluation of the 

responses. Many departments have adopted the scanning, analysis, response, and assessment (SARA) model 

of problem solving to help identify and address issues within the community.38 The second element of 

community policing is the formation of community partnerships with the goals of building trust and solving 

problems through collaboration. The third element is organizational transformation to support community 

partnerships and problem solving. This often involves changes in police agency management, organizational 

structure, personnel, and technology.39 Organizational transformation also requires a change in how an 

agency defines success and measures its performance.

 “The importance of communication and providing public service in a respectful and professional 

manner cannot be emphasized enough. I tell my new recruits, ‘I do not want robots. I want officers 

who have emotions. I want officers to laugh, to cry, and to show community members that officers 

understand them.’”

—Los Angeles Deputy Police Chief Terry Hara, June 2012 project working group meeting 

38. Ibid.

39. Ibid.

Procedural justice

Despite the widespread acceptance and implementation of community policing, police continue to face 

challenges in communities where trust in the police is lacking. In fact, public confidence in the police since 

1993 has remained fairly stagnant, fluctuating between 52 and 64 percent, according to a series of Gallup 

polls; and the figures for African-American respondents are significantly lower, at only 30 percent in the 

most recent survey for 2014–15.40 The ongoing challenge of building and maintaining community trust has 

prompted a renewed interest in strategies that facilitate community policing partnerships, particularly in 

high-crime neighborhoods where police department activity is often intensified. 

As previously mentioned, police executives and researchers are increasingly looking for ways to incorporate 

the concept of procedural justice in their operations.41 Procedural justice in policing is viewed as a tool to 

help improve the level of public trust and confidence in law enforcement, which in turn facilitates building 

community partnerships and problem-solving efforts (key components of community policing). The driving 

concept behind procedural justice is the idea that individuals’ perceptions of the police as legitimate have a 

large impact on their willingness to obey the law and cooperate with law enforcement efforts.42 Legitimacy 

refers to the belief that the police have the consent of the community to maintain order and manage conflicts 

in the community. This belief is based on the willingness of people to accept the authority of the police as 

enforcers of the law, the level of public trust and confidence in the police, and the belief that the actions of the 

police are morally justified.43 Studies have shown a positive relationship between procedural justice and the 

perception of legitimacy and the importance of procedural justice in shaping an individual’s view of police.44

40. Jeffrey M. Jones, “In U.S., Confidence in Police Lowest in 22 Years,” Gallup, Inc., last modified June 19, 2015, http://www.gallup.com/

poll/183704/confidence-police-lowest-years.aspx?utm_source=position3&utm_medium=related&utm_campaign=tiles.

41. In its first usage, procedural justice was used in reference to trial proceedings. See John Thibaut and Laurens Walker, Procedural Justice: 

A Psychological Analysis (Hillsdale, N.: Lawrence Erlbaum Associates, 1975).

42. Sunshine and Tyler, “The Role of Procedural Justice” (see note 16).

43. Tom Tyler, “What are Legitimacy and Procedural Justice in Policing? And Why are They Becoming Key Elements of Police Leadership?” in 

Legitimacy and Procedural Justice: A New Element of Police Leadership, ed. Craig Fischer (Washington, DC: Bureau of Justice Assistance, 2014), 

6–32, http://www.policeforum.org/assets/docs/Free_Online_Documents/Leadership/legitimacy%20and%20procedural%20justice%20

-%20a%20new%20element%20of%20police%20leadership.pdf.

44. Mazerolle et al., “Shaping Citizen Perceptions” (see note 1).
19 Part I. The Foundation for a New Performance Management Approach

Empirical research indicates that compliance with the law and cooperation with law enforcement are 

associated with an individual’s belief that the police are legitimate. Practicing procedural justice improves the 

public’s perception of the legitimacy of police, makes individuals more willing to cooperate, and allows police 

more discretion in performing their duties because they have the public’s trust.45 Research on this topic has 

established a clear link between using principles of procedural justice and the overall legitimacy of the police 

department in the eyes of community members.46

45. Sunshine and Tyler, “The Role of Procedural Justice” (see note 16).

46. Mazerolle et al., “Shaping Citizen Perceptions” (see note 1).

The four pillars of procedural justice

Procedural justice can be established through four key factors: (1) fairness, (2) respect, (3) voice, and 

(4) transparency. There is some variability in the terminology being used for these components among 

academics and practitioners. However, the concepts behind them are the same. 

The first component, fairness, concerns impartiality in decision making and consistency in the outcomes. 

For example, are officers neutral and consistent in making decisions during interactions with the community? 

Respect, the second component, involves officers treating people with dignity and politeness. The third 

component, voice, is a matter of police officers giving community members a chance to tell their story or 

state their case and listening to that story. Finally, transparency requires the decision-making process to be 

open and honest. Often this can be accomplished simply by explaining how decisions are made and why 

specific actions are being taken.

 “We know a lot about how to motivate cooperative and willing engagement from line officers, and all 

of the research that has been done suggests that the four principles of procedural justice are the key to 

achieving that goal.”

—Dr. Tom Tyler, Yale University professor, June 2012 project working group meeting

Current resources and tools for community policing and procedural justice

Much work is being done to incorporate the principles of procedural justice into police agency management 

and operations.47 While much of the research on police performance management is now somewhat dated, a 

number of reports offering practical guidelines and tools based on police performance management findings 

and the concepts of procedural justice have been developed. 

47. See appendix B for a list of procedural justice in policing resources. 

Community Policing Self-Assessment Tool

For example, the COPS Office released the Community Policing Self-Assessment Tool, developed by PERF 

and ICF International. This assessment tool has a number of questions in the “personnel management” 

section in which police officials ask themselves whether supervisors at all levels give their subordinates 

authority and responsibility for problem-solving activities and activities to build community partnerships.48

However, asking sergeants and other supervisors whether they support community policing and the 

principles of procedural justice is only one step that would need to be preceded by substantial education and 

training. 

48. For more information on this tool, please visit http://www.cops.usdoj.gov/Default.asp?Item=2673. 
20 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

COPS Office procedural justice series

This guidebook is the product of COPS Office-funded initiatives focused on institutionalizing community 

policing through procedural justice principles in police agencies. Each of the three resulting projects focuses 

on different levels within police departments. 

The first initiative, developed by the Washington State Criminal Justice Training Commission, is a line-level officer 

training program titled Listen and Explain with Equity and Dignity (LEED).49 LEED is based on the principles of 

procedural justice and provides the following general guidance for officer interactions with the public:

•	 Listen. Allow people to give their side of the story, give them voice, and let them vent. (Voice)

•	 Explain. Explain what you are doing, what the community member can do, and what is going to 

happen. (Transparency)

•	 Equity. Tell the community member why you are taking action. The reason must be fair and free of bias 

and should show that community input was taken into consideration. (Fairness)

•	 Dignity. Act with dignity and allow community members to keep their dignity. (Respect)

The second of the three projects addresses the role of police chiefs and other law enforcement executive 

leaders. The University of Illinois’ Center for Public Safety and Justice has developed a curriculum for 

police leaders on how to incorporate procedural justice into organizational decision making, policies, 

and procedures.50

This guidebook, which explores the role of first-line supervisors, is the third project in this series.

49. Sue Rahr, John Diaz, and Joe Hawe, The Four Pillars of Justice-based Policing: Listen and Explain with Equity and Dignity (Seattle: 

Washington State Criminal Justice Training Commission, 2011), http://www.portlandonline.com/auditor/index.cfm?a=368336&c=56523.

50. See appendix B for details.

Procedural justice training in the field

 “I want to see procedural justice permeate this organization through decision making on the street to 

the treatment of subordinates by supervisors. If this treatment and decision making is perceived as 

fair and equitable, it will lay a foundation for how law enforcement personnel, in turn, will treat and 

interact with the public.

— Chicago Police Superintendent Garry McCarthy, CPD Procedural Justice and Police Legitimacy Participant Guide51

Independently, police agencies are seeing the value of emphasizing procedural justice, and a number of 

agencies have developed their own training to promote the components of procedural justice in everyday 

encounters with the public. For example, the Chicago Police Department (CPD) developed training on 

procedural justice and police legitimacy and has been providing its officers with an eight-hour course since 

2012. This training presents the core concepts of procedural justice and police legitimacy and the benefits of 

applying them to policing and building community relationships, along with concrete examples of how to 

use procedural justice in the field.52 More than 10,000 CPD officers have completed the program to date. The 

Chicago training has informed the development of many other training programs around the country. 

51. Al Ferreira, Mark Sedevic, and Bruce Lipman, “Procedural Justice and Police Legitimacy,” in-service training document, Chicago Police 

Department, 2012.

52. Ibid.
21 Part I. The Foundation for a New Performance Management Approach

“Procedural justice and legitimacy in law enforcement is not just a strategy but [also] a movement. 

By fostering an environment where procedural justice principles become standard practice, the 

department can create an organizational culture that fosters a true partnership with the public and 

leads to safer work environments.”

— Father Daniel Brandt, Chicago Police Department Chaplain, CPD Procedural Justice and Police Legitimacy Participant Guide53

53. Ferreira, Sedevic, and Lipman, “Procedural Justice and Police Legitimacy” (see note 51).

The link between performance management and procedural justice

Accountability for problem solving must be part of meaningful performance evaluations. For performance 

evaluations to be meaningful, they have to be linked to selected assignments and promotions. . . . 

Supervisors who attempt to hold employees accountable in a performance review and then have their 

evaluations disregarded or overturned view the process, not surprisingly, as a waste of time.

— Nancy McPherson, “Reflections from the Field on Needed Changes to Community Policing”54

Officer evaluations and performance management systems are important links between officers in the field 

and department leaders. The way in which a department manages and evaluates the performance of its 

personnel influences the attitudes, perceptions, and behaviors of its employees. For example, if the mission 

of the department is to provide exceptional customer service but evaluations are focused on the number of 

citations or arrests made, officers may focus more on strict enforcement of the law rather than appropriately 

using discretion and providing a high level of customer service during each community interaction. Officer 

evaluations and performance management tools, if designed and used properly, can help police leaders know 

if their policies, directives, values, and mission are being fulfilled by specific personnel and can ensure that 

officers are focusing on the behaviors and activities that are most important to the department’s leaders and 

to the community. This is important to achieving the department’s mission, to the community’s perceptions 

of the legitimacy of police officials, and to the overall satisfaction of the community with the department. 

This can also impact officers’ overall perception of the internal legitimacy of their own organization, job 

satisfaction, and officers’ willingness to take the extra step to ensure community safety and satisfaction.

 “Our department decided to look to procedural justice when we realized that what we were measuring 

[for performance] was not measuring in the hearts and minds of our community.”

—Arlington (Texas) Police Chief Will Johnson, 2014 International Association of Chiefs of Police Panel

54. McPherson, “Reflections from the Field” (see note 6).
22 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Role of the first-line supervisor

Police executives set the tone and vision for the agency, and first-line supervisors are critical for translating 

department policy into field practice and influencing the actions and behaviors of officers in the field. 55 Firstline supervisors are responsible for ensuring that the daily actions of individual officers advance the overall 

goals of the agency, and the supervisors should be very visible to the community. 

 “The sergeants’ uniform chevrons are the most recognizable rank to the community. I have been to 

scenes as a high-ranking officer and had people go right by me to the man or woman wearing the 

chevrons.”

— Timothy Dolan, Chief of Police (retired), Minneapolis Police Department 

Supervisors need to model appropriate behavior and coach officers to ensure that officers interact respectfully 

with community members and demonstrate fairness and transparency in how they carry out their daily 

duties. Officer supervision is a key issue in ensuring procedural justice in policing.56 Patrol sergeants, who 

work directly with their officers on a regular basis, are usually in the most critical position to coach officers 

on community policing approaches and how to implement the principles of procedural justice in their daily 

interactions. Unfortunately, these supervisors also have many tasks and obligations that can pull them away 

from this role. For these reasons, many of the recommendations in this guidebook have direct implications 

for first-line supervisors in particular. 

55. James J. Willis, “First-Line Supervision and Strategic Decision Making under CompStat and Community Policing,” Criminal Justice Policy 

Review 24, no. 2 (March 2013), 235–256, http://cjp.sagepub.com/content/24/2/235.full.pdf; Robin Shepard Engel, How Police Supervisory 

Styles Influence Patrol Officer Behavior, Research for Practice (Washington, DC: National Institute of Justice, 2003), https://www.ncjrs.gov/

pdffiles1/nij/194078.pdf.

56. Civil Rights Investigations of Local Police: Lessons Learned, Critical Issues in Policing Series (Washington, DC: Police Executive Research 

Forum, 2013), 18–20, http://www.policeforum.org/assets/docs/Critical_Issues_Series/civil%20rights%20investigations%20of%20local%20

police%20-%20lessons%20learned%202013.pdf. 
Project Approach and Methodology

PERF and the COPS Office assembled a team of subject matter experts from academia, policing, and the 

private sector to identify promising practices in performance management and talent development. Dr. 

Tom Tyler of Yale University, one of the nation’s foremost experts on the topic of procedural justice, and 

Mary Ann Wycoff, a criminologist specializing in measuring police performance, served as consultants 

and participated on the project team. The project team also included several of Target Corporation’s top 

executives and talent development specialists. Target Corporation is known for its assistance to local police 

agencies and for its sophisticated performance measurement and goal-setting system for its employees. Target 

has consulted with and hired some of the top experts in performance management and talent development 

and has designed a comprehensive approach and tracking system and performance measurement tools that 

could prove useful to police agencies.

Project working group

PERF and the COPS Office also created a working group of police officials from five police departments, 

all of which have a record for successfully promoting community policing and developing new strategies 

to improve police effectiveness. The working group included representatives from the police departments 

from Arlington, Texas; Denver; Los Angeles; Brooklyn Park, Minnesota; and Minneapolis (which served 

as learning sites for the project team), as well as other police executives.57 Several of these departments were 

already testing and implementing new performance management approaches at various levels within their 

agencies. The Brooklyn Park Police Department (under the leadership of then Chief Michael Davis), in 

partnership with Target, approached PERF with the idea of bringing the public and private sectors together 

to improve performance management and leadership development within policing and helped to build the 

foundation for this project. 

57. See appendix A for a complete list of working group members.

Scan of the field and review of current practices

The project began with a comprehensive literature review followed by a request for information from PERF’s 

member agencies. Performance evaluation materials from 52 police departments were reviewed with an eye 

toward procedural justice and community policing elements in the realms of evaluation content, process, and 

purpose. While this review was not nationally representative of all police agencies, it included departments 

from 40 states and of a diverse range of sizes.

A major finding of the policy review was that in most departments, few outcomes are tied to the results of 

personnel evaluations. Out of the 52 agency policies reviewed, only 18 used evaluations to identify areas for 

employee improvement. In 13 agencies, evaluations can lead to officer training, while in only 12 could an 

evaluation lead to a promotion. 

Another finding was that overwhelmingly, the policies utilized a five-point scale for each indicator or 

measure. And only about half allowed comments to be added to the measures regarding the officer’s overall 

performance, suggesting that many agencies are missing out on valuable qualitative information.58

58. See appendix C for PERF’s policy review findings.
24 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Project working group meeting, June 2012

Northeastern University Public Safety Director Michael Davis, former Brooklyn Park (Minnesota) chief of 

police, project working group meeting, June 2012
25 Project Approach and Methodology

Working group meetings

In June 2012, the first working group meeting was held in Minneapolis at Target headquarters. In attendance 

were PERF staff and COPS Office representatives, COPS grantees who were working on the two sister 

projects on procedural justice, working group representatives from the five police departments, Target 

executives, subject matter experts, and PERF project consultants Tyler and Wycoff. 

The goal of this meeting was to present the initial findings from the scan of the field and review of current 

literature and programs and to discuss what is lacking in police performance management and how 

procedural justice can be used to develop and implement strategies for improvement. 

During the first part of the meeting, PERF and Wycoff provided an overview of the literature on 

performance management in policing and primary findings of the policy review. Tyler explained the core 

tenets of procedural justice and how they apply to performance management, and Tom Kern, a senior talent 

development consultant for Target, discussed performance management in companies such as Target and the 

possible lessons for the public sector. 

An important point is that working group members agreed that officers need to see that performance is 

being measured in a fair and consistent way and that the objectives of community policing and procedural 

justice being implemented in the community are also being applied internally. There cannot be two different 

standards for how officers are expected to treat community members and for how the department treats its 

officers. Any second-class treatment of officers can be expected to impact the willingness of officers to provide 

first-class levels of service and procedural justice to the community members they interact with. In addition, 

development of officers’ skills and talents and organizational development are interrelated, and both can 

positively impact community relations. A major point of consensus during the first working group meeting 

was that performance management needs to focus on continuously developing officers’ skills and leadership 

rather than relying solely on written annual evaluations. PERF and the COPS Office were encouraged to 

broaden the project to address individual development and leadership development within performance 

management rather than focusing only on the evaluation process. 

Working group members also concluded that it was critical to have input from police employees at all levels 

during the development of this guidebook. In response, PERF conducted site visits to all five working group 

departments in 2013 and held focus groups with a wide range of police personnel to collect feedback on 

current performance management practices and proposed alternatives.

Site visits to working group agencies—stakeholder focus groups

Interviews were conducted with the chiefs and senior staff members of each of the five working group 

departments. Protocols developed for these interviews included questions on the general evaluation process, 

the role of the supervisor, and respondents’ views about an ideal evaluation process. In addition, focus groups 

were held with officers from each rank up to lieutenant, civilian employees and civilian supervisors, and any 

specialized groups within each department. Protocols were developed specifically for these groups. Project 

staff members also participated in ride-alongs with patrol personnel from each department. 
26 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Development of the comprehensive approach

After the site visits were completed, the information gathered was compiled and recommendations developed 

by identifying common issues and themes across the agencies and focus groups. This summary of findings, 

along with the promising practices identified during the field research at each department, is discussed in part 

II within the context of the related recommendations.

In October 2013, the recommendations and the publication outline were presented for feedback at a second 

working group meeting. During this meeting, working group members guided and approved the direction of 

the project, identified promising practices to be included, and offered suggestions for many of the tools and 

resources that are included in this guidebook. 

National 2014 preview of the approach

After conducting site visits and interviews and collecting feedback on the recommendations from the 

working group, a preview of the findings and promising practices was presented in February 2014 through a 

national webinar.59 More than 200 individuals participated in the webinar; with police representatives made 

up the majority of participants, representing the ranks of chiefs, command staff members, and sergeants. 

Researchers, police academy directors, and other criminal justice stakeholders also participated. Throughout 

the webinar, attendees were polled for their perspectives on various issues such as current challenges 

to completing personnel evaluations and questions about the current materials used in performance 

evaluations. Comments indicated that the discussion of procedural justice and performance management 

recommendations was well received. Feedback from this event was used to further clarify concepts, 

recommendations, and promising practices. 

59. See appendix D for the national webinar PowerPoint presentation.
State of the Field: Project Findings on Current Performance 

Management Approaches

Comprehensive performance management and evaluation systems benefit police departments in many ways. 

First, these tools can be used to gauge the agency’s progress in meeting its own goals and standards as defined 

in written mission statements, values, priorities, and expectations. Evaluations also provide supervisors with 

information needed to perform their duties, because the evaluations result in documentation of their officers’ 

strengths and weaknesses, and supervisors can use that information to adjust assignments and priorities, 

recommend training, and improve officers’ performance. A well-designed performance management system 

can act as a catalyst to shape behavior and facilitate organizational change.60

Despite the theoretical advantages of performance evaluation systems, research on this topic has found the 

perception of their effectiveness among police to be generally negative.61 This sentiment was echoed in the 

findings from the research team’s scan of the field and detailed interviews with police personnel in the five 

working group agencies. 

At the suggestion of the subject matter experts participating in the first working group meeting, PERF 

conducted site visits to police agencies in Denver; Arlington, Texas; Los Angeles; Minneapolis; and Brooklyn 

Park, Minnesota, to better understand how current systems operate and how they are viewed within the 

departments. Several criticisms of evaluation systems and processes quickly emerged during discussions 

with personnel of various ranks and positions at the police agencies the team visited. The challenges to 

performance management were often closely tied to the shortcomings of employee evaluation forms and 

systems and the lack of other systems to develop personnel growth. 

60. Mary Ann Wycoff and Timothy N. Oettmeier, Evaluating Patrol Officer Performance Under Community Policing: The Houston Experience

(Washington, DC: National Institute of Justice, 1994), https://www.ncjrs.gov/pdffiles1/Digitization/142463NCJRS.pdf.

61. Oettmeier and Wycoff, “Personnel Performance Evaluations” (see note 10).

Challenges with existing performance evaluation approaches

Frequently expressed concerns about performance evaluation systems are summarized below.

1. Measures don’t match job expectations or activities. Many respondents said that officers and 

other police personnel felt they were not being formally evaluated on what they perceived to be their 

responsibilities. For example, officers in a downtown district may see their daily activities as different 

from the responsibilities of officers in a residential district, and yet they are measured with the same 

criteria. This could also be said for those working a night shift as opposed to a day shift or for those 

working in different types of units. While the general duties of officers may be consistent throughout 

the department, individuals felt that their specific circumstances impact how they perform but that 

these circumstances are not taken into consideration during the evaluation process. Over the course of 

their careers, officers may mature in terms of skills and the scope of their responsibilities, and yet twentyyear veterans usually are evaluated in the same way as second-year officers. This disconnect has caused 

employees to view the evaluation tool as invalid and unreliable. Academics have supported this criticism 

of measurement indicators, particularly within the context of community policing.62

62. Geoffrey P. Alpert and Mark H. Moore, “Measuring Police Performance in the New Paradigm of Policing,” in Community Policing: 

Contemporary Readings, eds. Geoffrey P. Alpert and Alex Piquero (Long Grove, IL: Waveland Press, 1998), 215–233.
28 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

2. City-wide generic forms do not reflect the nature of the police work. As pointed out above, 

responsibilities within a police department differ, even among patrol officers. One size does not fit all. 

In discussions with local police agencies, the team found that many departments are mandated to use 

city-issued or standardized evaluation forms with measures that do not apply to or are insufficient for 

assessing police work, either sworn or civilian. Because these forms do not adequately describe and 

assess performance for police personnel, it is difficult to determine what outcomes should result when 

an evaluation is completed, such as promotions, raises, training or reassignment. In addition, police 

executives indicate that they have little control over the content of these forms and the personnel 

evaluation process set forth by the city.

3. There is too much focus on quantitative measures. Although police have progressed beyond the 

days of focusing exclusively on UCR data and rapid response to calls for service to gauge their agency’s 

performance,63 many departments still rely heavily on numerical data for evaluating the agency as a 

whole and for evaluating its personnel.64

Research has shown that exclusively focusing on quantitative data, such as arrest rates and crime 

statistics, may misrepresent actual performance.65 Output measurements (e.g., response time, arrests 

and clearance rates) lack context to understand how work is effecting change.66 Qualitative evaluations 

provide a more complete picture of how an individual thinks, invests time and resources, and 

accomplishes change within the larger organization.67 It is important to include this descriptive data as it 

complements quantitative data, providing a holistic view of an individual’s performance. 

A performance evaluation system that integrates quantitative and qualitative data provides the best 

analysis of an agency’s and an individual’s performance, especially if department leaders are looking for 

indicators of community policing and procedural justice in the field.

4. Evaluations don’t carry any weight. Respondents consistently said that evaluations have little impact 

because the results often are not tied to any meaningful outcomes for personnel, such as promotions, 

reassignments, etc. This leads both supervisors and employees to dismiss the process and only 

halfheartedly (or not at all) commit to providing honest and objective assessments of performance.

In fact, in early 2014, when the team polled participants during our national webinar on performance 

management in policing, about 62 percent of respondents said that the greatest challenge to 

performance management was that the process was not taken seriously (see figure 1 on page 29). 

This leaves both supervisors and employees frustrated. The evaluation process is seen as paperwork 

to complete rather than as an important tool to assist with growth, advancement, and performance 

management. 

63. Jon M. Shane, “Developing a Police Performance Measurement System,” FBI Law Enforcement Bulletin 77, no. 9 (September 2008), 8–18, 

https://leb.fbi.gov/2008-pdfs/leb-september-2008.

64. Fielding and Innes, “Reassurance Policing” (see note 11).

65. Vikki Dadds and Tammy Scheide, “Police Performance and Activity Measurement,” Australian Institute of Criminology Trends & Issues in 

Crime and Criminal Justice no. 180 (November 2000), http://aic.gov.au/media_library/publications/tandi_pdf/tandi180.pdf.

66. Milligan and Fridell, Implementing an Agency-Level Performance Measurement System (see note 17).

67. Sun and Scott, “Towards Better Qualitative Performance Measurement” (see note 12).
29 State of the Field: Project Findings on Current Performance Management Approaches

Figure 1. Polling results from PERF’s 2014 webinar on performance management: Challenges

What is the greatest challenge to completing personnel evaluations within your agency?

0

10

20

30

40

50

60

70

80

15%

62%

8%

16%

Lack of flexibility Process not 

taken seriously

Employees get

little/no input

Forms don’t match

job description

5. It is difficult to provide honest feedback. During the project site visits, supervisors said that it

was difficult for them to provide honest feedback for a number of reasons. These included a lack of

proper tools (such as inadequate evaluation forms) but also that they lacked the skills to deliver a

candid evaluation to their officers. Supervisors are trained on how to complete the necessary forms

but not necessarily on what is expected from them in terms of observing, evaluating, reporting,

and communicating about personnel performance or on how to correct problematic or potentially

problematic behavior when necessary. Supervisors often do not have training on how to coach and

mentor employees in a positive manner to correct behavior or performance when necessary. Further,

supervisors—especially sergeants—often have close working relationships with their officers (in many

cases because they previously worked alongside the officers they now supervise), and this rapport, while

important, can make it difficult to give criticism when necessary. Some police personnel noted that this

can result in inflated evaluation ratings of personnel.

6. Employees have little or no input in the evaluation. Many evaluation processes do not provide an

opportunity for officers to give their opinion on their own performance or respond to the evaluations

provided by their supervisors. Police employees want to feel that they have a say in the process and

a chance to talk about their performance on their own terms. They may be able to explain perceived

irregularities or shortcomings in their performance and provide the supervisor with insight into ways

of addressing those issues should they arise in the future. In addition, having employees provide their

perspective helps supervisors determine if their officers can accurately evaluate themselves, recognize areas

for growth, and learn from their experiences. This type of involvement in the process can also improve the

process of discussing areas of weak performance or issues where additional training may be needed.
30 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Researchers and police practitioners indicate that performance management lags far behind the 

advances that have been made in other areas of policing, such as use of technologies and CompStat 

systems. 

Where do we go from here?

Northeastern University Public Safety Director Michael Davis (formerly Brooklyn Park Police Chief ), 

who has taken a leadership role on developing and participating in this project, summarized the need for a 

comprehensive performance management approach as follows: 

We need a new way of maximizing the talents of our officers. Different cops are good at different 

things, and we need to create systems that will ensure that across the entire department, all officers 

will be given an opportunity to discuss with their sergeant what they think needs to be done in 

their area of responsibility. It might be shutting down an open-air drug market, dealing with a 

problem of juvenile crime in the schools, or dealing with a business or residence that generates 

repeated calls for service. Once the officer and the sergeant agree on the nature of the problems, 

they will develop a set of specific goals that the officer will accept to solve the problems. It might 

be a certain percentage reduction in the number of calls from a hot spot location, for example. 

Sergeants will ask what they can do to help the officers with their goals. In this way, we not only 

establish a formal mechanism for getting work done, but we also develop the talents of our officers. 

We must give our officers an opportunity to show leadership—while also ensuring that they are 

doing the kind of work that we want them to do.

In order to account for the breadth of modern police work, which increasingly is emphasizing building 

trust and community relationships, performance management tools and evaluations need to be 

multidimensional.68 Integrating aspects of community policing into performance measures can significantly 

increase problem-solving activities, satisfaction with the evaluation process, and satisfaction with how work is 

recognized by supervisors.69

Change, especially within police departments, can present many challenges. Evaluations are a personal and 

sensitive subject, and employees may respond to the prospect of changes to evaluations with anxiety that 

a new process may point out opportunities for punishment rather than rewards. Problems can also arise 

when there is disagreement over what standards to implement in the department.70 These concerns can be 

mitigated by embracing procedural justice as part of the decision-making and implementation process—that 

is, by soliciting the views of all stakeholders as part of the process of making changes and being transparent 

about how decisions are made with respect to designing new systems.

68. Ibid.

69. Wycoff and Oettmeier, The Houston Experience (see note 61). 

70. Ibid.
PART II. Recommendations for a Procedural Justice-Infused 

Approach to Performance Management

Good performance evaluations are not only assessment tools; they also are training tools that 

communicate to the employee what the organization expects. And they become motivational 

tools when outcomes for the officer are tied to the evaluation scores, even if that outcome is “only” 

recognition by colleagues of a job well done.

—Chuck Wexler, Mary Ann Wycoff, and Craig Fischer, “Good To Great” Policing71

This section presents four general recommendations for police leaders to consider in making changes to their 

agency’s performance management systems and practices. The strengths and weaknesses of performance 

management systems as identified by the working group and through stakeholder focus groups helped shape the 

approach and recommendations in this publication. This section also includes examples, promising practices, 

and suggestions for implementing various aspects of the recommendation. There is no one solution, approach, 

or practice that will fit all police agencies. However, these broad recommendations can serve as a guide to assist 

department leaders. And while there may be statutory or contractual limitations on the changes that can be 

made to a given department’s evaluation and performance management systems, the practices explored in the 

subsequent pages may be used in varying degrees to improve the current systems in police agencies.

Recommendation 1. Assess the agency’s current performance management and evaluation systems.

Before making any changes to your evaluation and performance management policies and practices, make a 

thorough assessment of the existing system and view your current system through a procedural justice lens. 

Based on the elements of procedural justice, an employee evaluation system should be neutral, consistent, 

transparent, and fact-based, and it should allow input from all involved parties. 

Keeping these elements in mind, there are three general areas to examine within the performance 

management and evaluation system: its process, its content, and its purpose. The suggested promising 

practices are strategies that some agencies have cited to prompt thoughtful consideration of performance 

management policies and practices. Agencies should identify a time to routinely assess performance 

management and evaluation systems to make sure that they remain consistent with the department’s overall 

goals. This can be accomplished during a department’s strategic planning process or any time when a 

significant change to policy impacts how the agency carries out its mission.

Promising practice: Examine the purpose of the performance evaluation system

The following questions are aimed at identifying the overall goals and objectives of an agency’s performance 

management system. While exploring these questions, you may find that there are discrepancies between 

the intended goals of your system and the system’s processes and actual outcomes. Or you may decide that 

the current goals are outdated and need to be revised in order to better suit the current environment and 

circumstances of your agency.

•	 Does your evaluation system have a clear purpose and objectives?

•	 Does your performance management approach accurately reflect the mission and goals of your agency?

•	 Is your approach fulfilling its purpose for your agency as a whole and for individual employees?

71. Wexler, Wycoff, and Fischer, “Good to Great” Policing (see note 13). 
32 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

•	 Is the system useful and effective?

•	 Is the system linked to other processes and databases within the agency (e.g., disciplinary actions, 

promotional or transfer processes, early intervention system, employee training)? If not, how can you tie 

it to other processes?

The sample performance policy shown in figure 2 (adapted from the policies reviewed in the research team’s 

scan of the field) includes a purpose section that clearly articulates the goals of the evaluation system. 

Figure 2. Sample statement of purpose

Purpose

A. The purpose of this policy is to establish an evaluation system based on objectivity 

and overall performance in relation to the mission and goals of the agency.

B. To effectively serve both management and the individual employee, the objectives 

of the evaluation process shall be:

1. To foster fair and impartial personnel decisions.

2. To maintain and improve performance.

3. To provide a medium for personnel counseling.

4. To facilitate proper decisions regarding probationary employees.

5. To provide a fair means for measuring and recognizing individual performance.

6. To identify training needs.

7. To facilitate professional growth.

8. To facilitate and improve communication between employees and their supervisors

“The reality of it is the justification didn’t meet the rating . . . . When you have more outstanding than 

average [employees,] that needs to be addressed. You are doing a disservice to the exceptional 

employee by saying that everyone is exceptional.”

—Denver Police Chief Robert C. White72

Case example: Denver Police Department revamps evaluation system

Robert C. White was sworn in as chief of police in Denver in December 2011, and by early 2013, he was 

observing that the vast majority of department employees were receiving very high marks across the board 

on their annual evaluations. The Denver Police Department (DPD) appeared to be experiencing a halo 

effect—a phenomenon that occurs when our overall impression about a person affects our evaluation of the 

person’s specific traits or performance with regard to specific criteria. For example, a supervisor may feel that 

an employee is generally respectful and agreeable and as a result may give the employee high ratings on a wide 

variety of other measures, such as writing clear reports and solving crime-related problems, when those ratings 

72. Jeremy P. Meyer, “Denver Police Chief Rejects Generous Performance Evaluations,” The Denver Post, last modified March 6, 2013, 

http://www.denverpost.com/ci_22725232/denver-police-chief-rejects-generous-performance-evaluations.
33 PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management

are not necessarily warranted. Within the workplace, a supervisor may inflate performance ratings because 

they allow a positive characteristic about an employee to influence the entire evaluation.73 At the DPD, nearly 

all employees, both officers and civilians, were getting consistent ratings of “great” and “outstanding” without 

specific examples of the behaviors and performance being assessed. For a system to be useful in distinguishing 

the best employees from less exceptional peers, it should be carefully written so that roughly 5 to 10 percent 

of employees receive the highest ratings.74 It was clear that the DPD’s evaluation process was not effectively 

assessing employee performance and was not helping the department to provide meaningful feedback, 

coaching, mentoring, training, and other growth opportunities to its personnel. To address this issue, the 

chief tasked the Planning, Research, and Support Division with researching various evaluation processes and 

developing a new system for the department.75

Led by Captain Sylvia Sich, the Planning, Research, and Support Division presented a number of options, 

each of which had benefits and drawbacks, to the executive staff of the DPD. Based on feedback from the 

executive staff, a broader, more comprehensive performance management system was established. The new 

approach emphasizes the specific responsibilities of each individual employee and promotes the department’s 

focus on crime prevention and community policing. A number of changes were made, including the 

elimination of a numerical rating scale and annual evaluations. The new system is based on formal quarterly 

meetings between sworn employees and their supervisors in which employees are assessed in three different 

areas: service delivery, interpersonal skills, and initiative.76 At these quarterly meetings, an employee and 

his or her supervisor collaborate to develop an action plan for addressing a current challenge or issue in the 

officer’s designated area. The action plan links to overall goals of the department, provides accountability for 

both the officer and supervisor, and establishes measures for performance that are customized to a specific 

division and individual.77

It is important to note that the outcome (whether the problem was solved or impacted) is not the sole gauge of 

an employee’s success. The employee’s efforts to solve the problem are just as significant as the actual outcome. 

The DPD developed a training manual on the new system, and sergeants and higher-ranking employees 

participated in a training class. The training advised supervisors that they are expected to work with their 

subordinates between the quarterly meetings to help them meet their goals. With the new system, supervisors 

are also expected to engage officers to establish career-oriented goals and to provide mentoring and guidance 

to address specific issues and help officers improve their general skills and abilities in their daily work. 

Officers also are measured on interpersonal skills and initiative. Interpersonal skills include verbal and written 

communication, professionalism, respect, customer service, and integrity. Initiative is assessed by an officer’s 

motivation to perform tasks, and innovation in addressing issues and solving problems. 

73. Larry Coutts and Jamie Gruman, “Applying Social Psychology to Organizations,” in Applied Social Psychology: Understanding and 

Addressing Social and Practical Problems, 2nd ed., eds. Frank W. Schneider, Jamie A. Gruman, and Larry M. Coutts (Los Angeles: Sage, 2012), 

221.

74. Stephen Miller, “Improving Performance Evaluations Using Calibration: Get Managers Onboard and Keep the Process On Track,” 

Society for Human Resource Management, last modified May 23, 2014, http://www.shrm.org/hrdisciplines/compensation/articles/pages/

calibration-sessions.aspx. 

75. The DPD is able to make significant changes to its evaluation system because, unlike many other agencies, it is not subject to 

mandated citywide forms or union restrictions.

76. Within the DPD, civilian personnel are considered City employees, and therefore their performance is assessed using the standard City 

evaluation processes and forms. There was less flexibility in changing that process.

77. See appendix E for DPD evaluation materials.
34 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Sworn employees are given opportunities to provide input to the process by logging events and interactions 

that the supervisor may not be aware of. This information is then provided to the supervisor at the end of 

each quarter. 

At the end of the year, the results of all of the quarterly meetings are reviewed by the supervisor and assessed 

to create a total rating.

In reviewing quarterly evaluations during the first year of implementing the new system, the DPD noticed 

that there were large discrepancies in the level of detail provided by supervisors on the evaluations. The 

department is currently considering strategies to ensure that supervisors are held accountable for meeting 

the new requirements, including raising awareness about consistency in assessing employees. Strategies may 

include distributing the findings about the new system in a department bulletin or including them in the 

department’s strategic plan. 

Ties between Performance Management, Accountability, and Disciplinary Systems

Addressing employee misconduct and disengagement can be a frustrating and complex challenge for supervisors and police executives. For many police 

departments, performance evaluations and disciplinary systems are the only formal source for behavioral and performance management by first-line 

supervisors. There are many informal performance management practices that can supplement the accountability systems of a police department to 

proactively prevent or curb incidents of officer misconduct and poor performance, such as debriefing sessions after shifts and roll call trainings to guide 

behavior and reinforce performance expectations. 

All police departments have an approach for disciplining officers who engage in misconduct or criminal behavior, and many departments have early 

intervention systems (EIS) that track officer behaviors and activities (such as community complaints against the officer, incidents involving uses of force, 

high rates of using sick leave, and many other factors) to identify officers who may be experiencing problems or may need guidance or additional training. 

It is important to note that EIS systems are not intended to be solely punitive. Performance management and evaluation systems can serve as mechanisms 

for tracking officers’ behaviors, detecting potential problems, and directing officers toward improved performance. An EIS system tracks multiple indicators 

that may or may not signal that an officer is engaging in misconduct, is experiencing problems, or is in need of counseling or additional training. For 

example, a large number of citizen complaints about an officer may indicate that the officer is habitually disrespectful to community members. On the 

other hand, it may only reflect only that the officer is a high performer working in a high-activity unit. The EIS provides notice to supervisors that certain 

officers’ performance should be reviewed.

In addition, the use of body-worn cameras (BWC) by police officers is gaining momentum as a tool to strengthen accountability and agency transparency. 

Many police executives feel that BWCs help prevent problems from occurring in the first place by increasing professionalism, assisting agencies in 

evaluating officer performance, and allowing them to correct any larger organizational issues.*

Consideration should be given to how the various systems for performance evaluation and management are linked to accountability and disciplinary 

systems and other units within the department. While many police agencies have adopted performance management and early intervention systems to 

identify and proactively approach issues of employee misconduct, these systems alone cannot address every potentially problematic employee. When 

officer behaviors, actions, and performance continue to devolve and require more punitive action, police agencies must be adequately equipped to respond 

to these issues. Accountability systems in police departments should include a combination of informal supervisory corrective practices and a formal 

disciplinary system. Most police departments have a formal discipline system through which ongoing and egregious problems are handled. “Meaningful 

discipline of officers for violation of department policies is in many respects the crucial part of comprehensive accountability systems,” according to Prof. 

Samuel Walker, a leading expert on police accountability.†
35 PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management

The way in which discipline is administered is critically important to employee perceptions of procedural justice within a department. Discipline is often 

perceived as unfair, largely because the process is a confidential personnel action in which transparency is not always possible. Two actions by different 

officers can look very similar to those not familiar with the circumstances of the incidents. Disparate punishments, while perhaps fully justified, will lead 

some to question the process. In many departments, the problem is even more basic: officers, and even supervisors, may not know how the system is 

supposed to work. 

Internal disciplinary practices in the United States vary dramatically from department to department, and there has been little research about strategies 

for avoiding disparate treatment in the administration of discipline. Historically, this process has been largely discretionary. In an effort to become more 

transparent, fair, and consistent, some departments are moving toward discipline matrices, in which a given type of offense along with mitigating or 

aggravating circumstances yields an appropriate punitive sanction or range of sanctions. When followed uniformly, disciplinary matrices provide more fair 

and consistent administration of sanctions for officers engaged in misconduct.‡

Police leaders at all levels should be responsible for educating their employees on the discipline system. Increased understanding of the systems in place 

develops clear expectations of possible outcomes. In addition, clarity in the process should foster discussions among employees and supervisors about why 

and how decisions are made—not on an individual basis but on a large scale. Though most disciplinary action is considered protected personnel data, 

supervisors should be able to articulate the intentions and outcomes of the discipline system. If this transparency is not possible, the department should 

consider having discussions on how the discipline system works and may be improved. 

Performance management and discipline systems within a police department should complement each other (rather than operating in silos) and should 

function under the same principles of fairness, transparency, respect, and giving voice to affected persons. Following are two perspectives from the field on 

the relationship between performance management and disciplinary systems.

Deputy Chief Mark Perez (retired) of the Los Angeles Police Department (LAPD) said that “an effective personnel management system can help prevent 

some employees from engaging in increasingly negative behavior that might eventually result in formal disciplinary actions.” In his view, an effective 

system is one that adjusts undesirable behavior and affirms desirable behaviors. If sergeants and lieutenants are constantly engaging their subordinates, 

“affirming and adjusting” their behavior, officers will be less likely to get into trouble. 

Perez believes that teaching organizational values (and the behaviors that reflect them) should be a critical part of the supervisory role and that talking 

about values is a critical aspect of affirming and adjusting behavior. It is sometimes incorrectly assumed that officers know the values of the department. 

Perez believes that upper-level police managers need to stress to first-line supervisors the importance of teaching values and discussing values any time 

they talk to officers about behavior.

Perez emphasizes the importance of the informal system for shaping behavior. In Los Angeles, a “counseling memo” is intended to be a guidance tool 

rather than a disciplinary tool, and it can be delivered either orally or in writing. In the LAPD, sergeants are expected to write one affirmation or counseling 

memo (adjustment) each month for each officer. Perez also notes that “engaging with their people” is built into the sergeants’ annual evaluations.

In Arlington, Texas, Police Chief Will Johnson sees a somewhat different relationship between the police department’s performance evaluations and 

discipline: discipline shapes the performance evaluation. Officers who receive a disciplinary action cannot score above “average” on their next evaluation. 

(The narrative portion of the evaluation can be used to provide background explanation or information for the officer about how to improve.) Johnson 

personally reviews the performance evaluations. If a sergeant signs off on an inflated evaluation, the chief will not change the officer’s evaluation but 

rather will ensure through the chain of command that the inflated evaluation is noted in the sergeant’s performance evaluation. Additionally, Johnson 

reviews performance ratings across work groups. If the average evaluation score for a group doesn’t match the productivity and disciplinary record for 

the unit, the sergeant will have to answer to their supervisor about the discrepancy. Thus, accountability is built into the system, which helps to avoid 

perfunctory, meaningless evaluations.

In general, Johnson advocates administering praise in public and discipline in private. However, he noted that when an action by a police department 

employee damages the relationship between the community and the police organization, it needs to be publicly addressed and reviewed. He tells officers 

that the public’s perception of the police can be influenced by issues of morality, not just whether an action was legal or not. 

*

 Lindsay Miller, Jessica Toliver, and Police Executive Research Forum, Implementing a Body-Worn Camera Program: Recommendations and Lessons Learned (Washington, DC: Office of 

Community Oriented Policing Services, 2014), http://ric-zai-inc.com/Publications/cops-p296-pub.pdf. 

†

 Samuel Walker, The New World of Police Accountability (Thousand Oaks, CA: Sage, 2005), 19.

‡

 Jon M. Shane, “Police Employee Disciplinary Matrix: An Emerging Concept,” Police Quarterly 15, no. 1 (March 2012), 62–91, http://pqx.sagepub.com/content/15/1/62.full.pdf.
36 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Promising practice: Map out the performance management and evaluation processes and examine the content of materials

The following questions focus on the sequence of steps taken during an evaluation and the physical materials 

used as documentation. Details that may seem minor can have a large influence on the perceptions that 

employees have regarding the effectiveness and fairness of the performance management system. It is 

recommended that departments take the time to answer these questions and then review the entire process 

according to the four components of procedural justice. 

•	 What forms or documents are completed during the evaluation process?

•	 Are the forms tailored to a specific job description? 

•	 What are the quantitative and qualitative measures being used?

•	 How do the measures compare to the employee’s job description, responsibilities, and training?

•	 Who completes the evaluation forms? Is it more than one person? Is the employee permitted to provide 

his or her input?78 Are they properly trained on how to evaluate performance and complete the forms?

•	 How often are evaluations performed?

•	 What oversight is given to the process? Who is involved in each step?

•	 How can evaluations be used to inform department-wide policies, trainings, or practices?

•	 What are the available outcomes of the evaluation process to employees (e.g., recognition, promotion, 

training)?

•	 What are the limitations of the system? Are some of these limitations within the control of the 

department to modify?

The examples that follow reflect the variety of tools used by police departments in carrying out personnel 

evaluations and performance management. 

The modified sample in figure 3 instructs the supervisor to assign specific weights to the performance 

indicators by which they will evaluate the employee. This step allows the supervisor to tailor the various 

aspects of the evaluation to the most important responsibilities of the position. These expectations are made 

clear at the outset of the evaluation period. 

Figure 3. Sample performance evaluation—performance indicators

Supervisor Instructions: Please assign a weight to each area (factor) below that reflects its importance as it relates to the employee’s ability to 

fulfill his or her job responsibilities and the overall mission of the agency. Total weight should equal 100%. 

Performance Factor Weight (%)

1. Job knowledge _________

2. Work relationships _________

3. Public relations _________

4. Initiative _________

5. Decision making _________

6. Oral communication _________

7. Written communication _________

8. Supervision of others _________

9. Career development _________

10. Safety _________

78. See appendix F for a sample self-appraisal form from the Brooklyn Park (Minnesota) Police Department.
37 PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management

Many agencies use more than one indicator to assess general areas of performance. In the example provided 

in figure 4, communication skills are broken down into different facets, which allows specific behaviors to be 

evaluated and, if needed, addressed. 

Figure 4. Sample performance evaluation—communication skills

Communication Skills Rating

Demonstrates the ability to effectively de-escalate 

Exercises self-control at all times

Utilizes appropriate and effective communication methods

Effectively communicates with diverse populations

Displays appropriate non-verbal command presence

Communication Skills Average:

Provide examples of performance to support your ratings.

Recommendation 2. Facilitate strong supervisor-employee relationships.

Police chiefs and managers in all five project sites agreed that the key to guiding officer behavior in the 

field mostly falls on the shoulders of first-line supervisors—in most cases at the rank of sergeant. First-line 

supervisors are critical for bridging gaps between the organization’s goals and its operations and are the 

direct line of communication to the officers who interact daily with community members. They are also in 

the best position to understand and influence officers. First-line supervisors play a key role in creating and 

communicating organizational culture and department expectations. They often are the persons best suited to 

create goals for officers and monitor whether officers are achieving the goals.

First-line supervisors can have a significant influence over how a police organization is perceived both within 

the agency and from the community’s perspective. The police chief and top managers provide direction and 

set policies and procedures, but sergeants have responsibility for operationalizing those directives. First-line 

supervisors also play a key role in maintaining quality control in policing and are frequently the highest 

ranking-officials that officers and residents interact with on a routine basis. 

Interviews and focus groups at each of the five project sites underscored the importance of the sergeant from 

the officers’ perspective. To officers, the sergeant is expected to be a leader, mentor, and counselor. It is the 

first-line supervisor who impacts the quality of an officer’s daily work life. Focus group participants said that 

the extent to which officers comply with directives depends largely on the degree to which they respect their 

supervisor. Officers commonly said they always do what is required, but they go above and beyond only for 

supervisors they choose to follow. 
38 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Officers believe a good supervisor is one who

•	 leads effectively;

•	 is decisive;

•	 listens with intent and sincerity;

•	 understands the role and responsibilities of the first-line supervisor;

•	 keeps officers informed about the organization (new policies, changes in protocols, opportunities for growth, etc.);

•	 clearly articulates what is expected of officers;

•	 communicates up the chain of command on behalf of officers;

•	 is able to recognize the strengths and weaknesses of each officer, and utilize that knowledge to build a strong team;

•	 provides officers opportunities to use their strengths, be creative, and perform beyond the status quo;

•	 coaches officers to address any weaknesses;

•	 allows officers to learn from mistakes;

•	 provides honest, timely feedback;

•	 encourages teamwork and support among peers;

•	 is fair and flexible in making assignments;

•	 understands that personal issues can impact work performance and responds with compassion and equitable treatment.

(A further discussion on the selection of first-line supervisors is included under recommendation 4 on page 49.)

The expectations of a first-line supervisor are high. The list in the sidebar attests to the importance of the 

sergeant in the daily lives of officers. And although this list is based on the perspective of officers regarding 

sergeants, many of these traits and practices can apply to other employee-supervisor relationships; employees’ 

performance tends to reflect the priorities of their immediate supervisor.

Effective employee-supervisor relationships can model positive interactions that the officer can then use 

when interacting with the community. These positive interactions facilitate partnership building with the 

community and problem solving – two components of community policing. The more positive interactions 

the community has with police, the more willing they are to cooperate as witnesses, victims, or partners in 

addressing community issues. 

During visits to the five project police agencies, officers, civilians, sergeants, lieutenants, and other police 

personnel were asked what supervisors can do to help employees do their jobs better. The research team heard 

a variety of responses about everyday practices that influence officers and other police employees. The examples 

that follow are practical ways to facilitate communication, provide support, build trust, and inspire employees.

Promising practice: Promote consistent two-way communication between supervisors and employees

 “We don’t train supervisors for the critical conversations that they have with our own people. 

Those conversations about expectations and performance are crucial to everything that we 

do as police agencies” 

—Minneapolis Police Chief Janeé Harteau
39 PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management

Police managers and officers told the research team that strong supervisor-employee relationships are built 

upon constant two-way communication. In the police focus groups, a number of benefits were identified.

First, open communications help build a rapport between supervisors and officers. A good rapport leads to 

greater confidence and trust in the supervisor, which will likely increase officer compliance with directives 

and suggestions. 

Second, communicating on both professional and personal levels allows the sergeant to know the strengths 

and weaknesses, preferences and aspirations, and personal concerns of an officer. This in turn helps the 

sergeant understand how to coach and influence that officer and create effective work teams. The sergeant is 

also better equipped to provide constructive feedback, recommend resources, and give guidance for further 

development such as training opportunities. 

Third, effective communication provides supervisors with direct access to field information. Daily 

conversations with officers can provide sergeants with more information and insight about problems in 

the community so they are better able to work with their officers to address them. If officers are operating 

effectively in a community and creating relationships, they are in the best position to understand the needs of 

that community. It is the supervisor’s role to ensure that this vital public safety information is passed on from 

the officer to others within the agency, to inform strategy and practices. 

Consistent two-way communication facilitates rapport building, a better understanding of one’s personnel, 

and information sharing about the field. With this information, sergeants will be better equipped to make 

personnel assignments and know what type of management style works best with each officer. When officers 

know their supervisor has a personal interest in them, they will be more likely to follow the sergeant’s 

directives and work with the sergeant on developing strategies, giving officers a sense of ownership over 

proposed solutions. Officers will become more self-motivated. 

Keys to Successful Communication about Performance 

1. Conversations (both formal and informal) between supervisors and employees should be timely and frequent. Do not delay in addressing an issue 

or needed change in behavior.

2. Messages should be clear, honest, and consistent.

3. Give the employee opportunities to speak openly. Dialogue involves more than one person.

4. Supervisors should provide consistent feedback, including constructive criticism and praise for a job well done when appropriate.

5. Supervisors should ask employees what they can be doing to help the employee perform better or grow.

6. If documenting verbal exchanges, ensure that both parties review and agree on the final document.

Case example: Minneapolis Goals and Metrics program promotes 

regular conversations

The Minneapolis Police Department’s current Goals and Metrics performance review system is an example of 

a new approach that formalizes monthly conversations among supervisors and between supervisors and their 

subordinates to improve the overall efficiency and effectiveness of the department. 
40 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

The Goals and Metrics program requires a monthly meeting of all unit supervisors to review the goals, results, 

and progress of the unit. Supervisors meet monthly to assess performance toward the annual goals established 

for their unit, to modify the goals as needed for the upcoming year, and to identify objectives for each 

subordinate on a worksheet.79 These worksheets are tailored to each employee’s job functions and professional 

aspirations and talents. On a monthly basis, all of the supervisors from each unit meet to review progress, 

discuss employee performance and attitudes, and plan for improvement. The primary goals of this program are 

to improve every unit’s effectiveness and to provide consistent and fair supervision to every unit member. 

The Goals and Metrics program started as a pilot program in one of the police precincts. The department 

tested and refined the program for a full year. Sergeants who were involved in the test reported that they 

learned a great deal about the people they supervised. 

The Goals and Metrics program met some resistance when it was implemented department-wide. Though 

some department employees expressed trepidation about the program during focus groups, this hesitancy was 

dismissed by employees who had participated in the program pilot initiative. One sergeant who participated 

in the pilot initiative assured his fellow focus group members that the program was not terribly timeconsuming, which had been a concern of many supervisors. He said, “If you’re a good supervisor, you’re doing 

these things already. This just formalizes it and gets everybody on the same page.” 

An important point is that these conversations are as much about the performance of the supervisor as of 

the person supervised. Supervisors are more closely monitored by their peers and superiors for their ability 

to lead and coach their squads using the Goals and Metrics program. These skills and abilities are then 

incorporated into the supervisors’ own Goals and Metrics worksheets. Formalizing the program also provides 

supervisors with an established structure to address problems or challenges with individual subordinates.

79. See appendix G for sample unit and patrol worksheets from the Minneapolis Police Department Goals and Metrics program.

Case example: Brooklyn Park Police Department debriefs after shifts

The Brooklyn Park (Minnesota) Police Department encourages sergeants to conduct end-of-shift debriefing 

sessions with the entire squad. Sergeants call officers into the station 20–30 minutes before the end of their 

shift to discuss the events of the shift. This meeting is an opportunity for supervisors to provide feedback in 

a relaxed setting. With no set agenda, the team may trade stories, banter, or talk through challenges. It allows 

officers an opportunity to unwind, and build personal relationships. 

This process also provides opportunities for more senior officers to hone leadership and coaching skills. One 

officer explained, “The debrief process encourages us to discuss improvements as a team.” Veteran officers 

offer advice and feedback on how a situation could have been handled differently or to highlight a situation 

that was handled very well. The process encourages informal mentoring relationships. The debrief process 

is also an informal time for entire shifts to grow comfortable with openly communicating with their peers 

and supervisors. “This way, if there is a thorn in somebody’s side, they feel comfortable enough going to the 

sergeant to discuss it. In this environment, there is no excuse for a sergeant not picking up on and handling 

personnel and performance issues,” explains one sergeant.
41 PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management

This practice may not be feasible for all shifts or all agencies; however, it is important for supervisors 

to actively look for these types of rapport-building opportunities. It may be worthwhile to explore the 

possibility of restructuring some schedules to permit these conversations. Sergeants may also be encouraged 

to conduct informal mid-shift or end-of-shift briefings in the community. This practice establishes a sense of 

transparency about police operations within the community.

Promising practice: Supervisors need to be visible to personnel, especially in the field

Several sergeants noted that they try to spend as much time as possible in the field, for example by providing 

backup on calls if needed or staying to debrief, coach, or praise their officers after a call has concluded. There 

are many benefits to being visible to employees. Sergeants see for themselves what is happening in the field 

and the ways officers interact with community members, respond to different types of calls, and work with 

other officers. Officers see the sergeant being active in the field, know that their sergeant is aware of what they 

are doing, and know that the sergeant is a resource to them. 

First-line supervisors understand the importance of being accessible to employees. Sergeants, lieutenants, and 

even captains or the chief of police sometimes make themselves available to fill in for an officer who needs to be 

off the street for a few hours for a special assignment, for a training session, or for personal reasons. This practice 

is very popular with officers, and it allows the supervisor or manager to interact with officers and maintain a 

familiarity with the current conditions of field work. In Minneapolis, police command staff are required to 

work in the field at least once shift each quarter and to select a different patrol function for each rotation. 

While there are many competing demands for a supervisor’s time, field presence helps to build trust and 

credibility with employees and can identify issues and prevent small problems from escalating. Police 

executives and command staff should assess the daily responsibilities and tasks required of first-line 

supervisors to ensure first-line supervisors are provided enough time to be available to employees. Does your 

sergeant-to-patrol-officer ratio need adjusting on certain shifts? 

Promising practice: Emphasize the value of personnel

Employees need to be valued for the role they fulfill and the efforts they make to excel. Every officer who 

performs his or her duty to the community and the department should be seen as a vital and valued member 

of the team. The quality of that teamwork depends on each member having appropriate relationships with 

colleagues, the organization as a whole, and the community. 

An agency following the principles of procedural justice treats all employees fairly and with respect, allows 

each to have a voice in the organization, and is open and transparent in its processes and decision making. 

Following these principles communicates a message that the department values its employees, and the 

expectation is that employees who are treated well are more inclined to treat the public similarly. Police 

executives and department managers can model these behaviors and make it clear that there is an expectation 

that all supervisors will do the same. 

It goes without saying that good sergeants get to know about their officers’ personal lives to some extent and 

demonstrate an interest in their welfare. For example, if a sergeant knows that an officer’s family member has 

a serious illness, the sergeant may make allowances in setting assignments. Given the competing demands on 

first-line supervisors’ time, some first-line supervisors are organized about making these simple gestures—for 

example, by using smartphone reminders about employees’ birthdays. 
42 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Another way to show that employees are valued is to seek their input on department functions and issues. 

In what ways are officers given the opportunity to voice their opinions or concerns about their position 

or the agency? In Arlington, Texas, Police Chief Will Johnson meets quarterly with line officers for open 

conversations. These meetings may have a few agenda items, but most of the time is spent in free-flowing 

discussions about the concerns or questions of officers. 

Other chiefs have established special committees of officers who represent their peers on various department 

issues. Like her predecessors, former chiefs Robert Olson and Timothy Dolan, upon her appointment as 

Minneapolis Chief of Police, Janeé Harteau hosted listening sessions where she gave every employee in the 

department opportunities to raise issues. She demonstrated that she valued the input she received in the 

listening sessions by using the information to shape the department’s new vision and goals. 

Promising practice: Recognize good performance

One of the primary challenges facing law enforcement in the area of performance management is how to 

reinforce and reward good performance and behavior. Municipal police agencies generally cannot give 

financial bonuses to officers for excellent work, but other forms of positive reinforcement can be effective. 

There are many ways to acknowledge good performance outside of a formal review. One valued practice of 

supervisors is to recognize officers during roll call. Taking a minute to tell officers that they did a good job 

handling a challenging call or taking initiative to work with community members is a simple way to show that 

their work is valued. Supervisors can collect positive messages or accolades from the community regarding an 

employee’s performance or ask officers whether any of their colleagues deserves recognition. The sergeant can 

then notify the lieutenant, captain, or higher ranks about an officer’s exceptional performance so the officer 

can be recognized in more formal ways. 

In one department, when a commendation was to be made, a sergeant would arrange for the lieutenant 

or captain to make the award and would arrange for a photographer to be present. Other departments’ 

recognition may be as simple as the lieutenant or captain writing an e-mail to the officer or stopping the 

officer in the hall to say that they had heard the officer was doing good work. 

Recognition is an important practice for all supervisors. A chief who routinely comments on officer 

performance is sending the message that he or she knows what is going on in the organization and expects 

to be informed. This in turn creates the expectation that managers and supervisors will be aware of employee 

activities and relay this information to their supervisors.

For example, when serving as chief of the Brooklyn Park (Minnesota) Police Department, Michael Davis 

(currently the Director of Public Safety at Northeastern University) sent out voicemail messages every two 

weeks to all employees highlighting good work and service. The chief ’s voicemail messages allowed staff to 

hear about current events within the organization and reinforced positive officer behaviors. Additionally, 

since first-line supervisors submitted the examples to the chief, the practice served as an accountability 

mechanism for building a consistent connection between supervisors and those personnel they supervise. “It’s 

important that all of the employees hear my voice,” Davis said. “Anyone could write an e-mail to go out under 

my name, but hearing my voice, the employees know that I took the time to learn about their work, craft a 

message, record it, and send it out.” 
43 PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management

Recommendation 3. Performance management approaches should emphasize career and talent 

development at all levels 

This section reviews employee development practices from private sector companies as well as from the 

police field that can be adopted by police agencies to support internal procedural justice goals. Well-run 

police agencies help officers focus on their career goals and leadership development. Top policing executives 

recognize that investing in their personnel creates a number of benefits, including improving employee 

motivation and job satisfaction, cultivating talent to fill the department with well-qualified persons, 

encouraging department continuity, and ensuring innovation in policing and delivering quality service. As 

Davis said, “We [police chiefs] have a business interest in figuring out how to engage and get the best out of 

every employee. As public-sector budgets constrict, we can’t afford not to.” 

Promising practice: Teach supervisors coaching skills as part of their leadership development

The private sector invests significant resources in researching and implementing ways to get the best 

performance and outcomes from their employees. One area of focus concerns the interpersonal skills of 

supervisors. Companies create processes that include employees in making decisions about their work and 

careers. As a result, there is a focus on supervisors and how they are expected to interact with their employees. 

Target Corporation, a partner in this project, has developed a collaborative coaching model to encourage 

supervisors (known as coaches) to help their employees accomplish their goals, meet business unit 

expectations, and develop competencies. The model includes four main steps, as shown in figure 5: (1) make 

observations, (2) provide feedback, (3) define goals and expectations, and (4) create action plans. 

Figure 5. Target’s collaborative coaching model

Observations

Goals/Expectations

Action plan Feedback

A key skill that Target training emphasizes with its coaching model is listening. Supervisors use questioning 

to gain insight from employees and help lead them to decisions and actions. But perhaps even more 

important is the supervisor’s ability to listen to the employee, which can be a much more difficult task than 

many expect. Some suggestions for being an attentive listener include removing distractions (e.g., turn off 

your computer monitor and silence your phone), completing your current task (e.g., finish the e-mail you 

are currently working on so you can focus on the person who has come to speak with you), and providing 

parameters (e.g., let the person know how much time you have to listen). These techniques let the employee 

know that the supervisor respects them and is sincere about giving them an opportunity to speak. 
44 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Many police officers already practice a number of these listening skills as they interact with the community, 

which contributes to a sense of external procedural justice—a feeling by community members that the 

police are interested in what they have to say. These types of listening skills also are important for internal 

procedural justice—where supervisors show respect for their subordinates’ opinions and views. 

Other companies have a coaching philosophy rather than traditional management approaches. If an 

issue arises over poor performance by an employee, the coaching model encourages supervisors to find an 

opportunity to discuss the issue, perhaps during a regular planning session or when the issue needs immediate 

attention. Next, supervisors gather information about the problem or situation and identify any disconnects 

between performance and expectations. It is critical to focus on the problem as hand, not on the employee. 

Together, the supervisor and employee identify options and agree on next steps with both committing to the 

plan and tracking progress for accountability. The supervisor’s or coach’s role in this model is to ask questions 

that lead the employee to figure out solutions for themselves.

Applying coaching behaviors to police supervisors aligns with many of the concepts already discussed in 

this report, including the importance of communication, showing interest in employees and building trust, 

and giving employees a voice. When a performance issue is noted, the sergeant can guide the officer, using 

coaching and listening techniques to help the officer understand how to improve the performance through 

actionable steps, and making the officer part of the decision-making process. These steps may include 

the supervisor offering more time one-on-one for instruction, or allowing the officer to participate in a 

training session. 

Promising practice: Encourage mentoring to promote growth opportunities

The terms “coaching” and “mentoring” are at times used interchangeably, but for the purpose of this guide, we 

will make the distinction that coaching is a supervisory practice, while mentoring programs pair employees 

with more experienced employees other than the direct supervisor. A benefit to having a mentor who is not a 

direct supervisor is that a relationship outside the chain of command is more likely to be relaxed and open. 

During PERF’s 2014 webinar, in which the research team provided a preview of our findings for feedback 

to a national audience, 92 percent of the responding participants agreed that a formal mentorship program 

would aid in personnel development within their agency. A mentorship program pairs a new officer or 

other police employee with an experienced officer who teaches the rookie about the job, provides guidance 

on appropriate behaviors and department expectations, and helps the less experienced officer develop the 

necessary skills for success and advancement. Mentoring can also assist with succession planning within 

a department as employees are educated over the span of their career, which helps them to make smooth 

transitions and fill positions as veteran employees retire. 

Mentoring can have many benefits, including increased organizational commitment by the employee80 and 

a decrease in turnover.81

80. Samuel Aryee and Yue Wah Chay, “An Examination of the Impact of Career-Oriented Mentoring on Work Commitment Attitudes and 

Career Satisfaction among Professional and Managerial Employees,” British Journal of Management 5, no. 4 (December 1994), 241–249.

81. Melenie J. Lankau and Terri A. Scandura, “An Investigation of Personal Learning in Mentoring Relationships: Content, Antecedents, and 

Consequences,” Academy of Management Journal 45, no. 4 (August 2002), 779–790.

82. Stephanie C. Payne and Ann H. Huffman, “A Longitudinal Examination of the Influence of Mentoring on Organizational Commitment 

and Turnover,” Academy of Management Journal 48, no. 1 (February 2005), 158–168.

Mentoring can be done informally (with no structure or organizational support), 

but research as shown that a formal program may produce higher levels of “affective commitment”82 (an 
45 PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management

employee’s emotional attachment, identification with, and involvement in an organization).83 Police 

departments that create formal, supervised mentoring programs will produce consistent roles and 

responsibilities among mentors. 

Mentors need to be carefully selected. Mentors should be experienced, articulate, honest, and supportive, and 

they should not be so busy that they have little time to give to their mentees. Mentors need training and a 

support system that allows them to share experiences and discuss issues with other mentors. Managers should 

collect feedback from the mentees to track progress and make adjustments as necessary. 

A mentoring program can benefit police department in a number of ways, including

•	 retaining valued employees;

•	 improving leadership and managerial skills;

•	 developing new department leaders;

•	 enhancing career development efforts by the department;

•	 increasing employees’ technical knowledge;

•	 communicating department goals and vision; 

•	 increasing accountability among participants;

•	 reducing employee stress.

83. John P. Meyer and Natalie J. Allen, “A Three-Component Conceptualization of Organizational Commitment,” Human Resource 

Management Review 1, no. 1 (Spring 1991), 61–89.

Case example: Los Angeles Police Department mentors potential hires 

Many studies demonstrate a link between mentoring and employee commitment.84 The Los Angeles Police 

Department (LAPD) understands the importance of mentoring not only for retaining employees but also 

for recruiting the best possible candidates for police officers. The LAPD recruitment website features a list 

of vetted police officers who are available to serve as mentors to potential applicants. The LAPD recruitment 

mentors may assist candidates by

•	 providing information about recruitment events where applicants’ questions may be addressed;

•	 assisting in filling out documentation and preparing for tests;

•	 helping applicants prepare for the police academy;

•	 providing information regarding what to expect as an LAPD police officer.85

The LAPD lists a diverse group of mentors on its website with varying professional and personal histories and 

perspectives. Potential applicants are able to read a biography of the available mentors online, where they will 

also find e-mail and telephone contact information. The recruitment website offers a variety of days and times 

when potential candidates may meet mentors in order to discuss any part of the hiring or academy process. 

The department also offers a candidate assistance program (CAP) to better prepare recruits for what they will 

encounter during the police academy. Candidates who participate in CAP and choose to contact a mentor 

will know exactly what to expect when they begin training. 

84. Payne and Huffman, “A Longitudinal Examination” (see note 83).

85. “Join LAPD,” City of Los Angeles Personnel Department, accessed December 30, 2014, http://joinlapd.com/meetamentor.html.
46 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Promising practice: Use an individual development plan (IDP) as a personalized tool for employees

An individual development plan (IDP) is a structured document used to identify employee goals and 

establish actionable steps for achieving them; it is a tool to help facilitate ongoing discussions between 

supervisors and employees. An IDP can be a stand-alone tool, or it can be folded into a performance review 

process. Many professional groups, including academia, government, the military, and medical professions, 

use IDPs to assist with employee growth and development. 

The foundation of an IDP rests on a joint effort between an employee and his or her supervisor. The 

instrument is meant to be personalized to fit the needs and wants of the employee and can be adjusted to 

address short-term goals related to their current work and position, or long-term career goals. The key is to 

treat the instrument as a living document that is constantly updated as goals are achieved or revised. How 

frequently the IDP will be reviewed should be agreed upon by the supervisor and employee at the outset of 

the process. This is accomplished through collaboration and ongoing discussions between the employee and 

supervisor about expectations, goals, skills, obstacles, successes, etc.

Figure 6. Individual development plan process

Assess/Gather

Information

Discuss with 

Supervisor

Implement

Actionable Steps

Draft/Revise

Written IDP

Across the majority of IDP models, the general process, as shown in figure 6, is: (1) assess, (2) draft, (3) discuss, (4) implement, and (5) repeat. In step 1, employees assess their current skills, knowledge, experiences, 

education, strengths, interests, work history, etc. They may also think about their current position and 

responsibilities. Are they excelling in their assigned tasks? Do they need a new challenge? What are their 

short- and long-term goals? The more time and effort the employee puts into the assessment step, the more 

informed the employee and supervisor will be in deciding how to move forward and in what direction to go. 

Using the assessment information, the employee and supervisor draft an IDP. The IDP allows the employee 

and supervisor to work off the same instrument and facilitates discussion about realistic goals, ways of 

integrating agency directives, and various options or methods for progressing. The IDP should at a minimum 

identify employee goals, actionable steps and activities for achieving those goals, a date for evaluating 
47 PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management

progress, and for a means of review and feedback. The instrument may also include a list of resources 

available to the employee. In policing, the IDP form can be tailored to the needs of the police agency and 

then personalized to fit a specific employee.86 It is also important to note that these steps can be completed 

separately or combined with other steps. For example, employees can create an initial draft alone or write 

it with their supervisor. Or the instrument can be tailored to include a self-assessment section to guide the 

employee, combining steps 1 and 2. 

86. See appendix H for a sample IDP form.

Prior to implementing the IDP, a supervisor may ask questions such as the following:

•	 Is the employee’s self assessment of his or her skills, knowledge, training, and strengths accurate?

•	 Are the employee’s goals realistic?

•	 Is the desired timeline for achieving goals realistic?

•	 What training or resources will the employee need to meet his or her goals?

•	 Are there any alternatives or options that the employee has not considered?

•	 How do the employee’s desires and goals align with the agency’s goals?

•	 How can I be supportive in the employee’s efforts as a supervisor?

The supervisor offers guidance and advice until a final plan of action is agreed upon. Communication and 

collaboration are critical to the employee having a voice in the plan, and to the supervisor expressing an 

investment in the employee’s success. 

Finally, the plan is implemented and the employee begins taking the agreed-upon action. Implementation 

can take place over a few weeks or a few months, but it is important to establish a timeline for completing 

the tasks, and to set a specific date or timeframe for the employee and supervisor to discuss and evaluate the 

progress being made. When this discussion occurs, a number of questions can be addressed, including:

•	 What steps have been completed?

•	 What resources did the employee utilize?

•	 Did the employee face any challenges and overcome them? How?

•	 Do the employee’s goals need to be adjusted in light of the challenges or any new circumstances or 

developments?

•	 What will be the employee’s next goals and actions?

The supervisor and employee assess what tasks have been completed and determine if additional steps are 

needed and if the goals should remain the same or be altered in some way. The employee then revises the plan 

if necessary and thus brings the process full circle.

IDPs are a relatively simple method of facilitating conversations between employees and supervisors and 

for tracking personnel development. The process gives a voice to the employee, provides clear parameters 

to follow, and, if done correctly, fosters a relationship of mutual respect. It also facilitates transparency 

because employees should be well aware of the expectations they are being held to and how they will be 

measured. If first-line supervisors and other supervisors are in need of a tool to help them initiate meaningful 

conversations and build relationships with employees, an IDP may be a structure for those efforts. 

Supervisors should receive training on how to use the IDP process, and accountability measures need to be in 

place to ensure that all employees are able to benefit from this tool.
48 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Promising practice: Explore the 360-degree evaluation process as a leadership development tool

Many private sector companies use a 360-degree evaluation, in which multiple people within the company 

provide input on the performance of an individual employee. This may include feedback from supervisors 

(direct or otherwise), peers, employees, customers, and the person who is the subject of the evaluation. 

The concept is based on a more holistic view of an employee’s performance rather than on the perceptions 

of only one or two people. By including more sources in the process, the agency potentially increases the 

credibility and accuracy of an employee’s performance evaluation. However, this type of multi-rater model 

can be complicated. For a 360-degree evaluation to be accurate and effective, it is critical that all raters or 

participants understand the process and be adequately trained on how to provide constructive feedback. 

The applicability and usefulness of a 360-degree evaluation in the context of a police agency will largely 

depend on the circumstances of each individual department. While some law enforcement agencies may find 

this type of evaluation beneficial and relatively easy to conduct, others may decide it does not fit well within 

their organization. Some agencies may find that it is not useful for all officers or employees but is perhaps 

better used as a tool for specific units or divisions within the department (see figure 7 for PERF’s polling 

results from webinar participants on the usefulness of a 360-degree evaluation). Others may find that this 

evaluation can help inform the promotional process and decision making. A 360-degree evaluation could be 

used as a developmental assessment in which the focus is on the employee’s skills and behaviors as they may 

apply to tasks and responsibilities in a future position.87 It can be a way to identify those seeking advancement 

within the agency. Employees who are willing to go through this type of rigorous assessment and use the 

feedback constructively could be placed on a leadership track for further development. 

Figure 7. Polling results from PERF’s 2014 webinar on performance management: 360 evaluations

0

5

10

15

20

25

30

35

A 360 Degree Evaluation would be useful in my agency for...

16% 16%

6%

34% 33%

All Personnel Promotional

Purposes Only

Specific Ranks,

Units, Divisions

This type of 

evaluation 

is not useful

This type of 

evaluation 

is not feasible

87. John W. Fleenor and Jeffrey Michael Prince, Using 360-Degree Feedback in Organizations: An Annotated Bibliography (Greensboro, NC: 

Center for Creative Leadership, 1997), http://www.ccl.org/leadership/pdf/research/Using360Feedback.pdf.
49 PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management

Tips for Implementing New Career and Growth Development Tools and Programs

1. Include employees and supervisors in various parts of the development and planning process. Allow them to provide suggestions and feedback.

2. Link the purpose of the program to the mission of the organization.

3. Create clear guidelines and plans before implementation of a new approach. Who will use the tools or participate in the programs? What are the 

parameters or rules of engagement? What oversight will be necessary? How will you collect feedback and measure success? Is a pilot program a 

viable option? 

4. Draft the forms and/or tools the employees and supervisors will need. Make sure the forms and tools are easily accessible and marketed. Provide a 

mechanism for personnel to give feedback on the forms and tools and refine them as needed.

5. Determine what training will be necessary for supervisors and/or employees to participate in a new program or to use the development tools. 

When should the training be completed? How often should the training be completed? How will you determine if the training was effective? 

6. Practice transparency. Let your personnel know what is being developed and how. Provide updates on the program’s development and 

implementation. Allow personnel to ask questions about the program and tools, and be ready to share how and why decisions were made. 

Recommendation 4. Focus on the selection and training of effective supervisors

During several of the project interviews, officers complained that the right people were not being promoted to 

sergeant in their organization. Some said that people who would make good sergeants don’t bother to apply, 

because they see that people who they consider the wrong people are promoted. Do departments consider 

what qualities officers think a good sergeant should have when making promotions?88 Are officers promoted 

to sergeant because of their leadership skills, interpersonal skills, and experience? Or is textbook knowledge of 

department policies the primary qualifier? Do departments promote people who are seeking greater influence 

and fulfillment in more responsible positions—or people who are only interested in getting a raise? 

Seek Input from Union Leaders When Considering Changes to the Promotion Process

While not all police agencies have police unions, many have operated in a collective bargaining environment. In some departments, the promotion 

selection process is heavily influenced by agreements made with labor unions. In unionized departments, chiefs must include labor leaders in the 

discussions as the agency explores ways to improve the promotion process. This allows for different perspectives to be considered, builds rapport with 

union leaders and those they represent, and increases the likelihood that the union will support any changes to the process. Even if a union or employee 

association does not legally have a say in the structure of the promotion process, including employee representatives in the discussions will demonstrate 

transparency and openness, and allow police leaders to gain valuable input.

Promising practice: Actively recruit qualified supervisors

The active recruitment of sergeants is not something that is discussed frequently in police agencies. Most 

departments assume that people who are interested in promotion will apply and go through the process if 

they feel they meet the qualifications. But organizations might end up with more effective supervisors if they 

consciously began to identify and encourage officers (including field training officers) who have the desirable 

traits for the position. 

Sergeants are often in the best position to identify officers who could be the best candidates for promotion to 

sergeant. And sergeants can play a role by encouraging the people they consider well-qualified to apply for the 

promotion. In a department that has a performance management system in which supervisors are expected 

to have discussions with officers about their career goals, it is natural to ask officers whether they have 

considered becoming a sergeant and whether they have any questions about the role or the process. 

88. See page 38 for a list of perceived characteristics of a good first-line supervisor or sergeant.
50 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

A practice that has helped identify potential good promotes at the Minneapolis Police Department is 

detailing. Detailing is when a sergeant (or other supervisor) is gone for a week or more, and a promising 

person from the rank below takes on that position in the supervisor’s absence. It is an opportunity to see how 

that person performs at the higher rank, and they get a taste of that position. 

If a department’s managers have a clear idea of the requirements and qualities they are seeking in supervisors, 

a list of these qualities can be developed and shared throughout the department. (The list would have the 

additional benefit of reminding current supervisors of the qualities they are expected to exhibit.) Officers can 

be paired with mentors and given reading lists of books that would expand their understanding of the firstline supervisor’s role before they enter the promotional process.

What Discourages Officers from Applying for Promotion?

In looking at ways to enhance recruitment of sergeants and other supervisors, departments should consider whether there are aspects of the position 

or promotional process that discourage applicants. Some respondents told us they would not wish to give up their seniority for shift and geographic 

assignments, which they would have to do if they became sergeants. These are people who might make good supervisors but are more interested in the 

quality of life for themselves and their families than in climbing the career ladder. Police leaders should ask themselves whether these types of issues 

are limiting the number of good candidates in their department and whether there are other barriers that keep qualified candidates from applying for 

leadership positions. 

Unfortunately, current research on police attitudes toward promotion is lacking. One study conducted in the late 1990s found that officers did not 

view a promotion as something that would significantly contribute to their lives, and the authors partly attribute this sentiment to the good pay and 

benefits officers were receiving in their current positions.* Are there any remedies that police executives and managers can provide to eliminate barriers 

and increase the appeal of supervisory positions? Law enforcement agencies may consider special or advanced training opportunities, education 

reimbursement, or schedule flexibility specifically for sergeants or other supervisors to make the prospect of a promotion more desirable. While intrinsic 

motivation is important in candidates for promotion, agencies must also address the practical needs of candidates.

*

 Kathryn E. Scarborough and Larry K. Gaines, “An Examination of Police Officers’ Motivation to Participate in the Promotional Process,” Police Quarterly 2, no. 3 (September 1999), 

302–330, http://pqx.sagepub.com/content/2/3/302.full.pdf.

Promising practice: Ensure the supervisor selection process is fair and valid

There are a number of methods police managers use to select candidates for promotion, including various 

tests, assessment centers, and interview panels. But the vast majority of departments have some form of 

written exam that dominates the decision-making process. In many police organizations, the exam score itself 

determines whether the candidate is promoted or not. By union contract or directive from the city personnel 

office, the chief may have to select from among the top specified number of scores. Some chiefs simply select 

the top-scoring candidate, while others make their decision based on the desirable traits for supervisors. 

There are some agencies that rely on input from the officers’ peers and supervisors, in addition to testing and 

other measures. Officers in PERF’s focus groups said that they would appreciate the opportunity to weigh 

in on the selection of first-line supervisors. A working group member, Chief Michael Masterson of the Boise 

(Idaho) Police Department, said that he selects the top three candidates based on written test scores and an 

assessment lab and allows the candidates to be evaluated by their peers through a computerized survey that is 

distributed to all 400 employees, sworn and civilian. When the process was begun in 2004, the chief typically 

received about five responses for each candidate. Interest has grown, and since 2011, the average number of 

evaluations per candidate has been 75. The command staff has been impressed with the quality of candidates 

produced through this process, and the union has agreed that the officer survey input should constitute 10 

percent of the final rankings.
51 PART II. Recommendations for a Procedural Justice-Infused Approach to Performance Management

Police executives should take the time to reevaluate the processes and outcomes of their promotion processes. 

How is your agency defining and measuring effectiveness for first-line supervisors? Are you really promoting 

the most effective sergeants? How do you know they are effective? Does your promotional assessment include 

measurements of leadership traits? What changes can be made to your system to help you get the results 

you’re looking for and ensure that the process is fair, transparent, respectful of the candidates, and allows for 

stakeholders (officers, current sergeants, police management and leaders, civilians, etc.) to have a voice? 

The goal isn’t just to select the right people for promotion, but also to ensure the process used for selection is 

perceived as fair and valid. 

 “A chief’s focus always should be on making folks as good as they can be, and then recognizing them 

for their accomplishments.”

— Former Minneapolis Chief Robert Olson89

Promising practice: Train sergeants on how to be effective supervisors

After selecting the most qualified candidates to be promoted to sergeant, training is provided to ensure that 

new first-line supervisors fully understand their role and responsibilities and have mastered the skills to 

effectively manage and lead officers. Police agencies should review the training provided to sergeants and seek 

feedback from experienced sergeants and the newly promoted. Do they believe that the training they received 

provided the information and skills they need to do the job? Also seek input from above and below, i.e., 

from lieutenants and officers. Do they think there are areas where sergeants need more training? Is refresher 

training needed? In what areas do sergeants feel they need more training? What resources are available to 

sergeants looking to improve their management skills? Consider implementing a long probationary period (a 

six-month minimum) for newly promoted sergeants to allow time for evaluating and rectifying any issues. 

Consider existing supervisory training programs through the lens of procedural justice. If supervisors are to 

treat officers fairly and with respect and give officers opportunities to voice their opinions, they will need 

to be trained in those skills. For example, one of the most critical skills of a good sergeant is the ability to 

communicate clearly and effectively. Supervisors are often asked to solve complex issues solely through 

interpersonal communication. By breaking communication down and identifying concrete factors associated 

with effective communication, interpersonal skills can be improved. Learning to incorporate procedural 

justice components into daily interactions could further improve communications. 

Some organizations actively train personnel on how to communicate effectively as part of their supervisory 

training. This training has the potential to yield a number of benefits, including successful messaging within 

the department, fostering supervisor-employee relationships, effective management of personnel, and more 

positive interactions internally and externally in the community. 

In today’s environment, police are facing increased scrutiny and are under tremendous pressure to change 

how they interact with the public. Comprehensive training that incorporates procedural justice principles 

for all police personnel will be essential to rebuilding community trust and confidence in the police in many 

communities. How first-line supervisors are trained is particularly important given the impact they have 

on guiding officer behaviors. These supervisors must be given opportunities to build these skills in order to 

effectively lead, manage, and develop officers who model the same principles in every interaction they have 

with the community. 

89. Leadership Matters: Police Chiefs Talk about Their Careers, ed. Craig Fischer (Washington, DC: Police Executive Research Forum, 2009), 62.
52 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Photo: a katz / Shutterstock.com
PART III. Moving from a Traditional Performance System to 

One Based on Principles of Procedural Justice: Practical 

Considerations and Next Steps

“Treat your officers with respect and as professionals...Be as transparent with and accessible to your 

own officers as you are with other department stakeholders...Communicate effectively with them. 

Let them know what you are doing, and why you are doing it. Give them an opportunity to have input 

on action that will have a direct effect on them...When there is a disciplinary problem with an officer, 

keep your command staff in the loop. They are the direct link with your officers. And if they understand 

and support your actions, there is a better chance that your officers will understand as well.” 

—A summary of tips from 25 leading police chiefs about how to treat officers90

Making changes to any system within a police department can be a complex and challenging task. In this 

section, six experienced police chiefs provide insights from their own perspective about how to introduce 

procedural justice into performance management. 

90. Ibid., 91.

Police chiefs can engineer their performance management systems 

By Michael Davis, Director of Public Safety, Northeastern University

There are a number of challenges that a police chief must address when looking at performance management. 

First, he or she must identify what the organization is trying to accomplish and understand how to make it 

successful. Many police agencies establish outward goals that focus on external issues but not necessarily on 

the internal workings of the department. Policing is a complex job that requires innovation and initiative. 

Chiefs often think about what they expect of officers, but they also need to be intentional in looking 

at personnel as individuals with specific abilities, skills, and interests. Organizations are at their collective 

best when their members are free to contribute their strengths, talents, and passions for the betterment 

of the whole. 

Second, chiefs need to acknowledge that the paramilitary structure under which police departments work 

is not inherently set up to support an individualized approach to personnel development. Thus, the focus 

should be placed on relationships within the organizations, especially the quality of relationships at the first 

line level. When people leave an agency, they often say, “I’m going to miss the people here.” The chief should 

also want them to miss the organization itself and what they were part of.

Last, police departments can leverage the talent of their personnel by creating opportunities to voice ideas. 

Facilitate innovation by creating space for personnel to come up with their own ideas and execute them. 

It is the chief ’s and other department leaders’ responsibility to let officers have some control over their 

own experiences and trust in their discretion. But the leaders’ job is also to provide feedback. Chiefs need 

to change the conversation to make performance management part of the department’s daily business so 

individuals are constantly learning and growing.
54 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Ultimately, chiefs engineer the system to get the behavior they are looking for.

The performance of first-line supervisors is directly impacted by the support of the organization’s leaders. 

Research indicates that efforts to increase perceived organizational support can increase levels of work 

engagement by employees.91 Therefore, supervisors will be more effective in engaging their employees if they 

have strong institutional backing and buy-in from the chief and upper management. 

91. Timothy Forber, “A Field Study of Employee Engagement in the Police Service,” executive MBA thesis, Durham Business School, 2010.

Closing thoughts on procedural justice in police management

By Tim Dolan, Chief (retired), Minneapolis Police Department

Focus evaluations on employee performance and growth 

Police departments tend to try to do too much with evaluations. A good working evaluation should 

document a discussion about accomplishments, needs, and goals. It is not meant to replace a disciplinary 

process or “score” someone for a promotion. Evaluations can be used as supplemental documentation for a 

recommendation of discipline or promotion—but not as the main tool. Using one tool for too many things 

muddies the waters. First, decide the main goal of the evaluation. Second, determine if the evaluation can be 

used in other processes. If so, great; but if not, find a way to do secondary evaluation processes outside the 

performance evaluation. Don’t sell away the main goal of procedural justice for other operational needs. 

Create policies that mandate supervision practices

If a supervisor has no real duties to supervise officers in the field, they will seldom be able to act as a 

supervisor in a performance rating. For example, mandating a supervisor response to all vehicle chases and 

uses of higher levels of force changes the relationship between officers and sergeants. Sergeants are required 

to approve the continuance of a chase, to respond to the scene, and to make a preliminary report on the 

appropriateness of the chase. They also have to respond to any scene where deadly force was threatened 

or where someone was injured badly enough to need medical treatment. Those supervisors are then held 

accountable for the performance of their officers. It is tough at first, but supervisors soon become real 

supervisors, and officers change as well, because they knew the sergeant is coming to the scene. 

Chiefs should talk regularly with employees at all levels

As a chief, having regular sit-downs with officers, sergeants, lieutenants, command staff, and civilian 

employees is a good idea. Chiefs should make sure to attend roll calls, training sessions, shift meetings, and 

other events to discuss issues. 

This is especially important when controversial discipline decisions have been made in the department. 

Officers respect a chief who will talk to them openly about these decisions. It cuts down what they hear 

from the rumor mill. When publicly criticizing how precinct officers handle an arrest captured on video, go 

to them and tell them why. Listen to them. In one incident, officers were being trained to use punches and 

kicks for submission. It ended up being necessary to change both the instructors and the training itself. The 

officers were not held to blame. It was their training that failed. That went a long way toward keeping a good 

relationship with police officers, and it all came from a roll call discussion.
55 PART III. Moving from a Traditional Performance System to One Based on Principles of Procedural Justice: 

Practical Considerations and Next Steps

Chiefs can be leaders in performance management

 By Will Johnson, Chief, Arlington (Texas) Police Department 

Integrating procedural justice into all aspects of policing is achievable, but it takes years of stability to 

reinforce the concept. After 21 years of experience in law enforcement, nothing has been more resolute in 

expressing the core values of the profession than procedural justice. It should be central to everything that 

police do.

This publication can be used as the impetus for change in police organizations. Police agencies can start 

an internal conversation about how to shift performance management and measurement. Many police 

departments may be locked in to the performance evaluations provided to them through their city 

administration. But it is important to recognize that performance management is tied to every system within 

a police department. Chiefs should be prepared to build on their current systems. The proposed methods in 

this guidebook are useful because they are flexible enough to be scaled to fit the needs of any size department.

Police executives can be the leaders in performance management and should bring citywide human resources 

practices along as well.

Why chiefs should use this guidebook

By Charlie Deane, Chief (retired), Prince William County (Virginia) Police Department

This guidebook is an insightful orientation to the value of incorporating the new concept of procedural 

justice into internal and external performance measures in policing. It provides a strong theoretical basis 

and practical examples for police leaders to use in assessing the alignment of their performance management 

systems and implementing meaningful and focused change. 

This book provides police leaders fresh ideas about how to communicate internally and with the public about 

what the agency views as important. Whether focused on individual or overall organizational performance, 

what an agency measures is essential to good policing. A meaningful performance management system is 

hard to establish. This is especially true in police agencies that support community policing concepts while 

being measured by traditional performance indicators, such as crime rates, response times, arrests, and 

summonses. 

The guidebook argues that community policing needs to move beyond a focus on counting things to 

measuring success in terms of community trust and confidence in the police, which results from officers’ 

commitment to fair and impartial policing. By thoughtfully incorporating the principles of procedural justice 

(fairness, voice, respect, and transparency) into performance management systems, police leaders have an 

opportunity to refocus agency and public attention on the highest goals of police service and community 

well-being. 

So how do police leaders expect officers and support staff to accept new performance measures based on 

these broad concepts that can be difficult to articulate? It is fundamental that officers who are expected to 

treat others with fairness and respect receive that same level of treatment themselves. In that regard, this 

guidebook suggests that open communications between officers and supervisors and fairness in assignments, 

promotions and discipline can go a long way in establishing the necessary environment for change. And front 

line supervisors are key players in implementing and maintaining the new expectations. 
56 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Some agencies have successfully implemented more frequent reviews of individual performance plans as a way 

for sergeants and officers to better communicate and agree on desired outcomes and how progress should be 

measured. One caution regarding more frequent formal evaluations is that care must be used not to overburden 

supervisors (especially sergeants) with more administrative responsibilities when they need to be on the street 

and available to their squad and the public. Some departments have reached a proper balance in this area. 

This publication is an important resource for progressive police leaders and will become a touchstone for 

innovative change in policing. And police chiefs will find the guidebook to be a useful as a reference for their 

managers and supervisors. 

“The real work (in a police department) is done by the young men and women who drive the radio 

cars, who answer the phone, who talk to the public. Our job (command staff ) is to make their job 

possible. I’m not diminishing the chief’s role, but it’s important to remember that it’s not about you, it’s 

about the officers who do the real work.” 

—Former Pasadena (California) Police Chief (and former COPS Office Director) Bernard Melekian92

92. Leadership Matters, 13 (see note 90).

Institutionalizing change

By Janeé Harteau, Chief, Minneapolis Police Department 

You can expect resistance to change

It is feasible to effect large-scale change in performance management in policing, but it takes time and 

patience. Going into it, you should know that you will meet resistance from the rank and file and the 

union (even when they agree with why the changes are necessary). To address this, stay consistent with 

your message. In Minneapolis, the message is that these changes are not just a matter of holding people 

accountable to high expectations. The changes are also about improving the overall performance of the 

department, creating more consistency in evaluations, and improving the supervision skills of our supervisors.

Engage your supervisors and set the example

Transforming performance management is a lot of work for a chief. You have to be engaged and lead the 

charge the whole way. But it cannot just be your executive team that is on board with changing performance 

management. Bring your lieutenants and sergeants into the conversation early on. By engaging them early, 

you make sure the message is not watered down. Make sure that all of your supervisors know why you are 

implementing changes as well as how the changes are being implemented and what is expected of them. 

During your first evaluation period under a new practice, make sure that evaluations start at the top of the 

chain of command. Set the example by being the first person to complete an evaluation using the new system.

Invest in your supervisors

As a field, police departments have not done a great job of training supervisors in how to supervise. A chief has 

to be willing to invest financially in improving performance management. Sometimes that requires training 

and other financial burdens. You can explain to your city council that these up-front investments mean better 

job performance, fewer lawsuits, and other benefits. These short-term investments yield long-term results. 
57 PART III. Moving from a Traditional Performance System to One Based on Principles of Procedural Justice: 

Practical Considerations and Next Steps

Procedural justice addresses the frustrations of our communities today 

By Robert C. White, Chief, Denver Police Department 

One of the great challenges we face today is that while policing as a profession has changed and evolved, 

police officers have not changed along with it. To effectively change policing, a chief must focus on changing 

the culture, and this is hard to do. However, there is a paradigm shift starting to appear in policing, and 

procedural justice is a critical part of it. 

In Denver, the police department must do a better job of incorporating procedural justice into the 

performance evaluation system. The department needs to do a better job tracking and measuring how 

individual officers interact with citizens. Officers need to view citizen contacts as customer service 

opportunities. It is critical that the police department ensure that the community has the ability to observe a 

measurable commitment to customer service. And it is most often not what an officer says but how they say it 

that citizens remember.

“What separates leading private industry companies from current law enforcement practice is the 

private sector’s overall focus on customer relations management. Police tend to look more at service or 

what we do and provide, whereas private sector companies focus on satisfaction or the perception of 

the service recipient.”

—Larry Moser, consultant on police leadership and training

Police are under enormous scrutiny and are criticized because many in the community believe that officers 

break the law and get away with it. In some incidents, officers’ actions were legal but may not have been 

the most appropriate response to the situation. There is a disconnect between what is technically legal 

and what is the best application of authority. Citizens ask if actions of the police were truly necessary. 

It is law enforcement’s responsibility to answer that question by taking a closer look at how officers are 

making decisions and then incorporating the department’s values—weighed against those decisions—into 

performance management. 

Here is a scenario to consider: An officer watches a woman park her car too close to an intersection and 

then walk into a church. The woman later comes out and finds a parking ticket on her car. The officer had 

a number of options available. He had the legal right to give her the ticket. He could have ignored the 

infraction. Or he could have approached her before she finished parking and asked her to move her car so it 

would not be too close to the intersection. Police need to shift the thinking so that they are not concerned 

only with the legality of what they do but also with whether their actions are the right thing to do. Are the 

decisions they make, using the discretion they have as police, in the best interest of the community?

Chiefs must look at their current evaluation systems and review them in the context of what is happening 

today. This means taking into account the demands and frustrations of the community. Communities are 

asking to be treated with dignity and respect. Police leaders need to evaluate employees on these aspects, 

which many leaders are currently not doing. We need to accurately measure how our police officers interact 

with the community with a goal of exceptional customer service. 
58 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Civilian Employees Deserve Procedural Justice Too

While patrol officers are often considered the face of the police to community members, civilian employees can also be the first contact an individual 

has with the police. In some cases, a civilian may be the only contact a citizen has with the police, when the civilian employee is able to provide the 

information or other assistance the individual needs. Civilians, like officers, have opportunities to make a memorable impression that reflects positively 

on the whole agency. For this reason, teaching civilian employees the principles of procedural justice and applying those principles to the systems and 

decision-making processes that affect civilians are just as important as for sworn employees. 

One challenge for police executives is how to ensure that civilians are also offered an evaluation and performance management process grounded in 

procedural justice principles. Almost 60 percent of civilians reported that they felt they had to constantly prove themselves within the agency.* Police 

executives and command staff should work toward ensuring that all personnel, both sworn and civilian, feel they are being treated fairly within the agency 

and have a valued role. Job satisfaction among civilians is higher in agencies where civilians feel their views are valued, they are treated equally, and the 

department culture accepts them as professionals—in other words, where civilians receive treatment based on the elements of procedural justice.†

Following are a number of questions to consider when assessing issues of perceived fairness among civilian personnel:

•	 How do civilians fit into the overall structure of the organization?

•	 Are civilians supervised by the appropriate managers (i.e., people who understand the tasks and responsibilities of the civilians, who have 

experience or training in the civilians’ positions, and who can offer specific guidance for growth and development in the civilians’ areas of 

expertise)? 

•	 What are the skills and attributes required to effectively manage various civilian positions?

•	 How are civilians assessed and evaluated on performance?

•	 What is the hiring process for civilians?

•	 How are civilians recruited and trained for their positions?

•	 What promotional or advancement opportunities are available?

•	 What specialized training or advanced education is offered to civilians?

•	 How are civilians recognized and rewarded for exceptional performance?

Promoting procedural justice throughout a police department can begin with simply promoting awareness about the various personnel divisions, units, 

and positions throughout the department. How does each group contribute to the agency, and how do they impact others in the department? 

One strategy for promoting awareness of the entire agency is asking personnel from different units to address their fellow employees about what they 

do and how they can be of assistance to others in the department. This offers an educational opportunity as well as a chance for employees to make 

connections with their coworkers. For example, an intelligence analyst can explain what is behind the crime reports or bulletins that officers receive. 

Sworn personnel may learn about resources available to them of which they were not previously aware from civilian employees. And officers may provide 

feedback to civilians about how they can provide more useful information. 

Involving sworn and civilian personnel in discussions regarding personnel and organizational issues helps to demonstrate an appreciation for the value of 

both groups. In each of these activities, the goals are to increase the information flow and to identify ways to create an environment that promotes mutual 

understanding and respect among all police personnel.

*

 Wesley G. Skogan and Megan A. Alderden, Job Satisfaction among Civilians in Policing (Washington, DC: National Institute of Justice, 2013).

†

 Ibid.
59 PART III. Moving from a Traditional Performance System to One Based on Principles of Procedural Justice: 

Practical Considerations and Next Steps

Conclusion

Practitioners have long recognized a gap between implementing community policing in the field and 

assessing officers’ performance in this area. Evaluation and performance management systems in police 

agencies are often described as ineffective because outdated processes have failed to adapt to the changing 

roles of police. 

This guide provides strategies for applying procedural justice to performance management to encourage 

officers to do the kind of work that department leaders want them to do. The ultimate goal is to provide the 

kind of policing that the community desires, which in turn will improve the community’s perception that its 

police department is legitimate and procedurally just. With improved community perceptions, residents will 

cooperate and partner with the police to solve crime and quality-of-life problems. 

The performance management recommendations in this report are designed to institutionalize community 

policing skills in a police force. This guide describes ways to better manage, lead, and develop police personnel 

through processes that give a voice to employees and that support fairness, respect, and transparency. These 

elements create buy-in within the department and build support for organizational change.

The recommendations in this guide are not meant to be quick fixes but rather tools to achieve fundamental 

changes in police agency culture and attitudes. This publication focuses mainly on line officer performance, 

first-line supervisor management techniques, and the chief ’s role in facilitating change in performance 

management. However, many of the recommended practices and tools can be applied to almost any 

employee-supervisor relationship in the agency. 

Ultimately, police leaders, supervisors, and line personnel all want a fair and open system that improves 

performance and cultivates talent within a department. A number of factors influence performance 

management in any given police agency, some of which may not be within the direct control of the chief (e.g., 

mandated citywide evaluation forms, union contracts). Despite these obstacles, there are promising practices 

that can be tailored by many police agencies to guide behavior to the benefit of employees, the department, 

and the community. 

Moving forward

Procedural justice is not a strategy but rather a philosophy of organizational life. The procedural justice 

philosophy is crucial to the organizational transformation component of community policing. As academics 

continue to research procedural justice and legitimacy, police practitioners are faced with the challenge of 

operationalizing these concepts. 

The best way to create organizational transformation and to institutionalize procedural justice in a police 

agency is to ensure that all systems and processes reflect the components of procedural justice (voice, 

transparency, fairness and respect), beginning with recruiting and extending through retirement counseling. 
60 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

The key questions for every system and process—whether it is the promotional, disciplinary, training, or 

personnel system—include the following:

•	 Are the policies and procedures transparent? Are they published in a way that can be understood by 

employees? Are they accessible?

•	 Have employees had input and voice in their formulation?

•	 Are they administered fairly and consistently in line with the organization’s values? 

•	 Do agency processes respect the dignity of employees?

•	 Is there an open and fair complaint process to address practices that employees do not consider just?

Some of these questions can be answered through an objective and comprehensive review of policy, practice, 

and outcomes. It is also important to establish accountability for keeping policies up to date and for ensuring 

that actual practices reflect policies. This is more likely if employees have a role in helping to ensure that 

systems and processes stay on track. Employee surveys, group discussions, and focus groups are options 

for obtaining feedback from employees. Asking employees how they feel about these systems can go far in 

making them feel that they work in an organization that strives to be procedurally just.

The concepts of procedural justice can be applied to most systems and processes used in police agencies. 

Perform an assessment of each of these systems and determine where adjustments could be made. Prioritize 

your efforts and develop a plan of action. It may take months or even years to fully implement all of the 

changes, but by taking a holistic approach to procedural justice in your organization, you increase the 

opportunities for success and long-term change. Every step in that direction should yield a more effective 

organization and a more satisfied community.
Summary. Recommendations for a Procedural Justice-Infused 

Comprehensive Approach to Performance Management

Recommendation 1. Assess your agency’s current performance management and evaluation systems.

Promising practice strategies:

•	 Examine the purpose of your performance evaluation system.

•	 Map out the performance management and evaluation processes and examine the content of materials.

Recommendation 2. Facilitate strong supervisor-employee relationships. 

Promising practice strategies:

•	 Promote consistent two-way communication between supervisors and employees.

•	 Supervisors need to be visible to personnel, especially in the field.

•	 Emphasize the value of personnel.

•	 Recognize good performance.

Recommendation 3. Performance management approaches should emphasize career and talent 

development at all levels. 

Promising practice strategies:

•	 Teach supervisors coaching skills as part of their leadership development.

•	 Encourage mentoring to promote growth opportunities.

•	 Use an individual development plan (IDP) as a personalized tool for employees.

•	 Explore the 360-degree evaluation process as a leadership development tool.

Recommendation 4. Focus on the selection and training of effective supervisors.

Promising practice strategies:

•	 Actively recruit qualified supervisors.

•	 Ensure the supervisor selection process is fair and valid.

•	 Train sergeants on how to be effective supervisors.

Appendices

Appendix A. Working group members

Kristine Arneson 

Deputy Chief, Minneapolis Police Department

Charles Beck 

Chief, Los Angeles Police Department

Theron Bowman 

Arlington (TX) City Manager

(Former Chief of Arlington Police Department)

Melissa Bradley 

Program Analyst, COPS Office

Shannon Branly 

Deputy Chief of Staff, PERF

Mark Bruley 

Inspector, Brooklyn Park Police Department

Leo Daniels 

Lieutenant, Arlington (TX) Police Department

Michael Davis 

Director of Public Safety, Northeastern University

(Former Chief of Brooklyn Park (MN) Police 

Department)

Tim Dolan 

Retired Chief, Minneapolis Police Department

Mahogany Eller 

Public Safety Partnerships National, Assets 

Protection, Community Engagement , Target

Craig Enevoldsen 

Chief, Brooklyn Park (MN) Police Department

Terry Hara 

Deputy Chief, Los Angeles Police Department

Janeé Harteau 

Chief, Minneapolis Police Department

Will Johnson 

Chief, Arlington (TX) Police Department

Tom Kern 

Senior Talent Development Consultant, Target 

Consultant

Brian Kimberly 

Sergeant, Denver Police Department

Laura Kunard 

Director, Center for Public Safety and Justice, 

University of Illinois

Dikran Kushdilian 

Lieutenant, Denver Police Department

Tammy Kynett 

Deputy, King County (WA) Sheriff ’s Office

Andrea Luna 

Chief of Staff, PERF

Michael Masterson 

Chief, Boise (ID) Police Department

Charlene Moe 

Senior Program Specialist, Center for Public Safety 

and Justice, University of Illinois

William Nagle 

Commander, Denver Police Department

Gary Nelson 

Sergeant, Minneapolis Police Department

Greg Newman 

Research Assistant, PERF

Alex Nuño 

Senior Management Analyst, Los Angeles Police 

Department
64 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Luann Pannell 

Director of Police Training, Los Angeles Police 

Department

Sue Rahr 

Executive Director, Washington State Criminal 

Justice Training Commission

Brook Rollins 

Sergeant, Arlington (TX) Police Department

Bryan Schafer 

Chief, Hastings (MN) Police Department

(Former Inspector of the Minneapolis Police 

Department)

Sunny Schnitzer 

Research Associate, PERF

Scott Thomson 

Chief, Camden County Police Department

Tom Tyler 

Professor, Yale Law School

DuWayne Walker 

Senior Group Manager, Corporate Security, Target

Jeri Weinstein 

Commander, Los Angeles Police Department

Chuck Wexler

Executive Director, PERF

Robert White 

Chief, Denver Police Department

Mary Ann Wycoff

Policing Consultant,PERF

Appendix B. Procedural justice in policing resources

The Community Policing Dispatch

The Dispatch is the e-newsletter of the COPS Office. It aims to educate readers about a variety of criminal 

justice issues that affect the implementation of community policing and to assist law enforcement 

practitioners in more effectively addressing crime and social disorder in their communities. It has twice 

been honored by the National Association of Government Communicators with Gold Screen awards for 

Outstanding e-Newsletter (2009) and Web Article (2010).

The opinions contained herein are those of the author(s) and do not necessarily represent the official position 

or policies of the U.S. Department of Justice. References to specific agencies, companies, products, or services 

should not be considered an endorsement by the author(s) or the U.S. Department of Justice. Rather, the 

references are illustrations to supplement discussion of procedural justice and related issues.

•	 The Case for Procedural Justice: Fairness as a Crime Prevention Tool, September 2013

http://cops.usdoj.gov/html/dispatch/09-013/fairness_as_a_crime_prevention_tool.asp

•	 The Importance of Legitimacy in Hot Spots Policing, September 2013

http://cops.usdoj.gov/html/dispatch/092013/the_importance_of_legitimacy_in_hot_spots_policing.asp

•	 The Importance of Procedural Justice, September 2013

http://cops.usdoj.gov/html/dispatch/092013/the_importance_of_procedural_justice.asp

•	 Procedural Justice: High Expectations, September 2013

http://cops.usdoj.gov/html/dispatch/092013/procedural_justice_high_expectations.asp

•	 “That’s not fair!” Policing and perceptions of fairness, September 2013

http://cops.usdoj.gov/html/dispatch/092013/policing_and_perceptions_of_fairness.asp
Appendices 65

•	 Procedural Justice: Advancing Police Legitimacy, January 2013

http://cops.usdoj.gov/html/dispatch/01-2013/advancing-police-legitimacy.asp

•	 City of North Charleston Police Department: Legitimacy in Every Action, August 2010

http://cops.usdoj.gov/html/dispatch/August_2010/ncpd.asp

•	 The Paradox of American Policing: Performance without Legitimacy, July 2010

http://cops.usdoj.gov/html/dispatch/July_2010/AmericanPolicing.asp

•	 Director Melekian Hosts First Issues Forum, July 2010

http://cops.usdoj.gov/html/dispatch/July_2010/IssuesForum.asp

•	 A Look Beneath the Badge, July 2010

http://cops.usdoj.gov/html/dispatch/July_2010/BeneathTheBadge.asp

•	 Use of Force and Building Mutual Trust, March 2008

http://cops.usdoj.gov/html/dispatch/march_2008/force.html

The Beat

The Beat (http://www.cops.usdoj.gov/Default.asp?Item=2370) is the COPS Office’s monthly podcast series. 

The Beat features interviews with experts from many disciplines and provides law enforcement with the 

latest developments in community policing. It may be accessed through the COPS Office website. Users may 

download and listen to individual podcasts or read the transcripts.

The opinions contained herein are those of the author(s) and do not necessarily represent the official position 

or policies of the U.S. Department of Justice. References to specific agencies, companies, products, or services 

should not be considered an endorsement by the author(s) or the U.S. Department of Justice. Rather, the 

references are illustrations to supplement discussion of procedural justice and other related issues.

February, 2014—Coffee with a Cop in Evansville, Indiana 

Chief Billy Bolin discusses implementing the Coffee with Cop program. 

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/02-2014/TheBeat-022014_Bolin.mp3

| Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/02-2014/TheBeat-022014_Bolin.txt

February, 2014—Coffee with a Cop in Santa Barbara, California 

Officer Kasi Beutel discusses officer and community relationship building through Coffee with a Cop. 

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/02-2014/TheBeat-022014_Beutel.mp3

| Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/02-2014/TheBeat-022014_Beutel.txt

February, 2014—Coffee with a Cop in Gulf Shores, Alabama 

Community Resource Officer Josh Coleman discusses the benefits of the Coffee with a Cop Program. 

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/02-2014/TheBeat-022014_

Coleman.mp3 | Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/02-2014/

TheBeat-022014_Coleman.txt

August, 2013—Institutionalizing Procedural Justice in Police Departments

Chief Michael Davis discusses institutionalizing procedural justice in police departments.

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/08-2013/TheBeat-082013_Davis.

mp3| Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/08-2013/TheBeat-082013_

Davis_Transcript.txt
66 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

August, 2013—Procedural Justice: Organizational Change

Commissioner Robert Haas and Deputy Superintendent Christine Elow discuss organizational changes in 

police departments that can influence the internal structure of policing and increase community interactions 

and compliance with the law.

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/08-2013/TheBeat-082013_

Haas_Elow.mp3 | Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/08-2013/

TheBeat-082013_Haas_Elow_Transcript.txt

August, 2013—Procedural Justice: Performance Evaluations

Chuck Wexler, Executive Director of the Police Executive Research Forum (PERF), discusses incorporating 

procedural justice into law enforcement performance measurements.

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/08-2013/TheBeat-082013_Wexler.

mp3 | Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/08-2013/TheBeat-082013_

Wexler_Transcript.txt

August, 2013—Procedural Justice: Use of Force

Corporal Charles Fernandez discusses applying procedural justice concepts to prevent unnecessary use of 

force situations.

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/08-2013/TheBeat-082013_

Fernandez.mp3 | Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/08-2013/

TheBeat-082013_Fernandez_Transcript.txt

August, 2013—Procedural Justice: Mental Illness

Associate Professor Dr. Amy Watson discusses police encounters experienced by persons who have mental 

illness. 

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/08-2013/TheBeat-082013_Watson.

mp3 | Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/08-2013/TheBeat-082013_

Watson_Transcript.txt

December, 2012—Procedural Justice

Dr. Tom Tyler, Macklin Fleming Professor of Law and Professor of Psychology at Yale Law School, discusses 

public perceptions of police and police legitimacy and the concepts of procedural justice. 

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/12-2012/TheBeat_120112_

Tom_Tyler.mp3 | Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/12-2012/

TheBeat-120112_TomTyler_Transcript.txt

December, 2012—Procedural Justice

Dr. T. Bowman, Deputy City Manager of the City of Arlington, Texas, and former police chief of Arlington 

(Texas) Police Department, discusses what procedural justice looks like in a law enforcement agency. 

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/12-2012/TheBeat_121012_T_

Bowman.mp3 | Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/12-2012/

TheBeat-121012_TBowman_Transcript.txt
Appendices 67

November, 2012—Coffee with a Cop

Sergeant Chris Cognac of the Hawthorne (California) Police Department discusses the motivation behind 

the idea to create Coffee with a Cop.

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/11-2012/TheBeat-111512_

Chris_Cognac.mp3 | Read Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/11-2012/

TheBeat-11152012_Chris_Cognac_Transcript.txt

July, 2011—Procedural Justice

Charlene Moe shares how the curriculum she is developing will help law enforcement build stronger 

partnerships. She also explains what the four pillars of procedural justice are and how they can aid 

organizational change.

Listen/Download http://www.cops.usdoj.gov/html/podcasts/the_beat/07-2011/TheBeat_07_11.mp3 | Read 

Transcript http://www.cops.usdoj.gov/html/podcasts/the_beat/07-2011/TheBeat_0711_Transcript.txt

Legitimacy and procedural justice

PERF and the U.S. Department of Justice’s Bureau of Justice Assistance (BJA) have released two reports on an 

important development in policing: the growing recognition of the concepts of legitimacy and procedural justice.

In the first report, Legitimacy and Procedural Justice: A New Element of Police Leadership (http://www.

policeforum.org/assets/docs/Free_Online_Documents/Leadership/legitimacy%20and%20procedural%20

justice%20-%20a%20new%20element%20of%20police%20leadership.pdf), Yale Law Professor Tom Tyler 

provides specific definitions of these terms, and summarizes research studies that demonstrate why legitimacy 

and procedural justice are important to the future success of police agencies.

In short, legitimacy refers to the judgments that community members make about whether they have trust 

and confidence in their police, whether they are willing to defer to the law and to police authority, and 

whether they believe that police actions in their community are morally justified and appropriate. Procedural 

justice can be seen as a way to achieve legitimacy. Police officers provide procedural justice when do their 

jobs fairly and neutrally, treat community members with respect, and give people a chance to explain their 

situation or tell their side of the story.

The second PERF/BJA report, Legitimacy and Procedural Justice: The New Orleans Case Study (http://www.

policeforum.org/assets/docs/Free_Online_Documents/Leadership/legitimacy%20and%20procedural%20

justice%20-%20the%20new%20orleans%20case%20study.pdf), describes how New Orleans Police 

Superintendent Ronal Serpas is incorporating the concepts of legitimacy and procedural justice in his efforts 

to reform the New Orleans Police Department.

Procedural justice for law enforcement: Organizational change through decision making 

and policy

Building Internal Relationships

http://cops.usdoj.gov/html/dispatch/04-2015/a_new_procedural_justice_course.asp

Developed by the Center for Public Safety and Justice at the University of Illinois, this COPS Officeapproved eight-hour course introduces sworn and civilian managers and supervisors to the philosophy of 

procedural justice and provides practical steps for its internal implementation. 
68 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Four pillars of procedural justice

Though the ultimate aim is to manifest the pillars of procedural justice—transparency, impartiality, fairness, 

and providing opportunity for voice—in everyday interactions with the public, full implementation must 

begin with a structural commitment to the philosophy within the agency itself. Law enforcement personnel 

are more likely to view their organizations as legitimate and to comply with the workplace policies and 

procedures when agency leadership supports a culture where the pillars of procedural justice are evident 

through decision making and treatment of personnel.

When an organizational culture embraces these values, personnel will in turn be more likely to incorporate 

them into their interactions with the public. Course materials make evident the ways leaders, as well as sworn 

and civilian supervisors, can institutionalize the pillars of procedural justice within law enforcement agencies 

through fair and transparent internal processes and procedures, thereby decreasing internal polarization 

and improving organizational performance. The target audience for this course is sworn and non-sworn law 

enforcement supervisors. 

For more information, contact Katie Holihen, Training Coordinator, Center for Public Safety and Justice at 

kholihen@uillinois.edu or 312-996-8265.

Building External Relationships

Developed by the King County (Washington) Sheriff ’s Office Advanced Training Unit with support from the 

Center for Public Safety and Justice at the University of Illinois, this COPS Office-approved eight-hour course 

introduces front-line officers to the pillars of procedural justice and its use when interacting with the public. 
Appendices 69

Cultivating relationships through procedural justice and community policing Fairness Voice Transparency Impartiality Partnerships Problem solving

 Organizational transformation

Public trust grows and police legitimacy improves when officers treat people with respect and exercise 

authority in a manner that is perceived as transparent, impartial, and fair and provides opportunity for voice. 

The curriculum seeks to enhance police legitimacy through improving the everyday interactions of front-line 

officers with the public they serve. 

This course creates a broader awareness of the pillars of procedural justice. It is designed to enable frontline officers to understand how using the pillars of procedural justice increases both voluntary compliance 

and cooperation by the public. The result is that public perception of police legitimacy is improved with an 

outcome of increased officer and community safety. 

The target audience for this course is sworn law enforcement front-line officers. However, the course material 

is relevant to law enforcement personnel at all levels within the organization.

For more information, contact Katie Holihen, Training Coordinator, Center for Public Safety and Justice at 

kholihen@uillinois.edu or 312-996-8265.
70 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Law Enforcement-Community Workshop: Procedural Justice for Communities—Enhancing Public Trust

Fairness

Transparency

Voice

Impartiality

Police-community interactions

Developed by the Center for Public Safety and Justice at the University of Illinois, this interactive COPS 

Office workshop provides opportunity for local community members and local law enforcement officers 

to come together and interact while learning about the application of procedural justice as it relates to 

community-law enforcement interactions and police legitimacy. 

Through guided fishbowl dialogues, role play exercises, and scenario-based video discussions, skilled 

facilitators create an environment that provides an opportunity for mutual learning—law enforcement and 

community members learning from each other. The ultimate goal is to develop a better understanding and 

perspective of one another, lay the foundation for building mutual trust, and increase police legitimacy. 

For more information, contact Katie Holihen, Training Coordinator, Center for Public Safety and Justice at 

kholihen@uillinois.edu or 312-996-8265.

Community Policing Web-based Learning Portal System

With support and ongoing partnership with the COPS Office, the Center for Public Safety and Justice at 

the University of Illinois has developed the COPS Office Learning Portal, an online education and training 

website designed for use by audiences ranging from law enforcement executives and front-line personnel to 

allied partners and community members. The interactive courses offered are asynchronous, allowing for users 

to progress through course content at times convenient to their schedules and at a pace of their choosing. 

The COPS Office Learning Portal provides free and easy access to end users interested in learning more 

about specific community policing topics including procedural justice. The COPS Office Learning Portal 

continues to add additional educational resources, new training, and tools as they are developed. 

For more information, contact Jason Stamps, Associate Director, Center for Public Safety and Justice at 

jstamps@uillinois.edu or 312-355-5030. 
Appendices 71

Coffee with a Cop National Initiative

Coffee with a Cop was developed in partnership with the Hawthorne (California) Police Department and the 

Center for Public Safety and Justice at the University of Illinois, with support from the COPS Office. 

Coffee with a Cop is a national initiative grounded in decades of research on procedural justice as it relates 

to relationships between law enforcement and communities. It is a practical application of the pillars of 

procedural justice. 

One of the keys to the overwhelming success of Coffee with a Cop is that it removes the physical barriers 

between officers and residents and happens outside of the crisis situations that routinely define interactions 

between law enforcement officials and community members. Instead it allows for relaxed, informal, one-onone interactions in a friendly atmosphere. 

The Coffee with a Cop website (http://coffeewithacop.com) provides free downloadable planning resources 

and advertising resources that can be customized by local law enforcement agencies—including the use of the 

national logo. It allows agencies to register local events on an interactive map that community members can view.

Additionally, the Coffee with a Cop Facebook page (https://www.facebook.com/coffeewithacop) allows for 

interagency connection and sharing of information. The page includes advertising of upcoming events and 

photos and videos from past events and provides a venue for jurisdictions to showcase their local events. 

Coffee with a Cop can also be followed on Twitter @coffeewithacop.

This initiative can be made available as a four-hour multijurisdictional workshop with an accompanying 

learning lab, providing best practices and setting a solid foundation for local implementation. 

For more information, contact Detective John Dixon, Community Affairs Unit, Hawthorne (California) 

Police Department at jdixon@cityofhawthorne.org or 310-349-2823.
72 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

COPS Innovations 

Procedural Justice for Law Enforcement: An Overview 

Developed by the Center of Public Safety and Justice at the University of Illinois, this COPS Office 

publication introduces law enforcement professionals to the concept of procedural justice and how it relates 

to community policing, officer safety, use of force, encounters with people with mental illness, hot spot 

policing, and the overall benefits to communities. 

Procedural justice has become an important focal point in the profession and strategy of policing in recent 

years, though the basic concept is likely nothing new to police officers. While this publication refers to 

rigorous academic research about policing and procedural justice, this is not a research paper but rather a 

clarifying bridge from research to practical application. 

For more information, contact Katie Holihen, Training Coordinator, Center for Public Safety and Justice at 

kholihen@uillinois.edu or 312-996-8265.

Procedural justice videos

Updated and developed by the Center for Public Safety and Justice at the University of Illinois, this five-part 

series of COPS Office videos offers the opportunity for a variety of uses—roll call training, citizen academy 

training, in-service training, or community dialogue opportunities. Each of the five video scenarios sets the 

stage for a practical learning opportunity and discussion on one or more of the pillars of procedural justice 

and may be explored from both an officer’s perspective and the community member’s perspective. 

For more information, contact Katie Holihen, Training Coordinator, Center for Public Safety and Justice at 

kholihen@uillinois.edu or 312-996-8265.

Community Policing and Procedural Justice Research Review

Using an evidence-based policing matrix, the Center for Evidence-Based Crime Policy in the Department 

of Criminology, Law, and Society at George Mason University evaluated programs focusing on community 

policing and procedural justice. The website also includes links to research and other resources. http://cebcp.

org/evidence-based-policing/what-works-in-policing/research-evidence-review/community-policing/

Basic fact sheet

What is procedural justice? 

Procedural justice refers to the idea of fairness in the processes that resolve disputes and allocate resources. 

It is not a practice but a philosophy and a movement that promotes positive organizational change, upholds 

police legitimacy in the community, and enhances officer safety. This single page provides a brief overview of 

what procedural justice is and application within police agencies. 

For more information, contact Katie Holihen, Training Coordinator, Center for Public Safety and Justice at 

kholihen@uillinois.edu or 312-996-8265.
Appendices 73

Appendix C. PERF findings of police agency policy reviews June 13, 2012

This project included a request for information from PERF’s member agencies regarding performance 

management and evaluation policies and materials. Performance evaluation materials from 52 police 

departments were reviewed with an eye toward procedural justice and community policing elements in 

the realms of evaluation content, evaluation process, and evaluation purpose. While this review was not 

nationally representative of all police agencies, it included departments from 40 states and a diverse range of 

sizes. Below are the results of PERF’s policy analysis.

Content of evaluation

•	 Whether they embody the department’s mission/vision/values: 12 out of 52

•	 The officer’s ability to impartially and fairly uphold and enforce the law: 8 out of 52

•	 The officer’s ability to understand and appropriately acts on supervisory orders: 24 out of 52

•	 The officer’s ability to critically and innovatively to solve problems: 34 out of 52

•	 The officer’s ability to initiate/encourage/maintain interactions with co-workers: 43 out of 52

•	 The extent to which the officer involves and cooperates with colleagues to solve problems: 34 out of 52

•	 The extent to which the officer engages community/initiates citizen interactions: 41 out of 52

•	 The officer’s communication skills: 42 out of 52

•	 The extent to which the officer completes necessary paperwork with meaningful detail: 35 out of 52

•	 Maintains record of and revisits former community oriented policingprojects when new opportunities 

arise to solve unresolved problems: 3 out of 52

•	 Amount and type of citizen feedback: 1 out of 52 (citizen complaints)

•	 The extent to which the officer initiates appropriate behavior without direction: 45 out of 52

•	 The extent to which the officer demonstrates an overall attitude toward the workplace that encourages 

others: 31 out of 52

Evaluation process

•	 Evaluator is provided guidance for evaluation process: 32 out of 52

•	 Evaluator can detail or comment on each indicator or grouping of indicators: 22 out of 52

•	 Evaluator can detail or comment on overall performance: 26 out of 52

•	 Officers complete a self evaluation: 8 out of 52

Evaluation purpose

•	 Evaluations have a clear and defined purpose: 15 out of 52

•	 Evaluations can lead to officer counseling: 6 out of 52

•	 Evaluations can lead to officer training: 13 out of 52

•	 Evaluations can lead to promotion: 12 out of 52

•	 Evaluations can lead to officer reassignment: 8 out of 52

•	 Evaluations can lead to acknowledgement from upper level managers: 7 out of 52

•	 Evaluations are used to identify areas of improvement: 18 out of 52
74 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Appendix D. COPS Office national webinar

After conducting site visits and interviews and collecting feedback on the project recommendations from 

the working group members, a preview of the findings and promising practices on performance management 

was presented in February 2014 through a national webinar. More than 200 individuals participated in the 

webinar with police representatives making up the majority and representing ranks chiefs and command staff 

members to sergeants. Researchers, police academy directors, and other criminal justice stakeholders also 

participated. Throughout the webinar, attendees were polled for their perspectives on various issues such as 

current challenges to completing personnel evaluations and questions about the current materials used in 

performance evaluations. Feedback from this event was used to further clarify concepts, recommendations, 

and promising practices. 

The webinar presentation is provided in the following pages.

Establishing Procedural Justice 

Within Police Organizations: 

Performance Management 

for First Line Supervisors in 

Community Policing Agencies 
Appendices 75

Project Objective

•Develop an executive guide book that: 

1.) Creates a comprehensive approach to first-line 

supervision

2.) Incorporates principles of community policing and 

procedural justice

3.) Provides leadership with specific tools and 

mechanisms for institutionalizing procedural justice

Working Group Members and Other Contributors

• Denver PD

• Chief Robert C. White

• Commander William Nagle

• Lieutenant Dikran Kushdilian

• Northeastern University PD

• Public Safety Director Michael Davis

• Los Angeles PD • Sergeant Brian Kimberly • Chief Charles Beck

• Brooklyn Park PD

• Chief Craig Enevoldsen 

• Inspector Mark Bruley

• Director Luann Pannell

• Senior Management Analyst Alex Nuño

• The King County Sheriff’s Office

• Arlington PD

• Chief Will Johnson

• Deputy Tammy Kynett

• The Washington State Criminal • Lieutenant Leo Daniels

• Sergeant Brook Rollins

• Deputy City Manager Theron Bowman

• Minneapolis PD

• Chief Janeé Harteau

• Deputy Chief Kris Arneson

• Sergeant Gary Nelson

Justice Training Commission

• Executive Director Sue Rahr

• The University of Illinois

• Director Dr. Laura Kunard

• Senior Program Specialist Charlene Moe

• Target • Chief (retired) Tim Dolan • Public Safety Partnerships – Mahogany Eller

• Boise PD • Senior Talent Development Consultant Tom Kern

• Chief Michael Masterson • Senior Group Manager DuWayne Walker

• COPS Office • Subject Matter Experts

• Program Analyst Melissa Bradley • Mary Ann Wycoff

• Dr. Tom Tyler
76 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Goals of this Presentation

• Present and discuss performance management 

promising practices for police agencies

▫ Collect feedback from you about the effectiveness 

of these concepts in improving performance 

management, ease of understanding, and 

adaptability to different police agencies

▫ Discuss examples, tools, and resources available 

for implementation 

Connecting Community Oriented 

Policing and Procedural Justice

▫ Core elements of Community Oriented 

Policing1 

 Community Partnerships

 Organizational Transformation

 Problem Solving

▫ Pillars of Procedural Justice2

 Voice - allowing the person or group to have input

 Neutrality/Fairness - fairness and impartiality

 Respect– for the people involved

 Trustworthiness/Integrity/Transparency– open and honest

1 http://www.cops.usdoj.gov/Default.asp?Item=2589

2Researchers including Dr. Tom Tyler, Dr. E Allan Lind, Dr. Stephen Mastrofski, Dr. Jeffrey A. Fagan, Dr. Tracey Meares and 

many more have focused their time on studying and defining procedural justice within policing. 
Appendices 77

Procedural Justice in Policing 

• External procedural justice is the extent to which 

residents of a community believe that the police treat residents with fairness, dignity and respect.

• Internal procedural justice is the extent to which 

police employees believe that they are treated fairly and 

with respect.

 

• Internal procedural justice is thought to facilitate 

organizational transformation because employees will be 

more likely to embrace the department’s goals if they feel 

respected and valued.

Challenges to performance 

management

▫ Generic forms that do not reflect the nature of the job

▫ Lack of control over the system or materials

▫ Not sufficient for informing leaders of department 

progress 

▫ Don’t carry any weight / not taken seriously

▫ Difficult to provide honest evaluations

▫ Too focused on quantitative measures

▫ Employees get little or no input in the evaluation

▫ Measures don’t match job expectations or 

activities
78 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

General Recommendations

• Emphasize career and talent development at all levels

• Facilitate strong supervisor/employee relationships

• Take steps to create a “conversant” organization, rather 

than only discussing performance once or twice a year

• Implement an executive leadership approach

• Routinely assess your agency’s current performance 

management system 

Promising Practices that 

Emphasize Career and Talent 

Development 
Appendices 79

Promising Practice 1: Target® Training 

Focuses on Coaching Behaviors for 

Leadership

Observations 

Feedback

Goals/Expectations

Action Plan

Promising Practice 2: Mentoring 

Provides Opportunities for Growth

▫ Facilitate intra-agency mentoring

 Don’t limit who can be a mentor

▫ Provide honest feedback and guidance

▫ Can be formal or informal process
80 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Promising Practice 3: Individual 

Development Plans (IDPs) Create 

Personalized Tools for Employees

▫ Tool to identify professional goals with actionable steps to achieve them

▫ Joint effort by the employee and their supervisor

▫ A written IDP is a living 

document

• Individual Development Plan Process

Gather 

Information

Draft 

Written IDP

Discuss with 

Supervisor

Implement 

Actionable 

Steps

Evaluate 

Progress
Appendices 81

Lingering Question: Are 360 Degree 

Evaluations appropriate for police 

agencies?

▫ Multi-source or multirater assessment

▫ Full circle feedback from 

coworkers is viewed as 

more credible and 

motivating than a single 

rater model (Heathfield, 2001)

360 

Eval

Supervisor 

Self

Peers

Others 
82 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Promising Practices for Building 

Strong Supervisor/Employee 

Relationships

What makes a good supervisor?

▫ Understands his/her role and responsibilities

▫ Gets to know their employees/team

▫ Recognizes that each employee is valuable and 

each position is unique

▫ Encourages teamwork and peer support

▫ Provides opportunities for employees to utilize 

strengths and improve on weaknesses

▫ Makes assignments based on the individual’s 

assets as well as the team’s

▫ Responds with compassion and equitable 

treatment as employees face personal issues

▫ Allows/encourages employees to learn from 

mistakes

▫ Fair and flexible

▫ Challenges employees to perform beyond the 

status quo
Appendices 83

What are examples of supervisor 

practices that inspire great policing?

▫ Communicates the values and goals of the 

organization

▫ Debriefing at the end of a shift

▫ Making time to get to know your employees

▫ Going the extra mile

▫ Providing support in a non-punitive manner

▫ Presence in the field

▫ Providing continual feedback on performance

▫ Addressing issues as they arise

▫ Making expectations and responsibilities clear 

and reasonable

What can department leaders do to 

foster effective supervisor/employee 

relationships?

▫ Empower supervisors to lead

▫ Give supervisors access to rewards for their 

employees to reinforce positive performance

▫ Emphasize the importance of relationship 

building

▫ Incorporate relationship building activities 

into job descriptions and responsibilities
84 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Tools to assist in performance management

Document any incidents 

for all of your employees

Log and review 

employee performance

Customize and manage 

employee goals

Create a Conversant 

Organization
Appendices 85

Promising Practice: Regular 

conversations between supervisors 

and employees

▫ Conversations (both formal and informal) that 

address performance and goals need to be timely, 

frequent, and meaningful

▫ Communication must be clear, honest, and 

consistent

Implement an Executive 

Leadership Approach
86 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Promising Practice 1: Infuse procedural 

justice concepts throughout the 

organization

▫ Procedural justice based performance 

management tactics must be used at all levels of 

the organization

▫ Assess other areas of your agency that should 

reflect procedural justice concepts

 Promotion processes

 Disciplinary systems

 Policy changes and implementation of new 

procedures 

Promising Practice 2: Focus on the 

selection and training of supervisors

▫ Create clear job descriptions for supervisors and 

establish responsibilities consistent with your 

agency’s mission and goals

▫ Assess your promotion process

▫ Provide both promotional training for candidates 

of supervisory positions, and ongoing training for 

existing supervisors
Appendices 87

Promising Practice 3: Recognize good 

work and value

▫ There is no insignificant job within the department

▫ Ensure there are avenues to recognize personnel for 

high quality work

▫ Establish accountability for supervisors and employees

 Establish clear and consistent mechanisms to ensure that 

both employees and supervisors are performing up to agency 

standards
88 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Routinely assess your agency’s 

performance management and 

evaluation system

Promising Practice 1: Examine the 

evaluation process and materials

▫ What forms/documents are used?

▫ How often are evaluations performed? 

▫ What oversight is given to the evaluation process?

▫ What are the available outcomes for employees?

▫ How is the process different for sworn and nonsworn personnel?

▫ How much control do you have over your 

evaluation system as the chief executive? 
Appendices 89

Promising Practice 2: Examine the 

purpose of your performance 

management system

▫ Does your performance management approach 

accurately reflect the mission and goals of your 

agency?

▫ Does your evaluation system have a clear purpose 

and objectives?

▫ Is your approach fulfilling its purpose for your 

agency as a whole and for individual employees?

▫ Is it useful/effective?

Q and A / Open Discussion
90 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Thank you for participating!

• For more information on this project, or to reach 

our staff for additional questions or comments, 

please contact us at:

• Shannon Branly, Deputy Chief of Staff at 

202-454-8345 or sbranly@policeforum.org

• Sunny Schnitzer, Research Associate at 

202-454-8320 or sschnitzer@policeforum.org 
Appendices 91

Appendix E. Denver Police Department evaluation materials

The Denver Police Department (DPD) went through the process of developing and implementing a new 

performance management and evaluation system in 2013 and 2014. It was clear that the DPD’s evaluation 

process was not effectively assessing employee performance and was not helping the department to provide 

meaningful feedback, coaching, mentoring, training, and other growth opportunities to its personnel. To 

address this issue, Chief Robert White tasked the Planning, Research, and Support Division with researching 

various evaluation processes and developing a new system for the department. 

Based on feedback, the department established a broader, more comprehensive performance management 

system. The new approach emphasizes the specific responsibilities of each individual employee and promotes 

the department’s focus on crime prevention and community policing. The new system is based on formal 

quarterly meetings between sworn employees and their supervisors, in which employees are assessed in three 

different areas: (1) service delivery, (2) interpersonal skills, and (3) initiative. At these quarterly meetings, an 

employee and his or her supervisor collaborate to develop an action plan for addressing a current challenge 

or issue in the officer’s designated area. The action plan links to overall goals of the department, provides 

accountability for both the officer and supervisor, and establishes measures for performance that are 

customized to a specific division and individual.

The subsequent pages include excerpts from the DPD training presentation on its new evaluation system, 

a performance evaluation system guide, a performance evaluation planning calendar, a list of frequently 

asked questions regarding the new system, examples of action plans, and an officer self-assessment form. 

These materials were designed to work within the DPD’s existing labor contracts. Additional flexibility to 

strengthen the process may be possible for other departments.
92 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Excerpts from DPD performance evaluation training

Denver Police Department 

Performance Evaluation System

November 2013

Sergeant Anthony Parisi – (720) 913-6465

Technician Estevan Valdez – (720) 913-6591
Appendices 93

Purpose

The former evaluation system lost legitimacy...

• Developed in 1996 with latest revision in 2006

• Inflated Scores

• Subjective

• Did Not Motivate

• Feedback was Not Timely

Development

January 2013

• Presented four conceptual performance models to 

Commanders at Chief’s Staff meeting

March 2013

• Feedback received from command officers

• 59% proposed modified SSR System

• 52% recommended elimination of numeric scoring system

• 94% advocated for career goals/personal development 

component 
94 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Development

April 2013

• Conceptualized performance evaluation system 

presented to Chief and approved for presentation to 

command staff.

August 2013

• Formal presentation to Chief and command staff

• Feedback received and new evaluation system 

approved for implementation starting 2014

Foundation Model
Appendices 95

Key New Features

• Performance Based

• Linked to Strategic Plan 

• Quarterly Assessment and Review

• Employee Input

• Mentoring/Coaching Opportunity

• Career Development/Succession Planning 

Timeline

November 2013

• Train all sergeants, lieutenants, captains, 

commanders & chiefs

• Train the trainer sessions 

December 2013 

• Review the strategic plan for incorporation into the 

evaluation system

January 2014 

• Implement Performance Evaluation System 
96 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Concept

Personal 

Development

Denver Police Department

Mission / Vision / Values

Service 

Delivery

Interpersonal 

Skills

Department Strategic Plan

SECTION ONE 

SERVICE DELIVERY 
Appendices 97

Section One

Service Delivery

Service 

Delivery

Division Level 

Strategic Plan

identified 

by 

command 

staff

to include 

hotspots

Action Plan

(identify AOR)

Project / Goals

Anticipated Outcomes

Status

RATING SCORE

1 

Action Plan

(identify AOR)

Project / Goals

Anticipated Outcomes

Status

RATING SCORE

2 

• Every Commander is responsible to 

develop specific tactics, metrics and goals 

for their entire Division

• Duty of command officer and supervisors 

to communicate elements of Strategic Plan 

to officers

• Collaboration between command officer, 

supervisors and officers to develop Action 

Plans/Projects to reach benchmarks of 

Division level Strategic Plan

• Action Plan will list Anticipated Outcomes 

and record Results Achieved 

• Closed-loop system

Section One

Service Delivery

STEP 1

STEP 2

STEP 3
98 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Section One

Service Delivery

STEP 1 

Compose the narrative for the division level 

strategic plan 

(this will be driven by the Commander)

 Specific to this precinct/bureau/unit/area....

What does the division hope to accomplish this quarter? 

Reduction in crime? Efficiency improvement? Community Partnerships?

Section One

Service Delivery

Using the Strategic Plan as a 

guide, the supervisor 

develops specific and 

measurable projects/goals 

for each officer under their 

purview.

TIP: When extracting 

information for the 

Performance Evaluation – 

focus on clear, succinct 

objectives using concise 

language. 

Strategic 

Plan
Appendices 99

Section One

Service Delivery

STEP 2 

Devise an action plan for the quarter

 Specific to this officer....

What project or goals will this officer initiate this quarter that will promote 

the department and/or divisions objectives? 

Department Strategic Plan

Division Level Strategic

Plan

Action Plan

Section One

Service Delivery

The strategic plan is a 

high-level document - 

your job is to focus the 

objectives into specific, 

manageable projects 

and/or goals.
100 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Section One

Service Delivery

Department Strategic Plan

2013 Strategies

Strategy 1.00: Aligning resources towards crime prevention and safety 

?!?!?!?!?

Action Plan

Strategy 2.00: Training and empowering all employees to be leaders through action, 

accountability, and community partnerships

Strategy 3.00: Implementing cost savings and other efficiencies, including 

technology, with a focus on maintaining/improving the department’s effectiveness 

Connect your project/goals to

any of these strategies – and you

have an Action Plan!

LT

•Develops mechanism to capture/measure Action Plan

•Evaluates Sergeant’s ability to lead and address Action 

Plan 

SGT

•Communicates specific Action Plan to officer

•Monitors progress of Action Plan 

•Reports outputs to LT

Officer

•Acknowledges Action Plan

•Reports progress to supervisor

•Performance addressing Action Plan evaluated

Accountability works in both directions!

Section One

Service Delivery
Appendices 101

Section One

Service Delivery

PATROL – Action Plan examples

• Complete 100% of Adult Protection Service Referrals received and 

capture disposition (criminal event vs. welfare check only)

• Hotspot extra patrols – capture # of street checks / arrests

INVESTIGATIONS– Action Plan examples

• Domestic Violence threat assessment case study

• Make contact with DV victim within 24 hours after case assigned and 

capture case disposition data (case filed/ case declined)

TRAFFIC OPERATIONS BUREAU – Action Plan examples

• Case study on construction zone accidents

• Record number of construction zones audits, enforcement action taken, 

case disposition for criminal based construction zone accidents

Section One

Service Delivery

INVESTIGATIVE SUPPORT– Action Plan examples

• Case study for marijuana businesses

• Capture regulatory compliance data

AIRPORT POLICE – Action Plan examples

• Emergency Preparedness

• Business Partnerships

• Traffic Safety

ADMIN MANAGEMENT – Action Plan examples

• Process 100% of Change of Charge submissions within filing deadline 

• Capture data on processing time
102 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Section One

Service Delivery

STEP 3 

At the end of the quarter, document the results 

achieved, status of the project and give the 

officer an assessment score.

Remember.... 

Evaluate the officer based on their level of performance – plans change, 

plans can end up “off target”, plans sometimes fail – and not always at 

the fault of the planner or the one who executed the plan. 

DOCUMENT WHAT HAPPENED!

Section One

Service Delivery

Action Plan Status Categories

NOT STARTED ON TRACK AHEAD

BEHIND COMPLETED ABANDONED
Appendices 103

Section One

Service Delivery

Exemplary

Satisfactory

Unsatisfactory

ASSESSMENT SCORES

Not Applicable

Definitions can be found in the

Performance Evaluation System Guide

Example: Patrol

Section One

Service Delivery
104 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Example: Patrol

Section One

Service Delivery

Section One

Service Delivery

Example: Investigations 
Appendices 105

SECTION TWO 

INTERPERSONAL SKILLS 

Section Two 

Interpersonal Skills

Journal Entry System developed to 

record individual performance with 

the following enhancements:

Five main Core Dimension Categories with 

corresponding subcategories 

Source Field to cite the basis of element being 

evaluated and an Assessment Rating Score to 

reinforce positive performance, and likewise identify 

and correct poor performance

(Replaces Supervisor’s Situation Record)

1 - Communication

 Written

 Verbal

2 - Professionalism

 Respect

 Customer Service

 Appearance

 Integrity

 Job Knowledge

3 – Initiative

 Innovation

 Motivation

 Awareness

4 – Teamwork

 Collaboration

 Adaptability

5 – Leadership

Management

C

A

T

E

G

O

R

I

E

S

Journal Entry System 

Source

Category

RATING SCORE

Narrative 

Core 

Dimensions
106 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Section Two 

Interpersonal Skills

Cite the SOURCE of information

Section Two 

Interpersonal Skills

CATEGORIZE the entry
Appendices 107

Section Two 

Interpersonal Skills

Apply an ASSESSMENT SCORE to the 

narrative entry

Section Two 

Interpersonal Skills

Additional Journal Entries can be made by 

clicking the down arrow
108 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Section Two 

Interpersonal Skills

CATEGORIES and ASSESSMENT SCORES 

Always follow the definitions and models 

found within the Performance Evaluation 

System Guide

Appearance, Integrity, Job Knowledge have modified models for scoring 

If none of the models apply, follow the assessment score definitions

Section Two 

Interpersonal Skills

YEAR-END NARRATIVE 

Text block for supervisor to outline officer’s 

body of work for the calendar year

(not subject to an assessment score)
Appendices 109

SECTION THREE 

PERSONAL DEVELOPMENT 

Section Three

Personal Development

2 

Career Path Assessment 

and Planning

Personal 

Development 

Self-Assessment

Career Goals

(mandatory)

Performance Log

(optional)

The Personal Development Section 

was designed to enhance the 

department’s most valuable asset, 

human capital.

Allows the officer to contribute to “their” evaluation

Identifies Career Path goals

Fosters Succession Planning 

Designed to develop supervisor/officer interaction
110 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Section Three

Personal Development

The Officer Self 

Assessment Form will be 

made available to all 

officers in December.

Instructions will be 

included to direct officers 

on it’s location and use.

Section Three

Personal Development

OFFICER SELF ASSESSMENT - ADDENDUM 

PERSONAL DEVELOPMENT / CAREER GOALS 

(MANDATORY)

Short and long term goals identified (personal, professional or both)

Due by the last day of the year

PERFORMANCE LOG 

(OPTIONAL)

Completed by the officer; subject to verification and recorded as a Journal 

Entry by the supervisor - Due on the last day of any quarter
Appendices 111

Section Three

Personal Development

If an officer submits 

a Self Assessment 

Form, complete an 

acknowledgement 

of receipt. 

Follow up with a 

CDA entry:

Using your own 

words, identify what 

you as a supervisor 

can do to help 

facilitate these 

goals. If 

accomplishments 

are made, record 

those as well.

QUARTERLY ASSESSMENT 

SCORE TALLY 
112 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Quarterly Assessment

Score Tally

As supervisors assign Assessment Scores to the Action Plans 

and Journal Entries, the scores will be automatically tallied 

within the evaluation form. 

FINAL YEAR-END 

PERFORMANCE RATING 
Appendices 113

Final Year-End

Performance Rating

FORMER EVALUATION SYSTEM 

Numerical Scoring System 

Finalized Annually

Subject to Data Manipulation

SSR entries independent of 

evaluation 

NEW EVALUATION SYSTEM 

Narrative Ranking System

Finalized Quarterly

Quarterly Assessment

Year-End Performance Rating 

that incorporates Journal 

Entries 

Final Year-End

Performance Rating

Service 

Delivery

Interpersonal 

Skills

FINAL YEAR-END 

PERFORMANCE RATING

 Action Plan Assessment Scores 

Exemplary

Satisfactory 

Unsatisfactory

Not Applicable

 Journal Entry Assessment Scores 

Exemplary

Satisfactory 

Unsatisfactory

Not Applicable
114 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Final Year-End

Performance Rating

FINAL YEAR-END 

PERFORMANCE 

RATING

Quarter One 

Assessment Scores

Quarter Two 

Assessment Scores

Quarter Three 

Assessment Scores

Quarter Four 

Assessment Scores

Final Year-End

Performance Rating

DISTINGUISHED PERFORMANCE 

10+ Exemplary Ratings AND 0 to 3 Unsatisfactory Ratings

MEETS EXPECTATIONS 

0 to 9 Exemplary Ratings AND 0 to 3 Unsatisfactory Ratings

NEEDS IMPROVEMENT 

4 to 7 Unsatisfactory Ratings*

UNACCEPTABLE 

8+ Unsatisfactory Ratings*

*automatic qualifier
Appendices 115

Final Year-End

Performance Rating

To update the Final Year-End Performance Rating within the 

form, ALWAYS click the CALCULATE SCORE AND SUBMIT 

UPDATES button prior to saving and/or finalizing for signatures

Final Year-End

Performance Rating

Performance Improvement Plan 

A performance improvement plan is a formal process used by 

supervisors to help employees improve performance or modify 

behavior. 

Currently not standardized or required. 

Performance deficiencies should be addressed within the new 

evaluation system (ACTION PLAN), lack of doing so will be 

evaluated at the end of 2014 and may require the adoption of 

a standardized process
116 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Evaluation Form Location, Usage and 

Distribution 

Evaluation Form Location, 

Usage and Distribution

The Performance Evaluation form can be located at: T:\DPD (Template 

Drive) under the file name: 

“DPD Performance Evaluation System-2014”.

 

When opening the form for the first time, enter the heading information for 

the subject officer. Once this is completed, save the document at Y:\EVALS 

(follow instruction sheet) using the naming convention below:

 

File Name: LastName.FirstName.SerialNumber.YEAR 

Example: Smith.John.99999.2014

 

This step will need to be repeated for every officer under your span of 

control until each officer has a unique performance evaluation form.
Appendices 117

Evaluation Form Location, 

Usage and Distribution

December 1st through 15th

You will receive an instruction sheet by the end of November 

directing you where to save the evaluation forms. The files will be 

permission based and all forms MUST be housed within this file 

structure. 

At any time, the Chief and/or command staff should be able to 

open any file and find a performance evaluation for every officer 

within their chain of command.

All forms must be created by December 15th for a system audit 

Evaluation Form Location,

Usage and Distribution

The Performance Evaluation System form was meant to be utilized as a 

SINGLE REPOSITORY THROUGHOUT THE YEAR until finalized at the 

completion of the 4th Quarter. 

Remember to ALWAYS scroll through the form and hit the “CALCULATE 

SCORE AND SUBMIT UPDATES” prior to saving your work and closing. 

Failing to hit this button will cause the background calculations not to 

take place and will result in your work (although saved) being 

unaccounted for when the data is extracted.

1

2
118 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Evaluation Form Location,

Usage and Distribution

Probationary Officers

While enrolled in the Field Training Program, the probationary officer shall be 

evaluated by a Field Training Officer on the Daily Observation Report, DPD 292 

and End of Phase Report, DPD 292B.

At the conclusion of field training, the probationary officer will be 

evaluated on the Performance Evaluation System. The rating 

period will commence at the completion of field training and will 

conclude on the calendar year. 

A probationary officer’s action plan should concentrate on any training areas 

identified during the Field Training Program that need further development.

Evaluation Form Location,

Usage and Distribution

The Performance Evaluation form allows information contained within it to be 

easily reported and distributed using minimal printing. 

At the completion of every quarter, the supervisor is able to demonstrate the 

work completed to his/her command officer while at the same time allowing 

the subject officer to maintain a copy for his/her records. 

By utilizing the “Send to Mail Recipient” icon, the supervisor is able to forward 

a copy of the performance evaluation similar to MS Outlook. 

 

TO: Command Officer 

CC: Subject Officer
Appendices 119

Evaluation Form Location,

Usage and Distribution

REMEMBER to ALWAYS modify the “mail options” on the 

right task pane to “Read-Only snapshot”. Inadvertently 

sending an “editable form” will result

in the subject officer being able to 

manipulate the performance 

evaluation, regardless of where it 

is saved.

Evaluation Form Location,

Usage and Distribution

At the conclusion of the calendar year, the 

supervisor will print out the evaluation, obtain the 

necessary signatures and forward the original to 

his/her commander for finalization.

After the commander review, all finalized 

evaluations will be delivered to HR.
120 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Performance 

Evaluation Cycle

A Performance 

Evaluation 

Planning Calendar 

has been included 

in your training 

notebook

Questions? 
Appendices 121

DPD performance evaluation FAQs

PERFORMANCE EVALUATION SYSTEM – FACT SHEET

DECEMBER, 2013

Answers to frequently asked questions:

Q: Is there a minimum number of journal entries a supervisor must record for the officer he or she 

supervises?

A: No. However, supervisors are evaluated on their aptitude to assess the performance level of each officer 

within their purview and provide timely feedback to them with quality journal entries.

Q: Do I record performance and developments of an officer’s action plan within a journal entry?

A: No. Action plans and journal entries are two separate components within the performance evaluation 

system. An officer’s action plan is designed to be scored independent from assorted individual performance 

noted throughout the calendar year. The narrative text box labeled “Results Achieved” is the appropriate 

repository to document not only the officer’s performance as it pertains to the given action plan but also the 

developments and progress for the specific action plan. By using the designated action plan narrative text box, 

the supervisor can support and accurately assign both the applicable status and the appropriate assessment 

score of a given action plan.

Q: Can I carry over an action plan into the following quarter?

A: Yes. The action plans within the performance evaluation system were designed to allow for that flexibility 

and permit supervisors to extend an action plan over a longer period of time greater than one quarter. 

However, the decision to continue an officer’s action plan into the subsequent quarter will need to be 

supported and documented within the narrative text box labeled “Results Achieved.” The supervisor shall 

then select the appropriate status of the action plan and corresponding assessment score for the officer’s 

performance to his or her action plan for that given quarter. As a reminder, every officer must have at least 

one action plan per quarter.
122 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Q: Can a team of officers have the same action plan?

A: Yes. Action plans may require the participation of more than one officer based on the scope and 

magnitude. However, to accurately assign an assessment score for an officer who is participating in a team or 

group action plan, the supervisor should clearly define what element(s) each officer is responsible for so their 

performance can be accurately recorded and scored.

Q: Are the same assessment scores used for action plans and journal entries?

A: Yes. The same operational definitions of exemplary, satisfactory, unsatisfactory, and not applicable are 

used to assess an officer’s performance to an assigned action plan and to the various journal entries recorded 

throughout the calendar year. The assessment score definitions are outlined on page 14 of the performance 

evaluation system guide.

Q: Can an action plan be used as a means to address an identified area of substandard performance or 

level of service that an officer needs development in?

A: Yes. Until the Denver Police Department creates a standardized performance improvement plan form, 

this is the appropriate section to record the officer’s identified deficiency. The supervisor shall identify the 

area of concern in the “Title” field of the action plan. The officer’s level of expectations and the resources, 

support, and training plan provided shall be recorded within the text box labeled “Anticipated outcomes and 

measures.” This type of action plan is eligible for an assessment score.

Q: If an officer receives either an “unacceptable” or “needs improvement” rating as their final year end 

assessment, are they ineligible to apply for an appointed position or take a promotional exam?

A: No. Officers will only be ineligible for consideration to an appointed position or participation in a 

promotional exam based on the same disqualifying criteria used in the most recent civil service promotional 

process. Refer to Denver Police Operations Manual section 115.02—Detective, Corporal, and Technician 

Selection Process (revised October 2013). Automatic disqualifiers can be accessed at http://www.denvergov.

org/civilservice/.
Appendices 123

Q: Can an officer file an objection to an “unsatisfactory” score within his or her evaluation?

A: Yes. Once an unsatisfactory score is assessed to an officer’s performance within either an assigned action plan 

or to a specific journal entry, the supervisor must first provide a copy of the substandard entry to the officer. The 

supervisor can either printout a copy of the evaluation or follow the electronic distribution method as outlined 

on page 9 of the performance evaluation system guide. The officer may, within 15 days of learning the adverse 

record, submit a written response within the officer self-assessment report detailing the basis for the objection. 

The officer’s appeal will be reviewed by the second level supervisor for disposition of the appropriate assessment 

score. The final decision for any appeal rests with the respective division commander.

Q: Is there a minimum number of officer self-assessment reports that are required to be submitted to a 

supervisor?

A: No. The officer self-assessment report is optional for all officers subject to an evaluation. If an officer elects 

to document specific performance within the officer self-assessment report, the only requirement is that 

it be submitted to the appropriate supervisor by the last day of a given quarter. This will allow the officer’s 

supervisor the necessary time to verify the content of the entry for inclusion in the officer’s performance 

evaluation. The exact due dates for the officer self-assessment report is outlined on the form itself and 

performance evaluation planning calendar.

Q: If an officer elects to submit an officer self-assessment report, do they assign the assessment score to 

their own noteworthy performance?

A: No. It is the responsibility of the officer’s supervisor not only to verify the content of each entry within an 

officer’s self-assessment report but also to accurately assign an assessment score. Assessment score definitions 

are outlined on page 14 of the performance evaluation system guide. The supervisor shall include each 

entry made in an officer self-assessment report and incorporate such in a journal entry (section 2 of the 

performance evaluation). To properly record this type of journal entry, the supervisor shall select “Officer 

Self-Assessment Log” from the drop-down options listed in the “Source” field.

Q: What if an officer’s or supervisor’s schedule does not permit action plan development or the 

required performance meetings within the designated timeframes?

A: With the approval of the second level supervisor, the development of an officer’s action plan can be 

completed before or immediately after the designated window as outlined on the performance evaluation 

planning calendar. Conversely, the required performance meeting can be completed prior to the designated 

window should an officer’s and supervisor’s schedule prevent the completion of the quarterly performance 

evaluation by its scheduled due date.
124 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Q: What happens in the evaluation process when an officer is either promoted, transferred, or on 

temporary assignment?

A: The performance evaluation form was designed to be used throughout the calendar year regardless of any 

promotion or transfer of assignment.

Promotions/Transfer of assignment: Planning, Research, and Support will automatically move the 

performance evaluation file to the new assignment folder based on the official personnel transfer notice. 

The file movement will take place on or within three days following the effective promotion or transfer date. 

The prior assignment will have until the effective date to make any final additions or finalize any previously 

initiated entries.

Temporary/special/acting assignments: Officers temporarily assigned to an acting supervisory position or to 

a temporary special assignment for a minimum of three consecutive work periods must have their evaluation 

form transferred to the new assignment or be granted access to the evaluation forms (acting supervisory 

assignments only). Command officers must notify Planning, Research, and Support (dpdplanning@

denvergov.org) with the officer name, assignment, and effective dates.

Q: Are officers assigned to a task force or other similar position or assignment where they are not 

directly supervised on a day-to-day basis by a sworn member of the Denver Police Department subject 

to a performance evaluation?

A: Yes. Officers that fall within this category are encouraged to complete the officer self-assessment form 

to document noteworthy performance within their given assignment and submit such to their designated 

Denver Police Department supervisor at the end of each quarter for incorporation into the officer’s 

performance evaluation. The designated Denver Police Department supervisor may also integrate any 

progress reports compiled by the task force supervisor that outline the Denver police officer’s performance 

into the officer’s performance evaluation. Conversely, the designated Denver Police Department supervisor 

shall collaborate with the task force officer and their task force supervisor in the development, measurement 

and assessment of the officer’s identified action plan.

For more information or clarification, please contact the Planning, Research, and Support Division:

Captain Sylvia T. Sich 

Sergeant Anthony Parisi 

Technician Estevan C. Valdez 
Appendices 125

DPD officer self-assessment
126 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

DPD performance evaluation action plan examples

DENVER POLICE DEPARTMENT

Performance Evaluation System 

Action Plan Examples 

Officer Adams 

Detective Friday 

Sergeant Copp 

Lieutenant Baker 

Planning, Research and Support Division 
Appendices 127

SECTION ONE - SERVICE DELIVERY

DENVER POLICE DEPARTMENT PERFORMANCE EVALUATION MISSION: IN PARTNERSHIP WITH THE COMMUNITY, WE ENDEAVOR TO OPERATE A POLICE AGENCY WITH A FOCUS ON PREVENTING CRIME IN A

RESPECTFUL MANNER, DEMONSTRATING THAT EVERYONE MATTERS

Last Name: Adams First Name: Adam Rating Period 1/1/2014

Rank: Officer to 12/31/2014

Serial Number: 88888  Valid Driver's License (expiration) 6/15/2018

Division: District One  Current Home Address

Assignment: Patrol - Detail 1

VISION THE DEPARTMENT, IN PARTNERSHIP WITH THE COMMUNITY, WILL ENDEAVOR TO ACHIEVE OUR MISSION BY:

FOCUS ON THE PREVENTION OF CRIME AND SAFETY

ADOPTING A DEPARTMENTAL CULTURE THAT IS CONSISTENT WITH COMMUNITY VALUES

COMBINING BOTH EFFICIENCY AND EFFECTIVENESS

LEVERAGE TECHNOLOGIES THAT ENHANCE POLICING OPERATIONS

VALUES JUSTICE, EQUITY, INTEGRITY, HONESTY, ACCOUNTABILITY, RESPECT, DIVERSITY, TEAMWORK, INNOVATION, CUSTOMER SERVICE

1st QUARTER - DIVISION LEVEL STRATEGIC PLAN

Enhance community partnership by emphasizing crime prevention, specifically as it pertains to auto thefts.

ACTION PLAN

Project / Goal 1

Title: Auto Theft Reduction - Puffer Vehicles Expected Completion Date: 3/31/2014

Anticipated outcomes and measures:

In the calendar year 2013, District One had a total of 550 auto thefts. Puffer-related auto thefts accounted for 10% (55 

total) of the auto thefts in District One. Officer Adams will identify puffer vehicles and personally contact vehicle owners to 

educate them on the potential auto theft risk. A crime prevention educational flyer will be provided to the puffer vehicle 

owner.

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

For Quarter 1, 2014, Officer Adams personally identified a total of 25 "puffer" vehicles and successfully made contact with 

each vehicle owner. Officer Adams provided each owner a crime prevention flyer. For this quarter, auto thefts in District 

One were reduced by a total of 15% in comparison to totals for Quarter 1, 2013.

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

 Project / Goal 2 (check box to make selections available)

Title: Expected Completion Date:

Anticipated outcomes and measures:

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

Denver Police Department Performance Evaluation

Officer Adams 88888 - PAGE 1 of 7 
128 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

2nd QUARTER - DIVISION LEVEL STRATEGIC PLAN

Data driven approach to crime/traffic safety (DDACTS)

ACTION PLAN

Project / Goal 1

Title: Registered Sex Offender Home Verification Expected Completion Date: 4/30/2014

Anticipated outcomes and measures:

Identify and provide compliance information to the Sex Registration Unit on offenders residing in hotels along the West 

Colfax Avenue corridor.

Status    Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

On March 27th, 2014 Officer Adams was provided with a list of 25 convicted sex offenders who reported their address to 

be at one of the several hotels along the West Colfax Avenue corridor. Officer Adams completed home verification checks 

for each of the 25 listed convicted sex offenders. Officer Adams identified a total of five convicted sex offenders that were 

not residing in their residence of record. The remaining twenty registered sex offenders were verified to be incompliance.

For the five who were out of compliance, four were discovered to be residing in the city of Lakewood. As for the one 

unaccounted sex offender, an arrest warrant for Failure to Register was issued. To date, this suspect remains at large.

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

 Project / Goal 2 (check box to make selections available)

Title: Expected Completion Date:

Anticipated outcomes and measures:

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

Denver Police Department Performance Evaluation

Officer Adams 88888 - PAGE 2 of 7 
Appendices 129

3rd QUARTER - DIVISION LEVEL STRATEGIC PLAN

Timely and effective response to emerging crime trends.

ACTION PLAN

Project / Goal 1

Title: Garage Burglary Suppression Expected Completion Date: 9/30/2014

Anticipated outcomes and measures:

During the month of June 2014, District One had a 30% increase of garage related burglaries. Officer Adams will 

personally contact 100% of the homeowners when he discovers an unattended open garage in his sector. Educational 

crime prevention flyers will be provided to the homeowner to help reduce garage related burglaries. Officer Adams will also 

work with the District Detectives and Crime Analyst to identify any crime trend/pattern in his assigned sector.

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

For Quarter 3, 2014, Officer Adams identified a total of 25 unattended/open garages in his sector. Crime prevention 

flyers were distributed to each homeowner and half of the home owners registered their bicycles on the Denver Police 

website as recommended by Officer Adams. Officer Adams partnered with the assigned District One Detectives after a 

crime pattern was identified.  During a saturation patrol operation on 07/26/2014, Officer Adams arrested an individual 

later identified as Jesse Quick (01/15/1975) shortly after he was seen fleeing from a residence with a large toolbox.

Suspect Quick was transported to the District One Station and confessed to the assigned detective not only for the current 

burglary, but also to five additional burglaries in the neighborhood. A search warrant was then executed at suspect 

Quick's residence and multiple bicycles and home electronics were seized. Two of the bicycles belonged to residents that 

Officer Adams personally contacted during his crime prevention measures. The Denver District Attorney's Office accepted 

a total of six felony cases against suspect Quick. Since June of 2014, garage related burglaries have decreased by 15%.

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

 Project / Goal 2 (check box to make selections available)

Title: Expected Completion Date:

Anticipated outcomes and measures:

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

Denver Police Department Performance Evaluation

Officer Adams 88888 - PAGE 3 of 7 
130 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

4th QUARTER - DIVISION LEVEL STRATEGIC PLAN

Enhance community partnership by emphasizing crime prevention, specifically as it pertains to at-risk adults.

ACTION PLAN

Project / Goal 1

Title: Adult Protection Referrals Expected Completion Date: 12/31/2013

Anticipated outcomes and measures:

Complete 100% of assigned adult protection referrals and initiate general offense report for any warranted criminal 

investigative follow-up investigation.

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

For Quarter 2, 2014, Officer Adams was assigned a total of five Adult Protection Referrals. Officer Adams successfully 

made contact with each subject of the referral. Only one was referred to the Domestic Violence Unit for a criminal followup investigation. This case (DPD Case #14-555555) was accepted for felony charges.

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

 Project / Goal 2 (check box to make selections available)

Title: Expected Completion Date:

Anticipated outcomes and measures:

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

Denver Police Department Performance Evaluation

Officer Adams 88888 - PAGE 4 of 7 
Appendices 131

SECTION ONE - SERVICE DELIVERY

DENVER POLICE DEPARTMENT PERFORMANCE EVALUATION MISSION: IN PARTNERSHIP WITH THE COMMUNITY, WE ENDEAVOR TO OPERATE A POLICE AGENCY WITH A FOCUS ON PREVENTING CRIME IN A

RESPECTFUL MANNER, DEMONSTRATING THAT EVERYONE MATTERS

Last Name: Friday First Name: Rating Period Joseph 1/1/2014

Rank: Detective to 12/31/2014

Serial Number: 77777  Valid Driver's License (expiration) 9/1/2017

Division: Major Crimes Division  Current Home Address

Assignment: Homicide Unit

VISION THE DEPARTMENT, IN PARTNERSHIP WITH THE COMMUNITY, WILL ENDEAVOR TO ACHIEVE OUR MISSION BY:

FOCUS ON THE PREVENTION OF CRIME AND SAFETY

ADOPTING A DEPARTMENTAL CULTURE THAT IS CONSISTENT WITH COMMUNITY VALUES

COMBINING BOTH EFFICIENCY AND EFFECTIVENESS

LEVERAGE TECHNOLOGIES THAT ENHANCE POLICING OPERATIONS

VALUES JUSTICE, EQUITY, INTEGRITY, HONESTY, ACCOUNTABILITY, RESPECT, DIVERSITY, TEAMWORK, INNOVATION, CUSTOMER SERVICE

1st QUARTER - DIVISION LEVEL STRATEGIC PLAN

Implementation of technology to enhance the solvability of Inactive, Not Cleared cases.

ACTION PLAN

Project / Goal 1

Title: Violent Crime and Apprehension Program Expected Completion Date: 3/31/2014

Anticipated outcomes and measures:

Detective Friday will enter all three of his unsolved homicides from 2013 into the ViCAP (Violent Crime and Apprehension 

Program) in an effort to generate additional leads to similar cases.

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

During Quarter 1 of 2014, Detective Friday entered all three of his unsolved homicides from 2013 into ViCAP (Violent 

Crime and Apprehension Program). On March 15th, 2014, Detective Friday received an investigative lead from the 

regional ViCAP crime analyst who reported similar case signatures between the unsolved Denver homicide that transpired 

on 10/31/2013 to an unsolved Aurora Homicide that occurred on 07/31/2013. To date no suspect(s) have been 

identified. However, Detective Friday has submitted an additional lab request in his case after meeting with the assigned 

Aurora Homicide Detective to compare case details.

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

 Project / Goal 2 (check box to make selections available)

Title: Expected Completion Date:

Anticipated outcomes and measures:

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

Denver Police Department Performance Evaluation

Detective Friday 77777 - PAGE 1 of 7 
132 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations
Appendices 133
134 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

SECTION ONE - SERVICE DELIVERY

DENVER POLICE DEPARTMENT PERFORMANCE EVALUATION MISSION: IN PARTNERSHIP WITH THE COMMUNITY, WE ENDEAVOR TO OPERATE A POLICE AGENCY WITH A FOCUS ON PREVENTING CRIME IN A

RESPECTFUL MANNER, DEMONSTRATING THAT EVERYONE MATTERS

Last Name: Baker First Name: Bob Rating Period 1/1/2014

Rank: Lieutenant to 12/31/2014

Serial Number: 55555  Valid Driver's License (expiration) 2/22/2016

Division: Special Operations Division  Current Home Address

Assignment: Traffic Investigation Unit

VISION THE DEPARTMENT, IN PARTNERSHIP WITH THE COMMUNITY, WILL ENDEAVOR TO ACHIEVE OUR MISSION BY:

FOCUS ON THE PREVENTION OF CRIME AND SAFETY

ADOPTING A DEPARTMENTAL CULTURE THAT IS CONSISTENT WITH COMMUNITY VALUES

COMBINING BOTH EFFICIENCY AND EFFECTIVENESS

LEVERAGE TECHNOLOGIES THAT ENHANCE POLICING OPERATIONS

VALUES JUSTICE, EQUITY, INTEGRITY, HONESTY, ACCOUNTABILITY, RESPECT, DIVERSITY, TEAMWORK, INNOVATION, CUSTOMER SERVICE

1st QUARTER - DIVISION LEVEL STRATEGIC PLAN

Alignment of Traffic Operations Bureau resources for enhanced traffic safety and crime prevention, specifically as it 

pertains to DUI arrests in the LoDo/Night club area.

ACTION PLAN

Project / Goal 1

Title: LoDo/ Night Club DUI Project Expected Completion Date: 3/31/2014

Anticipated outcomes and measures:

Traffic case study for causal effect of DUI arrests in precincts 611, 612, 621 and 623. Upon collection of DUI arrest data, 

attempt to determine if any known liquor establishment is over-serving customers.

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

During the 1st Quarter of 2014, a total of 130 DUI arrests were made in precincts 611, 612, 621 and 623. Of those 

arrests, 13 resulted in Serious Bodily Injury (SBI) accidents. In all 13 SBI accidents, the driver admitted to drinking at a 

lower-downtown nightclub. Two nightclubs (Bar YOLO and Bar Y-Not) were most frequently identified by the DUI drivers as 

the last location they were at prior to their arrest. After site visits at Bar YOLO and Bar Y-Not, it was determined that 

neither establishment has policies in place to call a taxi service for visibly intoxicated customers leaving their 

establishments. The General Managers for each establishment were contacted and each were instructed to re-educate 

their wait-staff and hosts on over-serving customers and calling a taxi service for visibly intoxicated patrons.

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

 Project / Goal 2 (check box to make selections available)

Title: Expected Completion Date:

Anticipated outcomes and measures:

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

Denver Police Department Performance Evaluation

Lieutenant Baker 55555 - PAGE 1 of 7 
Appendices 135

2nd QUARTER - DIVISION LEVEL STRATEGIC PLAN

Alignment of Traffic Operations Bureau and Vice Bureau personnel resources for enhanced traffic safety and crime 

prevention, specifically as it pertains to over-serving customers at LoDo area night clubs.

ACTION PLAN

Project / Goal 1

Title: LoDo/ Night Club Over-serving Project Expected Completion Date: 6/30/2014

Anticipated outcomes and measures:

Revisit Bar YOLO and Bar Y-Not to identify compliance level for serving visibly intoxicated customers. Coordinate six undercover operation with VICE Bureau Bar YOLO and Bar Y-Not to record any violations by bar staff.

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

Of the six under-cover VICE Bureau operations, a total of 20 violations were observed (12 over-serving and 8 intoxicated 

customers entering vehicles to drive off of night club property). All 8 intoxicated customers of the night clubs were 

stopped prior to driving off property and shuttled home via a taxi cab. In comparison to Quarter 1 of 2014, DUI arrests in 

Precincts 611, 612, 621 and 623 decreased by 23% (130 in Q1 to 100 in Q2) and DUI arrests that resulted in SBI also 

decreased by 54% (13 in Q1 to 6 in Q2).  VICE Bureau personnel were able to suspend the liquor license for both Bar 

YOLO and Bar Y-Not for multiple liquor law violations.

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

 Project / Goal 2 (check box to make selections available)

Title: Expected Completion Date:

Anticipated outcomes and measures:

Status     Not Started On Track Ahead Behind Completed Abandoned      

Results Achieved:

ASSESSMENT SCORE     EXEMPLARY SATISFACTORY UNSATISFACTORY NOT APPLICABLE    

Denver Police Department Performance Evaluation

Lieutenant Baker 55555 - PAGE 2 of 7 
136 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

DPD performance evaluation guide

DENVER POLICE DEPARTMENT

Performance Evaluation System Guide

Planning, Research and Support Division

November 2013
Appendices 137

Performance Evaluation System Guide 

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Performance Evaluation System 

Developed November 2013 

Implemented January 2014 

Planning, Research and Support Division 

Captain Sylvia Sich, 83016 

Sergeant Anthony Parisi, 89028 

Technician Estevan Valdez,08053 

Dawn Miquel, Senior Statistical Researcher 
138 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

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PREFACE

The employee performance evaluation represents one of the most important human resource systems 

in organizations. Its foundation is rooted in providing the employee feedback on their performance 

over an established period of time with a goal of both professional and personal development of the 

employee. As a bi-product, managers will be able to reward peak performers as well as identify 

officers who need improvement in specific areas. 

While there is no one perfect performance evaluation system; several key elements exist for an 

optimal evaluation. Research suggests that a high-quality performance system be objective and 

evidence based versus subjective in nature and focused on quota driven performance goals. Second, 

employees must have an opportunity for meaningful input into the appraisal process and a continuous 

performance-based feedback process should exist between supervisors and subordinates. Third, an 

effective performance appraisal should provide the opportunity for the supervisor and employee to 

promote achievement of individual and organizational goals. 

Since performance reviews are often used to make personnel decisions, they are subject to Equal 

Employment Opportunity (EEO) guidelines. Therefore, the performance review process must be 

consistently applied, job-related and based on clear and objective criteria. All rating decisions and 

judgments should be based on the achievement of the individual regardless of race, color, sex, 

religion, natural origin, political affiliation or age or any other basis protected by Federal, State or Local 

law, ordinance or regulation. 

Taking these factors into consideration, the Denver Police Evaluation System is modeled around the 

department’s Strategic Plan with the focal point on officer performance and growth. It is organized 

into three main components: “Service Delivery”, “Interpersonal Skills” and “Personal Development”. 

Each section is explained in greater detail within this user guide. 
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TABLE OF CONTENTS 

 PAGE

DEFINITIONS......................................................................................................................................... 5 

SUPERVISOR/COMMAND OFFICER RESPONSIBILITY........................................................................ 5 

DUTIES & RESPONSIBILITIES.............................................................................................................. 6 

PERFORMANCE EVALUATION FORM LOCATION, USAGE and DISTRIBUTION.................................. 9 

INSTRUCTIONS..................................................................................................................................... 10

PERFORMANCE RATING SCALE.......................................................................................................... 13 

ASSESSMENT SCORES........................................................................................................................ 14 

INTERPERSONAL SKILLS 

(1) Communication – written............................................................................................ 15 

(2) Communication – verbal............................................................................................. 15 

(3) Professionalism – respect........................................................................................... 16 

(4) Professionalism – customer service........................................................................... 16 

(5) Professionalism – appearance................................................................................... 17 

(6) Professionalism – integrity.......................................................................................... 17 

(7) Professionalism – job knowledge................................................................................18 

(8) Initiative – innovation.................................................................................................. 18 

(9) Initiative – motivation.................................................................................................. 19 

(10) Initiative – awareness................................................................................................. 19 

(11) Teamwork – collaboration.......................................................................................... 20

(12) Teamwork – adaptability............................................................................................ 20

(13) Leadership – management........................................................................................ 21 
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DEFINITIONS 

Officer: The subject officer of the evaluation. 

Supervisor: The evaluating supervisor of the officer. 

Command Officer: The next level/ranking officer directly above the supervisor. 

SUPERVISOR/COMMAND OFFICER RESPONSIBILITY 

The supervisor is responsible for the accurate and timely completion of the performance evaluation. 

In preparing the evaluation, the supervisor will carefully adhere to the instructions, rating scales, 

definitions, models and design in order to maintain the integrity of the process. Any deviation from 

this guide will result in a rejection of the performance evaluation by the command officer and require a 

revision/resubmission by the supervisor. 

The supervisor is responsible for making sure, not only, that the evaluation is correctly filled-in, but 

that the content is a true and comprehensive reflection of the officer’s performance. 

The overall responsibility of ensuring the performance evaluation is correctly applied lies with the 

command officer. The command officer must examine the content of the evaluation submitted by the 

supervisor and discern the accuracy and fairness of the conclusions reached within the evaluation 

period. It is within this review process that the command officer draws his/her own conclusions about 

the ability of the supervisor to perform this task, and the expectation is that this job function be 

accurately documented in the supervisor’s evaluation. 
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DUTIES & RESPONSIBILITIES 

Probationary Officer 

After successful completion of the Academy, a probationary officer will be assigned to and evaluated 

by a Field Training Officer. A probationary officer has the same duties and responsibilities as a police 

officer (1st – 4th grade). However, while in the Field Training Program, the probationary officer shall be 

evaluated by a Field Training Officer on the Daily Observation Report, DPD 292 and End of Phase 

Report, DPD 292B. 

Once the probationary officer completes the Field Training Program, their performance will be rated by 

their immediate supervisor and documented within the standard Denver Police Department 

Performance Evaluation. At the conclusion of every month, performance assessment meetings will be 

scheduled between the probationary officer and their immediate supervisor. 

Performance assessment meetings will be mandatory until the probationary officer successfully 

completes his/her probation period. Conversely, probationary officers and their immediate supervisor 

will also be required to develop and implement an Action Plan (outlined on page 12 under Service 

Delivery Section) within the present quarter. While on probation, a probationary officer’s Action Plan 

should concentrate on any training areas identified during the Field Training Program that need further 

development. After the probationary status of the officer concludes, they are eligible to receive a new 

Action Plan for the subsequent quarter. 

Police Officer

A patrol officer is responsible for carrying out the functions of the department with paramount focus 

on the protection of life and property from criminal depredation, the prevention of crime, the 

apprehension and arrest of violators of criminal and traffic laws, recovery of stolen property and the 

regulation of non-criminal conduct. They shall constantly direct their best efforts to accomplish that 

end intelligently and efficiently, and shall hold themselves in readiness at all times to answer the calls 

and obey the orders of their superior officers. 

Officers will uphold the Constitution of the United States of America and enforce applicable ordinances 

and regulations of the City and County of Denver and the laws of the State of Colorado in a fair and 

impartial manner. 

Officers shall serve the public by direction, counsel, and in other ways that do not interfere with the 

discharge of their police responsibilities. They shall respect and protect the rights of individuals and 

perform their services with honesty, zeal, courage, discretion, fidelity and sound judgment. In carrying 

out the functions of the department, all members thereof shall direct and coordinate their efforts in 

such a manner as will establish and maintain the highest standard of efficiency and safety. 

Technician

Officers assigned to specific duties as technicians must demonstrate initiative, resourcefulness, 

intelligence, alertness, observation, memory and judgment to a greater degree than is ordinarily 

required. At the discretion of the Chief of Police, officers may be assigned as technicians to perform 

an auxiliary or line function. Officers at this rank shall strive to develop and disseminate improved 

administrative, technical and operational practices to advance their usefulness in the field of law 

enforcement. Above all, technicians shall be proactive in the latest developments in their area of 

expertise and continue their education, training and re-certification in their specific science or 

application of criminal justice. 
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DUTIES & RESPONSIBILITIES continued 

Corporal 

The primary responsibility of a corporal is training in the role of field instructor. They shall see that 

their subordinates make all required reports promptly and such reports shall be accurate, complete 

and on the proper forms. Corporals will administer roll call training and assist sergeants with 

planning, scheduling and staffing in response to either a planned or spontaneous police function. 

In the absence of a supervisor, corporals shall assume command and control of crime scenes, crimes 

in progress, vehicular pursuits and all other critical incidents. They shall be held strictly accountable 

for the efficiency, good conduct, and appearance of the subordinate officers under their supervision. 

Corporals shall set an example in sobriety, dignity, courtesy, discretion, initiative, industry, diligence, 

truthfulness, courage, attention to duty and the observance of proper discipline. They shall at all 

times, appear neatly attired and clean in person and equipment. 

Detective

Officers assigned as detectives shall direct their best efforts in the prevention and suppression of 

crime, the recovery or stolen property, the lawful seizure of evidence and the detection and 

apprehension of criminals. Detectives shall thoroughly investigate cases assigned to them in a fair 

and impartial manner. They shall interview the complainant without delay, properly identify 

themselves and consult with the complainant regarding the progress of the case until officially closed. 

 

Detectives will promptly focus their investigative efforts to the interrogation of suspects jailed pursuant 

to an investigative hold and will expedite the filing of formal charges or the release of the prisoner, 

consistent with sound investigation procedures. Detectives shall keep their supervisor informed on 

the progress of their assigned investigations and provide a comprehensive assessment of their case 

to the District Attorney’s Office to ensure sound filing considerations. 

Detectives must be responsive to subpoenas and properly prepare for court testimony. Detectives will 

provide reasonable requested information and assistance to other divisions of the police department 

and outside law enforcement agencies in order to maintain an efficient level of cooperation and 

coordination in affected areas. 

Sergeant 

The principal duties of a sergeant include directing personnel to accomplish the task at hand, 

maintaining standards of the department, and creating and sustaining cooperation between 

employees. 

A sergeant is not only responsible for their own conduct and performance of police duties, but for that 

of subordinates as well. They are responsible for the proper execution of orders by their subordinates 

and shall be held strictly responsible for the efficiency, good conduct, and appearance of the 

subordinate officers under their supervision. Sergeants shall place personnel under their supervision 

in positions appropriate to their capabilities and foster the development of subordinates.

Sergeants shall set an example in sobriety, dignity, courtesy, discretion, initiative, industry, diligence, 

truthfulness, courage, attention to duty and the observance of proper discipline. They shall follow 

departmental rules of discipline and disciplinary procedures in all cases of misconduct on the part of 

their subordinates. Sergeants will investigate or cause to be investigated all complaints by citizens or 

members of the police department of misconduct, incompetence, neglect of duty, violations of law or 

the rules and regulations of the department. 
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DUTIES & RESPONSIBILITIES continued 

Lieutenant 

Lieutenants are classified as command-level officers and shall be charged primarily with the 

immediate supervision of all members of their district, bureau, section, or unit. They shall be held 

strictly responsible for the discipline, conduct, and efficiency of employees operating under their 

authority. Lieutenants manage supervisors who oversee the day-to-day operations of personnel. 

Lieutenants will assist their commander in all district and/or bureau planning and shall manage and 

participate in assigned programs, functions and activities for their district, bureau, section, or unit. 

They will be responsible for the preparation of required correspondence, reports and maintenance of 

records relating to the activities of the command. 

Lieutenants are responsible for the proper care, economical use, efficiency and serviceability of 

department equipment issued for, or assigned to the use of members within their command. They are 

further responsible for the good order and sanitary conditions of departmental buildings or portions 

within their authority, and for the proper operation of equipment and furnishings assigned thereto. 

As a command-level officer, lieutenants shall monitor employee performance and identify subordinate 

personnel within their command who exhibit performance or behavior contrary to the mission, vision, 

values, goals, policies or procedures of the department. Lieutenants shall take proactive measures to 

identity performance deficiencies of personnel under their authority and they will develop and 

implement effective interventions strategies to correct subordinate performance or behavioral issues 

or problems; initiating disciplinary action when appropriate. 

Captain 

Captains are responsible for the overall efficiency, discipline and morale of all members of their 

command. They shall promote harmony among the members of their command and are responsible 

for the cooperation of their command with all other districts, divisions, and bureaus of the department. 

They shall investigate, or cause to be investigated, all complaints of citizens and reports by members 

of the police department of misconduct, incompetence, neglect of duty, or any violations of the Rules 

and Regulations on the part of anyone under their command in accordance with established policies 

and procedures of the department. They shall keep an accurate record of all departmental orders and 

see that they are read and carefully explained to all members under their supervision. 

Captains will direct and supervise all planning and policy programs within their authority. They will see 

to the coordination and follow-up of all projects originating from their command with the plans and 

policy of other districts or bureaus within the department. Captains shall be held responsible for the 

proper and economical use and care of all property and equipment owned or controlled by the 

department. They shall see that all necessary reports and other department transactions are promptly 

addressed and disseminated while assuring accuracy thereof. They are responsible for preparation of 

required correspondence, reports, and maintenance of records relating to the activities of their 

command.

Captains shall, as soon as practical, report any emergency, crime of great magnitude, or unusual 

occurrence to their immediate superior in accordance with published department procedures. They 

shall also, whenever possible, respond to calls where members of their command are involved in a 

critical incident or serious accident. Captains shall keep fully and accurately informed of political and 

other events and gatherings likely to attract large numbers of persons in a particular area and shall 

take such steps as may be necessary to ensure proper police services at such assemblages. 
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PERFORMANCE EVALUATION FORM LOCATION, USAGE and DISTRIBUTION 

LOCATION The Performance Evaluation form can be located at: T:\DPD (DPD Template Drive) under 

the file name: “DPD Performance Evaluation System-2014”.

When opening the form for the first time, enter the heading information for the subject officer. Once 

this is completed, save the document at Y:\EVALS (follow instruction sheet) using the formatting 

instructions below. 

File Name: LastName.FirstName.SerialNumber.YEAR 

Example: Smith.John.99999.2014 

This step will need to be repeated for every officer under your span of control until each officer has a 

unique performance evaluation form. 

USAGE The Performance Evaluation System form was meant to be utilized as a single repository 

throughout the year until finalized at the completion of the 4th Quarter. Remember to ALWAYS scroll 

through the form and hit the “CALCULATE SCORE AND SUBMIT UPDATES” prior to saving your work 

and closing. Failing to hit this button will cause the background calculations not to take place and will 

result in your work (although saved) being unaccounted for when the data is extracted. 

DISTRIBUTION The Performance Evaluation form allows information contained within it to be easily 

reported and distributed using minimal printing. At the completion of every quarter, the supervisor is 

able to demonstrate the work completed to his/her command officer while at the same time allowing 

the subject officer to maintain a copy for his/her records. 

By utilizing the “Send to Mail Recipient”

icon, the supervisor is able to forward 

a copy of the performance evaluation 

similar to MS Outlook. 

TO: Command Officer 

CC: Subject Officer REMEMBER to always modify the 

“mail options” on the right task 

pane to “Read-Only snapshot”. 

Inadvertently sending an “editable 

form” will result in the subject 

officer being able to manipulate 

the performance evaluation, 

regardless of where it is saved. 

STEP 1

STEP 2

At the conclusion of the year when the performance evaluation is finalized, the supervisor will print out 

the evaluation, obtain the necessary signatures and forward the original to his/her commander. 
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INSTRUCTIONS 

SECTION ONE: SERVICE DELIVERY 

The “Service Delivery” segment of the evaluation will incorporate the department’s strategic plan. 

Every commander is responsible to develop specific tactics, metrics and goals for their entire division 

for inclusion in the department’s strategic plan and communicating the objectives to their personnel. 

Therefore, each officer within the department plays an integral role in accomplishing the aim of the 

strategic plan. Moreover, it is the supervisor’s responsibility to ensure that each officer within his/her 

span of control not only understand the purpose within the strategic plan, but to collaborate with the 

officers to accomplish the benchmarks of the strategic plan within their area of responsibility. By

identifying a project or issue to address, the officer and his/her supervisor will develop and agree 

upon, at minimum, one Action Plan for the given quarter. If an additional Action Plan is to be tasked, 

the check box next to “Project/Goal 2” must be selected and remain checked for the scoring system to 

work. The officer will then be evaluated on his/her performance addressing the stated project. 

Using the strategic plan as a guide, the 

supervisor develops specific and 

measurable projects/goals for each 

officer under their purview.

TIP: When extracting information for the 

Performance Evaluation - focus on clear, 

succinct objectives using concise 

language. 

Strategic 

Plan 

At the completion of each quarter, the status of the Action Plan(s) will be assessed and classified as 

Not Started, On Track, Ahead, Behind, Completed or Abandoned. The supervisor will also be 

responsible for completing the Results Achieved narrative field to support both the project status and 

scoring selections. 

Scoring of a quarterly Action Plan will be either at an Exemplary, Satisfactory or Unsatisfactory level 

(see Performance Rating Scale Section for definitions). For those projects that are “Not Started” due 

to circumstances outside of the officer and/or supervisor’s control (i.e. lack of funding, training, 

necessary equipment), the applicable scoring would be classified as Not Applicable. Conversely, for an 

assigned project that was “Abandoned” due to circumstances such as, a change in the officer’s duty 

status (i.e. limited duty, suspension, etc.), the only applicable scoring classification is Satisfactory or 

Unsatisfactory. 

The Service Delivery score is one of the two elements tallied for the officer’s year-end evaluation 

score. See Scoring Section for the definitions and formula on how an officer’s Final Assessment score 

is calculated. 
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SECTION TWO: INTERPERSONAL SKILLS 

The “Interpersonal Skills” section of the evaluation will record noteworthy individual performance of 

the officer being rated. Documentation of an officer’s performance will be captured in a journal-like 

feature similar to the currently used Supervisor’s Situation Report. Mandatory data fields for the 

journal entry include date of event, source of information and the applicable core dimension category 

for the officer’s performance. 

The source field has a total of five options for the supervisor to choose from once the drop-down arrow 

button is selected. The source options are: Direct Observation, Citizen, Officer Self-Assessment, 

Internal Affairs and Information Only. Each supervisor shall select the most appropriate source type to 

substantiate the officer’s performance. 

Next, the supervisor shall select from a total of thirteen core dimension types listed within the category 

field. The core dimensions the officer will be rated on are more general in nature so they can be 

applicable to all ranks and assignments. Core dimensions include elements such as communication, 

professionalism, teamwork and initiative/innovation. Supervisors will select the most appropriate core 

dimension from the drop-down box when completing a journal entry for the officer he/she supervises. 

Two additional options within the category field are available. They are listed as “Training” and 

“Other”. A supervisor can use either one of these options to record individual performance such as, 

an officer’s successful completion of specialized training or an officer’s receipt of a new policy. 

Directly below the Date, Source and Category fields is a text box titled “Narrative”. Supervisors will use 

this text box to document the officer’s noteworthy performance. After the supporting content is 

populated by the supervisor in the narrative text box, the supervisor will then select the corresponding 

assessment score of Exemplary, Satisfactory or Unsatisfactory. Should an officer’s performance level 

be classified as Unsatisfactory, the supervisor shall document the date of the substandard event and 

promptly schedule a meeting with his/her officer. The supervisor shall record the date of when the 

performance meeting was held with their subordinate in the narrative text box and that an electronic 

copy of the negative entry was provided to both the subject officer and a command level officer. This 

will serve as a record to further document the unsatisfactory performance level. The electronic 

dissemination process will be the same as described on page 8 of this guide; as explained under the 

subheading titled “Distribution”. 

TIP: Click the down arrow to make additional journal entries.

The Interpersonal Skills score is the second of the two elements tallied for the officer’s year-end 

evaluation score. As a general rule, supervisors shall rate an officer’s individual performance 

independent from the officer’s assigned Action Plan to avoid “double-scoring”. See Scoring Section for 

the definitions and formula on how an officer’s Final Assessment score is calculated. 
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SECTION TWO: INTERPERSONAL SKILLS (cont.) 

At the conclusion of the rating period, the supervisor will summarize the officer’s performance in a 

“Year End Narrative” field embedded within the Interpersonal Skills Section of the evaluation form. 

 

NOTE: Year End Narrative has an enabled expanding text box.

The year end narrative is not factored into an officer’s Final Assessment score, but instead is designed 

for the supervisor to summarize the officer’s total body of work (strengths and weaknesses) during the 

calendar year. 
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SECTION THREE: PERSONAL DEVELOPMENT 

The third part of the evaluation, referred to as “Personal Development”, is intended to more formally 

engage both the officer and supervisor. Specifically, prior to the start of the new calendar year for a 

given rating period, each officer will be required to communicate to their direct supervisor the short 

and long term goals they wish to achieve. This communication aspect prompts the supervisor to tailor 

future training and mentoring opportunities that are more consistent with that particular officer’s 

stated professional and/or personal goals. 

An additional component to this section of the evaluation will include an officer’s Self Assessment Log 

where each officer can elect to document his/her activities that a supervisor may not be directly aware 

of due to circumstances outside of their control. Such scenarios include, supervisor on vacation/day 

off during an officer’s notable performance, supervisor not present to observe noteworthy officer 

performance, etc. The officer’s Self Assessment Log is due on the last day of each quarter (March 

31st, June 30th, September 30th and December 31st). 

Upon receipt of an officer’s Self Assessment Log, the supervisor shall verify the content and cause the 

authenticated activities to be integrated into the journal section of the evaluation within section two, 

“Interpersonal Skills”. These journal entries are then eligible to receive a “score” of Satisfactory, 

Unsatisfactory or Exemplary. 

Officers are not required to complete a Self Assessment Log, but shall complete their short and long 

term goals within the last quarter of the annual rating period. The supervisor will retain this 

addendum, titled Officer Self Assessment, for inclusion in the officer’s year end evaluation.

FREQUENCY 

The frequency of the rating will be on a quarterly basis, except as outlined for probationary officers on 

page 5 of this guide. Assessment scores within the Service Delivery and Interpersonal Skills sections 

will be sub-totaled each quarter and calculated into a final, year-end evaluation score. Final 

Assessment scores are Distinguished Performance, Meets Expectations, Needs Improvement and 

Unacceptable. 

Assessment scores within the Service Delivery and Interpersonal Skills sections of the evaluation 

system shall be finalized fifteen days after the conclusion of the given rating quarter. This will ensure 

timely feedback to the officer on his/her performance and prevent data manipulation by the 

supervisor to influence an officer’s final assessment. A Performance Evaluation Calendar will be 

made available to outline each phase of the evaluation and corresponding deadlines. 

PERFORMANCE RATING 

Benchmark scoring for the year-end performance rating is defined and outlined on the evaluation form 

as follows: 

DISTINGUISHED PERFORMANCE 10+ exemplary ratings AND 0-3 unsatisfactory ratings for the year 

0-9 exemplary ratings AND 0-3 unsatisfactory ratings for the year 

4-7 unsatisfactory ratings for the year (automatic qualifier)

8+ unsatisfactory ratings for the year (automatic qualifier) 

MEETS EXPECTATIONS 

NEEDS IMPROVEMENT 

UNACCEPTABLE 
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ASSESSMENT SCORES 

In order to effectively, accurately and fairly evaluate an officer, the supervisor must carefully read and 

apply the definitions, examples and models of each core dimension/rating scale. The definitions are 

not only designed to give the supervisor an understanding of each core dimension, but also serves to 

eliminate ambiguity and minimize rating errors. Each definition has been carefully worded and 

phrased in order to standardize the evaluation process. Supervisors need to be vigilant in the 

application of these definitions and to not evaluate the officer based on their own personal definition 

or bias. Guided by these definitions, the officer must be evaluated by the criteria provided here. 

While the wording is precise and many examples have been provided, these models are not intended 

to be all inclusive, but rather a representation for the typical application of these definitions. The 

supervisor will make every attempt to stay within this framework when evaluating the officer. 

EXEMPLARY: The performance exhibited is exceptional and rarely equaled; work is consistently 

excellent in terms of quality, thoroughness, accuracy, efficiency, tactical and 

technical expertise; officer is proactive in thought, demonstrates innovation and 

without exception, initiates and completes responsibilities while always adhering 

to policy and procedure; the officer has an exceptional understanding of what job 

tasks are needed to be accomplished; there is no doubt in the application of 

sound judgment; the officer is desirous of seeking additional work and 

responsibility upon the completion of normal duties and often does not need 

prompting; the performance is far above the department’s expectations specific 

to rank/position. 

SATISFACTORY: The performance exhibited is acceptable; the officer performs work in a steady 

manner; there is an effective application of skills and tactics to various 

responsibilities; in most instances uses sound judgment; is usually desirous and 

willing to do the job; is able to perform tasks with minimal instruction and 

direction; performance is considered to be consistent, effective, efficient and 

generally meets the expectations set forth by the specific rank/position. 

UNSATISFACTORY: The performance exhibited is marginal to poor; there is a limited or complete 

lack of ability to perform the basic responsibilities; is unwilling to work, shows no 

desire to work; performance is not sufficient, requires repeated or extensive 

direction; does not exercise sound judgment; the officer frequently or 

consistently disregards responsibilities or adherence to policy and procedure or 

tactics. 

NOT APPLICABLE: Some entries on the evaluation will be informational only, for example the 

documentation of training attended. Entries that are not performance based 

should have no bearing on the evaluation and therefore the ‘not applicable’ 

standard should be applied. Additionally, this rating would be appropriate if for 

reasons beyond the control of the officer, an action plan was delayed or 

abandoned and no measureable performance metrics had been accomplished. 
150 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

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INTERPERSONAL SKILLS 

(1) 

COMMUNICATION – WRITTEN 

The ability to express information or ideas to other people in written form 

MODELS 

EXEMPLARY: When writing, spelling and grammar usage are flawless. Reports and correspondence 

are concise and include all necessary and relevant facts. Content is detailed and appropriately cited. 

All information is clearly understood. The execution is appropriate to the content and provides the 

recipient with a clear statement of position or an identifiable call to action. 

SATISFACTORY: Reports and correspondence are accurate, concise and understandable. Although 

there may be minimal errors in spelling or grammar, they do not affect the meaning or factual content. 

Handwritten reports are neat and legible. Written communication is delivered in the format 

appropriate to the subject. 

UNSATISFACTORY: Reports and correspondence are inaccurate because they either include 

unnecessary and/or contradictory information or are generally lacking necessary information. The 

content is confusing and the uses of language, spelling and grammar are frequently incorrect or 

misleading. Handwritten reports are illegible. Written communication is delivered in the format 

inappropriate to the subject. 

(2) 

COMMUNICATION – VERBAL

The ability to express information or ideas to other people verbally 

MODELS 

EXEMPLARY: When speaking or answering questions, the ability to communicate information or ideas 

is exceptional and commands the attention of all listeners. Statements are concise and deal directly 

with the subject matter. Speaks with forcefulness and has near perfect enunciation. Actively listens 

and participates in the conversation; utilizing focused questions that demonstrate genuine interest. 

Responds appropriately to questions; demonstrating professionalism, compassion and/or expertise. 

Has an excellent awareness of body language. 

SATISFACTORY: Able to speak and be understood with little explanation or distortion. Main ideas are 

conveyed, although some clarification may be needed. Has a general awareness of inflection, 

enunciation and tone, and understands the impact they have on the message. Compassionate to 

different communication styles and makes adjustments as required. Speaks calmly and clearly, using 

appropriate language. Has a general awareness of body language. 

UNSATISFACTORY: Attempts to communicate result in confusion, misunderstanding or confrontation. 

Continually brings up irrelevant issues, is unclear and/or directs the discussion to become obscure. 

Enunciation is poor and language usage is often inappropriate. Has a limited awareness of body 

language and has a tendency to convey disinterest, indifference or dissension. 
Appendices 151

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 (3) 

PROFESSIONALISM – RESPECT 

The ability to demonstrate respect for all persons, at all times. 

MODELS 

EXEMPLARY: Recognizes and understands the need for respecting the values and perspectives of a 

diverse community and workforce. Demonstrates empathy and consideration to all members of 

society: regardless of race, gender, ethnicity, age, creed, sexual orientation and/or economic status. 

Sympathetic and tactful when dealing with the feelings of others; maintains composure and neutrality 

when dealing with sensitive situations and/or conflict. 

SATISFACTORY: Tolerant of all perspectives that are different from their own. Respectful to all 

members of society: regardless of race, gender, ethnicity, age, creed, sexual orientation and/or 

economic status. Uses appropriate titles when addressing or referring to others; does not speak in 

overly familiar terms. Maintains a professional demeanor with citizens; demonstrates restraint even 

when they are discourteous or unreasonable. 

UNSATISFACTORY: Abrasive, abusive, inconsiderate or tactless. Displays bias or prejudice against 

others due to race, gender, ethnicity, age, creed, sexual orientation and/or economic status. 

Intolerant or indifferent to the perspective of others and treats persons different from themselves in a 

disrespectful manner. While on-duty, uses derogatory words, slang or offensive language when 

referring to others, regardless of audience. 

(4) 

PROFESSIONALISM – CUSTOMER SERVICE 

The application of police services to the community in which they serve. 

MODELS 

EXEMPLARY: Proficient and diligent in the application of police services, constantly aware that a 

police department ultimately serves the public. Thorough and anticipatory in the ability to render 

service, always considering and properly utilizing sound tactics, officer safety, necessary gear and 

appropriate resources; while at the same time adherent to policy and procedure and all applicable 

laws. Takes and assumes personal ownership and responsibility in providing the efficient application 

of police service. 

SATISFACTORY: Generally understands how his/her job and the application of police services affects 

the quality of life and safety of citizens. Can prioritize calls for service, attempts to limit personal 

needs and recognizes that the service to the community will always take precedence. Listens to 

citizen needs and provides them with service consistent and adherent to policy and procedure and all 

applicable laws. On-time and prepared to provide service with all necessary gear and departmental 

paperwork. 

UNSATISFACTORY: Provides police services without much enthusiasm, energy or effort. Lacks the 

ability to prioritize calls for service and/or fails to provide police services due to laziness, indifference 

or defiance. Displays tardiness and absenteeism and/or is generally unprepared to provide services 

due to lack of departmental paperwork/gear/equipment. 
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(5)

PROFESSIONALISM – APPEARANCE

The projection of an image that is consistent with that of a professional law enforcement officer. 

MODELS 

*EXEMPLARY: Not an acceptable selection for this category. Officers are expected to project a 

professional appearance and this category will only be measured to the degree of satisfactory or 

unsatisfactory. 

SATISFACTORY: Contingent on the scope of assignment; complies with department standards for 

personal grooming and the wearing of the uniform. Always dresses appropriate for assignment, 

reflective of professional pride. Maintains his/her outward appearance; neatly pressed clothing, 

polished leather, brass and footwear, serviceable equipment; demonstrates a professional command 

presence. 

UNSATISFACTORY: Fails to dress appropriately for assignment. Uniform and/or equipment are not 

clean and/or serviceable. Not in compliance with department standards for personal grooming or 

wearing of the uniform. Appearance is not in accordance with professional duties. Lacks command 

presence. 

 

(6) 

PROFESSIONALISM – INTEGRITY 

The ability to apply principle to conduct and duty while having a sense of moral obligation to do so. 

MODELS 

*EXEMPLARY: Not an acceptable selection for this category. The expectation is that all officers, at all 

times, maintain an extraordinary high-level of professional integrity and therefore there is only one 

acceptable standard. 

SATISFACTORY: Protective of all citizens’ rights; respectful of the responsibility the police profession 

carries and executes all duties in a lawful manner. While rendering police services, personal conduct 

and police services are reflective of being honest, trustworthy and noble. Adheres to all department 

directives/policy and procedures. At all times maintains strict case confidentiality. Irrespective of 

perceived popularity or personal comfort, adheres to principles. 

UNSATISFACTORY: Executes duties in an unlawful manner while displaying characteristics of 

dishonesty or lack of integrity. Disregards department directives/policy and procedures and/or rules 

and regulations. Fails to maintain case confidentiality. 
Appendices 153

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 (7) 

PROFESSIONALISM – JOB KNOWLEDGE 

The ability to understand the role, function and duties of a law enforcement officer while operating under 

policy and procedure. 

 

MODELS 

EXEMPLARY: Considered an ‘expert’ in a particular field. Often called upon to speak or instruct on a 

particular subject internally or externally. Considered a leader in a particular field; having attended 

advanced training, possessing a higher level of knowledge and in addition, applies their knowledge to 

further the department’s mission, vision and values. Develops and mentors fellow employees to 

enhance to overall performance and efficiency of the department, as well as the advancement of 

future leaders of the department. (The majority of officers will not meet this definition).

SATISFACTORY: Knowledgeable of all policy and procedures that require immediate application under 

emergent situations. Able to recall and apply the knowledge of all directives, policy and procedures 

and/or aware of what situations require the verification of policy prior to taking police action. Abides 

and understands the duties and responsibilities specific to the officer’s rank. Attentive to changes in 

legislation and cognizant of the proper enforcement application of municipal/ state/federal laws. 

UNSATISFACTORY: Unable to recall and apply policy and procedures that would require immediate 

application under emergent situations. Often seeks repeated instruction or requires extensive 

direction from a supervisor for routine police activities that are outlined within the operations manual. 

Unable to recall and apply directives and/or policy and procedures as it pertains to taking police action 

and fails to consult the operations manual prior to taking police action. Officer fails to understand 

and negligent in the application of the duties and responsibilities specific to the officer’s rank. 

Demonstrates little or limited knowledge of municipal/state/federal laws and fails to apply arrest 

powers in a lawful manner or fails to enforce the law as it was intended. 

(8) 

INITIATIVE – INNOVATION 

The ability to consider alternative approaches given a problem. The ability to deconstruct a process or issue 

and able to formulate a plan that corrects the problem and yields better, more efficient results. The ability to 

improvise in situations when policy & procedure do not apply, resulting in improved community policing. 

MODELS 

EXEMPLARY: Extremely resourceful when confronted with obstacles, always able to develop a new 

procedure, tactic or system to overcome the obstacle. Proactive in solving problems, works 

independently to devise creative ways to improve existing procedures, tactics or methods of 

enforcement. When faced with a problem, offers creative insight and solutions and not averse to 

taking calculated risks and/or utilizing unconventional methods. 

SATISFACTORY: Occasionally resourceful when confronted with obstacles, has the ability to formulate 

a creative solution. When faced with a problem, sometimes capable of devising a creative way to 

improve existing procedures, tactics or methods of enforcement. 

UNSATISFACTORY: Not resourceful when confronted with obstacles, is unable to develop a creative 

solution. When faced with a problem, is incapable of formulating a solution, or often will devise a 

solution that decreases efficiency, offers no improvement or contrary to community policing initiatives. 

Generally does not offer suggestions or solutions to problems. 
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 (9) 

INITIATIVE – MOTIVATION 

The ability to demonstrate enthusiasm, interest or commitment toward the process of initiating or following 

through on assigned work. Without prompting, the ability to perform tedious work and see it through to 

completion. 

MODELS 

EXEMPLARY: Relentless in the pursuit of resolving problems. Works on tasks with little or no 

supervision, takes a personal interest in resolving problems, submitting work or improving conditions 

within purview. Unless delegating, never tries to pass off work or a community problem deserving of 

police services. Meets deadlines and stays motivated to work, even when his/her efforts go unnoticed 

or when the task is less than desirable. 

SATISFACTORY: Sometimes requires direction or prompting to resolve problems. Usually meets 

deadlines. When encouraged to do so, accepts responsibility for difficult or challenging assignments. 

Demonstrates initiative toward problem management including the development of an action plan and 

assumes responsibility for the outcome. 

UNSATISFACTORY: Allows problems to go unresolved rather than confront them directly. With no 

delegation authority or the improper use of authority, tries to pass off his/her work onto others. Avoids 

taking responsibility, requires a great deal of supervision or guidance and/or will sit around idly unless 

specifically directed to work. Without acceptable reason, does not meet deadlines. 

(10) 

INITIATIVE – AWARENESS 

The ability to demonstrate an interest in and awareness of remaining current in departmental policy & 

procedure, technology and culture, the natural evolution of law enforcement application, the trends and 

advancements of a particular law enforcement field, crime patterns and general community concerns. The 

ability to recognize or identify the existence of a problem; does not include the ability to solve the problem, but 

the ability to identify and recognize the elements of a problem. 

MODELS 

EXEMPLARY: Not only posses a global view of the department and a contemporary view of law 

enforcement, but also attempts to further the natural evolution by demonstrating a non-disparaging 

attitude while encouraging others to be open and accepting of change. Actively seeks new and 

emerging trends within law enforcement and presents them to the department for incorporation. 

Aware of crime patterns and community concerns, disperses the knowledge upward and laterally to 

seek support for remedy. 

SATISFACTORY: Possess a global view of the department and the role of law enforcement, amicable to 

the natural evolution of both and attempts to remain current and contemporary. Knowledgeable of 

current and emerging law enforcement issues, trends and best practices. Generally aware of crime 

patterns and community concerns and seeks remedy. 

UNSATISFACTORY: Indifferent or disparaging towards the department’s mission/vision/values while 

lacking a general understanding of the department’s structure and/or the role of law enforcement 

within society. Within a particular area of responsibility, generally unaware of crime patterns, 

departmental needs or community concerns and makes little to no effort in identifying them. 
Appendices 155

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(11) 

TEAMWORK – COLLABORATION

The ability to collaborate with others - fully utilizing and recognizing the strengths of its members as individuals, 

yet working cohesively and collectively to achieve a unified goal. 

MODELS 

EXEMPLARY: Actively contributes to the achievement of team and organizational goals by actively 

seeking out the expertise of others and formulating a solid road map for success that fully utilizes 

every team member. Facilitates the success of teamwork by effectively connecting thoughts and 

ideas from otherwise conflicting, arbitrary or non-participatory players. Although perhaps a strong 

player and perhaps does shoulder a large portion of the workload, allows others to contribute and be 

rewarded in success. 

SATISFACTORY: Actively contributes to the achievement of team and organizational goals. Has a 

positive influence on the outcome of projects/goals and places success of the team ahead of 

individual recognition. While capable of handling an equitable share of the workload, allows others to 

express their ideas and constructively contribute. 

UNSATISFACTORY: Places personal recognition and attainment of status ahead of team success and 

the advancement of the department’s mission/vision/values. Often non-participatory or contrary 

towards teamwork, allowing others to make decisions that they have a stake hold in, so as to create 

distance if the idea fails. Without good cause, is disparaging or overly critical of ideas not their own. 

When presented with group tasks, does not handle a fair portion of the workload. 

(12) 

TEAMWORK – ADAPTABILITY

Individually and within a team, the ability to modify one’s approach in order to most effectively meet the needs 

of changing circumstances. In addition, the ability to remain focused on results while keeping those affected 

informed and up-to-date although strategies and tactics may change. 

MODELS 

EXEMPLARY: Effectively adjusts behavior, modifies strategies and alerts affected team-members 

when confronted with changing, uncertain or critical situations; adapts to change or rapidly evolving 

situations without loss of effectiveness. Quickly rebounds from setbacks by adjusting and changing 

tactics, strategy or goals. 

SATISFACTORY: Proactive when dealing with ambiguous situations, acquires new knowledge or 

applies new skills to meet demands. Remains calm, composed and in control when facing stressful 

situations. Flexible; is able to let go of past practices and open to trying new and different 

approaches. As tactics evolve, is always conscientious of officer safety. 

UNSATISFACTORY: Fails to adapt plans when difficult or unexpected situations arise, which can lead 

to compromised officer safety. Demonstrates difficulty, hostility or defensiveness towards processing 

new information or changing conditions; thus leading to the potential breakdown in effectiveness or 

progress. Dwells excessively on setbacks, fails to recognize it is part of the learning process. When 

adapting, is negligent to informing team-members and supervisors of imperative changes to tactics or 

strategies. 
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(13) 

LEADERSHIP - MANAGEMENT 

This dimension will only be applied to supervisory positions; to include the officers holding the rank of sergeant, 

lieutenant and captain. 

The ability to lead, inspire and elevate the performance standards of the officers within their purview; in a 

manner consistent with the mission, vision and values of the Denver Police Department. 

MODELS 

EXEMPLARY: Establishes a clear vision for executing duties, sharing that vision so others follow 

willingly and provides knowledge, information and methods of being able to realize that vision. Calm, 

confident and competent; effectively and efficiently can maneuver through roadblocks, setbacks and 

rapidly evolving situations. Able to delegate when appropriate and seeks to empower others with the 

ability to develop leadership traits of their own through guided supervision/mentoring. Continually 

sets and achieves personal and professional goals and motivates his/her officers in the 

accomplishment of their personal and professional aspirations. Displays sound fiscal discretion and 

prudent deployment of department resources. Proficient at consensus building and possesses 

unquestionable character. 

SATISFACTORY: Able to manage employees, resources, situations and projects. Able to meet 

deadlines through applied general project management skills and proper allocation of resources. 

Provides subordinates with feedback and support, enabling them to develop personally and 

professionally. Regularly communicates expectation levels for his/her subordinates; sets personal 

and professional goals not only on an individual basis, but also for members of his/her team of 

officers. Displays the necessary core-competencies to instill trust from his/her subordinates. 

Responsible with the financial and physical resources made available in the performance of the police 

mission. 

UNSATISFACTORY: Untimely or delinquent in decision making. Knowingly allows or through simple 

negligence, allows the mission, vision or values of the department to fall short; unwilling or unable to 

facilitate the development of such qualities in the officers within his/her purview. Fails to set clear 

objectives and expectation for subordinates; rarely formulates personal and professional goals for 

himself/herself or for the members of his/her team. Lacks competency, unable to inspire 

subordinates, fiscally irresponsible with department funds and improperly manages physical 

resources. 
Appendices 157

DPD performance evaluation calendar

Q1

Q2

Q3

Q4

January 2014

S M T W T F S

1 2 3 4

5 6 7 8 9 10 11

12 13 14 15 16 17 18

19 20 21 22 23 24 25

26 27 28 29 30 31

February 2014

S M T W T F S

1

2 3 4 5 6 7 8

9 10 11 12 13 14 15

16 17 18 19 20 21 22

23 24 25 26 27 28

March 2014

S M T W T F S

1

2 3 4 5 6 7 8

9 10 11 12 13 14 15

16 17 18 19 20 21 22

23 24 25 26 27 28 29

30 31

April 2014

S M T W T F S

1 2 3 4 5

6 7 8 9 10 11 12

13 14 15 16 17 18 19

20 21 22 23 24 25 26

27 28 29 30

May 2014

S M T W T F S

1 2 3

4 5 6 7 8 9 10

11 12 13 14 15 16 17

18 19 20 21 22 23 24

25 26 27 28 29 30 31

June 2014

S M T W T F S

1 2 3 4 5 6 7

8 9 10 11 12 13 14

15 16 17 18 19 20 21

22 23 24 25 26 27 28

29 30

July 2014

S M T W T F S

1 2 3 4 5

6 7 8 9 10 11 12

13 14 15 16 17 18 19

20 21 22 23 24 25 26

27 28 29 30 31

August 2014

S M T W T F S

1 2

3 4 5 6 7 8 9

10 11 12 13 14 15 16

17 18 19 20 21 22 23

24 25 26 27 28 29 30

31

September 2014

S M T W T F S

1 2 3 4 5 6

7 8 9 10 11 12 13

14 15 16 17 18 19 20

21 22 23 24 25 26 27

28 29 30

October 2014

S M T W T F S

1 2 3 4

5 6 7 8 9 10 11

12 13 14 15 16 17 18

19 20 21 22 23 24 25

26 27 28 29 30 31

November 2014

S M T W T F S

1

2 3 4 5 6 7 8

9 10 11 12 13 14 15

16 17 18 19 20 21 22

23 24 25 26 27 28 29

30

December 2014

S M T W T F S

1 2 3 4 5 6

7 8 9 10 11 12 13

14 15 16 17 18 19 20

21 22 23 24 25 26 27

28 29 30 31

January 2015

S M T W T F S

1 2 3

4 5 6 7 8 9 10

11 12 13 14 15 16 17

18 19 20 21 22 23 24

25 26 27 28 29 30 31

December 2013

S M T W T F S

1 2 3 4 5 6 7

8 9 10 11 12 13 14

15 16 17 18 19 20 21

22 23 24 25 26 27 28

29 30 31

Action Plan Development

Officer Self Assessment Log Due

Performance Meeting

Quarterly Assessment Due

x Evaluations Closed for Data-Pull

2014

Performance Evaluation Planning Calendar

2014 Year-End

Performance Evaluations DUE 

No Later than January 15th, 2015
158 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

Appendix F. Brooklyn Park self-appraisal form

When assessing a police agency’s performance management and evaluation system, it is critical to map out 

the performance management and evaluation processes and examine the content of materials. What forms 

or documents are completed during the evaluation process? Is the employee permitted to provide his or 

her input? These questions are particularly important as during the course of this project, one of the major 

challenges cited by police personnel was the lack of employee input in their own evaluations.

Many evaluation processes do not provide an opportunity for officers to give their opinion on their own 

performance or respond to the evaluations provided by their supervisors. Police employees want to feel that 

they have a say in the process and a chance to talk about their performance on their own terms. They may 

be able to explain perceived irregularities or shortcomings in their performance and provide the supervisor 

with insight into ways of addressing those issues should they arise in the future. This type of involvement in 

the process also can improve the process of discussing areas of weak performance or issues where additional 

training may be needed.

The following example is a self-appraisal form from the City Brooklyn Park, Minnesota, and is used by the 

Brooklyn Park Police Department.

City of Brooklyn Park Self-Appraisal Form

Name:

Date:

Supervisor:

Your performance review is scheduled for ___ a.m./p.m. on _______.

In order to get the maximum benefit from the performance review, please fill out this form and 

turn a copy in to your supervisor five working days prior to your evaluation. Attach additional 

sheets if necessary.

1. Over the past 12 months, what was your most outstanding accomplishment? What tasks did 

you do best or improve in the most? Were there any problems or obstacles that you overcame 

that made you feel especially proud?

1. Over the past 12 months, what tasks could you have performed better?

2. In what areas could you have used more experience or training? Are there any skills that you 

do not have now that you would like to develop? What are the specific things you need to do 

in the next 12 months for your own development?

3. What courses, training, or experience especially benefited you during the past year?

4. What could I have done, as your supervisor, to help you be more effective?

5. What suggestions, ideas, concerns do you have for yourself or for the entire department? 

6. Do you have skills now that you are not using or that you feel are under-used that you would 

like to use more?

7. What are your long-range work plans (next three to five years)? How can the City assist you in 

achieving your goals?
Appendices 159

Appendix G. Materials from the Minneapolis Police Department goals 

and metrics program

The Minneapolis Police Department Goals and Metrics program formalizes monthly conversations among 

supervisors and between supervisors and their subordinates to improve the overall efficiency and effectiveness 

of the department. It requires a monthly meeting of all unit supervisors to review the goals, results, and progress 

of the unit. These worksheets are tailored to each employee’s job functions and professional aspirations and 

talents. On a monthly basis, all of the supervisors from a unit meet to review progress, discuss employee 

performance and attitudes, and plan for improvement. Supervisors meet monthly to assess performance toward 

the annual goals established for their unit, to modify the goals as needed for the upcoming year, and to identify 

objectives for each subordinate on a worksheet. The primary goals of this program are to improve every unit’s 

effectiveness and to provide consistent and fair supervision to every unit member. 

The following samples include a patrol unit goals worksheet and a patrol performance worksheet. Both of 

these worksheets are intended to be used by unit supervisors to track unit progress. The sample unit goals 

worksheet provides examples of specific long term goals along with the person(s) responsible for meeting 

each one. The sample performance worksheet tracks each unit member’s activities by month and helps the 

supervisor relate officer activities to the unit goals.

AUGUST Month MPD YEAR-LONG UNIT GOALS UNIT: P3 MIDDLE WATCH

Goal Strategy Assignment On Track

Y/N

Robbery Officer initiated robbery details: Officers will initiate proactive details in Sgt. A

Reduction response to crime patterns from CODEFOR analysis on robbery. Officers 

will organize three details per month and report back with results on

proactive enforcement, suspect identification and crime deterrence. 

Juvenile Officers will aggressively patrol for curfew violators and track Sgt. B

Diversion performance monthly. Stops for curfew violators and arrests will be 

totaled for each officer. Patterns on curfew violations, THFTMV, burglary, 

and other juvenile related crimes will be passed on to the shift to improve 

effectiveness. Curfew arrests will increase by 10% and arrests will total 20 

each month 

Hot Zone Supervisors will ensure officers know the precinct’s hot zones and focus Sgt. C

Enforcement daily enforcement in these areas. Supervisors will track enforcement each 

shift and work directly with district officers to ensure effective 

enforcement is occurring. 

Employee Middle watch will host two shift training days to encourage shift cohesion Lt. A

Engagement and coordination. Three speakers will be invited to attend roll calls and 

and Morale inform shift members of various patrol related issues. Sgt. A will be 

assigned to recognize an officer from the shift each month for the Officer 

of the Month Award. Shift supervisors will strive to submit an award 

write up for at least one officer per month. 

 

The MPD goals are to improve: Public Safety, Public Trust and Employee Engagement and Morale 

Monthly unit goals ensure all units are focused and engaged in long term strategies while adding to the department’s mission and goals. 
160 Implementing a Comprehensive Performance Management Approach in Community Policing Organizations

OFFICER CALLS ARRESTS TRAFFIC 

ARRESTS

COMMUNITY 

CONTACTS

WORK

DAYS

AVERAGE 

ACTIVITIES

PER DAY

Officer A. 78 16 4 123 11 20.09090909

Officer B. 53 3 0 75 9 14.55555556

Precinct 

Average 65.5 9.5 2 99 10 17.32323232
Appendices 161

Appendix H. Sample individual development plan

An individual development plan (IDP) is a structured document used to identify employee goals and establish 

actionable steps for achieving them and a tool to help facilitate ongoing discussions between supervisors and 

employees. An IDP can be a stand-alone tool, or it can be folded into a performance review process. 

The foundation of an IDP rests on a joint effort between an employee and his or her supervisor. The 

instrument is meant to be personalized to fit the needs and wants of the employee and can be adjusted to 

address short-term goals related to their current work and position or long-term career goals. The key is to 

treat the instrument as a living document that is constantly updated as goals are achieved or revised. Across the 

majority of IDP models, the general process is (1) assess, (2) draft, (3) discuss, (4) implement, and (5) repeat. 

The following sample IDP was produced for the U.S. Department of Commerce. The example illustrates clear 

areas to identify employee goals, skills, actionable steps or activities, and a review or evaluation section. The 

form also identifies the resources the employee will need to achieve his or her goals as well as target dates to 

accomplish the goals. The sample IDP is part of an individual development planning guidebook specifically 

for U.S. Department of Commerce employees. This document can be assessed at http://hr.commerce.gov/s/

groups/public/@doc/@cfoasa/@ohrm/documents/content/dev01_006607.pdf.

Name:

Time period covered: FY _____

Developmental 

goals

Relationship of 

goals to office 

mission

Skills 

developed

Developmental 

activities

Deadline Resources Achievement 

review

Date 

completed

Personal goals 

for the next year

My goals have 

organizational 

and personal 

relevance 

because

My goals involve 

developing 

the following 

competencies

Developmental 

activities I will 

pursue

Target dates for 

goal completion

Resources I will 

need

This is how I will 

measure my 

progress

This is the date 

I achieved my 

goal

Goal 1

Goal 2

Goal 3
162
About PERF

The Police Executive Research Forum (PERF) is an independent research organization that focuses on 

critical issues in policing. Since its founding in 1976, PERF has identified best practices on fundamental 

issues such as reducing police use of force, developing community policing and problem-oriented policing, 

using technologies to deliver police services to the community, and evaluating crime reduction strategies.

PERF strives to advance professionalism in policing and to improve the delivery of police services through 

the exercise of strong national leadership, public debate of police and criminal justice issues, and research and 

policy development.

In addition to conducting research and publishing reports on our findings, PERF conducts management 

studies of individual law enforcement agencies, educates hundreds of police officials each year in a three-week 

executive development program, and provides executive search services to governments that wish to conduct 

national searches for their next police chief.

All of PERF’s work benefits from PERF’s status as a membership organization of police officials, academics, 

federal government leaders, and others with an interest in policing and criminal justice.

All PERF members must have a four-year college degree and must subscribe to a set of founding principles, 

emphasizing the importance of research and public debate in policing, adherence to the Constitution and the 

highest standards of ethics and integrity, and accountability to the communities that police agencies serve.

PERF is governed by a member-elected president and board of directors and a board-appointed executive 

director. A staff of approximately 30 full-time professionals is based in Washington, D.C.

To learn more, visit PERF online at www.policeforum.org.
164
About the COPS Office

The Office of Community Oriented Policing Services (COPS Office) is the component of the U.S. 

Department of Justice responsible for advancing the practice of community policing by the nation’s state, 

local, territory, and tribal law enforcement agencies through information and grant resources. 

Community policing is a philosophy that promotes organizational strategies that support the systematic use 

of partnerships and problem-solving techniques to proactively address the immediate conditions that give 

rise to public safety issues such as crime, social disorder, and fear of crime. 

Rather than simply responding to crimes once they have been committed, community policing concentrates 

on preventing crime and eliminating the atmosphere of fear it creates. Earning the trust of the community 

and making those individuals stakeholders in their own safety enables law enforcement to better understand 

and address both the needs of the community and the factors that contribute to crime.

The COPS Office awards grants to state, local, territory, and tribal law enforcement agencies to hire and train 

community policing professionals, acquire and deploy cutting-edge crime fighting technologies, and develop 

and test innovative policing strategies. COPS Office funding also provides training and technical assistance 

to community members and local government leaders and all levels of law enforcement. The COPS Office 

has produced and compiled a broad range of information resources that can help law enforcement better 

address specific crime and operational issues, and help community leaders better understand how to work 

cooperatively with their law enforcement agency to reduce crime.

•	 Since 1994, the COPS Office has invested more than $14 billion to add community policing officers to 

the nation’s streets, enhance crime fighting technology, support crime prevention initiatives, and provide 

training and technical assistance to help advance community policing. 

•	 To date, the COPS Office has funded approximately 125,000 additional officers to more than 13,000 of 

the nation’s 18,000 law enforcement agencies across the country in small and large jurisdictions alike.

•	 Nearly 700,000 law enforcement personnel, community members, and government leaders have been 

trained through COPS Office-funded training organizations.

•	 To date, the COPS Office has distributed more than 8.57 million topic-specific publications, training 

curricula, white papers, and resource CDs. 

COPS Office resources, covering a wide breadth of community policing topics—from school and campus 

safety to gang violence—are available, at no cost, through its online Resource Center at www.cops.usdoj.gov. 

This easy-to-navigate website is also the grant application portal, providing access to online application forms. 


This publication is a guide for police executives who wish to institutionalize community policing in 

their organization through performance management strategies. This guidebook demonstrates how to 

incorporate principles of procedural justice into performance management systems. Procedural justice 

describes the extent to which community residents believe that the police treat them with fairness, 

dignity, and respect. This is critical to the success of community policing. Procedural justice also can 

be applied within a police department to reflect the extent to which officers feel that they are treated 

fairly and respected by their superiors. Officers who experience procedural justice themselves are more 

likely to use those principles in their interactions with the public. This guidebook presents strategies 

and tools to develop and assess the performance of officers. The strategies lead to creating internal 

procedural justice for employees and also model how officers (and other department employees) 

should interact with community members. 

U.S. Department of Justice

Office of Community Oriented Policing Services

145 N Street NE

Washington, DC 20530

To obtain details on COPS Office programs,

call the COPS Office Response Center at 800-421-6770.

Visit the COPS Office online at www.cops.usdoj.gov.

Police Executive Research Forum

1120 Connecticut Avenue NW, Suite 930

Washington, DC 20036

To obtain details about PERF programs, call

the Police Executive Research Forum at 202-466-7820.

Visit PERF online at www.policeforum.org.

ISBN: 978-1-935676-79-9

e061524701

Published 2015