Washington Shores Community Safety and Engagement

Action Plan

Prepared by Bethune-Cookman University

Center for Law and Social Justice
for
The City of Orlando
Orlando Police Department
March 17, 2021

Dr. Randy Nelson, Director, Center for Law & Social Justice
Dr. Kideste Yusef, Assistant Director, Center for Law & Social Justice
 Introduction

Orlando is a centrally located city in Florida, best known as the “Theme Park Capital of
the World,” serving as an international destination for Walt Disney World theme parks.
Like other Florida cities, Orlando’s leadership and stakeholders have come to recognize
the need to strengthen the relationship between law enforcement and the community. A
heightened level of public scrutiny nationwide and renewed calls for police reform
highlight tensions between law enforcement and some of the communities they serve
and protect. Bethune-Cookman University (B-CU) Center for Law & Social Justice
conducted eleven (11) training workshops in Orlando with the goals of strengthening
community-police relations and enhancing public safety. Seven (7) workshops were
conducted with Orlando Police Department (OPD) leadership, patrol, and non-sworn
personnel. Four (4) workshops were conducted with residents/stakeholders within the
Washington Shores community. B-CU faculty and associates conducted community
engagement training for approximately 300 OPD representatives (command, patrol, and
non-sworn personnel). The training included elements of procedural justice with an
emphasis on implicit bias, perceptions and stereotypes, cultural awareness, and
community engagement strategies.

In addition, more than 50 Washington Shores community residents, stakeholders, and

youth participated in community safety and engagement workshops. Participants were
identified by Commissioners Bakari Burns (District 6) and Regina Hill (District 5), city
staff, community networks, and various other outreach efforts within the Washington
Shores community. Due to COVID-19 guidelines and concerns, participation for each
session was limited. Training workshop topics included the roles, responsibilities, and
perspectives of both community stakeholders and law enforcement. The youth session
included discussions on the perceptions of law enforcement and community residents
as well as ideas to improve the relationship between both parties.

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A final joint Action Plan workshop of select OPD representatives, community
residents/stakeholders, and youth was held on January 9, 2020. Thirty participants
worked collaboratively to develop and present specific strategies for each identified
pillar.

According to training evaluations, approximately 90% of participants rated the training

as good/excellent concerning usefulness, relevance, and overall effectiveness. Although
some topics discussed were tenuous, it is within these uncomfortable spaces and
conversations that individual and professional growth occurs.

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 Executive Summary

On December 18, 2014, President Barack Obama signed an Executive Order establishing
the Task Force on 21st Century Policing to confront contemporary policing challenges.
The Task Force, composed of leaders from law enforcement, academia, civil rights
organizations, police unions, and community members, was charged with identifying
best practices and offering recommendations that promote crime reduction while
building community trust. The President’s 21st Century Policing Task Force Report
(2015) identified six main pillars and 63 recommendations. The pillars cover the
significant aspects of policing and include: 1. Building Trust and Legitimacy, 2. Policy and
Oversight, 3. Technology and Social Media, 4. Community Policing and Crime Reduction,
5. Officer Training and Education, and 6. Officer Safety and Wellness. Due to time and
resource constraints, the Action Plan Development workgroup ranked and selected four
(4) pillars for inclusion in this report. These pillars are presented below in the order in
which they were ranked.

Pillar 1: Building Trust & Legitimacy

Building trust and nurturing legitimacy on both sides of the police/citizen

divide is the foundational principle underlying the nature of relations between
law enforcement agencies and the communities they serve. Decades of
research and practice support the premise that people are more likely to obey
the law when they believe that those who enforce it have the authority
perceived as legitimate by those subject to the law. The public confers
legitimacy only on those whom they believe are acting in procedurally just
ways. Also, law enforcement cannot build community trust if seen as an
occupying force coming in from outside to impose control on the community.
Pillar one seeks to provide focused recommendations on building this
relationship.

Pillar 5: Training & Education

As our nation becomes more pluralistic and the scope of law enforcement’s
responsibilities expands, the need for expanded and more effective training
has become critical. Today’s line officers and leaders must be trained and
capable to address a wide variety of challenges including international
terrorism, evolving technologies, rising immigration, changing laws, new
cultural mores, and a growing mental health crisis. Pillar five focuses on the
training and education needs of law enforcement. To ensure the high quality
and effectiveness of training and education, law enforcement agencies
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 should engage community members, particularly those with special
expertise, in the training process and provide leadership training to all
personnel throughout their careers.

Pillar 6: Officer Wellness & Safety

Officer wellness and safety are critical not only for the officers, their
colleagues, and their agencies but also to public safety. Pillar four emphasizes
the support and proper implementation of officer wellness and safety as a
multi-partner effort. The U.S. Department of Justice should enhance and
further promote its multifaceted officer safety and wellness initiative. Two
specific strategies recommended for the U.S. Department of Justice include (1)
encouraging and assisting departments in the implementation of scientifically
supported shift lengths by law enforcement and (2) expanding efforts to
collect and analyze data not only on officer deaths but also on injuries and
“near misses.”

Pillar 4: Community Policing & Crime Reduction

Pillar three focuses on the importance of community policing as a guiding

philosophy for all stakeholders. Community policing emphasizes working with
neighborhood residents to co-produce public safety. Therefore, law
enforcement agencies should work with community residents to identify
problems and collaborate on implementing solutions that produce meaningful
results. Specifically, law enforcement agencies should develop and adopt
policies and strategies that reinforce the importance of community
engagement in managing public safety. Law enforcement agencies should also
engage in multidisciplinary, community team approaches for planning,
implementing, and responding to crisis situations with complex causal factors.

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 Washington Shores Community Safety and Engagement
Action Plan & Recommendations

The Community Safety and Engagement Action Plan serves as a roadmap and a tool to
ensure all parties are accountable for their role in promoting public safety and
strengthening police-community relations. The workgroup utilized some of the
strategies and ideas identified during the previous training workshops to develop the
proposed Action Plan. As previously indicated, the workgroup reviewed and ranked the
original six pillars and then selected the top four pillars for inclusion in the Action Plan.
Subgroups were formed representing each of the selected pillars. Each subgroup
consisted of community residents, stakeholders, youth, and OPD representatives. Groups
worked collaboratively using the SMART (Specific, Measurable, Achievable, Realistic, and
Time-specific) goals framework to develop recommendations particular to each pillar.
Each subgroup presented their recommendations to the larger group for discussion and
feedback. Specific details of the Washington Shores Community Safety and Engagement
Action Plan are presented below.

Pillar 1.) Build Trust & Legitimacy between OPD and the Washington Shores
Community

Trust and legitimacy are the foundational building blocks upon which all other pillars rest.
Policing without trust and legitimacy is not only hazardous to the safety of communities and
law enforcement but is contrary to the fundamental principles of policing. Given the
historical and present mistrust that exist between the police and minority communities,
building trust is essential to ensuring safer communities and strengthening community-
police partnerships.

● Recommendation #1: Create Positive Non-Enforcement Encounters and Exposure

Opportunities in Communities and Schools

A key component in building trust and legitimacy requires creating opportunities and
spaces for law enforcement to engage residents and youth in non-enforcement encounters
within their community. Recognizing the diversity of the Orlando community, having a basic
understanding of the multiple cultures, faiths, lifestyles, etc., of its residents will take
deliberate effort and time. Positive community encounters may include activities such as
neighborhood clean-ups, community cookouts, faith gatherings, and athletic competitions.
Although OPD currently has a Neighborhood Patrol Unit (NPU) with a presence in the
Washington Shores community, it is recommended that OPD continue and expand its
efforts to create a culture and service platform that values and encourages positive,
non-enforcement contacts. NPU officers should continue to engage and communicate

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with Washington Shores residents and stakeholders to foster a transparent and supportive
relationship based on mutual trust.

It is also recommended that OPD and Washington Shores residents utilize a

collaborative and multi-faceted approach that includes notifying residents of
community events through neighborhood associations, schools, and community
centers. The active participation and support of community sponsored events (youth, civic,
faith, neighborhood, etc.) by residents, stakeholders, and law enforcement are vital to
strengthening these relationships.

Measure(s):
The number and type of positive non-enforcement contacts and community
engagement activities (identify current baseline)

The number and type of community-initiated events and activities related to

community engagement, empowerment, and safety (identify current baseline)

The number and type of documented efforts to include positive, non-enforcement

contacts and community resident/stakeholder commendations into OPD’s annual
officer evaluation and promotion (establish a baseline)

Timeline:
Review and assess progress at six (6) months and one (1) year of adopting this
recommendation

● Recommendation #2: Provide incentives for law enforcement and community stakeholders
to value positive nonenforcement engagement and contacts as a means of building mutual
trust

Given the critical need to include positive non-enforcement interactions as a measure of

public safety, OPD should actively explore incorporating positive, non-enforcement
contacts and community resident/stakeholder commendations into its annual officer
evaluation and promotion process.

Whereas the above recommendation is specific to law enforcement, it is further

recommended that Washington Shores community residents and stakeholders
become integral and vested partners in ensuring the safety and well-being of the
community. Community residents and stakeholders must recognize their role and
responsibility in ensuring the safety and well-being of the community. Increasing positive
community encounters will lead to greater trust, better problem-solving, and open lines of
communication that will result in safer communities. While acknowledging recent and past
negative encounters that contribute to community mistrust, community members must be
open to law enforcement’s efforts to strengthen this critical relationship. Therefore, it is
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recommended that the City of Orlando and Orange County Public Schools explore
incentives such as raffles, recognitions, and other awards for youth and community
residents who actively participate in community empowerment activities.

It is also recommended that parents, school administrators, teachers, and youth-

serving organizations support law enforcement’s efforts to enhance positive youth
engagement at school and in the community. In conjunction with these efforts, parents
and trusted guardians should help youth process high-profile positive and negative
local/national incidents involving law enforcement and the community.

Measure(s):
The number and type of positive non-enforcement contacts and community
engagement activities (identify current baseline)

The number and type of community-initiated events and activities related to

community engagement, improvement, and safety (identify current baseline)

The number and type of documented efforts to include positive, non-enforcement

contacts and community resident/stakeholder commendations into OPD’s annual
officer evaluation and promotion (identify current baseline)

The number and type of awards, commendations, and recognitions of law

enforcement and community residents and stakeholders (identify current baseline)

The number and type of OPD non-enforcement contacts and engagements with youth
and young adults residing in the Washington Shores Community (identify current
baseline)

Timeline:
Review and assess progress at six (6) months and one (1) year of adopting this
recommendation

Pillar 5.) Training & Education

As of March 2021, approximately 250 OPD personnel (including the leadership team)
serving the Parramore, Washington Shores, and Mercy Drive communities
participated in the Community Engagement Training sessions. The training was
designed to strengthen and improve police-community relations, enhance public
safety, and increase mutual police and community awareness.

Although the training of law enforcement personnel is an integral element of

community engagement, the community’s understanding of its own role in ensuring
public safety is as, if not more, important to achieving this end. For this reason,
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approximately 170 community residents, stakeholders, and youth in the identified
communities received training on the roles, responsibilities, and perspectives of law
enforcement and community members. In separate sessions, local youth were
provided a forum to discuss their views and perspectives of law enforcement, as well
as strategies to increase positive interactions between the two groups.

• Recommendation #1: Continue to Provide Community- Specific Engagement &

Cultural Awareness Training

It is recommended that OPD’s leadership continue its commitment to ensuring

the men and women of OPD are provided the most innovative and up-to-date
training in the areas of citizen engagement, interpersonal communication,
procedural justice, implicit/explicit bias, race and cultural awareness, and de-
escalation strategies (i.e., cultural judo) to resolve or prevent conflicts. It should
be noted that OPD’s leadership has shown a willingness to acknowledge and address
the negative perception of law enforcement by some members of the Washington
Shore community.

It is recommended that OPD and Washington Shores residents and stakeholders

continue to participate in police and community engagement training to
highlight the human element in policing and public interactions. Understanding
how historical discrimination informs and impacts all communities is a necessary part
of humanizing the lived and shared experiences of all groups.

Measure(s):
The number and type of innovative and up-to-date training in the areas of citizen
engagement, interpersonal communication, procedural justice, implicit/explicit bias,
race and cultural awareness, and de-escalation training provided through OPD
(identify current baseline)

The number and type of training events and workshops held that focus on positive
strategies to address the historical impact of discrimination on police and community
relations (identify current baseline)

Timeline:
Review and assess progress at six (6) months and one (1) year of adopting this
recommendation

• Recommendation #2: Explore the Use of Racial Biased Testing

The historical and persistent institutional and structural inequalities that have been
ingrained in America since its founding, remain. The seemingly constant occurrence of
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unarmed Black men being killed by police has shined a light on the lack of
accountability and control by some law enforcement agencies and has highlighted the
need for national police reform. This will take time and a sincere commitment on
behalf of law enforcement and the communities they serve. Therefore, it is
recommended that OPD explore implementing racial-biased testing as a
component of the pre-screening, hiring process. Racial bias and implicit
association tests may be integrated into existing polygraphs, psychological and
stress assessments.

Measure(s):
The number and type of racial-biased testing programs or services explored by
OPD (identify current baseline)

Timeline:
Review and assess progress at one (1) year of adopting this recommendation

• Recommendation #3: Provide Police Engagement Training to Youth and Residents

As a result of the historical mistrust between law enforcement and communities of color, there
is a critical need to provide opportunities for community residents and youth to explore and
develop strategies to engage with law enforcement. This will also allow residents to better
understand their rights and responsibilities as citizens during law enforcement encounters.
Training topics may include de-escalation, implicit/explicit bias, interpersonal
communication, purpose and role of law enforcement, constitutional rights, and how to file
citizen complaints. It is therefore recommended that the City of Orlando identify 3rd-
party vendors to provide these training services.

Measure(s):
The number and type of community events and activities within the Washington
Shores community related to law enforcement engagement, role and responsibility, as
well as legal authority (identify current baseline)

Timeline:
Review and assess progress at six (6) months and one (1) year of adopting this
recommendation

Pillar 6.) Officer Wellness & Safety

Most law enforcement officers walk into risky situations and encounter tragedy regularly.
Police officers sometimes respond to traumatic and dangerous situations that may impact
both their mental and physical wellbeing. The stigma of mental wellness is a significant
challenge within the law enforcement profession. Fear of ridicule or job loss may prevent
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officers from seeking help. Compared to other occupations, police officers are at an
elevated risk of suicide and these numbers are rising.

Moreover, the physical fitness of officers is equally important in the performance of their
duties. Poor physical health due to poor nutrition, lack of exercise, sleep deprivation, and
substance abuse can lead to increased injury. Contrary to popular belief, most officer
injuries and deaths are not the results of interaction with criminal offenders. As such,
police reform efforts must include a holistic approach that recognizes law enforcement
professions’ mental and physical wellness. The recommendations below reflect this dual
consideration.

● Recommendation #1: Utilizing Youth Engagement as a Means to Increase Officer Safety

Intentionally and consistently engaging youth in general and young males, in constructive
non-enforcement activities with law enforcement can positively impact officer safety. Such
activities can create an environment for open dialogue and mutual respect which can
reduce tensions and lead to meaningful relationships. Some engagement strategies can
include officers mentoring and participating in athletic and drug prevention events with
youth. Therefore, in support of Pillar 1 (Recommendation #1), it is recommended that
OPD continue to develop and enhance opportunities to engage youth as a vital part of
the agency’s mission and commitment to officer wellness and safety.

Measure(s):
The number and type of positive non-enforcement contacts and youth
engagement activities (identify current baseline)

Timeline:
Review and assess progress at six (6) months and one (1) year of adopting this
recommendation

• Recommendation #2: Promote a Standard of Physical Fitness that is Consistent with the
Physical Requirements of Policing

Given that a law enforcement professional’s physical fitness is critical to their wellness,
safety, and job performance, it is recommended that physical health assessments be
administered to determine underlying health problems or conditions. It is further
recommended that OPD explore the implementation of an annual or bi-annual
physical ability test to ensure officers can perform job duties satisfactorily. It is also
recommended that OPD continue to explore strategies to promote and incentivize
officers’ physical fitness.

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 Measure(s):
The number and percentage of OPD personnel who completed a physical health
assessment and ability examination (identify current baseline)

The number and types of incentives explored or implemented (establish a baseline)

Timeline:
Review and assess progress at six (6) months and one (1) year of adopting this
recommendation

• Recommendation #3: Conduct Annual Officer Wellness and Safety Surveys

Ensuring officers’ mental and physical fitness for duty is critical to officer and community
safety. Thus, it is recommended that OPD explore and implement prevention
wellness strategies that support officers’ fitness for duty to include physical, social,
and mental health. It is further recommended that OPD conduct an anonymous
annual wellness and safety survey to assess officers’ perceptions and views as it
relates to job duties, responsibilities, and level of agency support.

Measure(s):
The number and percentage of OPD Officers who Completed Wellness and Safety Survey)
(establish baseline)

Timeline:
Review and assess progress at six (6) months and one (1) year of adopting this
recommendation

Pillar 4.) Community Policing and Crime Reduction

According to the U.S. Department of Justice Community Oriented Police Services, community
policing is defined as 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. However, many law enforcement agencies consider the creation of community
policing divisions or units as community policing. When implemented with fidelity and as
the guiding foundation of an agency, community policing permeates every facet of the
department’s operation from the top down. A critical component of any community policing
effort is the establishment of community trust. Without community trust, all community
policing efforts are futile. Once community trust has been established, it is incumbent upon
all sworn and non-sworn employees of any law enforcement agency to recognize their direct
or indirect role in establishing trust. Any action by an individual agency employee (from the
janitor to the chief) can positively or negatively impact the community’s trust and perception
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of the department or the law enforcement profession. Community trust allows for the
creation of partnerships based on mutual accountability and responsibility to ensure
community safety.

• Recommendation #1: Create a Culture that Supports Community Policing as Crime

Reduction Strategy

Given the current climate of community-police relations resulting from nationally publicized
negative encounters, it is critical for OPD and other law enforcement agencies to develop
effective strategies to increase positive non-enforcement engagement with the communities
they serve. Such an effort will require mutual respect, responsibility, and accountability.
Hence, community residents and stakeholders must recognize their role and responsibility
in ensuring the safety and well-being within the spaces they live and work. Increasing
positive community encounters will lead to greater trust, better problem-solving, and open
communication lines that will result in safer communities.

Consistent with Pillar 1 (Recommendation 1), it is recommended that OPD create and
expand opportunities to connect and engage with residents (youth in particular) and
stakeholders. These may include “Adopt a Block” initiatives where OPD officers get to know
families within a one-block radius, officers serving as mentors and coaches, participating in
neighborhood watch meetings, and various other community engagement activities.

While traditionally the responsibility for ensuring the safety of the community has typically
rested solely with law enforcement, the need for community involvement and participation
in effective crime reduction is paramount. Therefore, it is again recommended that
Washington Shores community residents and stakeholders become integral and
vested partners in ensuring the safety and well-being of the community.

Measure(s):
The number and type of positive non-enforcement contacts and community
engagement activities (identify current baseline)

The number and type of community-initiated events and activities related to

community engagement, improvement, and safety (identify current baseline)

The number and type of documented efforts to include positive, non-enforcement

contacts and community resident/stakeholder commendations into OPD’s annual
officer evaluation and promotion (identify current baseline)

The number and type of awards, commendations, and recognitions of law

enforcement and community residents and stakeholders (identify current baseline)

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The number and type of OPD non-enforcement contacts and engagements with youth
and young adults residing in the Washington Shores Community (identify current
baseline)

Timeline:
Review and assess progress at six (6) months and one (1) year of adopting this
recommendation

● Recommendation #2: Identification and Utilization of Community Resources and Partners

Today, more than ever, law enforcement personnel are called upon for non-law
enforcement services (mental health, homelessness, etc.). It is vital for this reason that
OPD’s sworn and non-sworn personnel have a keen awareness of available community
services and resources. This is particularly important in socially disadvantaged, lower-
income, high call volume areas. As such, it is recommended that OPD develop strategies
to identify and incorporate community-based organizations servicing the
Washington Shores community, including but not limited to Boys-2-Men Mentoring
Program, Crown & Cupcakes Mentoring Program, Stono Institute and Young Blacks
in Action, Inc. OPD may utilize these organizations as a resource tool in crime prevention
efforts. It is also recommended that OPD incorporate community stakeholders and
organizations as presenters during the law enforcement academy, in-service
training, and community resource fairs.

It is further recommended that community residents and stakeholders increase their

participation in City of Orlando/OPD events and programs (Citizen Academy,
Neighborhood Watch, cultural activities, etc.) and present their services and
resources during law enforcement academy and in-service training.

Measure(s):
The number, type, and location of available human services resources within the
Washington Shores community that are known to and utilized by OPD (identify current
baseline)

The number of human services organizations and services providers within the
Washington Shores community with a consistent outreach to OPD, to include
presentations during law enforcement academy and in-service training (identify
current baseline)

Timeline:
Review and assess progress at six (6) months and one (1) year of adopting this
recommendation

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 Acknowledgments

While it is greatly appreciated that Washington Shores community residents, stakeholders,

youth, and OPD representatives worked collaboratively to develop this Action Plan, its
success will require a commitment by all parties to implement each recommendation with
fidelity. Therefore, it is recommended that the Office of Communication &
Neighborhood Relations within the Office of the Mayor serve as a unifying entity for
monitoring and supporting the implementation of the Action Plan recommendations.

The Bethune-Cookman University Center for Law and Social Justice would like to thank
OPD law enforcement professionals and Washington Shores residents, stakeholders, and
youth for their participation in the numerous project workshops and convenings. We would
also like to extend a special thanks to Chief Orlando Rolon, Captain Thomas Woodhall,
Commissioners Bakari Burns and Regina Hill, Douglas Richardson, other members of Mayor
Buddy Dyer’s staff, Sonya Roberts, and Rod Love for assisting with the scheduling and
coordination of the Washington Shores Community Safety and Engagement workshops.
Special recognition is also extended to police practices expert, Bob Stewart of Bobcat
Consulting for his contribution to this project. Whereas the development of this detailed
and thoughtful Washington Shores Community Safety and Engagement Action Plan
required the tireless efforts of all the individuals mentioned above, this work would not
have been possible without the individual and collective commitment of the following
individuals listed below:

Orlando Police Department Community Residents/Stakeholders

Karl Anderson (civilian) Victoria Brantley (Stakeholder - Crowns & Cupcakes)
Ofc. James Baker Michael Gammage (Youth)
Georgeanna Butler (Civilian) Howard Gentry (Stakeholder – Young Blacks in Action)
Sgt. Yong Hall Kazmeeriah Hilzes (Youth)
Ofc. Decarlos Hill Daniel Ings (Stakeholder – Boys2Men)
Ofc. Marcus Hyatt Allen Holland (Stakeholder – Law Office)
Ofc. Kevlon Kirkpatrick William Howard (Youth)
Ofc. Michelle Rogers Mary Maxwell
Ofc. James West Stella M. Lewis
Dr. Jeremy Levitt (Stakeholder – Stono Institute)
Jahkoy Matos (Youth)
Zion Mincey (Youth)
Juanita Vinson
Bella Young (Youth)

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