Dylan Moore

University of San Diego

LESL 540: Organizational Leadership

Consultant’s Report for the Orange County Sheriff’s Department

June 23, 2021

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The Orange County Sheriff’s Department is currently failing to provide a clear direction

for the agency and its department members. There is not only a lack of communication

throughout the agency, but a litany of other leadership and management issues. There is a lack

of planning and foresight into future needs of the department, command staff is not held

accountable for their lack of ethics, and leadership has little to no time to meet with deputies

outside their “team.” This report is an in depth look at the actions steps necessary to bring

about organizational harmony allowing the department to move forward in a positive manner.

Overview of Organizational Leadership

Retired City Manager Ray Patchett described leadership as the “authentic self-

expression that creates value.”1 Leadership of law enforcement organizations is of the upmost

importance because it creates value for the entire organization. To be a great leader of a law

enforcement organization, one must grow themselves. The first step is learning the basic

leadership diamond authored by Peter Koestenbaum. It is comprised of six steps including:

know the facts, do the right thing, hold high performance standards, own decisions and take

action, master life’s polarities and strive for greatness. An in depth study of this leadership

theory should be done by every single law enforcement leader.

In addition, once leaders work on themselves, creating a purpose driven organization is

what follows. A leader’s most important job is to “connect people to their purpose.” 2 This is

accomplished through the eight steps to create a purpose driven organization. First, a leader

must envision an inspired workforce. A leader must envision an employee who says, “This is not

1
Presentation 1.1: Overview of Organizational Leadership. LEPSL 540: Organizational Leadership.
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Creating a Purpose Driven Organization. LEPSL 540: Organizational Leadership.
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just a job; it is my job!” Second, a leader must discover the purpose of the organization. Creat

and develop the “why” and the heart behind the organization. Third, a leader must recognize

the need for authenticity. This authenticity must flow from the top of the organization down to

the employees because leadership sets the example for everyone to follow. Fourth, leadership

must turn the authentic message into a constant message. This is accomplished through the

dissemination of information to leaders of the department at all levels.

Fifth, leadership must stimulate individual learning. In law enforcement this looks like

pushing for continued education, training courses, and legal updates that are consistent with

the field. Sixth, leadership must turn mid-level managers into purpose driven leaders. In law

enforcement the sergeants “buy in” has the most effect on the proper dissemination of

information and the tone of the department. They are the first level of leadership which

interacts with officers in the field. Seventh, leadership must connect people to their purpose.

This requires the consistent contact with officers over time by leadership in the department.

Finally, leadership must unleash the positive energizers. In law enforcement this looks like

through the constant communication, recognizing and developing the leaders that are found.

Leadership Versus Management

What makes a good leader? Leadership is tasked in any law enforcement organization to

make tough decisions in an uncertain environment. A good law enforcement leader exhibits

practical knowledge of the job, the protection and guidance of deputies, and producing useful

change within the organization. This is exemplified by retired Chief of Laguna Beach Police

Department Laura Farinell. She every two years would sit down with every single person in the
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organization and ask for honest feedback, their experiences, and any ideas they might have for

the organization.3 An example of the potential impact this could have on an organization is in

meeting with an officer he brought up an idea for school resource officers in their city and how

their department lacked that operational goal. The Chief not only listened to the officer but

created the School Resource Officer Program which still exists to this day. In addition, when

asked to comment on the difference between management and leadership she stated, “I look

at management as you manage things, and you lead your people.” The burden of leadership

falls on law enforcement leaders in this every dynamic and changing world.

Management in its most traditional definition is when leaders help an organization to

predictably do what it knows how to do well. In law enforcement this could mean a leader

ensuring the police units are operational, calls for service are handled, and basic law

enforcement operations are completed. Proper management would make sure all equipment is

operational and officers are given all the tools necessary to do their jobs. In contrast, leadership

takes an organization into the future; finding opportunities that are coming at the organization

faster and successfully exploiting those opportunities.4 Management and leadership serve

different yet essential functions. The best law enforcement leaders will not only manage their

organizations but will do the daring task of leading their organization. Quoting Retired Chief

Farinell, “Leading by example and leading by enabling people are the hallmarks of aciotn-based

leadership.” The most exceptional leaders create a vision, inspire your employees, convert

challengers to opportunities, all while effectively managing operations. This is truly a tall order.

3
Presentation 3.1: Leading and Managing a Progressive Police Agency. LEPSL 540: Organizational Management.
Univeristy of San Diego. 2021.
4
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Four Leadership Theories

Academic literature on leadership has four main leadership theories: transactional,

transformational, strategic, and situational leadership. Each four leadership theories have a

different take on proper leadership form and style. There are excellent leaders who have used

each type of leadership theory in practice. Law enforcement leaders of today and in the future

must give careful thought into leadership theory and decide what direction they want to take

their departments in this dynamic and changing world.

Transactional leaders form a bond between their employees and themselves that is

based on both rewards and punishments. When officers who you supervise do things well and

according to your standards they are rewarded. Rewards can come in various was such as pay

increases, awards, etc. On the opposite side, when officers do not meet performance standards

or go outside of standards they are punished. This can be an effective motivating tool for newer

officers whose goal is not only to fit in the department, but make more money in pay raises.

The down side to this type of leadership style is a lack of “buy in” from officers in the field.

Monetary rewards and other positive influences can only motivate officers for a period of time.

Due to the nature of law enforcement many officers top out at a certain pay scale, therefore

will make the same amount of money regardless of the amount of work they put in. In addition,

officers who are not fully bought into the organization over time will do the bare minimum

required of them instead of finding their purpose and excitement out of going to work and

helping the community.5

5
Presentation 4.1. Module 4: Transactional, Transformational, Strategic, and Situational Leadership. LEPSL 540:
Organizational Management. University of San Diego.
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Transformational leadership features both motivation and inspiration; where leaders

are able to move and transform an organization to the highest levels of performance. The four

components of transformational leadership include idealized influence, inspirational

motivation, individualized consideration, and intellectual stimulation. Through these four steps

leaders are able to transform the collective group, therefore making followers into leaders and

create a progressive and forward thinking police agency. 6

The first step of transformational leadership is idealized influence. This is the ability for

leadership to be a role model for their employees. In law enforcement, officers in the field are

less likely to follow moral and ethical guidelines when their leadership does not follow them.

There must be guidelines and standards in place that hold leadership accountable to their

officers, ensuring they are held to the same standards officers in the field are being held to. This

removes resentment, creates unity, buy in, and a more ethical and policy driven officer in the

field. A step farther from leadership not only not breaking guidelines, they are the influence in

which drives the organization forward. Officers in the field look up to your experience and

expertise. They respect and admire their mid-level managers/sergeants and ask them questions

about how to be better officers. The phrase “I would like to be like him/her someday” is what is

common in leadership which buys into idealized influence. In addition, law enforcement leaders

should not only be looked up to by officers within their own organization, but civilian staff,

dispatchers, and the community in large.

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Presentation 4.2: Roland Riggio - Transformational Leadership. Module 4: Transactional, Transformational,
Strategic, and Situational Leadership. University of San Diego. LEPSL
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The second pillar of transformational leadership is inspirational motivation. This is the

ability for leaders to inspire their followers, move to action and set a vision for their

organization. This is an extremely important pillar of being a leader, especially in law

enforcement moving into the future because of the dark light that is cast upon the profession.

The burden falls on the leadership of the department to get out in front and set a vision for the

department. The best leaders then have the ability to not only cast the vision out in front of the

organization, but chart the course on how to motivate and inspire their followers. Law

enforcement leaders who are able to accomplish this will have performance leaps and bounds

above other departments in the surrounding areas. This comes with the added benefits of

boosted morale, officers using less time off, production increased, and more.

The third pillar of transformational leadership is individualized consideration. This is

where law enforcement leaders would connect on a personal level with each officer, identify

and capitalize on their strengths. This is the true key to success as a leader. A team is only as

strong as the weakest link, and leadership does not know how to capitalize on their officers if

they are not taking the time to meet with them regularly. The fourth and final pillar of

transformational leadership is intellectual stimulation. This is where leaders challenge followers

to think deeply and innovate. This last important step is when leadership realizes the power of

collective knowledge. By putting officers and civilian staff to work across your entire

department thinking of ways to improve and innovate, the department will be better off, and

continually forward facing into the future.

Strategic leadership theory states leadership should take a step back from situations to

see the bigger picture. When leadership spends too much time on another person’s “level,” this
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clouds their judgement and ability to be a leader. An example of this would be during a use of

force in the field, sergeants have a different list of duties to complete then deputies, and

lieutenants have different duties then the sergeants. Each level of the chain of command is

important and leaders must stay on their level of leadership.

Situational leadership theory states there is no best leadership style for all situations.

The type of leadership offered depends on the employee’s skill set and attitude. Leaders move

through the process of directing, coaching, supporting and delegation with their employees as

their skill sets and attitude increases over time. No two employees are the same and this

leadership theory also emphasizes sitting down with every officer individually to see what

works best and what stage they are in.

Building a Team

Ray Patchett, the retired city manager of Carlsbad California stated “knowledge plus

experience equals wisdom.”7 In an interview with the LEPSL staff at the University of Dan Diego

he laid out the eight steps to building a great team. These steps have been developed through

his decades of leadership experience leading city government through an ever changing and

dynamic world. The first step is being clear on your department mission and goals. This is the

first and most important step because a leader cannot lead an organization in a direction

without knowing what that direction is. Second, leadership must foster a public service and

learning culture. In law enforcement this can be done many ways through continued education,

training, legal updates, etc. Third, team member roles are clear. It is important that everyone in

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Presentation 5.1: Building great teams – Interview. Module 5: Collaboration and Building Teams. LEPSL 540:
Organizational Management. University of San Diego.
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the department understands their role. Fourth, team members are empowered and

accountable.

Fifth, operational ground rules are agreed upon by all members. It is important to get

the buy in of all of your officers to set the tone for the agency moving forward. Sixth,

conversations are genuine. This occurs when the prior five steps are completed because

employees feel comfortable giving their honest opinion about operations. Seventh, deliver

effective results. Law enforcement at the end of the day is about results and delivering them

effectively is key. Eighth, organizational culture, structure, policies and systems support the

mission. This is the task of leadership to ensure the basis and groundwork of the organization

fits the vision, mission, and goals set up in step one.

Two Case Study Interviews

The last section of the report will examine two interviews conducted by the LEPSL staff

at the University of San Diego with the Assistant Chief of Carlsbad Police Department and the

Retired Deputy Chief of Laguna Beach Police Department. Both were interviewed in regard to

their department’s handling of the Covid-19 pandemic and the ethical leadership,

accountability, and communication.

The Assistant Chief of Carlsbad Police Department Mickey Williams demonstrated

excellent leadership and communication skills throughout the Covid-19 pandemic. He created a

clear and decisive mission statement. He contacted first all of his supervisors to relay the

expectations of command staff. Those personnel then relayed those expectations to all of their

officers. He sent daily email communication to all members of the department regarding not
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only the actions the department was taking, but why they were taking them. He was able to tie

every communication with his officers back to the mission statement. He worked through the

tough leadership decisions as Covid-19 was a tough, long term, and dynamic problem for not

only the police department, but the community they serve. He is a good example of an ethical,

intellectual, respected law enforcement leader by not only the people in his department, but

the community as well.8

Retired Deputy Chief of Laguna Beach Police Department Rick Rocchi stated “leadership

sets the tone for the organization and model the behavior.”9 This is imperative for the

organization to thrive because as individuals one must hold themselves accountable before

others. If leaders are not holding themselves to a higher standard, they are unable to hold

officers accountable. His two main points to be made for law enforcement leaders is daily

communication with your officers, and being willing to address all different situations with

courage. He stated command staff plays a major role in the training of their officers and

throughout the duration of their careers are responsible for mentoring them and ensuring the

department will have a legacy once they retire. 10

Conclusion

In conclusion, the Orange County Sheriff’s Department leadership has a tall order of

change to make in order to lead their department in the dynamic world of the future. The litany
8
Presentation 6.1: Interview with Micky Williams, Assistant Chief of Carlsbad Police Department. LEPSL 540:
Organizational Management. University of San Diego.
9
Presentation 6.1: Ethics and Accountability. Rich Rocci, Retired Deputy Chief of Laguna Beach Police Department.
LEPSL 540: Organizational Management. University of San Diego.
10
Ibid.
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of problems not only need to be addressed, but a series of steps need to be accomplished to

move the department forward. Constant communication within the department, proper

planning, foresight, holding everyone accountable, proper ethics and more are all things that

require immediate change. I recommend all leadership throughout the department as well as

the board of supervisors for Orange County read this report and change the organization into a

thriving, forward thinking, intellectually based, law enforcement agency.

References

1. Bass, Bernard (2008). Bass & Stogdill's Handbook of Leadership: Theory, Research &

Managerial Applications (4th ed.). New York, NY: The Free Press. pp. 50, 623.
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2. Creating a Purpose Driven Organization. LEPSL 540: Organizational Leadership. University of

San Diego.

3. “Essential Elements of Supervision in Public Safety.” Lexipol, 4 Feb. 2021,

www.lexipol.com/resources/blog/essential-elements-of-supervision-in-public-safety

4. Fleenor, John. “Trait Approach to Leadership.” ResearchGate. January 2006.

5. McMillan, Amy. “Participative Management” Page 1

6. Nayar, Vineet. “Three Differences between Managers and Leaders.” Harvard Business

Review. August 2, 2013. Page 1.

7. Presentation 3.1: Leading and Managing a Progressive Police Agency. LEPSL 540:

Organizational Management. Univeristy of San Diego. 2021.

8. Presentation 3.1: Leading and Managing a Progressive Police Agency. LEPSL 540:

Organizational Management. Univeristy of San Diego. 2021.

9. Presentation 4.1. Module 4: Transactional, Transformational, Strategic, and Situational

Leadership. LEPSL 540: Organizational Management. University of San Diego.

10. Presentation 4.2: Roland Riggio - Transformational Leadership. Module 4: Transactional,

Transformational, Strategic, and Situational Leadership. University of San Diego. LEPSL

11. Presentation 5.1: Building great teams – Interview. Module 5: Collaboration and Building

Teams. LEPSL 540: Organizational Management. University of San Diego.

12. Presentation 6.1: Ethics and Accountability. Rich Rocci, Retired Deputy Chief of Laguna

Beach Police Department. LEPSL 540: Organizational Management. University of San Diego

13. Presentation 6.1: Interview with Micky Williams, Assistant Chief of Carlsbad Police

Department. LEPSL 540: Organizational Management. University of San Diego.

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14. Situational Approach. Leadership Northouse. Theory and Practice. Eighth Edition.