Four research questions guided this documentation and assessment of the Portland Police Bureau's conversion to community policing. These questions generated a description of the events and circumstances that created the perceived need for change in the Bureau's role and function; a search for justification for selecting community policing as an alternative policing approach; a comparative analysis of past attempts to implement innovative change of a similar dimension in police organizations; and an assessment of the process by which the Bureau implemented this new policing strategy. The findings indicate that the prominent factors driving this change are first, the limitations of conventional policing tactics against emerging new patterns of crime and disorder; second, an intensification of public interest in quality-of-life issues; and third, an increase in the numbers of progressive police officers that are influencing change in the traditional police culture. The process by which the Bureau effected changes in its organizational structure and design to accommodate community policing strategies was assessed using theoretical guidelines abstracted from the organizational change literature. This assessment led to a hypothesis that innovative change which is incongruent with organizational traditions and culture must be implemented organization-wide, in an "all-or-none" fashion, to maximize the probability that the change will become institutionalized. The Bureau's inadvertent adherence to most of the guidelines suggests that a pattern may exist to guide the implementation of innovative organizational change. It was also found that the traditional bureaucratic policing structure has been relaxed, but remains quasi-bureaucratic in character, as a function of retaining the traditional military rank structure.

On March 14, 1975, twenty-eight year old Portland Police Officer Kenneth Sanford shot and killed seventeen-year-old Rickie Charles Johnson in the back of the head during a sting operation. Incredulously, Johnson was the fourth person of color to be shot and killed by Portland police within a five-month period. Due to his age and surrounding circumstances, Johnson's death by Sanford elicited extreme reactions from varied communities of Portland. Unlike previous deaths of people of color by the police in Portland, Johnson's death received widespread attention from mainstream media outlets. In response, some white citizens decried Johnson's death as unjustified police brutality. Still, several white citizens defended the Portland Police Bureau and their actions. Members of Portland's African American community, however, firmly believed that Johnson's death was just another instance in the PPB's long history of police brutality within Portland's black neighborhoods. Johnson's death motivated young black activists in Portland, Oregon to form the advocacy group the Black Justice Committee (BJC). The BJC, along with several pre-established advocacy groups in Portland, demanded that the city host its first public inquest to investigate Johnson's death. A public inquest is a public "trial" that usually occurs after a sudden or unexpected death. Black citizens felt this public inquest would hold the city accountable for repeated mistreatment of the city's communities of color; whereas, the nearly all white city government believed a public inquest would quell racial unrest within Portland. Mayor Neil Goldschmidt and District Attorney Harl Haas agreed to host the inquest, at which assistant District Attorney John Moore questioned Officer Sanford's motivations and actions. Despite the advocacy efforts before the public inquest, the jury voted 4-1 for Sanford's innocence. The only black jury member casted the sole vote against Sanford's innocence. Heralded for its progressivity, the city of Portland, Oregon is contemporarily viewed as a liberal mecca where all are welcome to speak their truth and "Keep Portland Weird." However, communities of color have experienced widespread repression, oppression and discrimination since the establishment of the city. Whereas some may see Portland as a city that cherishes individuality, Portland's black community has been robbed of autonomy for generations. Police surveillance, harassment and brutality have plagued Portland's black community for years and continues to be a contentious issue within the city. This project focuses on the history of Portland's black community, the history of the Portland Police Bureau, and the relationship between the two. Starting with World War II and ending with Officer Sanford's public inquest in April 1975, this thesis showcases the unassailability of Portland's black activist community and the city's continued denial of culpability for police actions. Despite the inquest's results, Johnson's death and the advocacy surrounding the incident fueled the motivations of activists at both the national and state level, and encouraged the city to acknowledge the wrongdoings of the Bureau.

In 1993, Charles Moose became Portland, Oregon's first black police chief. A nationally recognized student of the developing theories of community policing, Chief Moose's promotion was also hoped to help strengthen the diversity of the Portland Police Bureau. Ultimately, Portlanders were unable to look past Moose's public outbursts and demeanor and recognize his accomplishments. As a city, they missed an opportunity. This thesis uses transcripts of speeches and policy papers to present some political history to the reader, but also letters to the mayor's office, letters to the editor and the like to consider the social history of 1990's Portland. Some specific touchpoints of Moose's administration are considered, including when he and his wife Sandy moved to the King Neighborhood, the Daniel Binns birthday party and the resulting march on Moose's home, his outburst at the City Council, and other examples of his legendary anger. Moose's role in gentrification, and the policies he created for the Portland Police Bureau to lead that charge will not be ignored. All the while, the context of Oregon's racist heritage is forefront in this paper. By 1999, Charles Moose had left the bureau and accepted a job in Maryland. He was selected for many of the accomplishments that the Portland public had criticized him for. Ultimately, this study will show that Portland missed an opportunity to discuss how they wanted to be policed, and what philosophies they wanted their enforcers to personify.