By Rebecca M. Townsend, David Rudder, and Linda Matys O’Connell
In 2016, the Republican, a daily newspaper in Springfield, Massachusetts, reported on excerpts of a video that had been read in court featuring a police officer “screaming abusive, profane language and threatening violence. […] threatening to plant a kilogram of cocaine on a teen and send him to prison for 15 years.” The residents of the city were angry, but the reaction of the city government was divided: city council members advocated for the creation of an independent police review board, but Mayor Domnic Sarno was opposed.
Springfield police have a documented history of brutality, often against residents of color, that has deeply fractured community-police relations. It has also cost the city over $4 million in legal settlements and exacerbated the intergenerational trauma that many residents have experienced, trauma that is rooted in conflict with local law-enforcement. In January 2017, the League of Women Voters (LWV) met to discuss the plans for the coming year.
As a result, a seven-member subcommittee was formed to focus on police accountability. Two members were from higher education institutions in the region–one was a city resident, and the other from a neighboring municipality. All contributed ideas, expertise, and resources to the other members. All wanted to see policing improve and have the community voice be part of that improvement. This article details the history of interest in police oversight and a new attempt at designing and implementing opportunities for public engagement, showcasing the process and results of the effort. This article also outlines the history of police oversight efforts and the LWV’s public engagement initiatives.
Brief History
Police oversight in Springfield follows a nearly 50-year cycle. The city’s police structure was reformed in 1852, 1902, 1962, and again in 2016. In 1962, the Plan A charter form of government reduced the city council’s power, removing its role in police commission appointments. Efforts to implement civilian review began over 30 years ago. Allegations of excessive force in 2004 led to a recommendation for civilian oversight. Springfield had a civilian police commission from 1902 until 2006, when the role was consolidated under a police commissioner. A 2007 study recommended civilian oversight, leading to the formation of the Community Complaint Review Board. This was replaced in 2010 by the Community Police Hearing Board, which lacked authority to enforce change. In 2016, the city council sought reforms, but the mayor vetoed the plan.
Further, the U.S. Department of Justice’s investigation into the Springfield Police Department revealed systemic deficiencies, reinforcing the need for robust civilian oversight. Reports indicated that excessive force incidents were not properly documented or reviewed, which fueled community distrust.
Why Public Engagement? Why Deliberation?
Democratic self-determination relies on deliberation. Only 43.6 percent of the city’s registered voters cast votes in the 2024 presidential election. Turnout in the 2023 mayoral and city council election was only 18.9 percent,1 but activism and protest movements have been part of the Springfield region’s history. The continuum of protest movements in the region ranged from armed rebellion (Shay’s Rebellion in 1786-87), to civil rights and environmental justice activism (Arise for Social Justice, Pioneer Valley Project, Neighbor to Neighbor, Springfield Climate Justice Coalition) to utopian Edward Bellamy-inspired urban planning movements.2 Capacity-building movements have been focused on housing (e.g., No One Leaves), public health (e.g., Live Well Springfield Coalition, MOCHA), and food security (e.g. Gardening the Community).
Springfield’s history includes low voter turnout and activism through protests. Recognizing that traditional protest methods had limited success in influencing city policies, the LWV prioritized structured deliberation. The LWV adopted a deliberative approach to police oversight. Our goal was to gather community input, ensuring that diverse voices shaped recommendations. The approach was designed to empower citizens through informed discussions, making their voices harder to ignore.
Working in a period before the ascendancy of the Black Lives Matter Movement in 2020, with national interest in police violence, the League of Women Voters in Springfield took an activist approach aligned with the study-based consensus process used to develop its positions on public policy issues. We chose public deliberation as a means of delving into the question of civilian police oversight. The approach was based on factual information and aimed at remaking the community and building capacity. It relied on people’s strengths of speaking from their own experiences and history, listening to those with different views, coming to a collective judgment about what should be done, and amplifying their reasoned judgements with those who had the positional authority to enact the change they sought.
Design of Public Engagement
In early 2017, LWV members researched policing and structured engagement around the National Issues Forum Institute’s guide, “Safety and Justice: How Should Communities Reduce Violence?” The Police Accountability subcommittee collected data and prepared for community discussions. Public forums were planned with trained community moderators, ensuring neutrality and inclusivity.
In October 2017, community members were recruited for facilitator training. The LWV’s outreach efforts included emails, Facebook posts, and press releases targeting local organizations, activist groups, colleges, police unions, and elected officials. Their goal was to ensure diverse representation. The facilitators were trained not only in moderating discussions but also in maintaining neutrality, helping participants explore multiple perspectives on police accountability. The LWV aimed to provide fact-based discourse to counter misinformation and foster constructive dialogue. The training included the issue guide and structured activities rooted in values hierarchies and communication strategies to allow moderators to help discussion participants explore the issues. Since most trainees were also advocates, work centered on ensuring they would prioritize the forum participants’ positions and recognize the importance of maintaining their neutrality while moderating.
League of Women Voters flyer promoting the deliberative forums.
Public Forums and Findings
Photo of participants engaged in a training session in National Issues Forum moderating.
The League’s “Who’s Policing the Police” forums took place in February and April 2018 in neighborhoods across Springfield. Participants discussed various models of police oversight, identifying advantages and disadvantages. The discussions revealed broad concerns about the lack of independence, authority, and transparency in the existing oversight system.
Key concerns included:
- The Community Police Hearing Board only reviewed cases forwarded by the police, limiting independence.
- The mayor appointed all board members, raising concerns about political influence.
- Meetings were held at police headquarters rather than neutral locations.
- The board lacked authority, resources, and public accessibility.
- There is a lack of mechanisms for holding officers accountable for repeated infractions.
- There are concerns about excessive use of force disproportionately affecting minority communities.
Participants supported a hybrid model combining aspects of investigative and auditor-focused oversight, suggesting an independent investigator and professional auditor to assess police practices. Many community members also advocated for direct civilian involvement in disciplinary actions.
Photo of training session in National Issues Forum moderating.
Missing voices identified in the forums included undocumented residents, police officers, district attorneys, city council members, and youth. Participants stressed the need for accountability and ending police misconduct. Additionally, participants emphasized the necessity of continued public participation beyond the forums, calling for regular updates and transparency from city officials.
Impact and Reception
The LWV’s report was shared with the mayor, city council, and press in 2018. Though often overlooked in the past, the issue of police violence gained national attention and renewed interest in 2020. The U.S. Department of Justice (DOJ) consulted the report and sought out LWV’s opinion. A subsequent federal investigation into the Springfield Police Department’s Narcotics Bureau found a pattern of excessive force, which eventually led to the adoption of a consent decree mandating reforms in 2022.3 The Springfield Police Department implemented new policies, incorporating community feedback in a 2024 engagement plan.
The DOJ’s findings validated many of the concerns raised in the LWV’s forums. The consent decree introduced 80 action points aimed at improving accountability, use-of-force policies, and officer training. However, some city officials resisted these measures, slowing implementation. Despite this resistance, the process was ongoing in 2025. Formal status conferences are being held before a federal judge and are open to the public. In addition to the formal sessions before the judge, numerous community meetings have been held to gather public input on the progress of the plans described in the judicial setting.
Reflections
The League of Women Voters’ initiative successfully amplified community voices and influenced policy discussions. Forums allowed residents to deliberate on police oversight, shaping recommendations for reform. The case exemplifies how grassroots activism, supported by academic partnerships, can impact governance and drive change. Despite progress, community members remain vigilant, continuing to monitor the Springfield Police Department’s compliance with federal mandates. LWV’s work underscores the importance of sustained civic engagement to ensure accountability and lasting change. It also illustrates the long process that is needed to impact change in local government systems with low voter turnout and the need for civic organizations to play a critical role in amplifying the voices of those most marginalized.
Rebecca M. Townsend is Associate Director of Assessment, Holyoke Community College.
David Rudder is Dean of Professional Studies, Regis College.
Linda Matys O’Connell is a former convener for the Springfield Unit of the League of Women Voters of Northampton Area and a past co-president of the League of Women Voters of Massachusetts.
