Accountability in Officiating in Canada

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Accountability in Officiating
Discussion Paper

by David Weicker

"Sports is life with the sound turned up!" (Barry Mano, President NASO)

Executive Summary:

The purpose of this discussion paper is to report back to the Canadian
Centre for Ethics in Sport and Sports Officials of Canada on the subject
matter addressed and key issues covered at the conference of the National
Association of Sports Officials.
The author, David Weicker is the Interim Vice-President of the Sports
Officials of Canada, Chair of the National Officials' Committee for
Athletics Canada and President of the Victoria International Running
Society. The author, in his youth, won 7 national track and field
championships, played competitive tennis, badminton and played on
championship basketball teams.
The three key ethical issues/implications coming out of the conference and
following materials are:
In order for sport to be contested, all of the participants, including
athletes, coaches, officials, administrators, parents and spectators must
believe that the game is being officiated in a fair, objective and impartial
manner. For this to occur there is a need for officials to subscribe to and
live by a "code of ethics".
In order for officials to be able to provide the best possible service to
athletes and coaches, they need to be competent and remain competent in
their vocation. For this to occur there is a need for continual performance
development and training.
In order for officials to be able to perform at their best other
participants must respect the rights of officials through adherence to a
"covenant with sports officials". For this to occur there is a need for a
national communications strategy sponsored by Sports Canada or other major
national body which stresses the importance of having such a covenant.
While many sports associations have what they call a "code of ethics" there
is not a common national code specifically developed for officials. There is
a lack of training and development for officials as there are problems with
recruitment and retention of competent officials. Finally, more and more
often, officials are being accused of being biased, incompetent or poor at
their avocation.
While there are a few officials in Canada who are able to make a living as
officials, by far the vast majority are volunteers or receive insignificant
honorarium for their efforts. With such a large volunteer base it is
difficult to have grandiose expectations of them. Therein lies the dilemma:
we need more officials, we need better prepared officials but we can't
afford to provide much more than a T-shirt and "pat on the back" at the end
of a major event. When an official is not particularly good at their
avocation, it is difficult to tell them so, in fear of losing another
volunteer.
By not being able to have more volunteers and not being able to provide
educational and professional development support, nor a reasonable
honorarium, we are headed down the path of losing athletic volunteers to
other opportunities.
Accountability in Officiating Conference page 1
Introduction:
The conference was held in Portland, Oregon between June 21 and 24, 2003.
Concurrently, the Officials Development Alliance met and the writer was
asked to participate in their meetings as well.
The National Association of Sports Officials (NASO) represents officials
throughout the United States. This includes officials in amateur and
professional sports. NASO has been in the business of representing and
supporting officials since 1980. The Sports Officials of Canada are
attempting to emulate this approach and have partnered with NASO on numerous
occasions.
NASO has a national conference annually on subjects of keen interest to
their constituents. Originally these included the larger professional sports
of basketball, football and baseball. They have a significantly larger scope
of representation now including soccer, track and field, volleyball, etc.
The theme of the 2003 conference was built around two key questions:
. What responsibilities do officials have to the Game?
. What responsibilities does the Game have to officials?
There were seventeen (17) separate sessions with individuals or panelists
discussing different elements related to these two questions. (See Appendix
A for a session overview.)
The 2003 conference theme follows thematically on the 2002 conference theme
of "evaluating officiating performance" from which a new model for
evaluating performance of officials in the United States is being developed.
We live in a litigious society. An example given was of a referee crew at a
high school basketball playoff game being sued by the parents of one of the
players. This was because the result of their son's team losing was that he
no longer was going to be able to be scouted for college and therefore the
potential to lose scholarships and opportunities to play in professional
basketball.
The State of Louisiana recently passed a law indicating that because
officials weren't good enough they needed more training. The state was not
going to provide the training, just mandate it.
These are two examples of the issues facing officials in the United States
and we in Canada are not that far behind. These examples do help to point
out that the cornerstone of any officiating system is based on training,
evaluation, accountability and rewards.
"Excellent officiating is ensuring the game is being played by the rules
while emphasizing fairness and safety and doing so in a manner that enhances
the stature of sports officiating." (NASO)
Accountability in Officiating Conference page 2
Subject Matter - what went on at the conference:
The essential components of the conference were:
(1) Principles of officiating
(2) Code of conduct (How officials should act)
(3) Covenant (what officials expect of how the rest of the world acts)
(4) Rewards (monetary income or psychic income)
(5) Role of the media
(6) Disciplining officials
(1) Principles
Principles are important to:
Elevate the profession of officiating
Improve the image of officials in the eyes of the public
Express expectations of officials
Ensure a higher standard of behaviour
Ensure consistency
The principles of accountability, not just for sports officiating, are:
Focus on clear, measurable and significant goals
These tend to include ensuring that officials practice, study, have clinics,
have standards for physical conditioning, understand the rules and
demonstrate them through game performance
Monitor progress
This includes having annual evaluations which focus on the goals as well as
employing developmental tools (doing well, opportunities for improvement
etc.). This also includes annual performance as compared to individual in
previous year and comparison to other team members
Concentrate on improvement of performance (not on punishing for mistakes)
To do this we must avoid intimidation tactics, accentuate the positive,
provide examples of how the best officials perform, assign senior or more
experienced officials as mentors for younger or newer officials, and
demonstrate what you expect
Have effective evaluation tools
In many sports, the use of videotape will help for reviewing performance,
have peer reviews, coaches assessments, observers assessments, etc.
Have appropriate incentives
In some sports the incentives relate to "post season" game opportunities,
but in other instances, asking officials for there preferences to events to
work at as well as using rankings to select them for major events or
opportunities to travel, or special consideration
Invest in results
Use the best officials for the toughest games or events
Athletes deserve the best officials. They and their coaches are those to
whom officials are ultimately accountable.
Accountability in Officiating Conference page 3
(2) Code of Conduct
The National Association of Sports Officials (United States) has developed a
"generic" Code of Conduct, which is available for all sports officials
associations to use or customize. One of the immediate priorities for the
Sports Officials of Canada is to develop a similar code.
The NASO Code of Conduct is reprinted in Appendix B, however highlights
include that Officials shall:
be responsible for engendering public confidence in sports
be free from obligation to any interest other than the impartial and fair
judging
demonstrate integrity, neutrality, respect, sensitivity, professionalism,
discretion and tactfulness
master the rules and mechanics necessary to enforce the rules
uphold the honour and dignity of the profession
display superior communication skills
avoid conflict of interest (real or perceived)
prepare themselves, mentally and physically
not restrict access to officiating
be punctual
work together in a constructive and co-operative manner
not use one's position to benefit oneself
never participate in illegal gambling, in particular, events that they are
directly or indirectly involved
not make false or misleading statements about their qualifications or
abilities
accept responsibility for their actions
(3) Covenant
If sports officials are going to abide by a strict code of conduct, they
should have some expectations of those who require their services. The
National Association of Sports Officials also developed a parallel covenant
with sports officials. The Sports Officials of Canada will also be focusing
on development of a covenant.
A summary of the five points in the NASO covenant is:
(1) That game assignments and career advancement be provided based on the
ability to properly perform officiating duties.not age, sex, race etc.
(2) That effective security be provided to protect officials.
(3) That efforts be supported to limit the liability of sports officials.
(4) That the obligations of sports officials are clearly communicated to
them.
(5) That sports officials who are subject to an inquiry are given fair
treatment.
Accountability in Officiating Conference page 4
Who is the game for? The key components of who the game is for include:
Participants/athletes
Schools/administrators and coaches
Fans and parents
Officials
These are the individuals who need to "buy in" to a covenant.
Some advice for officials on how to deal with mistakes includes trying to
make every officiating event or game your best one! Also, it's ok to use
officials' "huddles" to discuss issues, because the primary objective is to
get the "call right". Finally, it's important to have a feeling for the
"spirit of the game" which essentially means to use common sense.
Another component of the covenant directly related to the code of conduct
relates to standards of accountability. To what standard should officials be
accountable?
At a minimum perhaps annual fitness and written tests, perhaps observations
at each event or game, perhaps self-assessments after each event or game,
perhaps assessments by trained assessors.
Anyone who jeopardises the safety of the game or event is not living up to a
minimum standard.
Any official whose actions change the outcome of the match, game or event is
not living up to a minimum standard.
Team performance of the officiating team is more important than individual
performance. This is relevant to any team environment, whether business or
sports. Some of the other qualities relating to the "higher" end of
accountability standards is that the better officials seem to have had some
excellent mentoring, they tend to have a good sense of humour, well
developed self-discipline, integrity and they are community minded.
When someone doesn't live up to the minimum standards there is a range of
opportunities to deal with the situation. The most drastic is to terminate
them, which can be particularly dramatic if the official is earning a living
at this profession. Demotions, not providing officials with the "better"
assignments are other ways of "reprimanding" officials who are not living up
to the minimum standards.
Accountability in Officiating Conference page 5
(4) Rewards
Rewarding officials is critical to one of the more common issues facing
sports organizations today; that is retention and recruitment.
If you can show or demonstrate "respect" for officials you can solve a huge
amount of this problem. A survey of officials was conducted with relevant
questions. Of note, "Which is the biggest problem where you officiate?
16% indicated that officials aren't paid enough.
35% indicated that neither money nor respect was a significant issue.
49% indicated that officials aren't shown enough respect.
"Do you feel officials generally are rewarded appropriately?" - another
survey question.
42% said yes while 58% indicated no.
When asked to rank order the relative importance of the following method of
rewarding officials, the results for best rewards were:
Post-season assignments
Better assignments
More money
More assignments
Training opportunities
Camp/clinic scholarships
Recognition through wages
When asked to "classify" the impact that more or better rewards would have
on officiating recruitment and retention programs the responses were:
3% No help
14% A little help
31% A big help
52% Some help
Other ideas from the participants at the conference for rewards for
officials (in no particular order):
Long service awards
Tournament medallion for officials, as well as for the winning team
Official of the year
Banquet to acknowledge officials
Hall of fame
Rookie of the year
Most improved
Camps and clinics
Public recognition of officials
Mentoring by senior/veteran officials
Thank you cards
Post season assignments
Free admissions to sporting events
Gift certificates/tickets/cash for mentoring
Life-time exemption from dues
payment after 25 years
The keys are to:
(1) Match the reward to the person
(2) Match the reward to the achievement
(3) Provide the reward in a timely and specific manner
Accountability in Officiating Conference page 6
(5) Role of the Media
Based on extreme pressure from the media, the Louisiana House of
Representatives passed legislation so as to ensure that officials do a
better job. The focus that there was a need to enforce or strengthen
existing rules.train officials.retrain officials.correct errors in a timely
way.so as to restore public confidence in officiating.
The fundamental question is "should officials be subjected to the same level
of public accountability as coaches and players"? Do officials need to
explain what they hear or say and what they did and why?
If they were subjected to similar standards of accountability, they
certainly would need some form of training to deal with the press. An
additional opportunity would be to have clinics for the media so that they
would more fully understand officiating. Officials need to know what's "on"
and what's "off" the record. Officials need to know that the media are
generally closer to the officials in their reporting and objectivity.
A closer linkage between the media and officials is a must for the future.
While officials need training to help them to better "control" the
interview, the media need educating on the rules, how officials apply them
and what the officials are looking for during the event.
(6) Disciplining Officials
Officials do make mistakes. Officials sometimes act in appropriately while
"off the job". Officials are sometimes accused of doing some things wrong.
In order to preserve the integrity of the game, whatever the "game" is,
there needs to be a code of conduct for officials that considers actions,
both on and off the surface of play. Standards of conduct need to be
communicated clearly. Officials must constantly answer this question: How do
my actions, both on and off the field of play, affect the business or image
of the game?
In the survey of officials conducted, two questions on discipline were
asked. The questions and responses were:
Should officials be subject to formal penalties for errors in officiating
judgement?
4% said yes
28% said maybe
68% said no
Should officials be subject to formal penalties for errors caused by
misapplication of a rule?
28% said yes
34% said no
38% said maybe
Bottom line, if mistakes in "judgement" are made they may be the result of
not being able to "see the play" which seems less harmful to the game than
when they "see the play" but call it incorrectly. The number one objective
of all officials is to "get the call right"!
Accountability in Officiating Conference page 7
Generally, local associations are responsible for dealing with discipline
issues. Having a code of conduct, which is clearly articulated to officials,
is most important.
Similar to rewards, the "punishment" must fit the situation or crime! There
should also be a form of "progressive" discipline involved. If it's a single
mistake then a certain form of discipline is required; a subsequent mistake
may require a more significant penalty, etc. Finally, don't deal with these
issues in the press.
Officials need to have the opportunity to retrain so that they can "get it
right". Provide those opportunities whenever necessary.
Accountability in Officiating Conference page 8
Conclusion:
The preceding provides an overview of the subject matter addressed at the
conference. The following highlights the key issues covered, with special
attention to their impact on ethical sport.
Officials in Canada need to have a strong umbrella organization to assist
them with their sports associations and other leaders or sponsors of sports
in Canada. What I walked away from the conference with were three main key
issues:
Officials in Canada need to have a clearly articulated code of conduct.
There should be a charter or covenant outlining how society should treat
officials.
There is a need to organize the training and development of officials at the
national level, paying particular attention to the issues of code of
conduct.
The National Association of Sports Officials and recent offspring, the
Education Development Alliance has assisted sports officials tremendously
over the past 23 years. The recent establishment of the Sports Officials of
Canada (SOC) is in a position to provide similar support to the development
of a comprehensive officials program for Canada.
It is clear that the Code of Conduct in the United States can be migrated
with some modification to our officials program in Canada. This is one of
the strategic activities within the SOC Strategic Plan tabled with Sports
Canada in March.
It seems relevant for Canada to also develop a "covenant" with the sports
community and community at large. The Code of Conduct and Covenant would
both go a long way to impacting on ethical sport.
Pulling these three pieces together, the umbrella organization, which now
exists in Canada, however without government or corporate funding or support
at this time, development of a Code of Conduct, and development of a
Covenant with Sports Officials will be difficult. A development plan for a
national code of conduct and covenant (in partnership with media) will need
to concentrate on broad training for officials. Technical training is a
sport specific responsibility.
The combination of these elements will increase the "professionalism" of
sports officiating which will in turn improve the ethical conduct of
sporting events.
When most sports bodies talk about the development of their sport, they
mention the key requirements of coaches, parents and administrators. The
more often than not forget to mention officials, yet the officials are the
key guardians of the sport. Officials are responsible for ensuring a fair
competition, whereby all athletes can perform at their best.
When officials feel valued (psychic compensation) they have a renewed
interest in ensuring fairness, being honest and professional, and preparing
themselves both mentally and physically for the contest.
This issue does need to be addressed. Having a national code of conduct, a
covenant and a strong developmental plan for officiating will go a long way
to dealing with this issue. Officials are a key component of the sports
development system in Canada.
Accountability in Officiating Conference page 9
Appendix A - Session Overviews
"Brave New World"
What has changed most in officiating? In a word, scrutiny. Virtually every
game now played is being recorded and played back by someone.
"The Buck Stops Here: Principles of Accountability"
This was the dissection of "accountability." What are the classic principles
of accountability and how do they intersect our lives as officials?
"Code of Conduct: What Now?"
NASO and the Officiating Development Alliance developed a code of conduct
that can help you and your organization maintain high standards. What are
the practical challenges of implementing a code of conduct.
"It's a Two-Way Street:"
Officials are often reminded of their responsibilities to "the game." But
what responsibilities does the game have to officials? Organizations and
individuals that assign, evaluate or require the use of officials should
commit to specific responsibilities.
"Game Accountability"
The importance of ensuring contests are played by the rules, while
emphasizing fairness and safety, and doing so in a manner that enhances the
stature of sports officiating. How is an official held accountability to
that standard on the field?
"Great Ways to Reward Sports Officials"
Building a list of rewards that recognizes achievement at every level within
an association and goes well beyond an assignment to the championship game.
"Let's Take Another Look"
How the media plays a critical role in how officiating is perceived. This
session will "instant replay" some of the key dynamics behind the media's
scrutiny of officiating performance.
"Keep up with the Pace of the Game"
How officiating performance variable can be measured and used to evaluate,
train and test officials.
"Vision in Action"
How to implement NASO's many programs to recruit and retain new officials,
enhance the image of their association via community relations programs and,
in general, put their associations on a glidepath for success.
"24/7/365"
Does an official's private life affect the status of that official's
assignments as long as there has been no noticeable falloff in officiating
performance? Who decides and what are the principles that apply?
Accountability in Officiating Conference page 10
"Disciplining Officials - a Guide"
Determining when it is appropriate to discipline an official. But what are
the standards? And what about due process - who is the judge?
"A Better Way"
How can an association or league handle the fallout from an officiating
error?
"What Officials Want"
A Covenant with sports officials?
"Your Legal Rights and Responsibilities"
Are sports officials employees of those for whom they work games or not?
"In Full View"
How can officials flourish and survive in today's ultra-scrutinized world?
Accountability in Officiating Conference page 11
Appendix B - Code of Conduct for Sports Officials
1. Officials shall bear a great responsibility for engendering public
confidence in sports.
2. Officials shall be free from obligation to any interest other than the
impartial and fair judging of sports competitions.
3. Officials shall hold and maintain the basic tenets of officiating which
include history, demonstrate integrity, neutrality, respect, sensitivity,
professionalism, discretion and tactfulness.
4. Officials shall master the both the rules of the game and mechanics
necessary to enforce the rules, and shall exercise authority in an
impartial, firm and controlled manner.
5. Officials shall uphold the honour and dignity of the profession in all
interactions with student-athletes, coaches, school administrators,
colleagues, and the public.
6. Officials shall display and execute superior communication skills, both
verbal and non-verbal.
7. Officials shall recognize that anything, which may lead to a conflict of
interest, either real or apparent, must be avoided. Gifts, favours, special
treatment, privileges, employment or a persona relationship with a school or
team, which can compromise the perceived impartiality of officiating, must
be avoided.
8. Officials shall prepare themselves, mentally and physically, shall dress
neatly and appropriately, and shall comport themselves in a manner
consistent with the high standards of the profession.
9. Officials shall not be party to actions designed to unfairly limit or
restrain access to officiating, officiating assignments or to association
membership. This includes selection for positions of leadership based upon
economic factors, race, creed, colour, age, sex, physical handicap, country
or national origin.
10. Officials shall be punctual and professional in the fulfillment of all
contractual obligations.
11. Officials shall work with each other and their governing bodies in a
constructive and co-operative manner.
12. Officials shall resist every temptation and outside pressure to use one'
s position as an official to benefit oneself.
13. Officials shall never participate in any form of illegal gambling on a
sports contest, may never gamble on any sporting event in which they have
either a direct or indirect involvement, and my never gamble on events
involving high school athletics.
14. Officials shall not make false or misleading statements regarding their
qualifications, ratings, credentials, experience, training or competence.
15. Officials shall accept responsibility for all actions taken.
Accountability in Officiating Conference page 12 Accountability in
Officiating Conference page 13
Appendix C - A Covenant With Sports Officials
Sports' officiating is an honourable profession requiring those who engage
in it to have strong moral character and integrity. Officials must be
fair-minded and courageous. They are expected to embrace and adhere to the
Code of Conduct for Officials, as adopted by the Officiating Development
Alliance in January 2002.
It takes a special person to be an official. Sports officials bear great res
ponsibility for engendering public confidence in sports. They are critical
to the health of athletic competitions. Officials ensure games are played
fairly, by the rules, within the spirit of the rules and in a safe manner.
Officiating takes a great deal of preparation, continuing education and
commitment of time. Much is asked of those who officiate.
Therefore those organizations and individuals that assign, evaluate or
require the use of officiating services are hereby asked to resolve and
affirm the following:
1. That game assignments and career advancement be provided without regard
to age, sex, race, national origin, religion or other factors unrelated to
the ability to properly perform officiating duties.
2. That effective security be provided to protect sports officials from
physical assaults, unseemly verbal abuse and the loss of, or damage to
personal property, from the time of arrival at the game site through the
time of departure.
3. That efforts be supported to limit the liability sports officials can
incur as a result of the reasonable and customary decisions they make in
fulfilling their officiating duties.
4. That the obligations sports officials are expected or required to fulfill
be clearly communicated, preferably in writing, in advance of when those
obligations are to be carried out.
5. That sports officials who are subject to an inquiry concerning alleged
improper or inadequate fulfillment of their responsibilities, be given fair
treatment and an opportunity to respond to the findings through a prescribed
appeal process before disciplinary measures are taken.