When will the killings end?

My question is, why don't ALL the divisions have citizen's councils/auxiliaries/ whatever you want to call them? Isn't that the whole point of community-oriented policing? That's a term I hear all the time, but which no one seems to want to really define or describe? If we are doing COP - what should the citizen see, on the street? How should the department's actions look different to the ordinary citizen?