I think in part it's that there's a system established. Departments are required to have a senior officer and there is a system established. For a lot of people, that's going to be the first place they go to. That, ultimately, puts the determination of whether there's wrongdoing in the hands of the department.
Employees don't have to use that. They could go directly to the commissioner's office, but still, it's sort of the default mode. Beyond that, the way the system is structured is such that the likelihood of someone getting relief if they have been subject to reprisal is extremely slim. There are many tools that senior management can use. They can delay. They could remove evidence. They could make motions before the tribunal on procedural matters. There are all kinds of things that can cause delay.