The initial difference would be that, if I were to investigate following a complaint, I would have requirements rather than recommendations made of the organization, so my judgment would lead to statutory requirements with which they are required to comply. If they do not comply, I can then escalate within my organization, within the commissioner's office. We can move to a position where I impose a fine or I move the case forward immediately to a court to obtain an injunction. Rather than having a series of recommendations, I have a series of legal requirements that I can impose on, in your case, the police.
That role has greater teeth than recommending change; I “require” change.