Sheriff's Office Operations
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STUDY OF
THE ORGANIZATION, MANAGEMENT,
AND OPERATIONS OF
THE SALINE COUNTY SHERIFF'S OFFICE
July 1999
By
PUBLIC ADMINISTRATION SERVICE (PAS)
7927 JONES BRANCH DRIVE, SUITE 100 SOUTH
MCLEAN, VA 22102
Public Administration Service
7927 Jones Branch Drive, Suite 100 South, McLean, Virginia 22102-3322
Telephone: (703) 734-8970
July 19, 1999
Chairman and Members
Steering Committee
Saline County Study of Sheriffs Office
300 W. Ash Street, Room 217
Salina, KS 67402-5040
Ladies and Gentlemen:
Re: Final Report on Study of Saline County
Sheriff s Office
On behalf of Public Administration Service (PAS), I am pleased to forward the
referenced report. This report is organized into:
.
An Executive Summary
The detailed body of the report
The Executive Summary (in the front of the document starting at page ES-l) contains:
a.
A summary of major findings and conclusions in chapter order
(starting on page ES-I).
b.
A scope of services section that summarizes PAS's position on
major study scope of service requirements (starting on page
ES-22).
c.
A section that presents study themes and options to the County
Commissioners (starting on page ES-43).
d.
An implementation section that lists recommendations and the
tasks necessary to carry them out (starting on page ES-47),
e.
A draft set of performance goals that the Sheriff may agree to
carry out in return for the necessary resources from the County
Commissioners. The performance goals start on page ES-51.
They could be incorporated into a performance agreement
between the County Commissioners and the Sheriff.
Yevv<<~ ~ d: y~ !jf;/~ Jbn~ /9.3:3'
Facsimile: (703) 734-4965
Cable: PASWAffelex: 64462
e-mail: postmaster@pashq.org
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Public Administration Service 7927 Jones Branch Drive, Suite 100 South, McLean, VA 22102-3322
The body of the report and the appendices provide detailed backup to support the
findings, conclusions, and recommendations made in the Executive Summary.
P AS would like to take this opportunity to thank the Steering Committee for the
leadership and guidance it provided during the study process, and to express our appreciation to the
employees of the Saline County Sheriff's Office (SCSO) for the excellent cooperation and the
information they provided throughout the study.
Public Administration Service is pleased to have been of service to Saline County.
Sincerely,
~r4--
George Hubler
Assistant Director
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Public Administration Service 7927 Jones Branch Drive, Suite 100 South, McLean, VA ~~10~-33~~
T ABLE OF CONTENTS
EXECUTIVE SUMMARY
STUDY OF
SALINE COUNTY SHERIFF'S OFFICE
Page
CHAPTER I. INTRODUCTION .,... . . . . , . . . , . . . . , . . . . . . . . . . . . . . . . . .. ES-l
Purpose, Scope of Study, and Approach . . . . . . . . . . . . , . . . , . . . . , . . . . . . . . . .. ES-l
Strengths and Opportunities ....,.,.....,...........,................. ES-2
Strengths .,.......,.",..,."......".",........,..,.,..." ES-2
Opportunities for Improvement. , , . . . . . . . . , . . . . . . , . . . . , . , . . . . . . .. ES-3
CHAPTER II. EXAMINATION OF THE ORGANIZATION AND STAFFING
OF THE SHERIFF'S OFFICE ....,..,..".,....,....,...,............ ES-6
Corrections ....".........."."...,......,................. ES-6
Patrol ...,......,...........""..."",...,..,............. ES-7
Administration Division ..,.,..,.........,.............,....... ES-8
Juvenile Detention Center. . . . . . . , , , . . . . . . . . . . . . . . . , . , , , . , . . , . ,. ES-9
CHAPTER III. EXAMINATION OF WORK PLACE ATTITUDES. . . . . . . . . . ES-l 0
CHAPTER IV. POLICIES, PROCEDURES, AND MANAGEl'v1ENT
PRACTICES. . . . . . . . . . . . . . . . . . . . . . . , . .. . . . . . . . . . . . . . . . . . . , . . . . . , . ,ES-ll
CHAPTER V, REVIEW OF ISSUES AND ANSWERS........,.,.,...,. ,ES-13
The Role and Functions of the Sheriff Nationwide , . , , , , , , . . . . . . . . . . . . . . , . . ES-13
Forms of Government, Unique Approaches by Local Government and La\\'
Enforcement ..............",...........,..",.................. ES-15
Other Forms of County Government. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ES-15
Unique Approaches. . . . . . . . , . . . . . . . . . . . . . . . . . . . , . . . . . . . . . . . . . . ES-17
Privatization of Corrections. . . . . . . . . . , . , , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ES-18
Sharing of Services-Now and in the Future ,....."...................... ES-19
Potential for Overall Joint Administrative Support. . . . . . . . . . . . . . . . . . . ES-21
Legislation Changes .,................,............................. ES-21
CHAPTER VI. BRINGING ABOUT CHANGE AND SERVICE EXCELLENCE
IN A LAW ENFORCEMENT AGENCY. . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . ES-21
ES-i
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Public Administration Service 7927 Jones Branch Drive. Suite 100 SOllth. McLean. VA 22102-3322
TABLE OF CONTENTS (continued)
Page
SCOPE OF SERVICES. . . . . . . . . . . . . , . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . ES-22
Proposed Organization Chart-Saline County Sheriff's Office ...........'.... ES-24
PAS Recommended Staffing of Saline County Sheriff's Office. ... . . . . , . , . . . . ES-25
Employee Performance Appraisal, . . . . . . . , . . , . . . . . . . . , . . . . . . , . . . . . , . . . . ES-29
THEMES AND RECOMMENDATIONS ..,.......................,.... ES-43
Themes and Key Points. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . , . . . . ES-43
FLOW CHART DEPICTING ACTION LEADING TO IMPLEMENTING
STUDY RECOMMENDATIONS .........................,........... ES-45
Implementation Actions-Saline County Sheriff s Study ...............,.... ES-47
Sheriffs Performance Goals. . . . . . . . . , . . . , . . , . , . , . . . . . . . . . . . . . . . . , . . . . ES-51
ES-ii
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Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA 22102-3322
TABLE OF CONTENTS
STUDY OF SALINE COUNTY SHERIFF'S OFFICE
Pa!!c
EXECUTIVE SUMMARY AND RECOMMENDATIONS... ..... .. ES-l - ES-53
I. INTRODUCTION. . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . , . . . . . . . . . . . . , . . . 1
Background and Purpose of the Study , . . . . . . , , . . . . . . . . ' . . . , , . , . . . . . . . 1
Events Leading Up to Study and Its Purpose. . , , . . . , . . . . , . . . . . . . . , , . . . . 1
Scope of Services of the Study. . . . . . . . . . . . . . , . . . . . . . , . . . . . . . , . . , . . . . 2
The Approach to the Study and the Organization and Management Guidelines
PAS Followed. . . , . , , . . , , . . , . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
The AuthoritylResponsibility for the Law Enforcement Program of the County
Commission and the Sheriff .........,.",.......,...........,. , 6
Saline County Government ....,.....,..,."....,.................. 8
Organization of Study Report. . , . . . . . , . . . . . . . . . . . . . . . . . . . , . . , . , . . . . . 10
II. EXAMINATION OF THE ORGANIZATION AND STAFFING OF THE
SALINE COUNTY SHERIFF'S OFFICE ....................,...,...... 11
Scope of Chapter . , . . . . . . . . . . . . . . . . . , , . . . . . . . . , , . . . . . . . . . . . . . . . . , . . . 11
Organization Theory .".,.............,......,.,."..,......,....... 11
Typical Sheri ff s Office Organization . . , . . . . . . . . . . . . . . . . , . . . , . . . . . 12
Current Organization Overall ,..",...............".,.,.............. 1 7
Summary of Staffing of Saline County Sheriff s Office . . . , . . . . . . . , , , , , , . . . . 22
CORRECTIONS ORGANIZATION STRUCTURE ,..........,....,...... 23
Basis for Current Corrections Staffing ........"............,........... 23
Jail Population Exceeds Estimates ...."..................,.,.... 25
Facility and Operating Environment Can Cause Inefficiencies, Potential Safety
Hazards, and Low Morale ".""........",.."..,............,... 27
Jail Administrative and Personnel Issues ......."...........,........... 28
Problems ......,..............,...,......................... 28
Strengths in Jail Administration/Operations. . . . . . . . . . . . . . , . . . . . . . , . 29
Corrections Staffing-Revisited ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
Basic Alternatives to Meeting Jail Staffing Needs ........,.......... 30
PATROL DIVISION. . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
Patrol Staffing Calculations. . . . . . , . . . . . . . , . . . , . . . . . . . . . . . . , . , . . . . . . . . . 35
Officers per 1,000 Population .........,......................... 36
Reported Crime ,.. . . . . . . . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
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Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA 22102-3322
TABLE OF CONTENTS (continued)
Page
Calls for Service .......,.....".....,........................ 36
Call Service Management ...........,.,.,.....,......... , . . . . . . 42
Staffing Analysis. . . . . . . . . . . . . . . , . . . . , . . . . . . . . . . . , . . . . . . . . . . . . 43
Patrol Division Conclusions and Recommendations ...................,... 44
ADMINISTRATIVE DIVISION .......,.,........,.................,. 45
Organization and Functions. . . . . . . , . . , , . . . . . . . . , . . . . . . . . . . . . . . . . . . . . . . 45
Internal Affairs/Administrative Sergeant ...,.,,'...,.............. 46
Internal Affairs/Record Keeping . . . . . . , . . . . . . . . , . . . . . . . . . . . . . . . . . 46
Employee Performance Appraisal . . . , , . . . . . . . . , , . . . , , . . . . . . . . . . . . 46
Records Unit ...,...,........,...,....,.,.,.,.".,.........., 4 7
DARE and Crime Prevention ....."......,.......,...,......... 49
Court Security .."............,.......,."................ . . . 49
Workload Data. . . . . . . . . . . . . . , , . . . . . . . . . , . , , . . . . . . . . . . , , . . . . . . . . . , . . 49
Strengths, Problem Areas, and Needs ",.........."., . , . . . . . . . . , . 50
Recommendations . , . . . . . , . . . . . . . . , . . . . . . , , . , . . . . . . . . , . , , . , . , . , . . . . , 51
JUVENILE DETENTION CENTER ..,..,......",..........,.,....". 52
Mission, Organization, and Staffing ,..,........,.".....,..,..,........ 52
Operations ...............,......"....",.,...... . . . . . . . . . . . 52
Conclusions . . . . . . . . . . , . . , , , , . . . . . . , . . . . . . . . . . . . . . , . , , . . . . . . . , , , , . . 53
III. EXAMINATION OF WORK PLACE ATTITUDES, COMMUNICATIONS,
AND LEADERSHIP IN THE SALINE COUNTY SHERIFF'S OFFICE, . , . . . , 54
Attitude Surveying Should be Viewed as a Research Tool in Studying
Organizations-Not the Solution to Work Place Problems, . . . . . . . . . . . . . , . . 54
Survey Administration. . . . . . . . . . . . . . . . . , . . . . . , . . . . . . , . . . . . . . . . , . , . . . . 55
Survey Results, , . . , . . . . . . . . . . , . . . . . . . , . . . . . . . . , . . . . . . . . . , . . . , . . , . . , 55
General Working Conditions. . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . , . . . . 55
Satisfaction with Aspects of Work .".....................,...... 57
Perception of Departmental Effectiveness and Employee Working
Relationships. . . . . . . . . , . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 60
Response to Questions Based on Division ..,.."...........,.,.......... 64
Response to Open-Ended Questions " . . . . . . . . . . . , . . . . . . . , . . . . . . . . " . . . . 64
Conclusions-Examination of Employee Attitudes, Communications, and
Leadership ......................,.".........,.......,.....,.., 66
Recommendations. . . . . . . . . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . , . . , 67
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Public Administration Service 7927 Jones Branch Drive, Suite 100 South. McLean. VA 22102-3322
TABLE OF CONTENTS (continued)
Pa!le
IV. POLICIES, PROCEDURES, AND MANAGEMENT PRACTICES .......... 69
National Accreditation and County Policies and Procedures ................. 69
CALEA ..,.,....".....................,...............,... 70
Jail Accreditation. , . , , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 72
Conclusion and Recommendations. . . . . . . . . . . . . . . . , . . . . . . . . . . . . . . 74
Sheriffs Planning ...."........"...,.....,..,.......,............. 74
Performance Measurement ,.......,......,.",....................... 76
Performance Measures-Link to Accountability .,.................,....... 76
Modern, Effective Performance Measurement ......................,..... 78
Perforn1ance Measures/Benchmarks Appropriate for Use in the Saline County
Sheriffs Office, . . . . . . . . . . . . . . . , . . . . , . , . . . . . . . . . . . , . . , . . . . . . . . . . . 82
Benchmarking ...........,........,..........."",.......... 82
Recommended Performance MeasurementlBenchmarking for Saline County
Sheriffs Office. . . . , . . . . . . . . , . . , . . . . . . . . . . . , . . . . . . . , , . . . . . . 82
Potential Patrol Performance Measures. . . . . , . , . . . . . . . , . . . , . . . . . , . , , . . . . . 83
Potential Investigations Measures . . . . . , , , . . . , . . , . . . . . . . , , , , , . . . . . . . , , . . 85
Potential Corrections Perforn1ance Measures ."".,............. . . . . . , . . . 86
Potential Administration Division Performance Measures. . . . . . . . , , , , . . . . . . . 87
Sheriff Performance Goals .,........,.....,.......,.................. 88
Recurring Reports Required by the Sheriff and Management Team ........... 90
Sheriffs Budgeting. . , . . . , . . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 93
Sheriffs Overtime. , . . . . , . . . . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 96
Training . . . , , , . . . , , . . , , , , . . . . . . . , . . . . . . , . . . . . , . . . . . . . . . . . . . . . . . . 99
Certification Training for Corrections Officers. . . . . , . . . . . . . . . . . , . . . . 100
V. REVIEW OF ISSUES AND ANSWERS..,......,.... . ......,. . . . . ... .. 101
Nationwide Role and Functions of the Sheriff ....,.,... . . . . . . . . . . . . . . . , .. 101
Conclusion-National Research Related to Sheriffs Offices. . . . . . . . . . .. 103
Other Forms of Government, Unique Approaches by Local Government and Law
Enforcement . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . , . . .. 103
Forms of County Government. . . . . , . . . . . . . . . . . . . . . . . . . . . . . . , . . .. 103
Unique Approaches . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . , . . .. 105
Conclusions . , . . , . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 106
Privatization of Corrections. . . . . . . . , . . . . . . . . . . . . . . . . . , . . . . . . . . , . . 106
Role of Privatization in Corrections ..............,.......... 109
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Public Administration Service 7927 Jones Branch Drive, Suite 100 South, McLean, VA 22102-3322
TABLE OF CONTENTS (continued)
Page
Sharing of Services-Now and in the Future ...,.,........................ 110
Potential for Overall Joint Administrative Support. . . . . . , . . . . . . . . . . .. III
Legislative Changes. . . . . . . . . , . . . . . . . . . . . . , , , , . . . . . . . . . , . . . . . . . . . . . " 112
VI. BRINGING ABOUT CHANGE AND SERVICE EXCELLENCE IN A LA W
ENFORCEMENT AGENCY ........,..,............................. I] 3
Purpose and Introduction to Service Excellence Concept. . . . . . . . . . . . . . . . . . .. ] ] 3
Role of the "Sheriff' .....,..........."....................... I ] 3
Traditional Police Response to Problems .......................... 116
Police-Community Problem Solving. . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 117
Responsive Infrastructure ...............,...................... 118
Using Data to Manage Jails. . . . . . . . . . . , . . . . . . . . , . . . . . . . . . . . . . . . . 120
Needs Assessment . . . . , . . . . , . . , . . , , . . . . . . . . . . , . . . . . . . . . . . . . . .. 12 ]
Management Decisions that Flow from Assessment. . . . . . . . . . . . . . . . .. ] 2 ]
Attaining Goals "..,...."....,.............,.....,.....,.... 122
Close the Loop-Follow-Up on Classification. . . . . . . . . . . . . . . . . . . . . , . 122
Commitment to Quality. . . . , . . . , . . . . . . , . . . , , , . . , . . , . . . . . . . . . . . , . . . . . . 122
The Service Excellence Process ......,.,...............,.,....,. ] 28
Value of the Service Excellence Process in Policing ....................... 129
Conclusion, , . . , . . . . . . . . . . . . . . . . . . , . , , . . . . . . , . . . . . , , . . . . . . . . . . . . . . . ] 3]
Sheriffs Infrastructure Improvement Checklist ".............,........... 133
EXHIBITS
Tables
I. Staffing of Saline County Jail--Based on Calculations by 1994 Jail Consultant as
Negotiated with the County. . . . . . . . . . . , . . , . . . . . . . . . , . . . , , , . . . . . . . . , . . . 26
2. Staffing of Saline County Jail--Maximum Option ......................... 32
3. Call Acti vity Report for 1998-Sal i ne County . . . . , . . . . . . . . . . . . . . . . . . . . . . , . 40
4. SAF for Saline Road Patrol . . , . . . . . . . . . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . 43
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Public Administration Service 7927 Jont:s Branch Drivt:. Suitt: 100 South. r'vlcLcan. VA 22102-3322
TABLE OF CONTENTS (continued)
Pm!e
Tables (continued)
5.
Activity and Level of Service Data-Administrative Services Division
49
6. Questionnaires Completed. . . . . . . . . . . . , . . . . " . . . . . . . . . . . . . . . . . . . . , . . . . . 55
7. General Opinions of Working Conditions-Saline County Sheriffs Office ..,.,. 56
8. Comparison of Saline with 30 Other Departments Opinion of Working Conditions 58
9. Satisfaction with Specific Aspects of Job-Saline County Sheriffs Office. . . . , . . 59
10. Comparison of Saline with 30 Other Departments Satisfaction with Specific Aspect
of Job - . . , . . , . , . . . . . . . . . . . . , . . . . . . . . . . . . . . . . , . . . , , . , . . . , . . . . . . 61
11. Perceptions of Department Effectiveness and Employees' Working Relationships
with Others-Saline County Sheriffs Office. . . . . . . , . . . , . , , , . . . . . . . . . , . . . , 62
12. Comparisons of Saline County Sheriffs Office with Other Departments Perceptions
of Departments Effectiveness, and Employees' Working Relationships \vith Others 63
13, Satisfaction with Specific Aspects of Job .... , . . . . . . . . . . . . . , . . . . . . . . . , . . . 65
14.
Performance Measures-Law" Enforcement
79
15. SCSO Expenditure History ..",........... , . . , . . . , . . . . . , . . . . . . . . . . , . . 95
16. Overtime in Sheriffs Office Per Year. . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . , . . . 96
17. Overtime Comparisons within Saline County" " . . . . , . . . . . . , . . . . . . . . , . . . . . . 97
18. Overtime Comparisons with Other Kansas Sheriffs Offices ...... . . . . . . . . . . . 98
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Public Administration Service 7921 Jones Branch Drive. Suite 100 SOllth. McLean. VA 22102-3322
TABLE OF CONTENTS (continued)
Page
Charts
1. Saline County Organization Chart. . . . . . . . . . , . , . , . . . . . . . . . . . . . . . . . . . . . . . 9
II. The General Deputy Model in a Sheriffs Office ...,........,............. 15
III. The Multiple Director Model .......,...,..........,....,...,..,...... 16
IV. Overall Organization of the Saline County Sheriffs Office. . . . . . , . . , , . , . , . . . 18
V. Overall Staffing of the Saline County Sheriffs Office. . . . . . . . . . . . . . . . . . , , . . 19
VI. Organization and Staffing of the Corrections Division-Saline County Sheriff s
Office . . . . . . . . . . , , . , . . . . . . , . . . . . . , , . . . . . . , . . . . . . . . . . . . . . . . . . . . 21
VII. Administration Division ...........,.,.,.....,..........,............ 45
Figures
I. Service Excellence Process ..".....,..,...... , . . . . . . . . . . . , . , , , . . . . . .. 128
2. Service Excellence, . . . . . . , . . , . . . . . . . . , . . . . . , . . . . . . . . . . , , . . . . . , . . . . . . 132
APPENDICES
A. Study Guidelines by the Sheriff and County Administrator
B. Organization/Management Concepts Used by PAS
C. 1997 Administrator Recommendations for New Positions
D. CALEA Standards
E. Research by the Bureau of Justice Statistics of the U.S. Justice Department
F. Job Descriptions
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Public Administration Service 7927 Jones Branch Drive, Suite 100 South. McLean. VA 22102-3322
EXECUTIVE SUMMARY AND RECOMMENDATIONS
STUDY OF ORGANIZATION, MANAGEMENT, AND OPERATIONS OF
THE SALINE COUNTY SHERIFF'S OFFICE
Introduction
This introduction to the summary reviews the purpose of the study, discusses the
authority and responsibility of the County Commission and the Sheriff related to the law
enforcement program, reviews the PAS approach to the study, and lists the most significant Saline
County strengths and opportunities for improvement It concludes with a review ofP AS's position
on each element of the scope of services (and a reference to where additional information scope of
service elements can be found in the body of the report) and a listing of specific recommendations
to facilitate study implementation.
CHAPTER I. INTRODUCTION
Purpose, Scope of Study, and Approach
The Board of County Commissioners was concerned with budgeting practices and a
reported long-standing pattern of expenditures exceeding the approved budget in the Saline County
Sheriffs Office (SCSO). The guidance provided for the study is summarized in the comment that:
"The Commission desires the report thoroughly dissect and analyze the Sheriffs office
management and organ ization and to consider a variety of options for improvement in
every area. Potential options for improvement should not exclude those which may not
be currently allowed by Kansas statute but which may, in PAS professional judgement.
most effectively improve communication, accountability, efficiency, productivity, and
public service."1
P AS views the purpose of the study as being to provide infomlation to assist the County
Commission in carrying out its fiscal and legislative oversight responsibility over a major component
of the County's public safety program and to assist the Sheriff in assessing and improving law
enforcement, corrections, and court support services," It is PAS's intention that the study report be
a positive one that will be useful in improving law enforcement operations and fiscal and legislative
oversight.
I From letter of April 16,1999, from Saline County Administrator David Cris\vell to PAS
Assistant Director George Hubler.
"Unless otherwise indicated or directly implied, law enforcement in this report refers to
police patrol and investigations, corrections, and court support services, The \vord "officer" is
used interchangeably to mean police officer/deputy sheriff, and police work refers to the patrol
and investigations activities ofa sherifes office or a police department.
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The scope of the study covers 20 specific tasks indicated in Chapter I-Introduction.
Succinctly stated. the scope calls for a comprehensive appraisal of organization, management,
operations. policies and procedures, practices and labor-saving techniques, and/or other approaches
to reducing costs but attaining/retaining service levels that meet citizen expectations.
P AS uses an approach to management studies kno'vvn as performance auditing in which
we ascertain whether available resources are being used effectively and efficiently and whether
desired results are being achieved, If not, specific corrective action is recommended. This is a
phased approach that starts with an overall diagnostic phase and moves through detinition of
strengths and weaknesses and the development of specific recommendations for improvement.
Stren2:ths and Opportunities
The most significant strengths and opportunities for improvement in the Sheriffs Office
include:
Strcn2:ths
I. There is citizen support for, and appreC13tlon of. the services
provided by the Saline County Sheriffs Office, This statement is
based upon our discussions with community leaders. the review of a
community survey, and by conversations with residents over a period
of two 'vveeks.
') The majority of employees of the SCSO have a good attitude and
work hard to provide quality service to the public.
3. The shared services. shared building and cooperative attitude between
the SCSO and the Salina Police Department (SPD) are a real plus and
the basis for further service enhancements and economies of service.
4. The Saline County Sherin'has a "hands on"' approach to running the
Sheriffs Office. He has regular staft'meetings. has taken an interest
in administrative detail and participates in the internal budgeting and
management processes. The Sheri ff also gets out on the street and
you may see him work an accident with a patrol officer, or resolving
traffic patterns at construction si tes.
5. There is good cooperation and a sharing of information at the
\vorking level in patrol and investigations between city and county
officers.
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6,
The SCSO is making good use of part-time personnel in the
Administration Division in clerical tasks and with part-time personnel
who are reserve officers in serving court papers. In addition, in the
jail, part-time transport officers are efficiently used. The Juvenile
Detention Center also uses part-time people effectively. A significant
cost savings results from the use of inmates to prepare food under the
supervision of just one food service professional who also manages
the canteen.
7.
The Sheriff is concerned with, and looks out for, the welfare of his
employees. He tries very hard to support SCSO employees before
county policy setters and decision makers, Sometimes the public
pronouncements seem to be "overkill" or inappropriate, but the effort
is important.
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8. Saline County is a good place to work in law enforcement in as much
as the crime rate is modest and calls for service light enough to allow
officers to initiate activity and engage in problem solving in the
communities in their beat areas,
9, The Saline County Jail is a new facility that incorporates many good
design features.
10. The emphasis on "generalist officers" and the absence of special units
and special pays makes for the best use of personnel at a reasonable
cost.
Opportunities for Improvement
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II. PAS reviews show that for the last 10 years, with one exception, the
Sheriff's budget has been "overspent." During this period. annual
budget requests did not properly consider actual prior year costs, did
not comply with the governing body's guidelines, underbudgeted
essential items such as inmate medical care and food. and over
budgeted non- essential items. Expenditure histories were not useful
because expenditures were frequently coded to line items that have
money regardless of whether coding is correct or not. Th!s
perpetuates expenditure histories that are not useful in building
budgets for future years,
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12. P AS observed that supervision in Road Patrol after normal duty hours
was virtually nonexistent and officers basically \vere undirected and
allowed to take inordinate amounts of time to prepare to serve papers
and were accused of taking breaks for long periods during a shift,
There was no planned patrol activity (other than process and warrant
service) observed by PAS and little contact with citizens, Other
occurrences of lax supervision and poor follow-up include failure to
provide patrol officers (as previously agreed for an all out weekend
effort to serve court documents/processes), This was a good idea,
which was not properly implemented by Patrol. This supervisory
failure is the direct responsibility of the Patrol Captain. It is
emphasized, however, that the Sheriff is responsible for the actions
of his subordinates and the short comings mentioned above are
ultimately his responsibility,
13, There needs to be a better or mutual understanding by both parties
(Commission and Sheriff) of the "shared authority" or "shared
discretion" regarding funding and carrying out a law enforcement
program (including Corrections) within the approved county budget.
The Sheriffhas the authority (K.S.A. 19-811, 19-812, and 19-813) to
plan and carry out the law enforcement program. The Commission
has the responsibility to fund the law enforcement program (K.S.A.
19-805). The Sheriff is required to follow personnel policies and
budgeting guidelines established by the Commission and operate
within the adopted budget. While not required by statute the Sheriff
should work with the Commission and develop perforn1ance goals for
the SCSO and its divisions and focus the budget on working toward
these goals. This could be one of the tools of mutual support to
improve relationships and work around a form of government that has
a complicated and difficult organizational structure.
14. The Corrections Division has not been properly staffed since the
opening of the new jail. The shift relief factor is "optimistically low"
and the actual number of employees needed to staff the posts are not
available due to excessive unplanned absences. This is a key factor
in overtime usage in Corrections.
15. The job requirements for Corrections Officers should provide for
growth to "certified" Corrections Officers through a program being
planned by the Kansas Sheriffs Association or equivalent National
Sheriffs Association or American Correction Association Programs.
This should be recognized by using a classi fication concept known as
broad banding by having two basic levels of Corrections Officers.
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(Corrections Officer l--entry level prior to certification training, and
Corrections Officer II designation--upon successfully completing the
certification,) The Corrections Officer positions should not be s\vorn
law enforcement officer positions but they should be recognized
specialities from entry Corrections Officer I through the Jail
Administrator. Classification of Corrections Officer I and II
positions should be reviewed by the County's classi fication
consultant. It is PAS's opinion that the e.O. II classification could
result in a 10% increase in compensation to enhance recruiting and
retaining individuals for these positions. Job descriptions for these
new positions are at Appendix F.
Patrol officers should be direct outside hires (they should not be
required to spend time in Correction's positions).
16. Consideration should be given to rethinking the utilization and
staffing of Patrol. Based on the large, sparsely populated land area
and the limited numbers of calls for service, random patrol should be
cut back and directed or planned patrol emphasized with officers
being given specific activities to accomplish. Shift staffing should be
based on need by hour of day and day of week to meet calls for
service and planned activity requirements.
17. The traditional approach to organizing/staffing should be rethought
with consideration being given to utilizing positions non-
traditionally. Forexample, the Undersheriffcould head an operations
division that would include separate patrol and investigation sections.
Another approach would be to use the Undersheriff to manage ajoint
city/county law enforcement training program.
18. The tone of the relationships between the County Commission and
their administrati ve agent, the County Administrator on the one hand,
and the Sheriff on the other, should be more oriented tow'ard support
and less toward control. The Sheriff should accept this assistance
and make good use of it to better serve the public, There is a
tendency not to understand the difficulties of running a law
enforcement agency by those concerned with policy and fiscal
oversight and a tendency by law enforcement types to disparage the
background of those carrying out the oversight function. The
message is "mutual support and respect, tone down the rhetoric, and
the control oriented documents and work together."
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19. Due to an earlier conflict over personnel policies between the County
Commission and the Sheriff, the Sheriff should continuously
reevaluate SCSO policies and procedures to ensure they are in
accordance with county policies and procedures, If there is a need for
exception, bring it up, Use the CALEA (Commission on
Accreditation of Law Enforcement Agencies) guide as the official
source for policies that are unique to law enforcement and not
covered by county policies,
20, Reexamine the role of the Reserve Officer Program to expand it to
work with Road Patrol in providing a presence in each beat, and train
them in community problem solving and in supporting the DARE and
an officer in schools program, and recruit reservists with special skills
in information technology and public administration,
CHAPTER II. EXAMINATION OF THE ORGANIZATION
AND STAFFING OF THE SHERIFF'S OFFICE
This chapter reviews the current overall organization and starting of the Office of the
Sheriff and then examines in detail the following divisions of SCSO,
Corrections
Road Patrol
Administration
Juvenile Detention
Corrections
In this chapter, the staffing of the
Jail is recalculated using current prisoner
population data. unplanned absence
information, and actual experience in the Jail
since it opened.
Additional.Jail Starfin!! Needed
One (I) additional Transport Officer.
One (I) Trustee Release Officer.
Four (4) additional Corrections Officers
The conclusions are that jail
staffing should be increased by a total of six
positions as shown in the adjacent text box.
Costs should be offset by the benefits show'n.
Cost: $157,440
Benefit: Reduce high overtime, improve security
during vulnerable transport and work release activities.
and reduce unplanned absences,
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The other major personnel action
should relate to reclassifying five current
corrections officer positions that are used
for booking to be civilian data entry clerks
at a lesser cost and in easier to fill positions.
Simply stated, the five current
Corrections Officers doing booking and
reception type duties would be reassigned to
other corrections duties, and five correction
data entry clerks hired to replace them in
booking and reception.
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Personnel Action to Tailor Positions
to Meet Jail Needs and to Conserve Funds
Reclassify Booking Officers positions to Civilian
Data Entry Clerk positions
Savin2s: $20,000
Other Benefits: Data entry skills more appropriate.
easier to recruit, less expensive, do a beller job in
the long run.
Other recommendations regarding Corrections Division include:
V Working smarter by using data to assess risks in managing the Jail.
v
Relocate (turn around) the booking stations so they face the "pit"(area
those detained sit in), Use in-house labor.
v
Develop a formal corrections officer speciality that would result in
certification of officers as was mentioned earlier in the "opportunities
for improvement" discussion.
v
Take action on facility/housekeeping items: Get fire alarm tixed.
ensure camera angles are optimized, and get material off of control
center glass.
v
Do not routinely transport inmates "solo."
v
Supervise the work release program.
Patrol
Patrol activity for the most part is
"random" and unplanned. There is a low level
eCtlJrt to serve warrants and processes for
Administration in evenings and weekends. It is
not productive or well organized. A recent
planned weekend campaign to carry out
service was not supported by patrol.
Problems in Patrol
Lax supervision
Random. undirected patrol.
Long breaks
Do not use patrol management tools.
Unsatisfactory use of resources,
Non-standard appearance
Ineffective performance measurement
Patrol force not staffed and deployed based upon
need.
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During other than the normal eight-hour office day, there is little effective supervision
and no planned or directed patrol efforts and no performance goals in place. Personnel resources are
wasted, Recommendations are to: "fix the problem through improved division level supervision
by planning patrol activities, by assigning performance targets, and by working with Administration
Division to obtain (and then use) computer aided dispatch-based reports designed to support patrol
management. Close the loop by having officers prepare and sign shift end activity reports."
PAS conclusions regarding Patrol Division are that there are individual officers
who display good patrol techniques and tactics. As a unit, however, patrol division does not
plan its activities or use its resources well. Key recommendations include: participation by patrol
officers in planning "directed patrol" which focuses on working with citizens to solve crime related
problems, to improve supervision through a watch officer system whereby the command team
(Sheriff: Undersheriff: and Captains) rotate supervision of activities for the entire "department"' in
off duty hours, use computer aided dispatch generated reports to manage patrol, and have officers
complete daily activity reports,
Administration Division
Strengths of this division are
shO\\11 in the text box, In addition. it was
noted that the Administration Captain and
Sergeant work well together, the morale and
customer relations in the records and court
process service area is positive, and the
Administration Sergeant has the support of
employees and provides leadership they need,
Stren!?,ths of Administration Division
Good relationships with the City Information
Services Department that results in good service
to SCSQ,
Knowledge of computer systems and hardware
and software provided,
An improving approach to customer service in
records,
A DARE program that is comprehensive in scope,
Court security that meets the needs of the
judiciary,
The need for the internal affairs
component of this job in a small department is
questionable, but understandable in an
organization that has had "people problems,"
Since this position has other key administrative functions in records/court service, and could bc of
assistance in improving the budget process. it is PAS's recommendation it be continucd,
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Areas needing improvement in this
division include: strengthening its role in
f~lcilitating SCSO wide budget development
and budget management during the fiscal year,
maintaining activity and performance data in
the format recommended by PAS, improving
\varrant and civil process service, improving
documentation of workload and activity,
developing a law enforcement planning
capability, and emphasizing the need for
comprehensive performance appraisals and
working with the Patrol Captain to produce the
automated patrol management reports that he
needs.
Please note that in a later chapter,
there is a discussion of shared services with the
City that includes a joint records activity that
would impact on Administration Division
staffing. This is in the longer term and is
subject to agreement by the City.
Juvenile Detention Center
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Opportunities for Improvement
in Administration Division
Improve documentation of workload and activity
data.
Develop base year crime statistics from which to
measure progress.
Assume SCSO wide budget development,
coordination, and monitoring role.
Develop reports from CAD system to provide
infomlation base for Patrol Captain to improve
patrol management.
Utilize Patrol resources to serve warrants and civil
papers.
Act as resource to obtain infonnation from the
Internet to keep the SCSO in touch with new
approaches in other agencies.
Act as resource to provide advice on obtaining and
or rejecting grants.
Implement a law enforcement planning capability.
Lead effort to improve comprehensiveness of
perfomlance appraisals.
The mission of the Juvenile Detention Center is to "provide a safe and secure
environment for the juveniles in County care while they are awaiting placement by the court, and
to ensure stafTactions and attitudes are positive and professional and meet the standards of the Saline
County Sheriffs Office and the licensing agency, the Kansas Department of Health and
Environment." The Saline County Juvenile Detention Center accomplishes its mission.
The 10-bed capacity of this facility routinely is full. The Juvenile Detention Center is
chronically understaffed with two full-time positions being vacant for an extensive period and one
position remaining vacant to date.
The Kansas Department of Health and Environment who licenses Juvenile Detention
Centers requires that all shifts, which consist of three a day for seven days a week, be staffed by male
and female team. These requirements cannot be met with seven authorized positions so the shifts
are "statTeJ out" \vith part time civilian employees. The pay rate for these part time employees is
$6.25 per hour and the shifts they work are from 4:00 p.m. to midnight and midnight to 8:00 a.m.
Il is reported to be difficult to meet these conditions, since applicants have other jobs or are college
students.
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A careful balance between safety, security, and economy needs to be maintained. The
facility manager feels three additional full time positions are needed to replace the difficult to
schedule part time people.
Recently. there have been incidents in the Juvenile Detention Center (an unsuccessful
escape attempt and alleged sexual exploitation ofa female juvenile by juvenile male detainees) that
have raised questions regarding the management of the center and its staffing. While not minimizing
the incidents, they must be put in perspective, During observation of operations on site at the center,
P AS observed a facility that was clean and well run, As relates to staffing, there are three full-time
positions that have not been filled and part-time personnel have been utilized. This is complicated
by the Kansas Department of Health and Environment's female/male team requirements, which
makes scheduling of the current work force difficult. The Sheriffhas indicated that it is hard to get
part-time employees to devote the time necessary to train them as comprehensively as full-time
personneL
PAS recommends that the County and Sheriff approach the state licensing agency to try
to obtain relief from the female/male team requirements, which would make scheduling easier. At
the same time, an all out effort (to include financial incentives) should be considered to get part-time
employees to make additional time available for training, If these initiatives fail, the option of
additional full-time employees is still available,
It is emphasized that simply hiring three additional full-time Corrections Officers is not
the answer. Incidents will still happen.
It is our experience that frequently well qualified part-time personnel are available who
can till the appropriate job requirements, By using part-time personnel, an agency has more
flexibility in staffing and can more quickly tailor the work force to changing requirements.
In a later chapter it is recommended that legislation be provided to facilitate charging
parents or guardians for juvenile care costs and receiving payment on a timely basis.
CHAPTER III. EXAMINATION OF WORK PLACE ATTITUDES
An important element in the analysis of any organization is information on employee
feelings, opinions, and perceptions regarding the work place. It is emphasized, ho\vever, that the
information obtained while very usefuL must be considered as one source that reflects perception
and may not represent the f~lctS. For example, in an organizational unit in which supervision is lax.
employees may have positive feelings for supervisors since they are "left alone:' A degree of
dissatisfaction is endemic to any organization. PAS uses survey results as "Ieads" and verities or
discounts them by extensive employee interviews and observation of operations.
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Some key results from the work place survey are illustrated in the text box below.
PAS recommendations based upon the survey and our follow up interviews are:
v
That the Sheriff, the County Commission, and
the County Administrator make an all out
effort to communicate and cooperate,
v
That the Sheriff form a Sheriffs Employee
Committee to discuss the workplace and its
impacts.
v
Supervisors use available management tools
and practice hands on leadership.
v
Supervisors should lead, accomplish the
mission, and look out for the welfare of their
personneL
V An official spokesperson be used to convey the
county position on public safety matters,
Emplovee Opinions in PAS Survev
Employees should be allowed to
participate in SCSO goal and objective
sening.
Morale is lowest in Corrections, but it is
also low in Patrol.
Discipline is not administered
evenhandedly and consistently in SCSQ,
Communications between the Sheriff and
the County Commission/County
Administrator must be improved.
Promotional opportunities and procedures
are questioned and fringe benefits are felt
to be too low.
Relationships with immediate supervisors
are portrayed as very positive.
CHAPTER IV. POLICIES, PROCEDURES, AND MANAGEMENT PRACTICES
This chapter includes a discussion of: county policies and procedures and national
accreditation requirements, other forms ofgovemment and unique approaches by local govemment
and law enforcement. SCSO planning and budgeting, management of overtime and performance
measurement, and reporting in law enforcement.
Significant findings include:
· National accreditation (for law enforcement, corrections. and medical
care) requirements related to policy and procedure development are
broad enough so that Saline County's Personnel Policies and
Procedures (as described in the County Manual with an effective data
of 0 I-a 1-91) can be utilized without modification.
· At present there is no formal planning process in place in the Saline
County Sheriffs Office. The most pressing current planning need in
the SCSO is for a series of automated reports to support the
management of road patroL
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. The planing function should be placed in the Administration Division
and should be carried out by the Administration Captain who has the
necessary computer skills for the assignment. He should coordinate
with the Patrol Captain to ensure that all needs for operating
information are covered.
. The "ho\\,:" of accountability is performance measurement.
Performance measures have been used in law enforcement for years
with varying degrees of success, Organizational performance
measurement is not currently in use in the SCSO,
. Establishing performance measures allows law enforcement agencies
to meet service demands by linking the use of resources to outcomes,
In this chapter PAS provides illustrations of performance measures
for each major division ofSCSO. This includes performance goals
that the Sheriff could adopt and follow and that the Commission
could track in their carrying out fiscal and legislative oversight.
The illustration of performance goals that could be used by the
Sheriff are enclosed at the conclusion of this summary.
. Over the last 10 years, the SCSO budget was overspent 9 years, with
budgeting and the parameters established by the County Commission
not being taken seriously. There \-vas no effective expenditure control
in place or budget leadership demonstrated. The current Sheriff has
taken an interest in the budgeting process, and in the current year
expenditures to date are not exceeding the budget.
. It is recommended that the Administration Division be tasked with
taking a more active role in SCSO budget development and
management.
. The Saline County Sheriffs Office is the "biggest" user of overtime
based upon dollar value and percentage of payroll in the County,
followed percentage wise by Livestock and Expo and dollar wise by
R&B. The magnitude of the SCSO amount of overtime is significant.
. There are a number of basic causes for excessive overtime in law
enforcement agencies nationwide:
I. Improper/insufficient staffing, which leads to the need to call
back personnel on overtime, which raises the shift relief factor.
This has been expaiencc in the Corrections Division of the
SCSO.
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2. Low morale and poor or "trying" working conditions that
increases unplanned absences and require call backs and an
increase in the shift relief factors, This has been experience in
the SCSO in Corrections and PatroL
3. Excessive court time waiting to testify. This is experienced in
most law enforcement agencies.
4. Use of officers for non-law enforcement roles, such as
delivering agenda packages for commission or council
meetings, bank escort details, funeral escort, security service
for community institutions and events, and related "nice to
have functions" that use up regular time. This is not
experienced in Saline County.
In Saline County, the basic problems are insufficient staffing of Corrections,
expectations for Road Patrol to be staffed to cover beats and perform random patrol even
though calls for service are low, lax supervision in Patrol, and poor morale in Corrections and
Patrol.
CHAPTER V. REVIEW OF ISSUES AND ANSWERS
This chapter contains useful background information:
· National data on the role and functions of the Sheriff
· Forms of government and unique approaches to law enforcement
· Privatization of Corrections
· Sharing of services with the County-now' and in the future
· Legislative change
The Role and Functions of the Sheriff Nationwide
When examining the functions and roles of sheriffs from just the perspective of a
particular county, or a few local governments, one does not really get the complete picture of the
number and role of sheriffs' offices or departments in law enforcement nationwide.
Note that 3, I 00 sheriffs' offices operate nationwide, employing more than 250,000 full-
time employees, (which have increased every year since the 1970s) and carry out the following
diverse functions:
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. Both sheriffs and local police departments receive calls for service.
investigate crimes, and provide routine patrol services, Sheriffs are
much more likely than police to perform functions related to the
operation of jails or courts,
. On the average, nationwide sheriffs' offices have 73 full-time
employees including 51 sworn and 22 civilian, Sheriffs operate in all
environments nationwide to include injurisdictions serving a million
or more people where the average size of the force now exceeds
2,000, with close to 1,400 sworn, In contrast, sheriffs also are in
jurisdictions with less than 10,000 residents who employee an average
of 6 sworn and 3 full-time civilians,
. The operating budgets of sheriffs offices throughout the United
States are approximately $11 billion, which accounts for 26% of the
$42 billion spent on state and local law enforcement in the United
States annually,
Nationwide, the roles and functions of the Sheriff are important, the numbers of
employees and budgets have grown at rates higher than inflation, and the functions carried out may
be broader than those performed by municipal police agencies, As is reported in Chapter I of this
report County Commissions clearly control the power of the purse, establish county-wide policy,
have fiscal and legislative oversight authority, and control personnel actions, Just as clearly, the
Sheri ff has the authority to operate the law enforcement agency.
In order to make this complex system work, Attorneys General have coined the
term "sh~lred authority" or "shared discretion." Based on our experience in overall local
government and law enforcement consulting, it is PAS's opinion that the County
Commissioners and the Sheriff should recognize this shared authority and go the extra step
in trying to work together. The research in this chapter shows four things:
. The role and functions of the sheriff nationwide continue to be
important and resources devoted to them are growing,
. The "sheriffs diligently guard their pO\vers" and are not going to cede
them to administrative officials and governing bodies,
. County commissioners clearly control the budget, its adoption, and
implementation.
. County commissioners establish county-wide policy, have fiscal and
legislative oversight over county operations, and control personnel
policies.
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Forms of Government, Unique Approaches
bv Local Government and Law Enforcement
Traditional County Government
The basic traditional form of county government is one in w'hich county commissioners
and other elected officials actively engage in carrying out day-to-day operations in addition to setting
policy and providing oversight. In other forms of traditional county government, such as the one
in Saline County, a county administrator is appointed by the commissioners to serve as their
administrative agent and to supervise certain departments. These supervisory pO\vers of the county
administrator and/or assistant county administrator do not include authority over elected officials
such as the sheriff or those in the financial and other areas. In some states, these elected officials are
referred to as constitutional oHicers (they are mentioned in the State Constitutions) and are
considered "state officials" elected locally, This illustrates their historical significance,
In addition to supervising certain non-elected department heads, county administrators
are expected to coordinate the overall county administrative and public service programs on behalf
of the commissioners. The commissioners have budgetary, fiscal oversight, legislative oversight,
and personnel policy powers which they and the county administrator try to use to coordinate
programs and administration. This may be frustrated by these other elected officials not cooperating
and coordinating based upon their somewhat unique status. This may occur in this form of
government in key areas such as law enforcement, treasury, appraisal and legal.
The traditional form of county government is a more difticult one for elected and
appointed officials to establish and achieve goals and objectives, to achieve accountability, and to
provide consistent customer service. For these reasons as county governments grow, they may
consider moving to other forms. such as an urban county form that has fewer elected officials, other
than county boards, and whose county administrators or executives have greater supervisory po\vers.
Another alternative is a consolidated city and county government. They can operate like a strong
mayor or strong council, with a city manager, with clear powers under a charter. These other forms
are discussed below. The point here is that successful commissioners, county administrators, and
elected officials must have people skills and powers of persuasion to operate effectively in a
traditional county form of government, and even with skilled politicians and administrators. things
may not be accomplished as efficiently and effectively as in other forms of government.
Other Forms of County Government
In addition to the traditional County Commission form of government in place in Saline.
and in the majority of the counties across the United States. the other forms include:
Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA 22102-3322
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. County Board of Supervisors and County Executive form--in
which both the Board and the County Executive are elected but the
overall number of elected officials involved in day to day operations
are limited to officials referred to as Constitutional Officers (specified
in the State Constitution) that include a County Attorney (duties
include advice to Board and staff, legal representation of county, and
prosecution), a Sheriff (law enforcement, corrections, and court
support and warrant/civil process service), and the Clerk of the Court.
A variation of this form has an appointed County Executive, a
Sheriff( corrections and court only), a County Police Department with
a Chief of Police (law enforcement), This exists in counties such as
Fairfax, Virginia. Still another variation is St. Louis County,
Missouri, with a Sheriff (court support), County Police Department
(law enforcement) and ajail administrator (corrections) all of whom
report to the County Executive, except the Sheriff whose reporting
relationship is in the judicial system, Another variation is in King
County, Washington, where until recently the Sheriff'was appointed
and reported to the County Executive. Now the Sheriff is elected but
is still within a Department of Public Safety with reporting
relationships to the elected County Executive, in addition to the
electorate.
. County Board and County Administrator formnin which the
Board is elected and the County Administrator is appointed by the
Board. This form usually has more elected officials in day to day
operations, but less than the traditional commission forn1, This
includes a Sheriff who may be full service or limited service where
a County Police Department exists, such as the "Urban County
Board/Administrator" forn1 in Arlington County, Virginia.
. County Commission/Full Supervision forn1--in which there is no
administrator and the Commission directly supervises appointed
department heads. This is a "Iong ballot form" with a full service and
a variety of elected officials and appointed department heads, usually
in technical roles such as county engineer. The Sheriffis full service.
. Consolidated City/County Government modelnin which the
governments are consolidated into cities such as Jacksonville.
Florida. in which the elected sheriff is the chief law enforcement
officer and rllns municipal police, corrections, and court services and
carries out selected emergency service coordination. There is also a
unified government model such as in Athens and Clarke County,
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Georgia, in which the city and county police departments have been
consolidated and the sheriff supports the court system.
There are a variety of other models and approaches to include municipalities purchasing
law enforcement services from the County Sheriff. such as in Los Angeles County, California, and
King County, Washington, and regional police agencies in the Pacific Northwest and South.
Political scientists have been critical for the last 25 years of the capacity of traditional
county form of government to perform modern governance functions effectively and efficiently.]
On the other hand, the traditional form of county government has its advocates that emphasize a need
for decentralization of power and the checks and balances that they claim elected officials involved
in day-to-day operations provides.
It is PAS's opinion that in urban areas, and in areas becoming more urbanized,
consolidated government, county executive, and/or county administrator forms, with a limited
number of elected officials (particularly in financial functions) in the system, work most efficiently.
Note, however, that the majority of urban county administrator/county board forms have sheriffs
with powers in law enforcement, corrections, and court service. In more rural areas, the traditional
commission form with a sheriffelected at large is the prevalent form, and with constant attention and
cooperation can be made to work. It, however, requires an appreciation of the sometimes frustrating
concept of shared responsibility.
Note in the section of this report relating to "significant statutes" that Kansas statues (19-
801 a) indicate each county will have a sheriff except in those counties that have opted for
consolidated iaw enforcement (subsequent to a "vote by the people").
Unique Annroaches
In addition to the forms of county government mentioned above, counties such as Clark
in Virginia, have jail administrators that report to a separate board appointed by the County Board
of Supervisors. Larger counties in Nebraska can establish county departments of corrections. with
a corrections administrator, appointed by the County Commission. Hall County has adopted this
option and its corrections administrator does not report to the Sheriff.
In Kansas, Shawnee's corrections personnel are associated with the state corrections
department, and Reno has professionalized jail administration. Butler County has used home rule
powers to opt out of tax lid restrictions and the County SherifT has his O\V11 budget. As pertains to
JPage 39, Chapter 3, "Modern County Government" by Herbert Duncombe. This book.
published by the National Association of Counties, provides an excellent summary in Chapter 3
of the various forms of county government and their advantages and disadvantages.
Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA 22102-3322
ES-18
the tax lid, on May 3, 1999, PAS was notified that "the Kansas House and Senate voted to accept
a conference committee report on SB 45 which eliminates the aggregate tax lid and individual fund
levy limits. This bill includes most of the original language of SB 226, which requires a local
governing body to pass an ordinary resolution if it intends to levy property taxes greater than the
amount levied the year before, unless the property taxes are derived from new improvements to
property. The bill contains no protest procedure. . . it is simply a matter of notification and
disclosure."4
Privatization of Corrections
Rapid increases in incarcerated populations over the last 15 years have placed major
strains on federal, state, and local corrections systems. A number of states are under court order to
improve their prison systems, and many jurisdictions are specifically required to reduce
overcrowding injails and prisons. In this climate, correctional administrators are examining many
options for dealing with their jail population, while at the san1e time meeting their overall
responsibilities for both public safety and the prudent use of public resources.5 One of these choices
is to contract with the private sector to construct and/or operate jails.
Iniectin2: Competition bv the Private Sector--Does Privatization \Vork?
Privatization of corrections is a major issue in the criminal justice arena. The underlying question
is whether private contractors can operate at lower costs to taxpayers, while providing at least the
same level of services as public sector correctional agencies?
When considering privatizing Corrections, the following points should be considered:6
". Problems regarding security, staffing, and quality of services have
plagued prison privatization from its inception.
Neither cost savings nor improvements in the quality of service have
resulted from prison privatization. After a decade of experimentation
with privately operated prisons, the only conclusion that can be made
4Copy of3 May e-mail from Randy Allen. Forwarded to Hubler by Salinc County
Assistant County Administrator Rita Deister on 3 May 1999.
5Prison Construction and Operations Issues by Evatt, Fields, and Roof, of the National
Corrcctions Corporation, April 1997.
6Papcr by Dr. Russell Clemens, presented at Crime and Justice of the Americas-
Privatizing Criminal Justice, the Corrections Debate: CON. Dr. Clemens is a Labor Economist
with AFSCME.
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ES-19
regarding whether or not they save money is that the evidence is
inconclusive.
Escapes and problems pertaining to health care and food service have
characterized the low quality of services in privately operated prisons
from their inception, as have problems regarding accountability.
The private sector does not possess a monopoly on efficiency and
cost savings."
In order to survive, private sector corrections has to keep costs down. To keep the
costs down, they must keep the cells full and make decisions that may not seem to be in the
public interest.
PAS would not recommend that Saline County explore privatizing Corrections any
further.
Sharine of Services-Now and in the Future
Now:
At present, the County provides central booking that serves the City and County and
in return, the City provides police dispatch service and makes available data from the computer
aided dispatch system that can be used to generate management reports ( capability not used b.y
County Sheriff at this time-recommended elsewhere in this report for more extensive use). The
County also purchases information systems services from the City and the Sheriffs Office receives
good support.
Over the last year, the Sheriff, with the encouragement of the Chairman of the County
Commission, purchased fuel and has police vehicles maintained at the city fleet managemcnt
facility. The City Fleet Manager has also agreed to evaluate sheriff's vehicles and make
recommendations on their replacement based on condition of the vehicle and milage. The City is
in the process of selecting and installing an automated tleet management system, which will improve
an already good deal.
Other joint activities with the City Police Department include the Citizcns Academy,
the Chaplains Program, and Crime Stoppers. The drug enforcement program is also multi-
j urisd ictional.
Pu blic Administration Service 7927 Jones Branch Drive, Suite 100 South. McLean, VA 22102-3322
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The Future:
Other opportunities for joint activities include a shared evidcncc storagc area and
the maintenance and record keeping by a civilian evidence technician. Evidence is now
stored/maintained by the Patrol Captain, which is a duty not commensurate with his rank. The
evidence facility and systcm at present arc unsatisfactory. Entering into a joint evidence
operation would have the advantages of: improving safeguarding/storage and preserving the chain
of evidence, freeing up time for the Captain to focus on patrol and investigations supervision, and
making space available for a much needed interview room for the detectives. This could be done at
an initial annual cost to the County of $11,734 with the City picking up the other half of the
salary/benefits cost and providing the space. PAS recommends the County participate.
Other possible joint activities could include a "shared records operation" in which the
City Police Department would run a "joint records center." This is a natural since the same records
computer support system is now used and the City with the increased volume could consider labor
saving imaging technology to reduce costs and improve overall efficiency. The City records unit
currently has storage and equipment superior to that of the County. Another advantage would be
the sharing of data at the source which would benefit law enforcement in fighting crime.
A very important joint activity could be a joint training unit. Currently, the City's
trammg program is much more extensive than the SCSO's (which is being built up by the
Undersheriff). The SCSO is particularly weak in orienting and training new patrol officers. Therc
is no Field Training Officer Program in use in the County Sheriffs Office and the City has an
excellent FTO program and is a nationally accredited law enforcement agency that has emphasized
training. An FTO program is designed to provide the new patrol officer with a regimen of practical
training and structured experiences prior to the officer's assuming full responsibility for working
on a shift. It is a formal program that is approximately 12 weeks long and concludes with an
"evaluation patrol" and review by a board of officers. It is done during an officer's probationary
period and allow's for certification to perform and/or remedial action or for termination if
appropriate.
One option to dcfer the cost of joint training would be to make the Undersheriff
available part time to participatc in dcsigning and running a joint training program. This
would be a logical extension of his current duties which focus on designing and implemcnting
an SCSO training program.
Another significant joint activity that would improve training and expericnce in handling
serious crimes against pcrsons (rapc, homicide, and other serious Part 1 crimes) would be a major
crimes squad that would work in thc City and County. This would provide continuity in thc
handling of major cases oftcn pcrpetuatcd by the same individuals and sharpen thc skills of the
investigators. This approach is used in counties such as St. Louis, Missouri and works well.
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Public Administration Service 7927 Jom:s Branch Drive. Suite 100 South. McLean. VA ~210~.33~2
ES-45
FLOW CHART DEPICTING ACTION LEADING TO
IMPLEMENTING STUDY RECOMMENDATIONS
Commission &
Sheriff
Receive Report
Decisions Include
Process for
Cosidering
Major Structural
Changes to SSO
Such as Removing
Functions
For Example
Referendum
Not Recommended by PAS
Organizational
change
Framework
Service
Excellence
Responsive Infrastructure
Commitment to Quality
Alajor Goal:
Improve Planning and
Resource Allocation
Alajor Goal:
Improved Quality of
Service
Approaches:
Develop Planning
Capability
Use Model Reports in
Managing Patrol
Staff/Deploy Based on
Need
Use Data to Manage Jail
Improve Budget
Development and
Management
Increase Joint Activities
with City
Approaches:
Customer Satisfaction
Continuous Process
Improvement
Natural Work Teams
Employee Development
Adopt a Performance
Agreement.
in Return for
Resources, Sheriff
Agrees to Perform
Specific Outcome
Oriented Tasks
Recommended by PAS
Community Oriented Policina
,\t[ajor Goal:
Safer Neighborhoods
Approaches:
Problem Solving
Customer Focus
Empowerment
Building Partnerships
Public Administration Service 7927 Jones Branch Drive. Suitt.: 100 South. i\kLean. VA 22102.3322
ES-46
FLOW CHART (continued)
Participation Levels: Participation Levels: Participation Levels:
. County & City . All Employees . Police
Governing Bodies . Community Members . Residents & Others
. Sheriff . Community Groups
. Police Department . Public Agencies
. County Adm in istration
& City Management
Example Applications: Example Applications: E.xample Applications:
. Career Criminal . Total Quality . Directed Patrol
Apprehension Program Leadership (TQL) . Neighborhood Drop In
. Directed Patrol . Total Quality . Crime Prevention
. Managing Criminal Management (TQM) . Interdiction
Investigations . Officers in Schools
The above now chart shows the "big picture." In the table on the next page, we turn to
a listing of specific recommendations that should be undertaken to implement the study.
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Pu blic Administra tion Service 7927 Jones Br:lnch Drive. Suite 100 South. McLean. VA 22102.3322
ES-51
Measu res
SHERIFF'S PERFORMANCE GOALS
Goals
Duty Roster.
Incide:nts involving SCSO employee:s.
Duty tour calls responde:d to.
Duty/Watch Officer policy.
Response time report.
Committed time report.
Directed patrol report.
Numbe:r of community problems addressed.
Number of citations issued.
Part I crime rate.
Number of accidents.
Number of accide:nts with fatal Il1Jury.
Number of accidents with DUI
involvement.
Percent of second domestic calls to same
address in 12 hours.
Number of arrests/interdiction.
I. Provide for effective supervision of all divisions of the Salinc
County Sheriffs Office on a 2-t-hour a day, 7-day a week
basis.
The Undersheriff (responsible for Juvenile Dete:ntion) and
division chiefs (Captains in charge of Administration, Patrol, and
Corre:ctions) are responsible: to the Sheriff for the management of
their respe:ctive divisions at all times. Above and beyond this
level of supervision. and to ensure coordination and control on
weekends and after normal duty hours, a watch or duty officer
will be: appointed on a rotating basis to monitor and respond to
requests for direction and assistance from division chiefs or
supervisors on duty in operating un its. The duty officer/watch
officer will be rotated among the command team (Sheriff.
Undersheriff, and three Captains) on a weekly basis. Specific
duties of the duty/watch officer will be detailed in an SCSO
policy.
2. Provide for an effectivc and efficient patrol force by:
a. Responding to "emergency" calls for service (crimes against
pe:rsons in progress and life threatening calls) and "prompt"
calls for service (crimes against property in progress Il1
which there is no life threat but appre:he:nsion ofa suspe:ct is
possible or situations in which a dispute could escalate)
within a county-wide average of 15 minutes.
b. Achieve objective of keeping average time spent on calls
below 30 minutes.
c. Achie:ve objective of spending at least 35% of patrol time on
planned. directed patrol including community oriented
problem solving.
d. Use computer generated reports such as a "committed time
report" and individual officer activity reports as tools in
managing patrol activity.
e. Carry out traffic enforcement activities that focus on areas
with high accident potencial. school lanes. DUI. and
an:a!neighborhood complaints.
f. Patrol ofticers will carry out preliminary investigations (all
misdemeanors) and follow up on appro.ximately 60~;' of
felony cases.
g. Increase intadiction work by 25'%.
h. Establish a base for reporting on Part I (serious) crime.
\. Work domestic calls to reduce the likelihood of imme:diate
return calls.
J. Work to monitor quality of cases by tracking the percentage
of adult arre:sts that result in convictions on one charge.
Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA 22102-3322
ES-52
Measurcs
SHERIFF'S PERFORMANCE GOALS (continued)
Goals
Budget overruns.
Incorrect coding of expenditures.
Requests for suppkmental appropriations.
Year to date expenditure reports.
Project reports to Steering Comm ittee.
Project reports to Steering Comm inee.
Project reports to Steering Committee.
Examples of reports.
Project reports to Steering Comm inee.
Project reports to Steering Cornm ittee.
3. Impro\'c ovcrall devclopmcnt and administration of thc SO
budgct by:
a. Assigning specific responsibility for coordinating the
development and management of the budget [0 the
Administration Captain.
b. Submit annual budget within county target budget guidelines
that funds priority needs and is based upon expenditure
history.
c. Provide necessary leadership and guidance to ensure
expenditures are coded correctly and that expenditures do
not exceed appropriations.
4. Continue to explore and implement joint activities with City
Police Department and other agencies that improve efficiency
and effectiveness to include:
a. Joint evidence facility and custody.
b. Joint training.
5. Continue to develop accreditation level policies and
procedures and forward for llpproval by the County
Commission on the basis of a schedule submitted by the
Sheriff.
6. Implement a planning program in Administration that makes
optimum usc of automated patrol management data from thc
CAD systcm.
7. Place command emphasis on reducing backlog of civil
proccsscs and warrants to bc scrved by 25% per year.
a. Use two officer equivalents to accomplish this.
b. Assess situation at end of two years and design/staff a
maintenance program.
S. Enhance .Jail operations by:
a. Supporting and impkrnenting a certified corrections officer
program.
b. Providing leadership 111 achieving inJury free days for
employees and inmates in Corrections.
c. Emphasizing need to properly classify inmates and tracking
numba of reclassi tications.
d. Place command emphasis on keeping down costs per inmate
day.
e. Support reclassitication of booking officers to booking data
clerks (savings of S20.000).
f. When resources pemlit. utilize patrol officers for transport.
g. Hire a work release officer.
Public Administration Service 7927 Jont:s Branch Drive. Suitt: 100 South. :--'kL<:an. VA 22102-3322
ES-53
SHERIFF'S PERFORMANCE GOALS (continued)
Measu res Goals
StatTwork. 9. Provide command emphasis to providing high quality staff
work internally and on material forwardcd to the County
Comm ission.
Nc:ws reports. 10. Join the County Administrator and County Commission in
Degree of cooperation. rcducing rhetoric and working together in a shared effort to
provide an efficient and effcctive law enforccment program.
Repons to Steering COl1lm ittee. II. Implement agreed upon PAS study recommenda t ions.
Provide a recommended timeline for implcmentation and
monthly progress reports,
Monthly and annual reports. 12. Build on the monthly progress report to an annual report that
provides meaningful information on the law enforcement
program and disseminate it to the public in hard copy
summary form and on home page on the Internet.
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Potcntial for Overall Joint Administrative Support
The current joint activities and the potential "new" ones listed in this paper can build to
sharing as many administrative and support activities as possible to improve efficiency,
effectiveness, and public service and to reduce costs. This could result in the Sherifrs Office of
the future consisting of patrol, corrections, and court scrvices with administration, training,
and support services being jointly provided to these core operational areas and to the City's
operational divisions (Patrol and Investigations) by a joint services elemcnt. The next step
could be consideration of a totally unified law enforcement agency, \vhich is largely a political
decision that depends on what the area citizens and leaders desire in the way of a police service.
Legislation Chan2:es
Kansas Statues, K.S.A. 1998 Supp. 38-1616,37-709,38-1624,39-709 and amendments
thereto refer to reimbursement for "housing and care" of juveniles in custody of authorities and
placed in facilities such as Juvenile Detention Centers.
The practical consequences of the above legislation is an inability on the part of local
authorities to claim and receive full and timely reimbursement of housing and medical care costs for
juvcniles from their parents or legal guardians. It is recommended that this be researched further
by the County Legal Counselor and, if PAS's interpretation is correct, the County Commission
should take action to work with the County's legislative delegation and Kansas Association of
Counties to change the law to permit full and timely collection.
CHAPTER VI. BRINGING ABOUT CHANGE AND SERVICE EXCELLENCE
IN A LAW ENFORCEMENT AGENCY
To deal with thc challenges of to day's complex society, law enforcement needs to adopt
a concretc, integrated model that gets results. Modem law enforcement needs more than a
philosophv; it needs a disciplined decision making process that helps managcrs find the best \vays
to provide high quality services to the public. This philosophy should be one ofscrvice excellence.
This is explained in detail in Chapter VI of the body of the rcport and in the section of this summary
dealing with implementing recommendations.
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SCOPE OF SERVICES-ADDRESSED AS FOLLOWS
The purpose of this section of the report is to summarize PAS's findings regarding
specific scope of service items and to refer the reader to the part of the report that provides more
detailed information on the item under discussion.
Scope of Service Item #l-The Task
Examine the overall organizational structure of the department (Saline
County Sheriff's Office) to determine if it meets modem organizational
design tests, has reasonable spans of control, provides aframeworkfor
efficiency and effectiveness, groups like junctions, and supports
customer/public service.
The organization and management concepts applied are in Appendix B in the rear of this
document and the organizational theory dravvn upon is in Chapter If starting on page 11. The
conclusions are summarized below.
· The grouping of functions in the Saline County Sheriffs Office
(SCSO) results in a traditional form oflaw enforcement organization.
It is known as a "general deputy model" with the Undersheriff (the
"general deputy") in the chain of command between the Sheriff and
the Captains who serve as division heads. In actual practice in the
informal organization. the Sheriff frequently works directly with the
Captain Division Heads, with the Undersheriff focusing on agency-
wide training and serving as supervisor of the Sergeant in charge of
the Juvenile Detention Center. The Undersheriffs position is a
statutory one and the incumbent is "selected by" the Sheriff and
serves at his pleasure.
· If the SCSO were a similar size police department instead of a
sheriffs office, a deputy chiefs position with general deputy
responsibilities (mirroring the Chiefs duties) would not be warranted
based upon the span of control and scope of duties concerned.
· P AS could find no precedent, ho\vever, where a county board did not
fund an UndersherifTs position. Accordingly, in our
recommendations we try to build upon the Sheriffs assignmcnt of
significant tasks to the Undersheriff(such as training). Comment has
been made that this is risky "because the next UndersherifTmay not
have extensive law enforcement experience." We respond to this by
stating that thc current Undersheriffis a professionallawenforccmcnt
Public Administration Service 7927 Jones Branch Drive. Suite 100 South. i\tcLean. VA 22102-3322
ES-23
officer and that this should be emphasized and institutionalized by
future sheri ffs.
. Top management span of control is in keeping with organizational
theory (it doesn't exceed six to eight persons). Overall like functions
are grouped and the SCSO organizational framework is appropriate,
with the exception that it could be "flattened" by further
consolidation of functions in the Administration Division and
additional organizational accountability provided for by breaking
Investigations out as a separate unit in Patrol. The specific changes
recommended by PAS are summarized below.
The major features of the proposed organizational design of the
Saline County Sheriffs Office are as follows:
The overall organization is flattened by the grouping of like
functions throughout, and particularly in the Administration
Division. For example, the administrative services element
includes previously separate functions such as building
maintenance, fingerprint services, and general administrative
support.
The addition of a support services unit in Corrections to serve
as a framework for jail administrative functions and for food
servIce.
The placement of Patrol and Investigations as subordinate
elements in an Operations Division. Note also that the K-9 unit
is placed in Patrol, whose functions it would normally support.
Traffic also is merged into Patrol.
The Undersheriff in this organizational design is responsible
for training, supervision of Juvenile Detention. organizational
development (TQM and Service Excellence). and for serving
as a general deputy and second in command.
These changes are shown on the proposed Saline County Sheriffs Oflice organization
chart on the next page.
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Public Administration Service 7927 Jones Branch Drive. Suite IOU SOllth. McLean. VA 22102-3322
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The recommended staffing for the proposed organization is as shown in the following
table. Note. PAS does not recommend reducing the overall staffing of Patrol. We do recommend
improved utilization of personnel by staggering shifts to meet needs, by using the equivalent of two
ofticers to serve criminal warrants, and up to two officers to transport inmates when manpower
permits. Note also the increased staffing recommended for Corrections and the use of civilian data
entry clerks.
PAS Rccommendcd Staffin~ of Salinc Count\' Shcriff's Office.
Sheriffs Office Ad ministration Corrections Patrol Juvenile
Management Division Division Division Center
Sheriff(l) Captain (I) Captain (I) Captain (I) Sergeant (I)
Undersheriff (I) Sergeant (I) Sergeant (I) Sergeant (2) Correctional
Officer ( 7)
Office Coordinator (I) Dare Officer ( I ) Corporal (6) Detective (2)
Civil Processes Corrections Drug Officer (I)
Server (I) Officer (28)*
Civil Process Secretary (I) Patrol Officers (17)
Clerk(l)
Court Security Clerk (I)
Officer (2)
Records Programs
Supervisor (I) Coordinator (I)
Records Clerk (I) Food Service
Director (I)
Warrants Clerk (1) Food Service
Assistant (pt)
Maintenance Booking Data
Supervisor (I) Entry Clerk (5)
Totals by Division
3 II 45.5 7~ 8
--'
Grand Total
90.5
* Includes the following new positions: Transport Officer (1), Trustee Work Release
Officer (I), and four (4) additional Corrections Officer positions for general data assignments.
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. Organization is the process of placing similar work responsibilities in
the same element and grouping people into a formal structure under
leaders who possess authority. The structure is augmented by
properly defining the authority, responsibility, and accountability of
leaders who would operate with reasonable spans of control. Unity
of command is necessary (report to one supervisor, or if more than
one, arrangements for priorities, workload, and performance must be
well defined should be provided for) as is a structure and methods to
promote coordination. In addition, the modern organization avoids
excessive layering (to many vertical levels) and emphasizes customer
service.
. The mission of the SCSO is properly stated in the policy and
procedures manual, the span of control throughout the SCSO is
reasonable, unity of command observed, like functions are grouped,
and responsibility and authority are defined. Scheduled weekly staff
meetings of the command team (Sheriff, Undersheriff, and Captain
Division Heads) are used as a tool to coordinate activity.
. Other positive features of the SCSO organization are the shared or
joint services with the City of Salina Police Department (SPD). The
adjacent SCSO and SPD facilities foster continuance and broadening
of this practice.
. The Corrections Division is appropriately organized.
· Organizational needs include a lav,r enforcement planning function to
design, produce, analyze, and disseminate data for patrol,
investigations, corrections, and administrative decision making. In
the report, it is recommended that this function be assigned to the
Administration Division (see page 74-76 for details).
· The title "Patrol Division" is a misnomer in that its major functions
are patrol (including traffic) and investigations. A more inclusivc
titlc would be "Operations" with Patrol and Investigations Units. The
SCSO also needs a crime analysis/crime prevention function-this
could be another shared service with the SPD, and/or grant funds
could bc solicited from U.S. Justicc Department for this activity
\vhich would function under the supervision of the Investigations
Unit.
Pu blic Administra tion Service 7927 Jones Branch Drive. Suite 100 SOllth. McLean. VA 22102-3322
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Scope of Service Item #2--The Task
Determine the service levels in use in the SherifFs Office.
Service levels in this context refer to degree or "amount of service" provided by the law
enforcement agency. For example, in terms of community oriented policing, a service level could
be working with 10 neighborhood groups in problem solving. Another example would be
establishing and meeting objectives of a county-\vide average patrol response time of 12 minutes,
concurrent with sufficient resources to spend 35% ofa shift's time on proactive patrol and retain one
car in reserve for emergencies. Service levels are based upon historical activity data.
The SCSO generates only limited service and activity data, such as jail average
population on page 25 of the report, citizen calls for service on page 40 (which reflects a light patrol
work load), and warrant and a civil process service backlog on page 48 (which at 4,000 documents,
needs attention).
The first step in generating more useful service level data is to provide for a "planning
capability" in the SCSO and to begin to utilize the reporting capability available off of the computer
aided dispatch system.
Scope of Service Item #3- The Task
Evaluate management practices of planning, programming, budgeting,
hiring, training, and organizational and individual performance
evaluation.
Please note that planning in a law enforcement agency like that in businesses is basically
short-range and action-oriented. If a local government has a strategic plan, the departments and
offices making up the government should tie their action plans into the overall county or city
strategic plans. It is PAS's experience that strategic planning is the exception rather than the rule
in local governments.
Planning in a Sheriff's Office should include developing objectives and programs that
accomplish the mission of the organization and are in accord with the resources appropriated for the
agency. Both business and law enforcement planning includes:
. Gathering information on both the external environmcnt and the
organization internally in ordcr to detect potential problems (for
example, use a "committed time report" to determine patrol activity
by officer).
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ES-28
. Identify and study factors which may limit effectiveness and
efficiency (for example, carrying out staffing analyses based upon
calls for service).
. Formulating basic assumptions (for example, estimating jail
population and keeping shift relief factors up to date).
. Laying down objectives for the organization, based on information
gathered, assumptions, predictions, and action oriented study of major
problems.
. Determining the actions necessary to achieve the objectives.
. Establishing a timeline for action.
When this PAS study commenced, there was no formal planning process in place
in the SCSO. This is discussed on pages 74 through 76 ofthe body of the report. The progress
that has recently been made in SCSO developing key reports is an essential step in building
towards a planning capability.
Note that programming in law enforcement agencies concerns the translation of goals
into objectives, policies, and procedures.
The County utilizes "target-based budgeting," which bases budget decisions on the
strategic policy or goals established by the governing body and provides parameters by determining
revenue available for the new budget with the County Administrator setting budget targets for
departments. The departments then submit budgets within the expenditure targets and the proposed
county budget is prepared by the County Administrator and Assistant County Administrator for
consideration by the Commission.
Pages 93 through 96 discuss SCSO budgeting and make the point that there was a long
standing pattem of expenditures exceeding budget for SCSO activities, with budgeting not taken
seriously, real needs not identified or prioritized, and incorrect coding of expenditures, which led
to inaccurate expenditure histories.
On page 96 of the report, the point is made that the current sheriff is aware of the
importance of the budget process and is taking an active part budget development and
administration. The SheritThas a tendency to try to "jump in" and solve problems himself. This
is not possible in this area. Hc should set thc tone, bring his captains into the process in dcveloping
a realistic budget, and evaluatc them on how well they manage thc budget.
Public Administration Service 7927 Jones Branch Drive. Suite 100 South, McLean. VA 22102-3322
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A specific subordinate should be designated the SCSO Budget Officer who will bc
primarily responsiblc for the details of integrating the division budgets into the SCSO budget
and in monitoring expenditure and revenue patterns.
The Sheriff is required by law to follow central county personnel practices. This
includes following approved hiring procedures. A review of authorized staffing vs. positions filled
over the last year shows continuing vacancies in corrections positions. It takes an average and over
nine weeks to fill one advertized corrections position. The average number of vacancies is not
unusually high, nor is the time required to fill a position, however, combined with inadequate jail
staffing authorizations and higher than usual unplanned absences, makes jail operations difficult.
The Undersheriff has been assigned the responsibility for the management and
development of the training function in the SCSO. In an organization chart produced by the SCSO
late in this study process, the DARE (drug abuse control) and GREA T (gang control) programs were
transferred from Administration to the Undersheriff. This is not significant from a management or
span of control perspective. These functions could continue to be supervised in Administration.
Individual performance evaluation follows county policy. Performance evaluations are
not presently considered in the promotion process. This is a common problem in local law
enforcement. Current performance is a valid predictor offuture performance in higher positions and
should be considered along with a structured promotion system that uses recognized examinations,
past perfom1ance, special promotion evaluations, and interview panels in developing a promotion
eligibility list.
Emplovce Performance Appraisal
The Project Steering Committee requested that Public Administration Service review
employee performance appraisal in the Saline County Sheriffs Office. In order to accomplish this
task, PAS first reviewed the County's overall policy on Employee Performance Appraisal (Policy
03 dated 05-12-99). The County Policy is a practical and basic approach to individual performance
appraisal that emphasizes that its purpose is to:
. Provide a permanent record of the individual's perfornlance during
the rating period.
. Serve as the basis to a\vard or deny a wage increase and/or other
personnel actions.
· Provide an assessment of training needs.
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Subsequent to reviewing the county policy on performance evaluation, PAS requested
that files containing performance evaluations of employees assigned to the Saline County Sheriff's
Office be provided. These files were pulled randomly by a personnel clerk and provided to PAS.
Upon reviewing the files, it is PAS's conclusion that the County's basic policy is being followed.
Above and beyond basic compliance, approximately 20% of the raters provided comprehensive
comment on performance and how it could be improved. Others simply complied with the policy.
Since performance appraisal is such an important tool of personnel management, PAS
recommends that annually central personnel reinforce with pertinent elected officials and department
heads the importance of accurate and comprehensive appraisals, and that this be a continuing point
of emphasis within all county agencies. In the Sheriffs Office, this task of emphasizing and
reemphasizing the importance of timely, accurate, and comprehensive employee performance
evaluation should be assigned to the Administration Division.
Scope of Service Item #4-Tlte Task
Compare department policies witlt applicable county policies and national
accreditation policiesfor purposes of determining areas ofinconsistency
or conflict witlt county policies on national accreditation policies.
A review indicates that national accreditation policies are sufficiently broad so that
Saline County's personnel policies and practices applicable to all employees do not interfere with
them and they can be followed by the Sheriff as \\Titten.
The Sheriff is complying with the Commission's desire to review and approve SCSO
policies and procedures.
Scope of Services Item # 5-Tlte Task
Examine information systems support and tlte use of management
information in making decisions ill key areas.
The Saline County Sheriffs Office receives computer support from the City's
Inforn1ation Services Department. This includes access to general government applications,
computer-aided dispatch support, police records. and jail management. Relationship bet\veen the
SCSO and the City's information support providers is good, as is the support service provided.
Prior to the initiation of the PAS study. the SCSO made virtually no use of the report
generating capacity of the computer-aided dispatch system. This problem. and the types of reports
that can easily be obtained, are discussed on pages 74 and 75.
Recently, SCSO Administration Division has begun to utilize the CAD report
gencrating systcm to devclop the following reports:
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· Committed time report, which shows the type of incident, incident
location, time spent on call by patrol officer(s), and indicates whether
a report has been written that can be followed up on. Active use of
this type of report, along with aggressive leadership, could have
precluded the recent incident in which break time was abused by
patrol officers. It also can be used to develop and enforce standards
in time spent on calls, and to calculate and manage the cost of
responding to citizen calls for service.
. Incident analysis report, which provides information on incidents,
unit and officers responding, location, identity of the caller, and
source of information. This application can provide basic data for the
analysis of crime.
· Call activity report, which shows number and percentage of calls for
service by hour-of-the-day and day-of-the-week which is a basic tool
for analysis of activity and to deploy personnel.
· Various detailed call activity reports that show incidents by area,
a shift activity summary, and incident classifications by shift.
· Monthly case statistics, which shows statistics on cases by type and
beat and number and percentage of case clearances to date. This
needs to be augmented by data that sho\vs whether the cases \vere
closed by arrest or exception and another report that provides a
snapshot at any point in time of the number of cases being carried as
open by each of the detectives and the number assigned over the last
month.
As pertains to the jail, the jail management system provides for the generation of
useful information related to, and obtained from, the booking process. Page 86 of the report
illustrates various corrections effectiveness measures.
Scove of Services Item #6. 7. and 8-The Tasks
These scope of service task items are related and will be commented on together.
6. Examine staffing, deployment, and scheduling of personnel.
7. Determine if staffing, scheduling. and deployment in patrol are
based upon actual need as based upon citizen calls for service.
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8. Ascertain the approach to and basis for staffing of the corrections
program.
There are systematic approaches and models available for determining the appropriate
staffing for Road Patrol and Corrections. This is fortunate, since these are the largest functions in
local government law enforcement. The approaches to staffing criminal investigations are less well
defined and less subject to modeling. Investigative workload is tied into a number of policy
decisions made by a law enforcement agency. It includes decisions related to preliminary and follow
on investigations by patrol oftlcers, the use of case screening and solvability factors that focus
investigative resources on cases that can produce the most return for the resources invested, the use
of effective case management techniques and reducing time spent on administrative tasks rather than
investigations. As relates to administrative support and records, staffing becomes even more
subjective. With these caveats in mind, we will move to making comment on, and pointing out,
where more information is found regarding staffing of the SCSO.
A discussion of the SCSO Patrol Division begins on page 35. The point is made that
the most reliable information that can be used to measure patrol workload and determine staffing
are citizen calls for service and the amount of patrol officer time required to respond to these citizen
generated calls. Citizen calls for service annually for the last three years in Saline County \vere in
the 5,500 to 6,500 range. For 1998, the average number of calls for service per day was 16.4. Both
of these averages illustrate very low levels of activity. This is shO\\11 on Table 3 on page 40 of the
basic report. Immediately after this table it is pointed out that SCSO patrol personnel are not
scheduled to meet needs as defined by citizen calls for service, but are scheduled on an "even
staftlng" even distribution basis to provide for the staffing of four "beats" within the County on a
24-hour basis.
In examining workload data, the majority of activity is unplanned officer initiated
activity, with little planned parol (12%) and with calls for service occupying only 6% of an officer's
time.
Patrol staffing is complicated based upon the fact that the SCSO/County applied for and
received grant money for five positions. In applying for, and accepting this grant, the County
pledged a "good faith effort" not to reduce patrol strength during or immediately subsequent to the
grant period. The County Counselor has been requested by the County Administrator to contact the
Justice Department to determine the ramification/penalties should the County withdraw/cancel the
grant and/or not fill Patrol vacancies.
The SCSO must make the best possible use of patrol, and comment is made in the report
on doing this through planned patrol, moving from even staffing to staffing based on need, problem
solving with the community, making an organized effort to use patrol to serve criminal warrants, to
transport prisoners, and to do follow on investigations and crime prevention.
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There are two otTicers assigned to carry out detective functions. Cases are assigned by
the Patrol Captain to either of these officers. No solvability factors are used and there are no
statistics maintained so that you can determine at any time the number of active cases assigned, when
they were assigned, and or current status of cases. The individual officers are aware of how many
they are actively working, but there are no management reports available or no data that shows case
reviews by the Patrol Captain. This type of information should be maintained by the supervisor of
the detecti ves (the Patrol Captain). As pertains to staffing, based upon interviews with the detectives
and overall case loads, it is PAS's opinion that a staffoftwo is appropriate. On pages 110 and Ill,
there are examples of joint activities \vith the City of Salina Police Department that could impact
Patrol, including a "shared evidence function and a major case squad."
Corrections, with a total staffing complement of 39.5, is the largest division in SCSO.
It is organized and staffed based upon recommendations by a consultant used during the 1994
planning/construction efforts associated with the new jail. A discussion of the assumptions used in
planning the staffing of the jail and the elements P AS uses in a corrections staffing analysis begins
on page 23.
P AS concluded that in the 1994 analysis: projections of daily jail population, absences
by corrections officers, and corrections officer training days were low. In addition, PAS noted that
the 1994 study recommended a staffing pattern totaling 43 positions for the jail. A total of 39.5
positions were approved, which compounded the problem created by 'low assumptions."
As has been previously stated, it is PAS's opinion that the staffing in the jail should be
augmented by the following additional positions (see page 33-34 for details).
. One additional transport officer.
. One work release officer.
. Four additional corrections officers for pod or master control duty or
other assignment.
. Reclassitication of the five corrections officers positions to civilian
booking data entry clerks.
Note that this six position option is recommended by PAS as a part of a package that
would include training/certification of Corrections Officers and application of "broad banding" or
the use of a broad classification so that an individual can move through two levels (Corrections
Officer 1 and [I) upon training/certification. The purpose of this package is to improve morale and
alleviate the unplanned absence problem which should reduce the shift relief factor and the
requirement for as many as 15 additional corrections officers. The movement of Corrections
Officers to level I[ \vould not occur until certification and satisfactory performance for two years
at level I.
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I n the Administration Division and the Sheri ff s Headquarters Unit, PAS does not
recommend any increases or decreases in staffing. The Sheri ff rcq uested PAS examine the \vorkload
to determinc the priority of need for a new warrant services officer position. PAS concluded that
while there is a backlog of warrants and other court documents to be served (4,000 plus service
backlog). that the most efficient way to handle the backlog problem would be to properly plan for
and use patrol offtcers to carry out the necessary service. This avoids initial year costs in excess of
$35,000.
P AS does recommend adding law enforcement planning and department wide budgeting
coordination to the jobs of the Administration Captain and Sergeant. In addition, PAS recommends
that consideration be given in the future to a consolidated records unit serving the City and the
County. This is long-range (three to five years). PAS also recommends joint training acti vi ties wi th
the City, with the Undersheriff heading up the joint unit, and SCSO/County being credited for the
value of this service. The primary reason for this recommendation is to increase training resources
and opportunities for both agencies. The SCSO could benefit from the City's FTO training material
and training associated with operating a major case squad for serious crimes against persons.
Current authorized full-time staffing of the Juvenile Detention Center is seven
Corrections Officers and a Sergeant. The Kansas Department of Health and Environment who
licenses Juvenile Detention Centers requires that all shifts, which consist of three a day for seven
days a week, be staffed by male and female teams. These requirements cannot be met with seven
authorized positions so the shifts are "staffed out" with part-time civilian employees.
The part-time staffing is economical. The downside is that it is not possible to quickly
train these individuals and turnover is high, negating some training that is done. It is also difficult
to schedule part-time employees who have other commitments. The ideal arrangement, from an
operational perspective, would be to have three additional full-time positions as opposed to the
current seven plus part-time.
Scope o{Service Item #9-The Task
Review all processes associated with records management, warrant
service, civil processes, the vehicle ID program, collection activities, and
administrative fingerprinting. Focus on work simplification, work
standards, elimination of duplication of effort, potentialfor outsourcing
and customer service.
Records Unit. This element of the Administration Division is responsible for
maintaining departmental records related to incident reports and entering criminal history
information into the records management system and the state system. Duties ofassigned personnel
also include servicing a public counter to respond to requests for information and records and
respond to request for information received by radio from patrol field units to include wants and
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warrants checks, vehicle and driver registration inforn1ation, stolen vehicle checks, and similar
information.
The Saline Sheriff's Records Unit is supported by City Information Services and uses
the same basic computer-based Records Management System (RMS) as the City of Salina Police
Department.
Basic problems with the records system is the growth in cases and records. Over the last
10 years, cases have grown an average of approximately 2% per year. A rule of thumb used in
records is for each 3% increase in records 1/4 ofa full-time equivalent position is required to meet
additional case demand.
Part-time positions have been added over this period to cope with growth. Alternatives
to continuing to add personnel are to upgrade technology and or/use imaging systems and/or
consider a joint records function with the City.
Scope of Services Item #/O-The Task
Examine approach to court security and service
Court security is provided by a two-person unit of the Administration Division. The
primary function of this section is to provide security for courtrooms, judges, and judges chambers.
P AS observed the court security officers and was impressed by their courtesy and low key, but firn1
approach to providing security. The officers had a good presence and answered questions from the
public authoritatively. In security operations such as this there is a tendency to go overboard and
adopt a fortress mentality that overly restricts access to criminal justice facilities and isolates
officials from the public. Some other local governments have tried to privatize overall court
security. It has been PAS's experience that these privatization efforts last until there is a serious
problem and then the mission is turned back over to a sheriff or a police agency. No change is
recommended as relates to court security in Saline County.
Note that a security report by city and county public safety and building authority
personnel was completed on December 21, 1998, and turned over to the City/County Building
Authority for appropriate action. This was a detailed review that stands on its own. PAS did not
duplicate this work.
Scope of Services Item #//-Tlte Task
Examille ju veil ile progranL'l to include tlte detelltion center alld DARE
and any programs related to reducing repeat juvenile offenders.
The Juvenile Detention Center is commented upon earlier in the Executive Summary
and written up on pages 52 and 53 of the basic report.
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PAS's visits to the Juvenile Detention Center revealed a clean, well lighted facility and
a stan'that respected and worked hard for the Sergeant Facility Manager. There, however, have been
recent incidents in the center that raise the issue of the efficiency of part-time staffing.
The DARE Officer teaches from the standard Federal Drug Abuse Resistence Education
curriculum in the Saline County School System. Additional duties include:
· Neighborhood watch programs
· Crime and rural watch programs
· Operation Ident-I-Kit program
· Puppet safety program
The Saline County DARE Officer is an enthusiastic proponent of the program. Over the
last few years, at the national level, criminal justice experts have questioned the effectiveness of the
DARE program. There, however, have been no studies done to date that establishes a case for or
against the program. It is PAS's position, that at the very least, the presence ofa police officer in
a school setting can be very positive. At PAS's suggestion, the SCSO is looking into augmenting
the work of the DARE Officer with specially trained reserve officers to provide the capability to
have more of a presence in schools and other facilities serving young people.
A comprehensive approach to coping with troubled, repeat juvenile offenders is called
SHOCAP (Serious Habitual Offenders Comprehensive Action Program). This program. which
brings law enforcement, social service, the judiciary, and educators together to develop and
administer programs that deter juveniles from becoming repeat offenders and to rehabilitate those
who do. This program has been in existence for over five years and a considerable body of
knowledge has been developed and is available from the U.S. Justice Department Reference Service
at no charge. It is suggested that the SCSO obtain this inforn1ation, coordinate with other officials,
and make recommendation on whether elements of the SHOCAP program would be useful in Saline
County.
Scope of Services Item #12-The Task
Examine civilian staffing and the potential for substituting civilians for
more e.xpensive sworn personnel.
P AS examined all positions in the SCSO to ascertain which do not require sworn
personnel and which functions/jobs could be accomplished more efficiently on ajoint basis with the
City.
In the jail, one of the options under consideration was to revert to a system where sworn
deputies would carry out both police and corrections functions. The "pro" feature of this approach
would be to be able to have a smaller overall force in which deputies would work interchangeably
in Road Patrol or Corrections. The downside of this is that it is more expensive overall and sworn
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law enforcement officers are not needed to fill positions in the jaiL certified (civilian) corrections
officers are. This is discussed on pages 30 and 31 of the report.
It is also recommended that the five Corrections Officer positions that are utilized for
booking be reclassified as Data Entry Clerks at a savings of approximately $20,000. Ancillary
benefits would be easier recruitment and longer term retention of the Data Clerks.
P AS also examined whether the Administration Captain's position should be
civilianized. PAS has made this recommendation in other studies. Many of the functions in the
SCSO Administration Division could be supervised overall by a civilian administrator to include the
maintenance, records, budgeting, and process service. It is customary that civilians do not supervise
sworn personnel in local government law enforcement. The Administration Captain currently
supervises the DARE Officer, Court Security Officers, and Administration Sergeant.
This "supervision issue" was not the deciding factor for P AS. More importantly, there
currently is a pressing need for a member of the command team to have a facility with computing,
and an understanding of operations, in order to take the lead in developing reports and assisting in
developing and monitoring installation of performance measures to foster accountability, as well as
efficiency and economy. PAS is of the opinion that this is an urgent need and recommends that the
Administration Division continue to be headed, in the short-run, by a sworn officer with these
capabilities.
PAS also examined privatization of the operation of the jail. This is discussed in detail
in pages 106 through 110 of the basic report.
Privatization of Corrections is a major issue in the criminal justice arena. The
underlying question is whether private contractors can operate at lower costs to taxpayers, \vhile
providing at least the same level of services as public sector correctional agencies.
The key point is that in order to survive, private sector corrections have to keep
costs down. To keep the costs down, they must keep the cells full and make decisions that may
not seem to be in the public interest.
P AS does not recommend that Saline privatize its Corrections Department.
There could be merit, however, in outsourcing inmate medical care. Last year, the
County considered outsourcing medical care, but the bids that came in were prohibitively high. It
is PAS's experience that the best way to solicit bids for medical/or technical services is to go through
a two phase approach.
In the first phase, a Request for Qualifications (RFQ) process could be used to build
towards an effective Request for Proposal (RFP) in Phase 2 and more responsible proposals.
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In Phase 1, the vendors \vould be asked to propose on varied performance levels.
Emphasis would be on approaches to these levels that provide low cost basic care with no
interference with jail operations. In addition, the potential vendors should be tasked with
recommending a system to monitor and control overall management of the contract.
It would be useful to provide those proposing in Phase I with an upper limit on what the
County will pay, The County and SCSO should select from the RFQ process those contractors it
desires to participate in the Phase 2 RFP/proposal process. This is referred to as pre-screening and
is a helpful technique to getting down to serious "bidders" who are aware of price and performance
sensitivity of the County/SCSO and have expertise to successfully move through a two-phase
process. PAS recommends that this process be used in again trying to outsource jail medical care.
Scope of Services #13--The Task
Examine potential for labor savings through teclllli<fues such as call
diversion, call prioritization, approaches to using inmate labor, use of
microcomputer and network technology.
Paid labor costs are avoided in the jail by using inmate labor supervised by one Food
Services Director and a half-time Food Service Assistant. Other labor savings/cost savings
initiatives include joint or shared activities with the City to include communications/computer aided
dispatch, booking, information systems support purchased from the City, and the purchase of fuel
and maintenance for police vehicles from the city fleet maintenance facility, regional drug
enforcement, and others as shown on page 110 of the basic report. Future savings from joint or
shared services include a shared evidence facility and program at a reasonable cost of $11,734 for
the first year, a shared records operation that could effectively improve the use of technology and
avoid future costs, and joint training.
Other useful labor savings techniques in the study are discussed in pages 42 and 43
related to call service management and call diversion techniques in which reports for minor incidents
are handled over the telephone (with the concurrence of the complainant), staffing of patrol based
upon need, and the use of the full capabilities of the computer aided dispatch system in generating
reports that facilitate managing the patrol force and planned patrol activities.
ScofJe of Services # J 4- The Task
Examine the approach to obtaining grant funds and funds from other
sources.
The SCSO obtained grant funding through the COPS program for five additional
officers. Beyond this staffing initiative, there is no institutionalized program in the SCSO to obtain
grants or services provided through grants. There is a wealth of funding, technical assistance, and
information available through the U.S. Justice Department.
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The best starting point to set up an effective program to obtain funding and technical
assistance to obtain a copy of the current National Criminal Justice Reference Service Catalog from
the Oftice of Justice Programs, U.S. Department of Justice. It is available for downloading through
the Internet. This catalog provides summaries of new publications available in law enforcement and
corrections and on grants or technical assistance provided to local government and their law
enforcement agencies. A valuable resource summarized in the catalog is the Office of Justice
Programs for the Fiscal Year. This shows the major research, statistical, demonstration grants,
training, technical assistance, and capacity building programs that will be supported. The plan
coincides \vith the federal fiscal year starting on October 1 and running until September 30.
The SCSO should obtain this free information on what is available from U.S. Justice.
Staff responsibility for obtaining this inforn1ation should be in the SCSO Administration Division.
It is also important that the Commission be informed and their permission obtained prior to going
after funding or assistance that requires a commitment by the County.
Scone of Services #15-Tlte Task
Examine the use of overtime ami compensatory time vs. overall staffing
P AS addressed this matter in pages 96 through 99 of the basic report. An overtime line
item review of the Sherifrs budgets shows cxtensive reliance on overtime for approximately
15 ycars. In recent times, the largest variation was in Corrections in 1995, with actual expenditures
exceeding budgeted by 340%. The greatest recent "overspending" in Patrol was by 37% in 1997.
The 1995, Corrections overrun was attributed to the new jail.
Comparisons to other counties rcflect that Salinc ranks number 2 for Corrections
as percent of payroll, and 3 for Patrol, out of 5.
In Saline County, thc basic problems arc insufficient staffing of Corrections,
expcctations for Road Patrol to be staffcd to cover bcats and pcrform random patrol even
though calls for service are low, lax supcrvision in Patrol, and to poor morale throughout. In
the sections of this report dealing with the patrol and corrections functions, we make appropriate
recommendation for staffing and to improve leadership.
Scone of Services #/6-Tlte Task
Examine the law enforcement strategy ill place, how performance IS
measured ill trying to accomplish it, and IIOW it relates to the budget.
The Saline County Sheriffs Office has a traditional"protect and serve mission," which
is based upon a "medical model" in which the law enforcement agency is the "doctor," provides the
diagnosis, tells the citizen/patient what is wrong. and tries to solve the (crime) problem without
participation in problem solving by the public. As \vas previously pointed out, calls for police
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service are low in the County, and when the PAS study was initiated, little planned/proactive patrol
was taking place, with officers largely engaging in "officer initiated activity," which was not
productive. Modern management tools such as "committed time reports" were not used and the
situation was taken advantage of by officers taking excessively long breaks. In addition, Patrol was
not productive in serving court papers and processes. As was previously reported, progress is now
being made in generating management reports from the CAD system and supervision of patrol is a
matter of command emphasis.
At present, the law enforcement strategy in place does not relate to the budget. The next
step is to utilize performance measures to improve accountability and public service as is illustrated
in Chapter IV, pages 83-87 of the basic report. These measures can instill a new sense of mission
in the organization, communicate it to the public, and gain their help in community problem solving,
which should be a major part of the mission ofa modern law enforcement agency.
Scope of Service Item #/7-The Task
Examine the equipment, facilities, and capital outlay programs
supporting the Sheriff
The co-location of the Saline County Sheriffs Office and the City of Salina Police
Department in essentially the same building is a real plus, since it makes possible numerous options
to consolidate and share law enforcement services. In addition, the new jail is an excellent facility.
As relates to the law enforcement building, the biggest need is for an interview room for
the detectives. This can be accomplished as a part of moving to a combined evidence room with the
City. This will allow the space from the current evidence storage area to be refurbished for use by
the detectives.
As is pointed out on page 27 of the report, in the Saline County Jail, the placement of
the booking stations cause difficulties for Corrections Officers. In the booking area, the
corrections booking personnel sit with their backs to detainees \vho are in "the pit" awaiting
booking. Piecemeal attempts have been made to overcome this problem such as installing mirrors
that the booking officers can look up into to check on the pit. This is not a satisfactory arrangement.
The problem should be recognized as a real one and fixed.
Other reported facility/equipment problems range from the easily correctable (such as
removing the "paperwork" pasted up on the control center glass and other "windows" so that
visibility is not impaired) to the more difficult--a fire alarm that is not reliable, a need for improved
monitoring capacity in the control center (additional cameras and attention to the camera angles).
and replacing the shoulder radios used by the Corrections Officers that are not reliable.
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The take home car program is working and contracting with the City for fuel and
maintenance is an effective approach. The number of vehicles assigned to the SCSO is not
excessive. Replacement should be considered based upon milage and the condition of the vehicle
as certified by the City's Fleet Manager.
There are no other priority needs-the employees and officers are overall equipped to do
their jobs.
Scope of Service Item #18-The Task
Identify department functions with potential for cost savings and/or
service improvements through privatization.
Medical care for inmates could be a service improvement if the contract is developed
as is outlined in Task 12. Other privatization initiatives, such as of the jail function, would not
improve operations or save money while still providing a responsible service level. Joint activity
or purchase of service from the City holds promise in a number of areas previously discussed,
ranging up to a consolidated administration and training for the SCSO and SPD.
Scope of Service Item #19-The Task
Make clear recommendations in all of the above areas, including
strengths, weaknesses, potential cost savings and avoidances, and costs
of implementing recommendations.
This has been done in this section of the report and will be continued \t1 the
recommendations section to follow.
Scope of Service Item #20-The Task
Base analyses and recommendations upon a thorough understanding of
all applicable federal and state laws and written Kansas Attorney General
opinions. Relate all options and recommendations to Kansas law, and
identify potential legal impediments.
The role and powers of the County Commissioners are specified in Sections 19-201
through 19-270 of the Kansas Statutcs. Those powers significant for this study include: fiscal--
power of the purse, fiscal--ovcrsight, legislative--oversight, and the power to issue and enforce
pcrsonnel policies.
The role and powers of the Sheriff'are in Sections 19-801 through 19-826. Section 19-
801 (a) indicates that there shall be a sheriff in each county. elected to a f'our-year term, except in
those counties that operate under the provisions of the Consolidated Law Enforcement Act. These
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powers include managing the law enforcement program, to include patrol, court support services,
and corrections. Note that Section 19-811 specifies that the Sheriffis in charge and has custody of
the jail.
The statutes relating to consolidated law enforcement are 19-4401 through 19-4485.
These statutes are ""tailored" to certain counties by specific size, population, valuation, and other
defining characteristics. They provide for an election in these specific counties for the people to vote
on whether they are for consolidated law enforcement. Upon a favorable vote, a "consolidated law
enforcement agency" is formed that has as its directors members, such as one county commissioner,
two from the governing body of the largest city in the consolidation, the county attorney, and three
electors from the county. This "agency" then has the authority to hire an individual to manage the
county law enforcement agencYna chiet~ superintendent of police, etc. Upon the formation of this
law enforcement agency, the statutes indicate the Sheriff relinquishes all of his powers. Riley
County (19-4424 to 19-4445) and Lyon County (19-4446 to 19-4467) are examples of counties
named in the statutes regarding consolidated law enforcement agencies.
In short, there is precedent and an approach to changing the overall organization and
constitution of the law enforcement and corrections programs in Kansas counties. This approach
is contained in the provisions of Article 44 Sections 19-440 I to 19-4485 of the Kansas Statutes
entitled "the Consolidated Law Enforcement Act." This Act provides for the people to decide who
will head their county law enforcement program by election. Depending on your perspective,
Section 19-801 (a), which requires counties to have a sheriff (with the exception of those operating
under the Consolidated Law Enforcement Act) could be considered a detriment to an effective and
efficient law enforcement program. On the other hand, those opposing consolidated law
enforcement may indicate that it limits their choice in selecting a chief law enforcement officer.
P AS supports building to consolidated law enforcement by sharing services and to consideration of
overall consolidated government.
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Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA 22102-3322
ES-43
THEMES AND RECOMMENDATIONS
In this section of the summary, PAS pulls together recommendations from the study
report document and comments on their implementation. In order to provide a framework for this
material, we first turn to the major themes and/ or key points related to change that come out of the
study.
Themes and Kev Points
1. It is PAS's opinion that in the long-run, full consolidation of County
of Saline and the City of Salina law enforcement services holds the
most promise for effective and efficient service delivery.
2. Consolidation can be "built to" and "tested"/through various
approaches to sharing services to include joint services, purchase of
service, "swapping" of service, service authorities and other means.
The co-location of city and county law enforcement agencies in one
building facilitates sharing of services and possible future full
consolidation of services.
3. EveI1 if full consolidation never takes place, sharing of
administrative/support services can be an effective \vay to save
money or avoid costs. It can also make possible the application of
labor saving technology that neither the City or County would be
prepared to fund alone. Sharing of administrative and service support
can be a test of working together and can lead to further steps to full
consolidation or be a worthwhile end on to itself.
4. There are a number of di fferent forms of county govemment that
could be used to alter relationships with the Sheriff. The major one
is through the Kansas Consolidated Law Enforcement Act. Others
included a County Police Department and/or a County Corrections
Dcpartment reporting to the County Commissioners. It is PAS's
opinion that these approaches to reorganization require an election or
a referendum, are very divisive in the community, and in the end,
"grafting" thcsc changes on a traditional form of county government
is not a panacea that will improve efficiency, effectiveness, or public
service. PAS does not recommend these approaches-they are,
however, an option the Commission could discuss. (Option 1)
Public Administration Service 7927 Jones Branch Drive, Suite 100 South. McLean. VA 22102-3322
ES-44
5. Necessary organizational change in the Sheriff Office can be brought
about by a continuing to share services with the City of Salina and
within the framework of a three part service excellence initiative that
includes:
a. Continued development of a responsive infrastructure.
b. Commitment to quality.
c. Community policing/directed patrol
An illustration of this process is shown on the diagram on the next page. This is
the option recommended by PAS. (Option 2)
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Public Administration Service 7927 Jones Branch Drive, Suite 100 South. McLean, VA 22102-3322
.1
ES-45
1
FLOW CHART DEPICTING ACTION LEADING TO
IMPLEMENTING STUDY RECOMMENDATIONS
1
1
Commission &
Sheriff
Receive Report
rl
1
1
Decisions Include
Process for
Cosidering
Major Structural
Changes to SSO
Such as Removing
Functions
For Example
Referendum
1
1
Not Recommended by PAS
1
Organizational
change
Framework
Service
Excellence
.1
Responsive Infrastructure
Commitment to Quality
1
Major Goal:
Improve Planning and
Resource Allocation
,Hajor Goal:
Improved Quality of
Service
1
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Approaches:
Develop Planning
Capability
Use Model Reports in
Managing Patrol
StaftiDeploy Based on
Need
Use Data to Manage Jail
Improve Budget
Development and
Management
1 ncrease Joint Activities
with City
Approaches:
Customer Satisfaction
Continuous Process
Improvement
Natural Work Teams
Employee Dcvelopmcnt
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Adopt a Performance
Agreement.
in Return for
Resources, Sheriff
Agrees to Perform
Specific Outcome
Oriented Tasks
Recommended by PAS
Communi Oriented Policing
,\;Iajor Goal:
Safer Neighborhoods
Approaches:
Problem Solving
Customer Foclls
Empowerment
Building Partncrships
Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA n 102.3322
ES-46
FLOW CHART (continued)
Participation Levels: Participation Levels: Participation Levels:
. County & City . All Employees . Police
Governing Bodies . Community Members . Residents & Others
. Sheriff . Community Groups
. Police Department . Public Agencies
. County Administration
& City Management
Ewmple Applications: Example Applications: Example Applications:
. Career Criminal . Total Quality . Directed Patrol
Apprehension Program Leadership (TQL) . Neighborhood Drop In
. Directed Patrol . Total Quality . Crime Prevention
. Managing Criminal Management (TQM) . Interdiction
Investigations . Officers in Schools
The above flow chart shows the "big picture." In the table on the next page, we turn to
a listing of specific recommendations that should be undertaken to implement the study.
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Measures
SHERIFF'S PERFORMANCE GOALS
Goals
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Duty Roster.
Incidents involving SCSO employees.
Duty tour calls responded to.
Duty/Watch Officer policy.
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Response time report.
Committed time report.
Directed patrol report.
Number of community problems addressed.
Number of citations issued.
Part I crime rate.
Number of accidents.
Number of accidents with fatal Il1Jury.
Number of accidents with DUI
involvement.
Percent of second domestic calls to same
address in 12 hours.
Number of arrests/interdiction.
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I. Provide for effective supervision of all divisions of the Saline
County Sheriffs Office on a 24-hour a day, 7-day a week
basis.
The Undersheriff (responsible for Juvenile Detention) and
division chiefs (Captains in charge of Administration, Patrol, and
Corrections) are responsible to the Sheriff for the management of
their respective divisions at all times. Above and beyond this
level of supervision, and to ensure coordination and control on
weekends and after nonnal duty hours, a watch or duty officer
will be appointed on a rotating basis to monitor and respond to
requests for direction and assistance from division chiefs or
supervisors on duty in operating units. The duty officer/watch
officer will be rotated among the command team (Sheriff,
Undersheriff, and three Captains) on a weekly basis. Specific
duties of the duty/watch officer will be detailed in an SCSO
policy.
2. Provide for an effective and efficient patrol force by:
a. Responding to "emergency" calls for service (crimes against
persons in progress and life threatening calls) and "prompt"
calls for service (crimes against property in progress in
which there is no life threar but apprehension of a suspect is
possible or situations in which a dispute could escalate)
within a county-wide average of 15 minutes.
b. Achieve objective of keeping average time spent on calls
below 30 minutes.
c. Achieve objective of spending at least 35% of patrol time on
planned, directed patrol including community oriented
problem solving.
d. Use computer generated reports such as a "comm itted rime
report" and individual officer activity reports as tools in
managing patrol activity.
e. Carry out traffic en forcement activities that focus on areas
with high accident potential. school zones. DUI. and
area/neighborhood complaints.
f. Patrol officers will carry out preliminary investigations (all
misdemeanors) and follow up on approximately 60%, of
felony cases.
g. Increase interdiction work by 25%.
h. Establish a base for reporting on Part I (serious) crime.
I. Work domestic calls to reduce the likelihood of immediate
return calls.
J. Work to monitor quality of cases by tracking the percentage
of adult arrests that result in convictions on one charge.
Public Administration Service 7927 Jones Branch Drive, Suite 100 South, McLean. VA 22102-3322
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Measures
SHERIFF'S PERFORMANCE GOALS (continued)
Goals
Budget overruns.
Incorrect coding of expenditures.
Requests for supplemental appropriations.
Year to date expenditure reports.
Project reports to Steering Committee.
Project reports to Steering Committee.
Project reports to Steering Comm ittee.
Examples of reports.
Project reports to Steering Committee.
Project reports to Steering Committee.
3. Improve overall development and administration of the SO
budget by:
a. Assigning specific responsibility for coordinating the
development and management of the budget to the
Administration Captain.
b. Submit annual budget within county target budget guidelines
that funds priority needs and is based upon expenditure
history.
c. Provide necessary leadership and guidance to ensure
expenditures are coded correctly and that expenditures do
not exceed appropriations.
4. Continue to explore and implement joint activities with City
Police Department and other agencies that improve efficiency
and effectiveness to include:
a. Joint evidence facility and custody.
b. Joint training.
5. Continue to develop accreditation level policies and
procedures and forward for approval by the County
Commission on the basis of a schedule submitted by the
Sheriff.
6. Implement a planning program in Administration that makes
optimum use of auto mated patrol management data from the
CAD system.
7. Place command emphasis on reducing backlog of civil
processes and warrants to be served by 250/0 per year.
a. Use two officer equivalents to accomplish this.
b. Assess situation at end of two years and design/staff a
maintenance program.
8. Enhance Jail operations by:
a. Supporting and implementing a certified corrections officer
program.
b. Providing leadership In achieving Injury free days for
employees and inmates in Corrections.
c. Emphasizing need to properly classify inmates and tracking
number of reclassifications.
d. Place command emphasis on keeping down costs per inmate
day.
e. Support reclassification of booking officers to booking data
clerks (savings of $20.000).
f. When resources permit, utilize patrol officers for transport.
g. Hire a work release officer.
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SHERIFF'S PERFORMANCE GOALS (continued)
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Measu res
Goals
Staff work.
9. Provide command emphasis to providing high quality staff
work internally and on material forwarded to the County
Commission.
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News reports.
Degree of cooperation.
10. Join the County Administrator and County Commission in
reducing rhetoric and working together in a shared effort to
provide an efficient and effective law enforcement program.
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Reports to Steering Committee.
11. Implement agreed upon PAS study recommendations,
Provide a recommended timeline for implementation and
monthly progress reports.
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Monthly and annual reports.
12. Build on the monthly progress report to an annual report that
provides meaningful information on the law enforcement
program and disseminate it to the public in hard copy
summary form and on home page on the Internet.
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Public Administration Service 7927 Jones Branch Drive, Suite 100 South. McLean. VA 22102-3322
I. INTRODUCTION
Back~round and Purpose of the Study
In this chapter we introduce Public Administration Service's Report on the
"Organization, Management, and Operations of the Saline Co lln ty Sheriff's Office" by discussing
the events leading up to the study, its purpose, the scope of services, the approach used by PAS, the
overall organization of the County government, and the authority and responsibilities of the County
Commissioners and the Sheriff.
Events Leading Up to Study and Its Purpose
A review of the staff papers and discussions by the County Commission reveals that the
members of the governing body were concerned with what they described as a long standing pattern
of overspending of the Sheriffs annual budget and with unsuccessful attempts in the past to have
the Sheriff submit budget requests from which a realistic financial plan could be developed and be
followed by the Sheriff.
Since an effective budget should be more than just a compilation of expenditures and
revenues, the County Commission (based upon their fiscal and legislative oversight responsibilities)
desired to go further than just a review of budgeting techniques and examine the law enforcement
programs that tax dollars were being spent for. In order to accomplish this "performance reviev/'
a comprehensive scope of services was developed and disseminated to consultants with expertise
in law enforcement operations and administration as well as financial management. This scope of
services is illustrated in the next section.
In mid-April, during discussions ofP AS draft material, the County Administrator further
elaborated on the study's purpose, as follows:'
"To restate our primary objective, the County Commission wishes Public
Administration Service to produce a report that offers thorough and
insightful analyses. examples, and conclusions that present the unbiased
truth to the best of PAS's ability.
I Letter of April 16, 1999, from County Administrator David Criswell to PAS Assistant
Director George Hubler, with copies to the County Commission.
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The Commission desires the report to thoroughly dissect and analyze the
Saline County Sheriffs Office management and organization and to
consider a variety of options for improvement in every area. Potential
options for improvement should not exclude those which may not be
currently allowed by Kansas statute but which may, in PAS professional
judgement. most effectively improve communication, accountability,
efficiency, productivity and public service.
The Commission wishes PAS' recommendations to be objective,
nonpolitical and unaffected by Saline County personalities.
Recommendations should be untempered by PAS's perceptions of what the
community, the Sheriff or any individual or group may presently feel is
acceptable or possible. It will be up to the County Comm ission to decide
what implementation options will be acceptable to the community and the
Sheri ff."
In addition to the referenced April 16 letter submitted by the County Administrator,
other documents regarding the direction of the study \vere furnished by the County Administrator
and the Sheriff. They are at Appendix A.
Considering the above guidance, and using our professional j udgemenL PAS views the
purpose of the study as being to provide information to assist the County Commission in carrying
out its fiscal and legislative oversight responsibility over a major component of the County's public
safety program and to assist the Sheriffin assessing and improving lawenforccment and corrections.
I n other words, in addition to being an unbiased "diagnostic document," it is PAS's intention that
the study report be a positive one that will be useful in improving law enforcement operations (the
Sheriffs purview) and fiscal and legislative oversight (the Commissions purview). PAS will not use
the study report to focus on personalities or politics and it will not be written "to get" or "attack" any
county official, employee, or group of employees. The report at best will be a guide to improvement
or at worst will do no harm to the law enforcement and financial/legislative oversight programs in
place in the County.
In order to provide for input and direction from all of the interested parties, a study
steering committee was appointed by the County Commission. This committee includes the
Chairman of the Commission, the Sheriff, a representative of community agencies, the County
Administrator, and Deputy County Administrator.
Scope of Services of the Studv
The scope of services for this study as defined in the Agreement between the County of
Saline and Public Administration Service (PAS) dated January 25,1999, states the study should:
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1. Examine the overall organizational structure of the department
(Saline County Sheriffs Office) to determine if it meets modern
organizational design tests, has reasonable spans of control, provides
a framework for efficiency and effectiveness, groups like functions,
and supports customer/public service.
2. Determinc the service levels in use in the Saline County Sheriffs
Office.
3. Evaluate 111anagenlent practices of planning, progranlI111ng,
budgeting, hiring, training, and organizational and individual
performance evaluation.
4. Compare department policies with applicable county policies and
national accreditation policies for purposes of detern1ining areas of
inconsistency or conflict with county policies or national
accreditation policies.
5. Examine information systems support and the use of management
information in making decisions in key areas.
6. Examine staffing, deployment, and scheduling of personnel.
7. Determine ifstaffing, scheduling, and deployment in Patrol are based
upon actual need as based upon citizen calls for service.
8. Ascertain the approach to and basis for staffing of the corrections
program.
9. Review all processes associated with records management, warrant
service, civil processes, the vehicle 10 program, collection activities,
and administrative fingerprinting. Focus on work simplification,
work standards, elimination of duplication of effort, potential for
outsourcing and customer service.
10. Examine approach to court security and service.
11. Examinc juvenile programs to include the detcntion centcr and
DARE, GREAT, and any programs related to reducing rcpeat
juvenile offendcrs.
12. Examine civilian staff~ng and the potential for substituting civilians
for more expensive sworn positions.
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13. Examine potential for labor savings through techniques such as call
diversion, call prioritization, approaches to using inmate labor, use of
microcomputer and network technology,
14. Review approach to obtaining grant funds and funds from other
sources.
15. Examine the use of overtime and compensatory time vs. overall
staffing.
16. Examine the law enforcement strategy in place, how perfonnance is
measured in trying to accomplish it, and how it relates to the budget.
17. Examine the equipment, facilities, and capital outlay programs
supporting the Sheriff.
18. Identify department functions with potential for cost-savings and/or
service improvements through privatization.
19. Make clear recommendations in all of the above areas, including
strengths, weaknesses, potential cost savings and avoidances, and
costs of implementing recommendations.
20. Base analyses and recommendations upon a thorough understanding
of all applicable federal and state laws and wTitten Kansas Attorney
General opinions. Relate all options and recommendations to Kansas
law, and identify potential legal impediments.
Thc Approach to thc Study and thc Or2:anization
and Mana~ement Guidelincs PAS Followed
P AS uses a very effective approach to management studies known as performancc
auditing in which we ascertain whether available resources are being used effectively and efficiently
and whether desired results arc being achieved. Ifnot, specific corrective action is recommended.
In short, our studies are results oriented. This is a phased approach that starts with an overall
diagnostic phase and moves through definition of strengths and weaknesses and the development
of an implemcntation plan that includcs specific recommendations for improvement.
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P AS management analyses start with the consultants addressing questions such as:
. What are the objectives of the organization? Or, what is the
organization expected to accomplish?
. What is the environment--legal, political, or other--within which the
organization must operate? What are some of the impediments to
achieving a rational organization, efficiency, and effectiveness?
. How should functions be assigned? What are the considerations and
criteria in the compartmentalization of assignments?
. What coordination mechanisms are needed and what will help most
to make the organization responsive to the chief law enforcement
officer (in this case, the Sheriff) and to the policy body (the County
Commission)?
. How can the services and tasks to be performed be fitted together
most productively with the people available to perform them?
. What are the human problems? To what extent is an organization
determined by the people within it?
P AS then takes the infom1ation received from answers to the above questions and tries
to determine ways to enhance the efficiency of personnel. The techniques PAS uses to do this
include:
· Providing a well-defined organizational structure so that people know
what their tasks are, how they relate to other workers, and who makes
the decisions that affect their work. In other words, a framework is
provided for productive behavior in the workplace.
· Increasing the efficiency of the job (work simplification).
· Determining the appropriate amount of work to be accomplished
(work standards).
· Motivating the employee through improved accountability,
assignment of responsibility, participation in decision-making,
rewarding performance, and overcoming resistance to change.
In carrying out its studies, PAS considers traditional guidelines to effecti ve management
such as span of control, homogenous assignment of functions, coordinating. unity of command.
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balance, and the use of the mission as the focus of departmentalization. A morc dctailed review
of the concepts uscd by PAS is at Appendix B.
The Authoritv/Responsibilitv for thc Law Enforcemcnt Program
of the County Commission and thc Shcriff
One of the most frequently discussed relationships in county government relates to the
role, authority, and responsibility of the county governing body and that of the Sheriff for the law
enforcement program.
This discussion in many counties has become increasingly strident as the costs of public
safety have risen at an even higher rate than most other general government services.
Public Administration Service has reviewed state codes and Attorney General opinions
on this authority/responsibility issue nationwide. The following advisory opinion of the Saline
County Counselor represents current thinking on this question. ~
"As you know, there are various statutes that deal with the
powers and limitations imposed upon the di fferent agencies and
instrumentalities within the county structure. Basically, K.S.A.
19-101 sets forth the general pow'ers of the County
Commission and provides that the County Commission is
allowed to 'do all other acts in relation to the property and
concerns of the County, necessary to the exercise of its
Corporate or Administrative Powers.' Additionally, K.S.A. 19-
212 sets forth the powers of the Board of County
Commissioners. Paragraph six (6) of said statute states as
follows: 'To represent the County and have the care of the
county property, and the management of the business and
concerns of the County, in all cases where no other provisions
are made by law.'
The Attorney General's opinions that you had forwarded to my
office are very clear in that the County Commission is
responsible for providing the budgetary needs of the Saline
County Sheriffs Office. K.S.A. 19-805 states that the Sheriff
is to submit a budget for the financing of the operation of the
~From April 13, 1998, memorandum from County Counselor Michael A. Montoya to
County Administrator David Criswell. Subject: Sheriffs Office Efficiency Study.
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Sheriff's Office to the Board of County Commissioners for
their approval. K.S.A. 19-805 also references certain action
relating to personnel that can be taken by the Saline County
Sheriff's Oftice within the budget allowed by the Board of
County Commissioners. K.S.A. 19-811 specifically states that
the Sheriff shall have the charge and custody of the jail in his
county. The Attorney General's opinions that we have
reviewed speci fied certain areas for which the Sheri ff needs to
receive prior approval from the County Commissioners before
spending certain funds within his budget. The area of
'necessities' is the only area that would allow the Sheriff to
make purchases without Commission approval. K.S.A. 19-212
further gives the Board of County Commissioners the power to
'examine and settle all accounts of the receipts and expenses of
the County, and to examine and settle and allow accounts
chargeable against the County; and when so settled, they may
issue county orders therefore.'
Basically, what the Attorney General's Opll110nS and the
statutes proved is that the County Commission is responsible
for providing a budget to operate the County jail. Once said
budget is allocated, the Sheriff is in a position to utilize said
funds not only for necessities, but also for discretionary or
optional items as approved by the County Commissioners in
their review of 'settling all accounts.' In order to properly
budget and plan for expenditure of county funds, it is necessary
that the County have full authority over the County property.
To the extent that you have requested to review such items as
the organizational structure of the department, expenditures,
and other information necessary to conduct an efficiency study,
clearly the County Commissioners would be in a position to
request that infom1ation. As a side note, a majority of the
information that you are requesting is public infornlation and
would be available through the Kansas Open Records Act."
It is also important to note that any personnel action takcn by the Sheriff must by
statute (K.S.A. 19-805 (d) (1) )comply with the policies and proccdures established hy thc
Board of County Commissioners for all county employees other than elected officials. From
this we can logically imply that the Sheriffs policies and procedures in the personnel area should
follow (or be) thc County policies.
Public Administration Service 79'27 Jones Branch Drive, Suite 100 South. McLean. VA 22102-3322
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The Kansas Attorncy Gcneral in rendering opinions has promoted the conccpt of
"shared discretion" or "shared authority" wherein the County Commission and thc Shcriff
work togethcr in ordcr to properly plan and provide for thc financial support of law
cnforcemcnt programs. For cxample, if the County Commission has questions with regard to
\vhether or not the jail is being properly budgeted for, and properly funded, statutes and the AG' s
opinions would concur that it would be prudent for the County Commission to do an efficiency
study. This is not to say that the results are binding on the County Commission or the Sheriff, but
merely provide information necessary to do future planning.
P AS supports the concept of shared authority as follows:
. The Sheriff has the authority (K.S.A. 19-811) to plan and carry out
the law enforcement program, The Commission has the responsibility
to fund the law enforcement program (K.S.A. 19-805). The Sheriff
is required to follow personnel and budgeting guidelines established
by the Commission and operate within the adopted budget.
Reasonable Commissioners should allow the Sheriff to have leeway
to transfer funds (within appropriate guidelines) and for emergency
purposes, consider supplemental requests. This is not a blank check
and the Sheriff should comply with these guidelines and develop a
budget he can live with, and do so. While not required by statute, the
Sheriff should work with the Commission and develop performance
goals for the SCSO and its divisions and key the budget to working
to\vard these goals. This could be one of the tools of mutual support
to improve relationships and work around a fon11 of government that
is difficult to operate in.
Saline County Government
Saline County Government is organized under the traditional County Commission fom1,
with the Commission having responsibility for policy setting, budgeting, fiscal and legislative
oversight. In addition to the County Commission, there are a number of elected officials who are
involved in the day-to-day management of operational departments. This includes the Sheriff. The
County Administrator superviscs speci fic appointed department heads and acts as the Commission's
agcnt in countywide coordination and communication.
The current organization of the Saline County Governmcnt is illustrated in the chart on
the following page.
Note the relationships and responsibilities of the elected officials (including the Sheri ff)
and courts and those carried out by the County Commission in policy/governance and in day-to-day
operations through the Commission's agent-the County Administrator.
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Public Administration Service 7927 Jones Branch Dri\'e. Suil~ 100 South, McLean. VA 22102-3322
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Or2:anization of Study Report
This report is divided into the following chapters.
I. Introduction.
II. Examination of the Organization and Staffing of the Saline County Sheriff's
OfTice.
III. Examination of Work Place Attitudes, Communications, and Leadership in the
Saline County Sheriff's Office.
IV. Policies, Procedures, and Management Practices.
V. Review of Issues and Answers.
VI. Bringing About Change and Service Excellence lt1 a Law Enforcement
Organization.
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II. EXAMINATION OF THE ORGANIZATION AND STAFFING
OF THE SALINE COUNTY SHERIFF'S OFFICE
Scope of Chapter
This chapter reviews the current overall organization and staffing of the Office of the
Sheriff and then examines in detail the following divisions of SCSO.
Corrections
Road Patrol
Administration
Juvenile Detention
Or2:anization Theorv
The way an organization is structured can either foster or impede organizational
effectiveness. Overlapping, conflicting, inappropriate or unclear assignments of responsibility,
confusing lines of authority, unnecessarily long chains of command or excessive spans of controL
and other structural weaknesses can create confusion, breed conflict, complicate communications,
impede decision making, weaken accountability, frustrate control, and waste resources. Conversely,
good organizational design can pinpoint responsibility, facilitate communication, foster cooperation
and coordination, expedite processes, multiply efforts, and create synergy.
The basic problem of organizational design is (1) how best to divide work to provide for
the necessary participation of numerous, and differently skilled, individuals; and (2) after dividing
the work, how then to provide for necessary coordination and control among work elements.
include:
Although there is no "one best way"' to organize, there are some useful concepts. These
.
Simplicity for ease of understanding.
.
The coherent groupi ng 0 facti vi ties, functions, processes, purposes or
things in consistent ways that make sense in light of the
organization's responsi bi I i tics and objecti ves.
.
The clear fixing ofrcsponsibilities and lines of authority.
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. The limitation of spans of control to those that are manageable by an
individual under the circumstances of time, space, and activity that
apply.
. The minimization of hierarchical levels, consistent with the size of
the organization, among others.
These concepts provide useful tools for evaluating the existing organizations and for
developing more effective arrangements. They are used in evaluating the structure of any local law
enforcement agency.
Tvoical Sherifrs Office Or2:anization
Although there are numerous variations, there are some common organizational models
for sheriffs offices or departments. In this section we will discuss the principal models, the
tendencies that each create, and the circumstances under which each is preferable or not indicated.
G roupin2: of Functions. There are some functions that, where perforn1ed, are usually
grouped together. These include the following:
Administrative and Support Functions. Certain functions are usually grouped
together under an administrative unit. They include:
. Budget, Purchasing, Accounting and Finance
. Personnel and Training
. Facility and Vehicle Maintenance
. Uniforn1s and Equipment
. Police Records
. Communications/Dispatch
. Computer Services and Management Information Systems
. Court Services and Liaison
. Property and Evidence
. Planning and Crime Analysis
Some of the principal variations in this grouping are the following:
. Placing personnel and/or training directly under the Sheriff.
. Placing planning and crime analysis directly under the Sheriff.
. Placing crime analysis within a detective unit.
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. Placing property and evidence within a detective bureau.
. Communications/dispatch may be either a combined police/
fire/rescue unit operated under a "public safety" department, by
another police department on a contract basis (for smaller
departments), or by a regional agency on behalf ofa number of police
departments.
A major variation, usually limited to larger departments, is to have two separate support
units: one for general administrative functions (such as budgeting, purchasing, etc.) and a "technical
support" unit containing such things as dispatch, crime lab, and some specialty units, training
academy, etc.).
Patrol Functions. A major unit in local law enforcement departments is a "patrol" or
"uniformed services" division. Typically this unit will include:
. Patrol cars assigned to beats
. Foot or bike patrols
· Special units like K-9, SWAT, or others
. Community policing
These units are usually organized on a geographic and shift basis. Some of the main
variations include:
· Combining traffic enforcement and accident investigation with patrol.
· Including parking enforcement, school crossing guards, and/or traffic
safety education in the patrol or uniformed division.
· Separating out specialized services, if there are a number of them,
such as helicopter units, marine units, bomb squads, and other highly
specialized units.
· Having a separate "emergency management"' unit within patrol or
assigned to the Chiefs Office or somc other unit.
Criminal Investigations. There is almost always a scparate criminal investigations or
detective unit within a local law enforcement agency. Typically the functions include:
. Crimes against persons
. Crimes against property
· Youth divisions
· Narcotics units
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. Vice squads
. Identification (fingcrprinting, mug shots)
. Crime scene processing
In larger departments, specialty units are created within the investigations unit; 111
smaller units, these functions may be combined in undifferentiated fashion.
Some of the principal variations are the following:
. Having a crime analysis unit within the detective unit.
. Placing court liaison officers, property and evidence within the
detective bureau.
. Placing internal affairs within the detective bureau.
Specialty Units. There are a number of functions that may be found in various places
within a local law enforcement agency, They include activities normally performed (although
sometimes combined with other functions) and things that may be performed by other departments.
Some specialty functions normally performed include the following:
. Internal Affairs (IA). This is focused on controlling corruption
within law enforcement agencies and investigating major infractions
of acceptable conduct. This unit usually reports directly to the Sheriff
or Chief of Police. In some agencies, IA investigations are managed
centrally but carried out by trained detectives, and in a few others, IA
is in a detective unit.
. Public Information. In larger departments, there is usually a staffed
public infom1ation office; in smaller departments, an individual
having other duties may be tasked with this responsibility.
. Legal Affairs. Larger departments may have their own lawyers;
smallcr ones usually get their legal support from the municipal
government or consultants. The function normally reports directly to
the Sheriff or Chief.
. Labor Relations. Some larger departments have a specialized unit
for labor relations which may include only personnel administration
or may include contract negotiations, grievance handling, and rclated
matters.
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· Chaplains. Departments may have a chaplains office, Smaller ones
simply have arrangements with local clergy for this service.
Models and Variations. The above functions can be combined variously into different
arrangements of major and subordinate units of varying numbers, levels, and spans of control
according to the size and complexity of the agency. Several major models exist, each with
variations. The major models will be discussed first. Each model will presume a sheriffand a group
of common functions (patrol, traffic, investigations, and jail).
The General Deputy Model. In this arrangement, a general deputy (Undersheriff or
Deputy Chief) is positioned between the Sheriff or Chief and all (or most) subordinate units,
however many in number. There still may be a few staff or specialty functions directly under the
Sheriff/Chief, but essentially all functions are gathered under a general deputy, The general deputy
in a sheriffs office is usually a statutory position and referred to as an Undersheriff or First Chief
Deputy.
Chart II
THE GENERAL DEPUTY MODEL IN A SHERIFF'S OFFICE
Patrol
Adm inistrative
Services
Corrections
Juvenile
Detention
This is a common model that proceeds from several points of reasoning:
· The Saline County Sheriffs Office is a 24-hour per day, 365 day-per-
year operation that one person cannot properly oversce without help.
· This division oflabor allows the Sheriff to attend to major "outside"
duties such as relating to the political power structure, the general
community, and the prcss and to dcal with major issues, and it leaves
the Undersheri ff to attend to "inside" issues such as training and
supervision of specialty programs (such as juvenile delinquency).
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The second argument (inside/outside division) has merit in larger organizations where
each assignment can be a full-time job. In smaller organizations, one person can handle both types
of duties from a work load standpoint.
The first argument (24-hour day responsibility) has some merit in terms of shift coverage
if the Sheriffand Undersheriff work different, or overlapping shifts. This, however, does not usually
occur, except in very small agencies, negating to some degree this argument.
This model can insulate the Sheriff from the day-to-day workings of the department and
may cause him to be, or perceived to be, remote from the "troops."
If there is no real division, or a poorly thought out division, of work between the Sheriff
and Undersheriff, this arrangement creates a redundancy that reduces efficiency. PAS generally does
not favor general deputy positions that simply "mirror" the agency head's responsibilities.
The Multiple Director Model. An alternative to the single deputy model is the multiple
director model with directors heading two, three, or four major division or bureaus. In a sheriffs
office in the model, the Undersheriff or First Chief Deputy would serve as a Division Director.
Chart III
THE MULTIPLE DIRECTOR MODEL
Sheriff
Director
Additional Staff Units. On top of any one of these basic structures may be grafted one
or more staff units, or positions, that report directly to the Sheriff. Several of the more important
positions include the following:
. Executive Assistant or Office Coordinator. This position in most
agencies is a non-sworn position. It can be used to help the Sheriff
with a variety of assignments that he chooses not to assign to line
departments such as helping to implement change, performing budget
analysis or administrative research, writing reports, preparing grant
applications, serving as a public information officer, handling citizen
complaints, or other special assignments.
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· Internal Affairs. This positIon, usually filled at the level of
lieutenant or sergeant in small agencies, is used to conduct internal
affairs investigations. As this is not a full-time position in smaller
departments, additional duties such as those outlined for an executive
assistant are sometimes assigned.
· Personnel and Training. Some sheriffs prefer to maintain personal
control of certain functions like personnel and training. This would
include recruitment, selection, evaluation, promotion and related
human resource functions like training which are instrumental in
building a workforce of the type desired. The purpose is to keep
these very important functions from becoming "bureaucratized."
Often the Sheriff will reserve certain "critical" activities associated
with these functions to his office with a very lean staff and assign the
more mundane elements such as recordkeeping to the administrative
services bureau. A lot depends on the style of the Sheriff and the
confidence he places on the administrative services head.
· Planning and Research. Another important function that a sheriff
may want to keep on top of personally and ensure that it is performed
right is planning and research. Law enforcement agencies collect an
enorn10US amount of information on calls for service, crimes,
clearance rates, etc. that can be used to determine optimum staffing
levels, develop beat structures and deployment patterns and support
related decisions.
Current Or2:anization Overall
The Saline County Sheriffs Office currently is organized into an Office of the Sheriff
consisting of the Sheriff, an Undersheriff, an Office Coordinator, a Juvenile Detention Center, and
three major divisions: Corrections, Administration, and Patrol.
On the next few pages more detailed charts are presented that include the staffing of the
organization when the data collection for this study was carried out in March/April 1999.
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Chart IV
OVERALL ORGANIZATION OF THE SALINE COUNTY SHERIFF'S OFFICE
Sheri t1'
Office Coordinatrr
U ndersheri tT
Juvt:nik IXtt:ntion
Administrative Divisirn
Adult Criminal Rc:cord s
[ft...tt:ntion Warrants St:Ct ion
Adult Ci\il Tax
Programs Process Collections
Work Vehicle Id:ntilicatim Administrati\c
Release Program Fingerprinting
Court Building
SCOlrity Maintenance
DAR.E.
Crime Prcventirn
Criminal
Invest i gaton.s
Patrol
Traffic
K.9
Patrol Divisim
To: County Commission
From: Sheriffs Office Management Analysis Steering Committee
Date: 8-9-99
Re: Study of the Organization, Management, and Operations of the Saline County Sheriffs
Office performed by Public Administration Service (PAS)
Attached is the report on the organization, management and operations of the Saline County
Sheriff s Office performed by Public Administration Service (PAS). This report follows better
than two years of preparation and work by the county and approximately 6 months of effort by
P AS. This is the fifth and final report by PAS.
This report is intended as a working document from which the county can recognize, maintain
and potentially enhance those areas of strength in the organization, management and operations
of the Saline County Sheriffs Office and move toward effective implementation of measures
recommended to improve those areas identified as weaknesses.
From the date this study formally began in February, 1999, the Sheriffs Office has already
began implementation of several of PAS' recommendations. Adoption of this document by the
County Commission will continue the progress that has already started toward implementing the
report's recommendations,
The local media will playa very important role in the dissemination of the content of this report
to the public. Therefore, it is requested that media agencies read the entire report in order to gain
the truest possible understanding of the report's findings, conclusions and recommendations. Due
to the broad nature of the study and the diffuse manner in which the report is written, scanning of
the report for a few select quotes is not likely to yield an accurate report summary.
Readers are encouraged to begin reading the report with Appendix A located in the last section of
the report, Appendix A contains correspondence between the county and PAS which reveals the
perspectives of the Sheriff and the County Commission as to the main issues for the study. These
correspondences also identify issues that developed during the course of the study. An
awareness of these issues will prepare readers to better understand the report as they read it.
Copies of this report are available at the Salina Public Library, the Gypsum City Library and
from the City Clerk's of each of the county's 6 incorporated cities. Copies may be purchased at
the Saline County Commission Office, the Saline County Sheriffs Office or the Saline County
Administrator's Office for $8.95 for the Executive Summary or $45.75 for the full report.
The steering committee recommends that PAS consultant George Hubler return to Saline County
to discuss the report and answer questions once people have had sufficient time to read the
report. At that time, Mr. Hubler can also address the issue of implementation.
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Chart V-OVERALL STAFFING OF THE SALINE COUNTY SHERIFF'S OFFICE
V.1'::JMI
OITlccr
*Note--this chart shows staffing as of the date
of data collection. The positions and name of
incumbents are furnished to illustrate or provide
a "snapshot of staffing" at a point in time during
the study.
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Basically, the current organization of Saline County Sheriffs Office (SCSO) is the
general deputy model, with the Undersheriff functioning as a general deputy from the perspective
that he is in charge in the Sheriffs absence. He does not, however, simply mirror the activities of
the Sheriff, but serves as the SCSO training officer and provides general supervision of the sergeant
who manages the Juvenile Detention Center. Undersheriffs in Kansas, and in most other states, are
statutory positions and the incumbents serve at the pleasure of the Sheriff In a relatively small
agency such as the Saline County Sheriffs Office, a general deputy isn't needed but PAS knows of
no precedent for County Commissioners not funding an Undersheriffs position. Accordingly, the
best possible use should be made of the individual in this position and functions such as training and
supervision of specialty areas (juvenile detention) are logical and should be built upon.
From the perspective ofspan of control, clarity oflines of authority, and grouping oflike
functions, the current overall organization of the Saline County Sheriffs Office is appropriate.
SCSO budget development, coordination and management, and a planning function
should be developed within the Saline County Sheriffs Office in the Administration Division. In
addition, there is merit to changing Patrol to Operations made up of Patrol and Detective Units.
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Chart VI-ORGANIZATION AND STAFFING OF THE CORRECTIONS DIVISION
SALINE COUNTY SHERIFF'S OFFICE
Corporal 12-8
Egalla
Oassilic:uiolliProgrnms Coordinator
Conon
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Com:ctions S=etary
Hall
Corporal 8-4
Higgins
Corporal 8-4
K.artxr
Corporal Rdd
Park",
Corporal Transpooation
Bro\\n
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*Note--this chart shows staffing
as of the date of data collection.
The positions and name of
incumbents are furnished to
illustrate or provide a "snapshot
of staffing" at a point in time
during the study.
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Summary of Staffin2: of Saline County Sheriffs Office
Salinc County
Shcriffs Office Administration Corrections Patrol Juvenile
Management Division Division Division Center
Sheriff (I) Captain ( I ) Captain (I) Captain (I) Sergeant ( I)
Undersheriff (I) Sergeant ( I ) Sergeant (I) Sergeant (2) Correctional
Officer ( 7)
Office Coordinator (I) Dare Officer ( I ) Corporal (6) Detective (2)
Civil Processes Corrections Drug Oflicer (I)
Server ( I ) Officer (27)
Civil Process Secretary (I) Patrol Officers (17)
Clerk (I)
Court Security Clerk (I)
Officer (2)
Records Programs
Supervisor (I) Coordinator (I)
Records Clerk (I) Food Service
Director (])
Warrants Clerk (I) Food Service
Assistant (O.5--pt)
Maintenance
Supervisor (I)
Totals by Division
3 I I 39.5 J~ 8
_J
Grand Total
84.5
The current staffing of the jail illustrated above is 23.5 positions greater than 5 years ago
(in 1994). This increase supports the new jail and includes an additional 17.50 corrections positions
(I Sergeant, 15 Corrections Officers. 1 Food Service Director. and a part-time Food Service
Assistant). Other positions added to the Sheri ffs staffing complement over this same period include
another Court Security Officer and 5 Patrol Officers funded initially through a grant. The staffing
increase in Corrections was 65%. Over a 5-year period, overall staffing of the Saline County
Sheriffs Office has increased by 39%, driven by a new jail and a federal grant.
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--'
CORRECTIONS ORGANIZATION AND STAFFING
Basis for Current Corrections Staffin2:
The assumptions that the jail consultant based
staffing recommendations upon were that the peak
prisoner population would be in the range of 140 to
150 prisoners, and that the average daily population
would range from 110 to 120 prisoners. This staffing expert correctly noted that since 1991 (when
an earlier jail report was released-the Voorhis Report-which contained very conservative potential
jail population figures) the average bookings increased by 10 percent per year and the average
population at 9 percent per year. The consultant acknowledged that the jail was subject to "volati Ie
growth" and recommended that the staffing of the jail be reviewed at 6 and 12 month intervals
following its opening. No major adjustments in staffing have been made based on internal reviews
during the budget process.
ELEMENTS OF CORRECTIONS
STAFFING CALCULATIONS
I. Mission of the jail (e.g., pretrial, short-term
detention)
2. Layout of jail
3. Prisoner population
4. Security posts
5. Shift relief factor
6. Activity and programs
7. Support services
8. Technology
Corrections, the largest division in the Saline
County Sheriffs Office, is organized and staffed in
accordance with the process recommended by
Liebert and Associates. (The corrections
consultants associated with the design/building of
the new Saline County Jail.)] The overall
organization of the jail function meets modern
organizational guidel ines.
Other basic assumptions upon which staffing planning is based are:
. The mission of the jailor correctional facility concerned.
. The shift relief factor used.
. The schedule of activity and the physical design of the facility.
3Material in this section is from a report on a '"Proposed Staffing Plan, Organizational
Structure, and Post Orders for the New Saline County Jail," dated May 24. 1994, and signed by
Gary M Bowker, Transition Consultant Liebert and Associates.
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The mission of the Saline County Jail used as the starting point for initial staffing
calculations is as follows:4
"The mission of the Saline County Jail is to provide pre-trial detention
services for criminal justice agencies in Saline County and as a place in
which short sentences imposed by the courts witl be served. In carrying out
this mission, the Saline County Jail will operate as directed by the laws of
the State of Kansas and will comply with the Kansas Advisory--Jail
Standards and Procedures.
Saline County acknowledges that most inmates held in this facility will
ultimately return to the community. As a result, the facility and its staff
have an obligation to provide access to basic human services that may
facilitate the reintegration of the inmate population.
The Saline County Jail serves many constituencies; the citizens of the
County, other criminal justice agencies, the inmate population, staff at the
facility, and others who come to the facility. The jail has three primary
responsibilities to these groups:
to ensure that those who are legally held in the facility remain there
until released by the court or until their sentences are complete;
to provide for safe, secure, humane, constitutional and standards-
compliant conditions of confinement; and
to provide access to the basic human services. that offer inmates the
potential for reintegration and rehabilitation.
The Saline County Jail believes it has an obligation to operate in the most
cost effective manner that will let the facility carry out its mission and to
minimize the liability of the County."
4Ibid.
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Jail Population Exceeds Estimates
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The average daily population since the jail has come on line has increased from 93.3 in
1994 to 182.7 in 1998. The average daily population in 1998 breaks down in a monthly basis to:
Saline County Jail Average Daily Population
by Month for 1998*
Month
January
February
March
April
May
June
July
August
September
October
November
December
Year 1998
* Source DMG
A verage Daily Population
158.2
177.5
174
177
188.7
164
174.5
197.4
193.9
203.9
193.7
189.9
182.73
To calculate staffing, we start with the shift relieffactor, which is the number of officers
needed to staff one 24-hour-a-day position.
The numbers shown 111 the
adjacent text box were those used by the
jail consultant in 1994. Actual experience
shows that the shift relief factor calculated
was low due to there being more sick leave
used and more other actual absences per
year than projected. In addition, the
number of training days used (5) is modest,
as is the conclusion that it takes 5 people to
staffa single post in the Salinejail24 hours
a day, 7 days per week. Based on actual
experience, the number needed is closer to
5.20. The point here is that the relicffactor
originally used to calculate jail staffing was
based on conservative projections and the
staffing provided was less than that
recommended. The consultants initial
recommendations was for 43 positions.
ELEMENTS OF SHIFT RELIEF FACTOR
a. Number of days agency is closed 0
b. Number of agency work days per year 365
c. Number of regu lar days off per employee
annually 104
d. Number of vacation days annually per
employee 14
e. Number of holidays off 11
f. Number of sick days off per employee actual
average 10
g Number of other days off 3
h. Number of training days 5
i. Total number of days off per employee
(sum of all days off from above) 147
j. Number of actual work days per employee 218
SHIFT RELIEF FACTOR = 1.67 (365 divided by 218)
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Thirty-nine and one-half positions were approved. This is based on the deletion of2 Work Relief
Trusty Officers, 1 Transport Officer, 2 Correction Officers, and 1 Lieutenant (a Sergeant later was
added) for a current authorization of 39.5 positions. Note that since there is only 1 full-time
Transport Orticer, and if the need arises and part-time transport personnel are not available,
Corrections Officers are used. Note also that best practices call for using 2 officers per transport.
These original staffing calculations by the 1994 jail consultant are shown in the following table.
Table 1
STAFFING OF SALINE COUNTY JAIL
Based on Calculations by 1994 Jail Consultant
as Negotiated with the County
Organizational Element and
Position Day Swing Night Total Post SRF Total Staff Round
ADMINISTRATION
Captain/Jail Admin I 0 0 I I I
Corrections Lt* I 0 0 I I
Corrections Sgt 1 I 0 I
SECURITY POSTS
Shift Super/Cpl. [ I I 3 1.67 5.01 5
Master Control 2 2 2 5 1.67 8.35 8
Booking Officer 1 I I 3 1.67 5.01 5
Male Pod A I I I 3 1.67 5.01 5
Male Pod B I I I 3 1.67 5.01 5
Female Pod 0 0 0 0 0 0 0
Movement Officer I I 0 2 1.67 3.34 3
Work Release
Trusty Officer* 0 I 0 I 1.67 -, 0
PROGRAMS
Dir. of Programs I 0 0 1 I I
Medical contract
SUPPORT SERVICES
Clerk I 0 0 I I
Food Svc. Director I 0 0 I I
Food Svc. Ass!. 0 I 0 I .50
Maintenance I 0 0 I 0
Transport Officers* 2 0 0 2 2 I
Total Staff-Initial* jail 15 9.5 5 29.5 42.9 43
consultant rccommcndation
Total Staff--consultantl 13 7 5 25 37.7 38
co-ncgotiatcd recommcndation
Le!!cnd:
SRF is Shift Relief Factor. The numberofpersonnel required to staff I position for
24 hours. The most significant difference between the above 1994 jail consultant
recommendation and PAS's calculations is that the 1994 jail consultant used Zl 1.67
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SRF which underestimates absences and training time. PAS uses 2.0 based upon
actual absences.
Initially the 1994 jail consultant recommended 42.5 positions. During negotiation
with County/Sheriff, the consultants recommendation was reduced to thc38
positions shown above. The positions not recommended after negotiations are
shown in highlight above and designated with an asterisk* They included the Lt.
(Sgt. added later), Work Release Trusty Officer (2 positions) and I Transportation
Officer.
The above factors which provided a minimal staffing base, coupled with the use of
Corrections as a training ground for Road Patrol, a relatively long period of timc to replace those
who leave, the pay differential between Road Deputies and Corrections Officers, and a higher
prisoner load than projected have contributed to low morale in Corrections and the extensive use of
overtime to staff a shift.
Facility and Operatin2: Environment Can Cause Inefficiencies~
Potential Safety Hazards, and Low Morale
In the Saline County Jail, the placement of the booking stations cause difficulties for
Corrections Officers. In the booking area, the corrections booking personnel sit with their backs
to detainees who are in "the pit" awaiting booking. Piecemeal attempts have been made to
overcome this problem such as installing mirrors that the booking officers can look up into to check
on the pit. This is not a satisfactory arrangement. The problem should be recognized as a real one
and a capital project to "turn the work station around" should be budgeted and carried out. In
addition to being a safety issue, it is an "efficiency one" with those doing the booking being
distracted by looking up at the mirrors.
Other reported facility/equipment problems range from the easily correctable (such as
removing the "paperwork" pasted up on the control center glass and other "windows" so that
visibility is not impaired) to the more difficult--a fire alarn1 that is not reliable, improved monitoring
capacity in the control center (additional cameras and attention to the camera "angles"), and
rcplacing the shoulder radios used by the Corrections Officers that arc reported to frequently fail.
Functions that could prove troublesome include transportation with only one full-time
Transport Officer position authorized. Part-time Transport Officers takc up the slack and
Corrections Officers are frequently divertcd to transport prisoners. Fortunately, the part-time
transport personnel arc experienced. Transport is recognizcd as onc of the times in which problcms
could most often occur and "solo" escort of prisoncrs during transport is not a desirable practice.
A rclatcd possible problcm area is thc responsibility ofthc Transport Officer and thc court holding
cell. where the court officer assists but docs not take responsibility for thc cell.
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Another potential problem is that there is no Work Release Trusty Officer position to
monitor work release activities. This raiscs questions such as, "Are the inmates on work release
where they are supposed to be at the time they should be there?" In 1997, two work release positions
were approved by the Commissioners (see Appendix C). Records in SCSO indicate that these
positions were (and are) being used as Corrections Officers and not Work Release Training Officers.
They arc included in the 39.5 positions authorized in the jail and incumbents work in the POD.
A more structured system should be considered for tool/utensil control and cell block
housekeeping inspection. Utensil control should be carried out on a daily basis by POD officers
when trays are picked up after every meal. Tools should be carefully checked in and out
systematical! y.
During rounds with medication carts, spot checks can be carried out for tools, utensils,
and contraband. Cell and common area inspections should be on a scheduled and unscheduled basis.
The objective of these actions is to control material that can be brought into inmate areas and used
as weapons, or to fabricate weapons, to assault other inmates and the jail staff.
Jail Administrativc and Personnel Issues
Problems
Jail Entrv Point For Patrol
The jail is looked upon as the "entry point" for personnel aspiring to be road deputies
and currently there is no opportunity for direct appointment as a road patrol deputy. Competition
to move from the corrections positions to patrol is intense and the majority of personnel opt for road
patrol at the earliest opportunity. Others leave due to frustration of being non-selected for patrol and
discipline may include the threat of, or actual transfer from patrol back to corrections officer
positions, Road patrol deputy positions are classified three grades higher than Corrections Officers.
There is no program for certifying Corrections Officers in Kansas and training provided Corrections
Officers is only 20 hours annual!y. Increasing training, however, is difficult to do based upon
current staffing levels and unscheduled absences, \vhich is exacerbated by a lengthy period oftimc
to recruit and bring on replacements. PAS recommends a certification program for Corrections
Officers and a career pattern that includes Corrections Officer I, Corrections Officer II, Corporal,
and Sergeant.
Bud2:ct-No Owncrshir
It should also be noted that the budget process is not as "unified" as it could be. There
was no demonstrated "ownership" or leadership of the budget process by thc management of the jail
and/or the Office of the Shcriff. It was as if the budget was a documcnt preparcd at anothcr level of
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government that they had to live with, and not a document that recognized their needs, nor one that
they had any real input. PAS did note, however, that this is now undergoing change with the current
Sheriff asserting a "hands on approach" in developing and understanding the budget. This is very
positive and it should be continued and "pushed down" to the division level for their input. This
does have a dO\'.:nside in that if demonstrated, high priority needs are not recognized on a recurring
basis, the use of the budget as a tool of management and communications will regress. Targeted
budgeting does provide for input, the reallocation of resources, and a return on investment as a
reward for efficiency.
Strengths in Jail Administration/Operations
P AS would like to note the significant number of positive features as relates to the
management of the jail. They include the fact that the vast majority of the jail staff identify with
the aggressivc law cnforcement attitude ofthc Captain/Jail Administrator and work at doing
their jobs.
The usc of inmates to prepare food under the supen'ision of only one full-timc Food
Service Director, who also is responsible for thc canteen (note, there is also a part-time Food
Service Assistant position authorized but not filled when PAS carried out the audit), the limited
support staff, and one Director of Programs reflect an attempt to hold down costs.
Thc Corrections Sergeant's position has been a useful addition. There were some
comments that the position could be even more useful if the incumbent would primarily function
"within the jail" in an operational rather than an administrative role backing up the Jail Captain.
P AS agrees with a primary operational focus for this position and not an administrative one. When
we observed the Sergeant. she was in an operational role and not an administrative support one. This
Sergeant's position should be considered operational and she should work a shift other than the one
worked by the Jail Captain so that the use leadership talent is maximized.
Corrections Staffin2:-Revisited
Taking into consideration the elements of corrections staffing calculations and the
opcrational and administrative environment just discussed, we can turn again to the corrections
staffing issue and develop recommendations.
When you consider unplanned absences, the turnovcr caused by the use of the jail as
an entry point for Road Patrol Deputies, the use of Corrections Officcrs to transport prisoners, thc
long turn around on gctting replacements on board and the operational and administrative problems
previously discussed, P AS concludes that the staffing of the jail is low. The question is \vhat should
the staffing be?
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Basic Alternatives to Meetin2: Jail Staffin2: Needs
The alternatives to meeting priority starting needs include:
. Poolin2: All Sworn DeputiesuOne alternative would be to return to
the approach used in county jails in the past where "Corrections
Officers" are certified, sworn law enforcement officers and the
Sheriff can adjust the size of road patrol and assign additional
deputies to corrections if needed on a particular shi ft. This has the
advantage of flexibility in having a trained pool of deputies to draw
from and using them where needed. Disadvantages include: some
Corrections Officers do not want to serve as road deputies, deputies
would not know \V'here they were going to work until the day
scheduled, it would do nothing to professionalize corrections and
could adversely impact on recruiting and retaining road deputies. It
also would be more expensive based on the current classification and
compensation plan.
. Establishin2: a Career Track for Corrections Officers-- There is no
state wide traininglcertification program in effect in Kansas for
Corrections Officers. Deputy Sheriffs and Police Officers are
certified, sworn law enforcement officers. This is significant since
certification would attest to a level of training, experience, and
professionalism and provide a career track. The Kansas Sheriff's
Association supports a certi fication program for Corrections Officers.
It is understood that the State may be reluctant to get into this
certification due to costs the State could incur. On the other hand, the
Kansas Sheriff's Association is seriously considering sponsoring and
administering a certification program for Corrections Officers. This
properly would recognize the difference between deputies and
corrections personnel. Saline County should support recognition that
the Corrections Officer and Deputy Sheriff are different "jobs"
requiring different training, skills, and certification. Even without
statewide certification, Saline County could consider and adopt a
certification equivalent training program.
This approach would allow outside recruilment for direct hirc of
qualified personnel to bc Sheriffs Road Deputies without scrvicc in
a correclions position in thc jail and \vould allow hiring of personnel
for training and a career as a Corrections Officer. This would not
preclude Corrections Officcrs for applying for Road Deputy
positions, but they would compete with outside direct hires.
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Concurrent with the change in position status, it should be recognized
that the job factors in corrections vis a vis those of road patrol are not
so different in Saline County as to merit a 15% difference in
compensation. In more urban areas where patrol officers run from
call to call, job factors such as public contact and leadership would
support a pay distinction. In a rural county where calls for service are
not heavy, a pay difference of 15% is not merited. The pay of
Corrections Officers should be closer to compatible with Road Patrol
Deputies. A 5% difference would be appropriate. This would result
in a 10% increase for certified Corrections Officers.
In addition, to a Certified Corrections Officer specialty, both
economy and efficiency would be well served by having the
booking carried out by civilian clerical personnel who have good
data entry skills and interest. This would be done under the
control of an experienced shift supervisor and would cost 35%
less than Corrections Officers.
It is PAS's opinion that the most effective and efficient approach would be to
establish a career track for Corrections Officers and to consider using civilian data entry
clerks in the booking process. With this as a background, we can now turn to a discussion of the
number ofpersonnel needed to staff the Jail Division. We will start with a "Maximum Option" that
\vould be appropriate if costs were not an important consideration and then discuss a "More
Affordable Option."
The Maximum Option:
To begin the review, please refer to the table on the next page.
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Table 2
STAFFING OF SALINE COUNTY JAIL
Maximum Option
Diffcrcnce Betwcen
Organizational Currcnt and
Elemcnt and Position Day Swing Night Total Post SRF Total Staff Rcccivcd
ADMINISTRATION
Captain/Jail Admin I 0 0 I I Sgt. work swing shift
Corrections Sgt. 0 I 0 I I
SECURITY POSTS
Shift Super/Cpl. I I I 3 2.0 6 I
Master Control 2 2 2 6 2.0 12 4
Booking Officer 2 2 2 6 2.0 12 7
Male Pod A I I I 3 2.0 6 I
Male Pod B I I I 3 2.0 6 I
Female Pod 0 0 0 0 0 0 0
Movement Officer I I 0 2 2.0 4 1
Work Release
Trusty Officer 0 I 0 1 2.0 2. 2
PROGRAMS
Dir. of Programs I 0 0 1 1 0
Medical contract
(no positions)
SUPPORT SVCS
Clerk I 0 0 1 0
Food Svc. Director 1 0 0 I 0
Food Svc. Asst. 0 I 0 I .50
Maintenance I 0 0 I 0
Transport Officers 2 0 0 2 2 I
Total Staff 14 10 7 29 55 +15.50
Lc!!cnd:
SRF is Shift Relief Factor. The number of personnel required to staff one position
for 24 hours. The most significant difference between this PAS recommendation
and current staffing is that the extant SRF used is 1.67 which underestimates
absences and training time. PAS uses 2.0.
Other differences include a need to add a booking officer. 2 Transport Officers, a
.50 Food Service Assistant and a Trusty Work Release Officer.
The maximum option staffing is 55 positions, which is 15.50 greater than at
present.
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Due to the significant number of unplanned staff absences, insufficient full-time
Transport Officers, and the use of Corrections Officers to transport prisoners-the shift relief factor
used in determining the initial jail staffing was unrealistically low (in this table, we increased it from
1.67 to 2.0). Additional positions are also necessary due to the lack ofv,;ork release supervision for
trustees (added two), to strengthen master control and movement (added one), to provide resources
for improving booking (added one), and backup for food service operations (added one). In addition,
the Corrections Sergeant should be transferred from the day to the swing shift to divide up the
division's key managers so that they can provide extended supervisory coverage. This approach
would result in 15.50 additional positions. It was recommended preliminarily by PAS's corrections
specialist. It is not considered reasonable from a need or cost perspective by PAS project
management since it does not consider using patrol for backup and/or the positive impact of a career
corrections program.
More Affordable Option:
The primary factor that drives up the staffing is the shift relieffactor being raised to 2.00.
If the morale of employees is improved through professionalizing the Corrections Officer positions,
recognizing corrections as a career program from entry level to Jail Administrator, by improving
the pay/narrow the gap with patrol officers, by improving job content, by recognizing the highest
ranking corrections officer a member of the command team (attend command staff'meetings, serve
on the command/staff inspection teams and have input into the Sheriffs decision process) the shift
relief factor should go down.
Based upon the above assumptions the following staffing changes would be sufficient:
· One additional transport officer (for a total of two ), in addition to the
current part time help. This would have the added advantage of
rcducing the use of Corrections Officers for transport (except in
emergency situations) and would reduce the need for weapons
qualification by Corrections Officers. When not carrying out
transport activities, the transport personnel could function as
Corrections Officers assigned to pods or master control or booking
"security, and facilitation." Consideration also should be given to
using Road Patrol Officers for urgent transport requirements rather
than using Corrections Officers who are in short supply and/or the
Jail Sergeant and/or Jail Captain.
· One Trustee Work Releasc Officer.
· Four additional Corrections Officers for POD or Master Control Duty or other
assignment.
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· Reclassification of the five Corrections Officer positions to civilian Booking Data
Entry Clerks.
This is a net increase of six (6) positions would be $157,440 less approximately $20,000
by reclassifying Booking Officer positions to civilian Data Entry positions. These civilian data entry
personnel should be easier to recruit and their training more narrowly defined and less time
consuming. During periods of light booking activity they could carry out general clerical tasks. This
staffing pattern should also reduce the need for as much overtime.
The "More Affordable Option" at a cost of $137,440 is recommended by PAS.
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PATROL DIVISION
Patrol Division, with an authorized staffing 01'23, is responsible for responding to citizen
calls for service throughout the county, for officer initiated activity and planned proactive service
in assigned beats, and for the serving of warrants and civil papers as an adjunct of the patrol
function. Investigations is also assigned to Patrol and is carried out by two Detectives. There is one
Drug Officer. The authorized positions are:
I Patrol Authorized Positions I
Captain I
Sergeant 2
Detectives 2
Drug Officer I
Patrol Officer 17
Total 23
The 17 Patrol Officer positions include 5 positions funded through a Federal
matching grant. After the grant expires, the County ~lssumes all financial responsibility for
the positions. During the grant period (over 2.5 years to run) and immediately after, the
county cannot reduce the patrol force by the 5 positions.
The County is divided into four beats and the road patrol deputies \vork 12 hour shifts
with a deputy assigned to beats 1,2, and 3. The fourth beat is covered when personnel are available
(area in and around city). Patrol personnel work a t\VO days on, two off, three on, two off rotation.
Shifts are permanent (do not rotate) and are bid annually by seniority.
Patrol Staffin!! Calculations
This section starts by review'ing a "theoretical approach" to determining patrol staffing.
Subsequent to this review, \ve then move to a more practical discussion that is applicable in Salinc
County. The reasons lor this distinction are that most patrol stafTing models wcre developed and
tcsted in arcas with higher population densities, more calls for servicc, and less travel time than is
the case in counties such as Saline.
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A. Theorctical Basis for Patrol Staffin2: Calculations. In order to determine
appropriate patrol staffing, it is necessary to examine workload. Over the years a number of
different approaches have been used to include: "rules of thumb" based upon numbers of officers
per 1 ,000 population; the total crime rate and or changes in it; citizen calls for police service; and
a model which takes calls for service a step further and focuses on the amount of overall patrol time
required to respond to citizen calls for service. This last approach is the one used by PAS.
Officers per 1.000 Population
Deputies or police officers per 1,000 population may be helpful in comparing numbers
of sworn personnel among various local governments, but it is not a measure of work load or any
basis for staffing the patrol function, even though it is used frequently to justify or bolster arguments
for or against staffing increases. There are counties and cities across the United States that have
approximately the same population but have very different patrol service and staffing needs because
of variations in factors such as population characteristics and economic conditions. For example,
information on changes in population characteristics is useful in identifying trends that may lead to
increases/decreases in citizen calls for service and changes in the need for personnel.
Reported Crime
The number of reported crimes experienced in a county is another measure that
sometimes is used to definc patrol staffing requirements. The tlaw in focusing on this measure is
that patrol deputies spend a signi ficant amount of time in providing non-crime related service to the
community to include enforcement of local ordinances, traffic enforcement, and a wide range of
work dealing with various human problems. Reported crimes can be used to define the nature of
crime problems in a community but cannot be effectively used as a measure of need for patrol
personnel.
Calls for Scrvice
Calls for service are a st.lrting point. It is emphasized, however, that merely counting
the numbcr of calls for servicc rccorded by a Sheriff's Department is not a complete measure of
work load. It is not the complete picture since some types of calls requirc more time than
others.
Another potential problem that needs to be compensated for is that there is no uniform
definition ofa call for service. In many places whcn this information is requested thc data provided
by the local Jaw enforcement agency is the total number of units dispatched-- which is a measure of
dispatch work load but is not a valid indicator of the number of citizen calls for service since
providing total dispatch figures includes officer/deputy gencrated activity and multiple units
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responding. Anyone riding along with a patrol officer during a quiet period has witnessed how one
call for service can attract a number of officers even though it is outside of a beat area or a zone and
the concept of beat integrity and policies and procedures try to preclude this type of response.
Theorctically, the most reliable information that can be used to measure patrol
workload and project staffing are "well defined" citizen calls for servicc and the amount of
patrol time (deputy/patrol officer time) required to respond to the citizen generated calls.
In summary then, measures of officers per thousand of population define not \vhat a
community needs but the level of staffing it has chosen to fund. Basing patrol staffing on numbers
of reported crimes leaves out the wide range of police work that is service related and not crime
related. Simply counting calls for service overlooks the reality that different types of calls require
different numbers of officers since some calls take more time to complete than others do.
In addition to examining calls for service and the time it takes to respond to them, patrol
deployment, scheduling, and operating practices were exan1ined to determine whether patrol staff
time is being used as efficiently as possible. For example, patrol work schedules should fit staffing
to workload levels by hour of the day and day of the week. At busier times, more deputies should
be on duty to deal with that work and fewer should be on duty at less busy times.
Patrol Work Schedulin~. A scheduling system should place on duty enough deputies
to provide consistent service to the public and to promote officer safety. Consistency is measured
in terms of response times to different kinds of calls. The number of units available to serve as
backups is a typical measure of officer safety.
In recent ycars there has been a move in Patrol from 8-houn-,'ork days, to to-hour
d~lYS, to t2-hour work days. In discussing the length of the work day, the proponents of the 10
and 11-hour shifts for Patrol argue that longer work days provide greater coverage (are more
efficient) and also provide more time off for the officers concerned. It is PAS's experience that a
12-hour shift can provide slight to moderately better coverage (on the order of2 to 5%).
On the other hand, the last few hours of these extended shifts become periods in which
officers are tired, are more subject to making mistakes or exercise bad judgement or don't \vork
productively and may take extended breaks or avoid activity. In addition, with a 12-hour shift is that
over a period ora year officers may bc offduty more than they are on. This makes it morc difficult
for officers to gct to know pcoplc in the areas they patrol. In addition, while Patrol is working a 12-
hour day, detectives (in the Patrol Division) work eight hours as do other divisions and supporting
staff. Thus. nccessary coordination can be lost.
In summary, patrol shifts extended past 8 hours provide some additional coverage, may
rcduce ovcrtimc slightly, but primarily benefit the officers by providing morc time off. The 12-hour
shift, abscnt management and lcadership, simply becomes a benefit for the patrol officers working
it. It also has been PAS's expcrience that once a local government adopts 12-hour shifts for its
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patrol force, it is very difficult "to back off of." This can become a "real issue" and it could
dominate discussions between the county and the deputies. Recognizing fairly the positive features
and the weaknesses of a 12 hour shift, the Sheriff can size/deploy personnel to match the limited
number of calls for service and to aggressively use officers in planned or proactive patrol work.
Managin2: Calls for Service. Policies and procedures for processing calls for service
can significantly impact patrol workload. Calls need to be prioritized so that calls that involve
contact by offenders and victims are responded to as quickly as possible. Without a formal
prioritization system that can be monitored and tracked, a police agency can not assure the public
of consistent service in responding to calls.
Many agencies have led the public to believe that fast response to all types of calls no
matter how minor is good service. Response time is usually chosen as a measure because it is simple
to explain and easy to track. The reality is that calls involving crimes with long reporting delays do
not benefit from fast response. The likelihood that an offender can be caught on scene or evidence
can be preserved is limited for those calls.
For nearly 20 years, studies have shown that the call takers playa role in setting public
expectations for response time to non-emergency calls. When citizens are given a reasonable
estimated response time for non-emergency calls and that time is actually met, citizen satisfaction
is usually high. Call priority procedures can therefore allow police agencies to hold non-emergency
calls for from 30 to 60 minutes so that patrol cars can routinely answer them while keeping staffing
at reasonable levels.
Many law enforcement agencies takc minor reports over the telephone with minimal
delays. It is not uncommon for up to one third of the reports taken by a police type agency to be
completed by telephone. Citizen satisfaction surveys have supported the use of what is called
Teleserve in many communities. Implementation of Teleserve can also be used to keep staffing at
a reasonably low level.
Policies for screening calls for service can also have an impact on workload. Many
communi tics have eliminatcd unlocking cars, eliminating funeral details, and reduced time spent
responding to false alarms. Analyzing these sources of workload can find more time for officers to
perform proactive \vork. While these services are sometimes defended as something the public
wants, it is important to \veigh their benefit compared the cost and liability exposure those calls can
create. As much as possible, patrol time should be focused on problems thc policc can address
effectively and problems that have an impact on the quality of life of a community.
Finally, call-processing procedures should document time spent by patrol deputies
answcring calls for service and performing other work. That information is critical for accurately
analyzing patrol staffing needs and for deploying patrol personnel based on workload information.
Without this information, law enforcement agencics will find it difficult to make the best use of
patrol deputy's time.
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Beat Desi2:n. Patrol beats should be designed so as to allow most of the calls in an area
to be answered by one or a group of deputies assigned to that area. Boundaries for beats should
account for communities and features recognized by residents. For residential areas with little
identity or few neighborhood organizations, demographic data like age and family size may be useful
in defining beats. In non-residential areas, land use information should be used in an attempt to
create relatively homogeneous beats.
To promote good response to emergencies, beat boundaries should account for natural
boundaries like railroad tracks, bodies of water, or interstate highways. Patrol officers should play
an active role in the beat design process by contributing their knowledge of problems in the county.
Dispatching policies should be in place that promote beat integritv. If officers are to
establish ownership ofpatrol areas to which they are assigned, cross beat dispatching should be kept
to a minimum.
B. Practical Perspective-the Situation in Saline County. Citizen calls for service
annually for the last three years were in the 5,500 to 6,500 range, which is very low. By way
of illustration, for 1998 the Call Activity Report shows 5,989 calls over 12 months that were
distributed over the days of the week and hours of the day as is shown below,
Along with evaluating available data on workload, time was spent interviewing patrol
deputies and supervisors. These interviews took place in the field while riding along as well as in
headquarters. The current patrol work schedule was assessed along with practices for assigning
deputies to shifts and beats.
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Table 3
CALL ACTIVITY REPORT FOR 1998-SALINE COUNTY
Sun. Mon. Tues. Wed. Thur. Fri. Sat. Total %
Hour Calls Calls Ca lis Calls Calls Calls Calls Calls, Calls
24 66 83 37 29 49 49 30 343 5.7
1 56 11 16 12 32 43 36 206 3.4
2 32 10 9 10 30 32 24 147 2.5
3 27 8 13 9 11 15 19 102 1.7
4 19 3 7 10 9 13 5 66 1.1
5 13 10 8 7 8 10 17 73 1.2
6 21 25 20 22 31 17 27 163 2.7
7 19 32 35 23 30 34 23 196 3.3
8 26 41 59 52 63 44 38 323 5.4
9 44 56 58 40 42 66 41 347 5.8
10 38 64 48 43 65 67 37 362 6.0
11 27 51 45 44 50 57 44 318 5.3
12 20 32 41 34 34 35 40 236 39
13 36 46 27 47 39 41 40 276 4.6
14 32 41 51 53 43 42 48 310 5.2
15 32 54 56 45 43 61 42 333 5.6
16 38 53 49 75 65 65 44 389 6.5
17 35 50 36 36 43 50 42 282 4.9
18 40 43 47 42 41 40 40 293 49
19 31 50 41 44 50 45 47 308 51
20 35 54 31 34 31 46 43 274 4.6
21 30 22 37 21 32 40 46 228 3.8
22 23 27 32 31 32 49 45 239 40
23 21 16 18 21 28 28 33 165 2.8
Total 761 882 821 784 901 989 851 5979 100
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The table on the previous page indicates that the busiest days for calls is Thursday and
Friday. It usually is Friday and Saturday evenings. Note also that there is a 30% difference between
the day with the least calls (Sunday at 761), and the day with the most, Friday (at 989), and the
busiest time periods between 8 and 10pm. The average number of calls per service over a period
of a year is 16.4 per day, which is a light work load.
Patrol personnel are not scheduled to meet needs as dcfined by citizen calls for
sen'ice. The Saline Sheriff's Patrol Division is on an "even staffing" basis (number of positions on
each shift is essentially the same). This comment must be considered in the operating environment
in Saline County \vhere there are very few calls to begin with and where in the evenings patrol
frequently concentrates on the serving of warrants and civil papers. It should also be noted that the
Sheriff has instructed road patrol to display a "community orientation" by stopping and conversing
with citizens as they traverse their beat areas.
It was thc PAS consultant's observation during data collection that road patrol
personncl during the evening hours spent longer than necessary in the patrol area and in
administration- records preparing to obtain and serve warrants and civil processes. There was
no apparent supervision and the deputies were in no hurry to get on the road,
P AS was not aware at the time of the internal affairs investigation into "excessive
breaks" being taken by county deputies and city officers, but the "Iingering in" the headquarters in
the evenings reflects the same lack of supervision and individual initiative that is wasteful of
personnel and needs attention. This is one of the reasons in the Employee Work Place Survey
Chapter, why PAS recommended consideration ofa "watch officer" concept under which a member
of the command team (Sherin~ Undersheriff, Patrol Captain, Administration Captain, and Jail
Captain) would be responsible after norn1al duty hour for directly supervising the Patrol and
Corrections Program. This has the added advantages of allowing these senior personnel to observe
their personnel in operating situations, to be personally aware of what is happening on the street or
in the jail, and to allow the reallocation of personnel to compensate for some of the staffing shortfalls
in the jail.
Patrol does not use call activity data such as that shown in the Call Activity Report to
staff and manage operations. In addition to call activity data, the current CAD/Records System
can produce upon rcqucst a numbcr of vcry useful rcports that indicate how much time is
spcnt on each call by an officer, thc nature of the call, thc timc an officer is out of servicc, the
reason for bcing out of scn'icc, call to arrival time, officcr initiated activity, planned patrol
activity and related data valuable for managing the patrol force and using resources effcctively
and cfficiently.
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Officer initiatcd actIvIty is timc spent on unplanned actIvity such as traffic stops,
investigation of suspicious activity, assisting other county departmenls, and stopping frequently to
"mcet and greet." Patrol officer initiatcd activity is an important part of patrol operations. It has to
be managed and integraled with planned patrol activities such as business and rcsidential checks,
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working with the community on identifying problems and solving them, and in crime prevention.
A patrol supervisor needs effective management information in order to plan and supervise properly.
The current computer aided dispatch system can now provide information that is needed to mange
patrol. This includes reports on officer initiated activity in minutes per unit hour worked.
Administrative time such as time spent on meals, breaks, maintaining equipment, meeting with
supervisors and shift change/roll call time is also available from the CAD system.
Unfortunately, prior to the PAS study, this type of data/reports had not been requested
or used in supporting road patrol in Saline. As is stated elsewhere in this document, the situation
has changed and useful reports are now being generated off of the CAD system. The emphasis now
must be on actually "using" the reports in Patrol.
Call Service Mana2:ement
Calls for service management refers to dispatch having a formal procedure for assigning
priorities for responding to calls and a call diversion program.5 Dispatch for the Sheriff is done by
the City Communications Center which handles radio dispatch for the City Police Department, the
Sheriff, and fire and medical agencies in the City and County. Call prioritization is used, with
priorities being assigned from 1 (highest priority) through 8. The fact that call responses are
prioritized in Saline/Salina is a real plus (PAS, however, prefers the simpler prioritization system
shown in the footnote). Call diversion is not used and this can result jn a waste of resources. For
example, should an officer be dispatched to take a report on a bicycle that was stolen two weeks ago?
No-provide the capabi lity to take the report over the phone-referred to as call diversion or Teleserve.
Should an officer be dispatched to s\veep small glass fragments off of a road? No-send public
works. Should an officer be dispatched to write a vehicle accident report or "referee" on private
property? Normally no.
Formal call prioritization and reasonable call diversion programs can make for more
effective and efficient use of resources. Implementing call diversion requires sensitivity and
education of the public regarding the savings possible. A resident should have the option oftuming
do\vn an offer to take a report over the telephone, and if he/she does, a unit should be dispatched
with a routine priority.
5 A call prioritization system/call diversion system recommended by PAS uses the following categories:
Emcrgency: Crimes against persons in progress and life threatening calls.
Prompt: Crimes against property in progress in which there is no threat to life but apprehension ofa
suspect is possible or situations in which a dispute could escalate.
Dclayed: These are calls that can be delayed for a reasonable period of time (up to 45 minutes) before
being dispatched.
Divcrted: These are calls that are transferred to patrol to be handled by telephone.
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Staffin2: Analysis
Staff Availability Factor. The next step in the analysis is to determine a Staff
Availability Factor (SA F). Policing is a 24-hour per day, 7 day per week service. To meet those
demands, enough officers need to be employed to provide for days offofficers take during the course
of the year.
The SAF is a multiplier that is used to determine the number of officers that need to be
employed to assure that a certain number of patrol units are fielded. Patrol staffing options use the
SAF to determine the number of officers that should be deployed.
Table 4
SAF FOR SALINE ROAD PATROL
I. Potential staff days available
[# of officers (] 7 officers and 2 Sgts) times 365] 6,935
2. Days officers not available due to scheduled leave. nonnal days off. court time, 3,206
special leave, sick leave
3. Actual officer/staff days available 3,729
4. Staff Availability--6,935 potential days available divided by days available 01'3,729 1.86
This means that based on current officer availability, the County has to hire 1.86 officers
to put 1 officer on the street, or 18.6 officers to put lOon the street. The "trick is" to maximize
officer availability by keeping down unscheduled absences, sick leave, and court time (stand around
time without testifying).
The Saline County Sheriffs Patrol Availability Factor of 1.86 is "not bad." A factor of
1.50 and labor would be considered "good."
Summarv of Estimates of Patrol Workload-On the Call Activity Report table displayed
earlier in this chapter, we saw that the calls for service based workload was very light. averaging
approximately 16 a day. On the Time Spent on Tasks by Patrol Officers table, it is estimated that
at the maximum calls for service consume 6% of available time, and planned activities also are light
at a maximum of 12%. The majority of the time is spent on officer initiated activity and
administration at a total of up to 69% of available time. The point is that this workload indicates
that work could be allocated more efficiently and effectively and/or resources rcallocated to other
acti vi ties such as the corrections.
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Based on these benchmarks, with a very light calls for service work load, the rest of the
day tills up with officer initiated activity (some of which is non-essential). In short, there are enough
units to take care of the current work load and excess capacity exists.
Patrol Division Conclusions and Recommendations
The Patrol Division currently does not utilize its Patrol Division resources as well as it
could. An extensive amount of time is spent on officer initiated activity, much of it involving
random driving in a beat area and the making of traffic stops. Other than serving warrants and other
court documents, there is no systematic approach to planned patrol work. It also should be noted
that the CAD system is not used to generate activity and time spent on activity reports that \vould
be very useful in managing patrol.
Recommendations are:
. To have the patrol officers suggest planned patrol activities to the
Patrol Captain and that he develop a proactive patrol program that
carries out the Sheriffs goal of increased contact with people in the
various communities throughout the county and to engage in joint
citizen SCSO problem solving.
. To improve the supervision and efficiency of the service of warrants
and civil processes by Patrol.
. To improve command supervision by a "watch officer system"
whereby the command team (Captains, Undersheriff, and Sheriff)
rotate on a wcekly basis the command/supervision of the SCSO
during off duty hours. This would includc patrol, corrections, and
administrative functions.
. To have activity, time spent on activity and individual officer activity
reports generated on a daily basis and use them. For cross
verification, have officers complete a daily activity rcport and turn it
in at the cnd of each shift. (This is now being done.)
. To utilizc patrol officers to transport inmates in situations in which
the use of corrections officers would draw down the jail staffing to
unsafe levels or in planned cfforts to reduce ovcrtimc costs in the jail.
Public Administration SerVl"ce
7927 Jones Branch Drive. Suite 100 South. McLean. VA 22102-3322
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ADMINISTRATION DIVISION
Or2:anization and Functions
The Administration Division is responsible for records initiation and maintenance,
warrant and civil process service, court security, the DARE and crime prevention program, building
maintenance, the vehicle identification program, internal atTairs, administrative fingerprinting, tax
collections, and internal budgeting.
The staffing for this division is illustrated below:
Chart VII
ADMINISTRATION DIVISION
Adm i nistratiOl1
Captain ( 1)
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Court Security ~ I ai ntenance Administration/ DARE&
Officers (2) Supervisor ( I) I nternal A ffai rs Sergeant Crime Prevention
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Records Unit - DARE
Officer ( I)
Records Supervisor ( I)
Records Clerk ( 1)
Warrants Clerk ( I)
Civil Process Server (I)
Civil Process Clerk ( I)
Part time employees
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Intcrnal Affairs/Administration Ser2:eant
The Sergeant occupying this position has two distinct sets of functions:
. Internal affairs investigations which he carries out at the direction of
the Sheriff. The workload in this area was 10 cases last year and 4
thus far this year.
. Administrative supervision of the records, warrant, and civil
processing functions.
Intcrnal Affairs/Record Keeping
During a review of a draft of this report, the project steering comminee req uested that
Public Administration Service comment on the feasibility/appropriateness of the County's central
personnel section serving as the repository of the Sheriff's internal affairs records. PAS responded
to this inquiry by indicating that common practice is for the law enforcement agency to retain the
custody of these records. A later review of Kansas statutes by PAS revealed no specific
requirements to maintain the internal affair's records within the law enforcement agency. A review
of national standards, published by the Commission on Accreditation for Law Enforcement Agencies
(CALEA), however. stipulates in Section 52.1.10 that these records should not be in a centralized
rccord system, and this records activity is a task of the internal affair's function and is an exception
of the personnel records or central records system.6 PAS supports this standard. A complete copy
of the pertinent CALEA standard is in Appendix D. Also, at Appendix D is the City of Salina
internal affairs policy that follows CALEA guidelines.
Emplovcc Performance Appraisal
The project steering committee also requested that Public Administration Service review
employee performance appraisal in the Saline County Sheriffs Office. In order to accomplish this
task, PAS first revie\ved the County's overall policy on Employee Performance Appraisal (Policy
03 dated 05-12-99). The County policy is a practical and basic approach to individual performance
appraisal that emphasizes that its purpose is to:
. Provide a permanent rccord of the individual's performance during
the rating period.
()From standard 52.1.10, CALEA policy and procedure guidelincs, dated April 1994, page
52-2.
Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA 22102-3322
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. Serve as the basis to award or deny a wage increase and/or other
personnel actions.
. Provide an assessment of training needs.
Subsequent to reviewing the County policy on perfom1ance evaluation, PAS requested
that files containing performance evaluations of employees assigned to the Saline County Sheriffs
Office be provided. These files were pulled randomly by a personnel clerk and provided to PAS.
Upon reviewing the files, it is PAS's conclusion that the County's basic policy is being followed.
Above and beyond basic compliance, approximately 20% of the raters provided comprehensive
comment on performance and how it could be improved. Others simply complied with the policy.
Since performance appraisal is such an important tool of personnel management, PAS
recommends that annually central personnel reinforce with pertinent elected officials and department
heads the importance of accurate and comprehensive appraisals and that this be a continuing point
of emphasis within all county agencies. In the Saline County Sheriff's Office, this task of
emphasizing and reemphasizing the importance of timely, accurate, and comprehensive employee
performance evaluation should be delegated to the Administration Division.
Records Unit
The importance of the records function was best described by pIoneer Police
Administrator O. W. Wilson, as follows:7
"The Records Unit is the nerve center of the police department
and there is a direct relationship between the efficiency of the
police department and the quality of its records. Complete and
accurate information is essential to effective operations: reports
of crimes must be classified, indexed, and filed so that
information is readily available to officers operating in the
field. Every Chief or Sheriff is called upon to make decisions
related to the distribution of his force, the assignment of
personnel to particular tasks, and the revision of plans of
operations in relation to changing crime conditions. Much of
the information necessary to arrive at a sound decision may be
gleaned from administrative records."
70.W. Wilson "Police Records-Their Installation and Use."
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The Records Unit is the official repository for the Saline County Sheriffs Office records
and carries out functions that provide for internal support ofSCSO, the court system and the public
by maintaining and providing information in accordance with legal mandates and policies. Services
include input of offense report data into the criminal information system (Uniform Crime
Reporting); run NCIC checks; enter field investigation cards; perform other data entry into the
system to include cases, accidents, and tickets; do records checks; do Brady Bill checks on NCIC;
and provides copies of accident and other reports to authorized individuals.
It was reported to PAS that personnel in the Records Unit of the Administration Division
did not provide good service to their customers and were difficult to deal with. More specifically,
the Records Supervisor was identified as having poor relationships with employees, the
Administrative Sergeant (her supervisor), and the public generally.
P AS spent one week reviewing in depth the records program and observed records
operations periodically over the five month length of the project. During this period, the Records
Supervisor cooperated with the consultant and provided all information requested. It is also
important to note that all Records Unit employees PAS observed were polite and informed in
answering questions at the counter and by telephone.
PAS carried out desk audits of all records personnel. Employees were familiar with
(most had copies of) the policies and procedures that governed their activity and the work flowed
appropriately within the unit. Employees were responsive to the directions of the new
Administrative Sergeant, who has high-performance standards and holds employees to them.
The major problem in Records/Administration is a backlog of approximately 4,000
criminal warrants that have not been served. PAS recommends that patrol officers (at least two) be
detailed to work with Administration (under the supervision of the Administration Sergeant) to work
to reducing this backlog by 25% per year until it is eliminated. In addition, on a continuing basis,
those warrants that cannot be served should be identified and returned to the Court.
From a facility and equipment standpoint, the records area is cluttered with layers of
file folders on top of the file cabinets. This material should be examined, and that is not needed in
day-to-day operations be placed in another storage areas such as the large jail storage area.
The Administration Division and the Office of the Sheriff have not done a good job of
documcnting workload are other activity oriented information that could be useful in managing the
organization. Useful daily, weekly, and monthly reports that could build towards a SCSO Annual
Report havc not becn produced. Is difficult to measure performance absent these reports.
Useful operational reports are now being generatcd by the Administration Captain. This
initial effort should be continued and broadened.
Public Administration Service 7927 Jones Branch Drive. Suite 100 South. ~1cLean. VA 22102-3322
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DARE and Crime Prevention
The DARE officer is responsible for teaching the Drug Abuse Resistence Education
curriculum in the Saline County School System. Additional duties include:
· Neighborhood Watch Programs
· Crime and Rural Watch Programs
· Operation Ident-I-Kit Program
· Puppet Safety Program
Court Security
Security is provided for the 28th Judicial District, Juvenile and Traffic Courts. This
involves five court rooms.
\Vorkload Data
Activity pertaining to positions/personnel are maintained on a continuing basis in a
Personnel Action! Activity Report. In addition, the following types of activity data would be useful.
Table 5
ACTIVITY AND LEVEL OF SERVICE DATA
ADMINISTRATION DIVISION
Activit" Previous Year Current Year
Records
OfTensdlneident Reports
Accident Reports
VINS
Reports filed
Counter Assistance Provided
Searches
Copies t\'lade
iVloney from Sales
\Varranls and Civil Processes
Warrants Received
Warrants Served
Warrants Not Served-Bad Address
Civill'rocess Scrvcd
Civill'rocess Not Served
Civill'rocess Not Scrved-l3ad Address
Revenues from Service
Warrants Returned/Recalled
Fees Received
Current Civill'rocess Backlog
Current Warrant Backlog
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Activity Previous Year Current Year
Data Input
Offense/Incident Reports
Field Interviews
Co rres po nden ce-- rep orts- i n terna I
Correspondence--reports external
DARE/Crime Prevention
# DARE Classes
# Students Reached
# Crime Prevention
Presentations/ Activ ities
# Neighborhood Associations
Founded
# Neighborhood Meetings
Juvenile Drug Activity Deterred
Internal Affairs
# IA Investigations
# Investigations Which Resulted in
Serious Disciplinary Action*
# Special Projects
Court Securitv
# of Incidents Reported
# of Arrests
# of Court Sessions Supported
:; Special Projects
Administration HeadQuarters
# Special Projects-Internal
# Special Projects- External
Webmaster Activities/Changes
Personnel Actions Processed
Stren~ths, Problem Areas, and Needs
Special projects carried out over the current year include departmental budget
compilation. CUITent budget is close to matching the financial plan for the first quarter. The
Administration Sergeant is emphasizing customer service, development of supervisors, following
thc chain of supcrvision, and responsibility for actions. Counter personnel have bought into this
program and arc helpful and pleasant to the public. Additional storage needcd. Major problem is bad
addrcsses on papers to be served. Work tlO\VS rcasonably with no major bottlcnecks or chokc points.
Part time positions used well. Good ovcrall supcrvision by Sergeant and Captain. Warrant and Civil
Process Scrvice (as discussed in thc Patrol writc up) necds improvcd organization and supervision
after normal duty hours.
Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA 22102-3322
51
Note chapter on performance measurement and one on policies and procedures that
modifies the roles of the Administration Captain and Sergeant and the comments on shared service
related to the possibility of a joint records unit with the City of Salina Police Department.
Recommendations
. Maintain activity data such as that mentioned in the table in this
section.
. Exan1ine potential for joint criminal justice records imaging project
with courts and city police department to improve records storage.
. Work with Patrol Captain to improve warrant and civil process
service by Patrol Officers.
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JUVENILE DETENTION CENTER
Mission, Oreanization. and Staftin~
The mission of the Juvenile Detention Center is to "provide a safe and secure
environment for the juveniles in County care while they are awaiting placement by the court, and
to ensure staffactions and attitudes are positive and professional and meet the standards of the Saline
County Sheriffs Office and the licensing agency, the Kansas Department of Health and
Environment."g
The authorized staffing of the Center is one Sergeant (Facility Manager) and seven
Corrections Officers. The Sergeant reports to the Undersheriff, who is the Program Director. The
Juvenile Detention Center is chronically understaffed with two full-time positions being vacant for
an extensive period and one position remaining vacant to date.
The Kansas Department of Health and Environment who licenses Juvenile Detention
Centers requires that all shifts, which consist of three a day for seven days a week, be staffed by male
and female team. These requirements cannot be met with seven authorized positions so the shifts
are "staffed out" \vith part-time civilian employees. The pay rate for these part time employees is
S6.25 pcr hour and the shifts they work are from 4:00 p.m. to midnight and midnight to 8:00 a.m.
It is repot1ed 0 be difficult to meet these conditions, since applicants have other jobs or are collegc
students.
The part-time staffing is economical. The downside is that it is not possible to quickly
train these individuals and turnover is high, negating training that is done. It is also difficult to
schedule part time employees \vho have other commitments.
Operations
Note that the juveniles placed in thc Detention Centcr are chargcd with significant
crimes to include aggravated assault. drug possession and sale. kidnaping, burglaries, felony thefts
and sex offenses. This is a scrious busincss and thc County is exposed to a higher dcgrce of risk and
liability by starring out shifts with part time personnel who have direct supervision/contact \vith
juvenile inmates and who usually do not havc thc training and experience of full-time personnel.
SFrom a statement prepared by Scrgeant Marilyn Shogren, Juvenile Detention Center
Facility Manager.
Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA 22102-3322
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Part-time employees are not trained for, or expected to, participate It1 physical
confrontations that occur.
The current population of the Juvenile Detention Center is 10 (the maximum)
incarcerated for charges ranging from theft through battery, contempt of court, escape from custody,
possession of drugs with intent to sell, battery of school employee, criminal threat and similar
serious charges.
The scheduling, coverage, required strip searches, and two persons on at all times
requirements would be facilitated with all full-time personnel and the County's risks lessened.
Conclusions
The ideal arrangement, from an operational perspective, would be to have three
additional full-time positions as opposed to the current seven full-time plus part-time. During the
period ofP AS's observation of operations, the Saline Juvenile Detention Center appeared well run.
The staff was upbeat, respects the Center Facility Manager (the Sergeant), and works hard at their
jobs. Unfortunately, recently there have been incidents at the Center (an unsuccessful escape attempt
and alleged sexual exploitation of a female juvenile by other juveniles), which heightens the need
for well quali fied and trained staft'personnel. Comprehensive training would be easier to accomplish
if all positions were full-time. Alternatively, the situation related to scheduling of staff personnel
could be improved if the state oversight agencies reduced the requirement for a "male-female" team
to be on duty at all times.
It is understood that the Sheriff is attempting to discuss this \vith state officials. Even
considering the recent incidents, P AS believes that part-time personnel can be successfully recruited
and trained to work in the Juvenile Detention Center. In short, hiring all full-time personnel in itself
will not make the Centcr incident proof.
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Public Administration Service 7927 Jones Branch Drive, Suite 100 South. McLean. VA 22102-3322
III. EXAMINATION OF WORK PLACE ATTITUDES,
COMMUNICATIONS, AND LEADERSHIP IN THE
SALINE COUNTY SHERIFF'S OFFICE
Attitude Surveyin2. Should be Viewed ~lS a Research Tool
in Studvin2: Or2.anizations--Not the Solution to Work Place Problems
An important clement in the analysis of a la\\' enforcement agency's organization and
management is an understanding of the employees' opinions, feelings, and perceptions toward work
and the environment in which it is carried out. Attitude surveys, if done well, systematically assess
the opinions and perceptions of the employees regarding both their work and work environment.
Employee surveying can also be used more broadly to identify labor's view of management policies,
procedures, and priorities, including the extent to which the goals and philosophy of the organization
are shared by its members. In addition, because employees are deeply involved in the day to day
\vorkings of the organization, their perceptions can aid in identifying specific problem areas.
Of course, there are potential problems with the interpretation of results from employee
surveys. It is likely that there is some level of generalized dissatisfaction endemic to almost any
workplace, making it difficult to determine at what point dissatisfaction is a serious problem worthy
of management attention. Also, employee surveys by definition measure opinions, perceptions, and
feelings. Employees can differ markedly among themselves in how they perceive and react to a
given situation, and their perceptions can be quite different from organizational realities. In addition,
filling out an attitude questionnaire can become a political act, with employees exaggerating their
reactions in order to bolster support for or opposition to particular programs and practices. Activities
such as labor negotiation color responses and must be considered when reviewing and interpreting
the data. In addition. it should be noted that a positive attitude towards a supervisor may exist, not
because of excellence of supervision, but due to an absence of it.
There is no completely satisfactory way to get past these inherent difficulties. Several
steps will, however, be taken to set the survey's response in perspective. PAS has conducted a
number of sheriff/police employee surveys, and Saline's survey responses will be compared with
those from other departments. Also, comparisons between subgroups within the Saline County
Shcriffs Office will bc used to identify how widespread or localized a particular opinion may be.
In thc final analysis,judgmcnts of the importance ofa particular resuit should be based
not only on the rcported figures, b~lt also upon the readcr's knowledge of local conditions. values
and expcrience.
54
Public Administration Service 7927 Jones Branch Drivc. Suite 100 South.1\IcLcan. VA 22102-3322
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Survev Administration
To collect employees' attitudes, opinions, and perceptions of the workplace, survey
questionnaires were distributed during a study orientation session to 72 employees of the Saline
County Sheriffs Office. The purpose of the survey and instructions on completing it were explained
at the orientation sessions and in a cover letter. Upon completion of the survey it was turned in to
the PAS Project Manager who presented the orientation. The number of questionnaires returned by
division is shown below.
Table 6
QUESTIONNAIRES COMPLETED
Personnel Number Completion
Division Assigned Completed Rate-%
Adm inistration/Office of Sheriff 14 12 85.7
Road Patrol J" 22 95.6
--'
Corrections and Juvenile Center 47.80 38 79.5
Total 84.80 72 84.9
Survev Results
The survey form was divided into sections that asked employees questions about
different aspects of work. Tables are presented here that contain results of employee responses to
those questions. All survey questions were tabulated and analyzed using a standard statistical
package (SPSS).
General Workin2 Conditions
Tablc 7 (on the next page) describes thc employees' gcneral evaluations of thcir
work environment. Respondents \vere presented with 12 statements and were asked to state the
dcgrcc to \vhich they agrecd or disagreed with them.
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Pu blic Administration Service 7927 Jon~s Branch Drive, Suite 100 South. McLean. VA n 102-3322
57
The highest average score (4.18) supports the statement that the citizens of Saline
County appreciate the work of the employees of the Sheriff's Office. The next highest average
(4.15) relates to the statement that ., County residents expect a response to all complaints". " This.
is followed by emphasis on "more (more effective) communications between the Sheriffand county
administration." This must be considered in light ofP AS finding that supervision was lax in Patrol.
In short, employee perception may not reflect the real situation. ,
Looking further at the survey results from the percentage of respondents agreeing with
key statements, the highest percentage (90.28) support the statement that "employees receive
adeq uate direction from supervisors." This does not correspond to PAS's finding that supervision
was lax in Patrol. In short, in this case, perception and reality differ. More than four-fifth's of
employees (86.11 %) regard their job as satisfying and rewarding. About 83% of employees agree
that their duties and responsibilities are very clearly defined.
Less positive results included: 50% of the employees indicating they "felt like team
members," 75% indicating the need for more (effective)communications between sheriffs office
and county administration; and responses reflecting a perception offavoritism and inconsistent and
ineffective application of discipline.
Table 8 on the next page compares a subset of the questions asked in this section
of the survey that were also asked of the 30 other police and/or sherifrs departments around
the nation for whom PAS has completed studies. Those results suggest that answers from Saline
County sheriffs office employees are comparable to those of other law enforcement agencies.
Satisfaction with Aspects of Work
In this element of the survey, employees were asked to be more specific and rate
their level of satisfaction with selected, important aspects of their work. The amount of
responsibility exercised on the job and immediate supervision are the areas employees are most
satisfied with (over 70%) The least satisfying (4%) is support of the county officials. Table 9
displays the results of those answers in terms of the number of employee responses in each
category. One-fourth of the Sheriffs employees (25%) are satisfied with salary and slightly morc
(30 %) of employees are satisfied with fringe benefits. Less than 30% are satisfied \vith equipment.
Only a small number, 20%, are satisfied with the promotional opportunities and only 28% with
thc promotional procedures. A very small numbcr of Sheriff's employees (4%) find support from
the county officials adequate.
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58
Tabk 8
COMPARISON OF SALINE COUNTY SHERIFF'S OFFICE WITH 30 OTHER DEPARTMENTS
OPINION OF WORKING CONDITIONS ·
I r~c~iv~ adequate direction from my sup~rvisor.
Saline Sheriff's All 30 Pacent
Oflic~ D~partments Difference Di ff~r~nc~
-
-UI 3.73 0.38 9.29
3.96 3.59 0.37 9.38
My duties and responsibilities are very cl~arly ddin~d.
In my job. I feel mor~ like a m~mber ofth~ team rather
than just an employ~e.
3.3\
2.89
0.42
12.68
In my d~partment, I do not clearly know who is in charg~.
2.04
2.22
-0.18
-8.82
My immediat~ supervisor frequently asks my opinion on
matters concerning my job.
0.28
8.44
~ ~.,
.>..>-
3.04
I fed there needs to be more communication between
my department and the county administration.
0.08
1.85
4.\\
4.03
The citizens of Saline s~em to appreciate the work of
Sheriff's employees on their behalf.
0.69
16.49
4.\8
3.49
I do not have a clear understanding of how my
performance is reviewed and cvaluated.
2.33
2.93
-0.60
-25.58
In my department. disciplinary actions arc applied
cfTectively and consistently.
2.69
2.70
-0.01
-8.92
Getting ahead in my department depends on who you know.
not what you know.
2.85
2.90
-0.05
-1.75
· l\vcrage based on scaks ranging from I (strongly disagree) to 5 (strongly agree).
.. DilTerence is signilicant atl% kvcl.
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Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA n 102-3322
60
Once again, PAS compared responses received from other organizations to those
obtained from Saline regarding their satisfaction with specific aspects of work. Those results are
presented in Tablc 10 and suggest that Saline County Sheriffs employees have more positive
feelings about relationships with fellow officers, internal communication, and leadership. Positive
differences in opinions are also found in salaries, promotional opportunities, facilities, equipments,
policies and procedures, discipline, immediate supervision, training, and amount of responsibility
exercised. Negative differences are found in support for the department from county officials and
fringe benefits.
Pcrception of Departmental Effectiveness and Emnlovee Working Relationships
Table 11 illustrates employee perceptions of departmental effectiveness and employee
working relationships. More than three-fourths of the employees rated over all public service
provided by the Saline County Sheriffs Office adequate or above. The employees' perception of
effectiveness was highest for court service, followed closely by investigations. The lowest
"effecti veness scores" were for prevention of crimes against property and j ai I service.
On relationship questions, the highest number of employees (95.83 percent) were of the
opinion that the relationship between fellow officers is cordial. However, only 14.49 and 19.12
percent employees see an acceptable relationship with the County Commissioners and County
Administrator respectively.
Tablc 12 compares the above responses from Saline County sheriffs employees with
those in other PAS studies. Salinc County employecs rated scrvices they provided highcr than
in comparable agencies.
As pertains to working relationships with others, except for County Commissioners and
the County Administrator, scores are higher for Saline County sheriffs employees across the board.
61
Table 10
COMPARISON OF SALINE COUNTY SHERIFFS OFFICE WITH 30 OTHER DEPARTMENTS
SATISFACTION WITH SPECIFIC ASPECT OF J013
Support for the Department by County oflicials
Saline County All 30 Percent
Sheriffs Oflice Departmc~ts Di tTerenee DitTerence
.- ----
2.60 2.37 0.23 8.87
2.77 2.79 -0.02 -0.65
2.94 2.59 0.35 12.04
-------- ---~---- - _n._______.._
3.46 2.21 1.25 36.01
__.__~.n___~____________.. __
2.68 2.53 0.15 5.52
3.21 2.86 0.36 11.17
- ,_.------ ----_.~..--_..._-
3.35 3.06 0.29 8.67
3.04 2.67 0.37 12.25
3.83 3.64 0.19 4.95
3.08 }.59 0.49 16.05
--- ---.-----,-.- ..-.- .--
3.35 2.79 0.57 16.89
----- -~---- _._-...-,._-
2.93 2.41 0.52 17.87
3.79 3.64 0.15 3.91
1.60 1.88 -0.2l' -17.60
Salaries
Fringe bendits
Promotional Opportunities
Facilities
Equipment
Relationships with fellow police oflicers
Policies and procedures
Discipline
Immediate supervision
Internal communication
Executive leadership
Training
Amount of responsibility you exccrcisc on thejob
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63
Table 12
COMPARISONS OF SALINE COUNTY SHERIFF'S OFFICE WITH OTHER DEPARTMENTS
PERCEPTIONS OF DEPARTMENTS EFFECTIVENESS, AND
EMPLOYEES' WORKING RELATIONSHIPS WITH OTIIERS
· Average based on scales ranging from I (Much Improvement Needed) LO 5 (Excellent).
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Public Administration Service 7927 Jones Branch Drive. Suite 100 South. McLean. VA n 102-3322
64
Response to Questions Based on Division
Table 13 shows responses by divisions. Overall, Corrections was least satisfied and
Administration most satisfied with specitic aspects of their jobs.
Response to Open-Ended Ouestions
The average age of respondents, was 36.63 years. There were 39 individuals who had
been with the Saline County Sheriffs Oftice from I to 5 years (56%), 15 \vith 5 to 10 years (21 %),
13 from 10 to 20 years (19%) and 3 with more than 20 years (4%).
Only 7 individuals sampled (10%) reported no formal education beyond high school.
There were 36 individuals who had completed some college courses (51 %). Eight individuals
completed associated degrees (11 %) and four individuals have completed some courses beyond their
associated degree (6%). Only 18% of the sample (13 individuals) had completed bachelor degrees
and 3 individuals (4%) have post graduate degrees.
65
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Paraphrasing comments frequently made about what employees like most about their
jobs, from most common to least common, include the following:
Challengcs; variety of jobs; never repetitive.
Flexiblc hours.
Making a differcnce in people's lives; helping people 111 need;
interaction with people.
Community service.
Professional development.
Bible study \vith inmates.
Thc dedicated and wonderful people I work with.
The ability to follow the whole task through from beginning to end.
Fellow staff.
Conversely, the most frequent comment made about what employees disliked most
about their work, in order from things mentioned to things mentioned least, included the
following:
Conflict (referred to as "infighting") between the Sheriff and the
County Administrator/County Commissioners.
No pay raise.
Satisfying prominent citizens, i.e, "politics."
Low morale.
Budget cuts; lack of technology, computer and manpower.
Poor internal communications; one way communication (top down).
No rewards but punishment that is not proportionate to the offense.
Limited promotional opportunities.
Not being heard.
Lack of training; trained staff moved to different division after
training.
High turnovcr of staff.
Treatment of corrections as a step-child.
Conclusions--Examination of Emnlovee Attitudes,
Communications, and Leadership
The survey results and employcc interviews portray Ofticc of the SheriJrs employees
as having many of the same pcrceptions/opinions (and to the same degree) as thosc in other law
enforcement departments that have becn studied by PAS.
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The survey and follow-up interviews reflect that morale is lowest in the Corrections
Division, follo\ved by Patrol. The Sheriffs employees feel that they provide effective service and
that the public recognizes this. Relationships with immediate supervisors and among employees
is portrayed as very positive.
Employees throughout the Saline County Sheriff's Office have the perception that
communications between the Sheriffand County Commission and County Administrator must
be improved and identified it as the highest non-monetary issue to be resolved.
Other priority employee issues identified in the survey and in interviews are a perception
that discipline is not administered evenhandedly and consistently throughout the Saline County
Sheriffs Office and that getting ahead depends on who you know.
Promotional opportunities and procedures are questioned and pay and fringe benefits are
felt to be too low.
On the other hand, comments and perceptions of the workplace \vere significantly more
positive in the Saline County Sheriff's Office than the other departments PAS used as comparables
with 86% of Saline Sheriff's employees indicating their jobs are satisfying and rewarding and that
over 90% of these employees indicate that they receive adequate or better direction from immediate
supervIsors.
Recommendations
Some basic suggestions to cope with the work place attitudes and perceptions are
outlined below.
I t is recommended that:
. The County Commission, County Administrator, and Sheriff
continue to make an all out effort to improve relationships and
solve the communications problem. One approach \vould be to
continue the study steering committee as a body to resolvc day to day
issues that go beyond the dcpartmental boundarics of the Saline
County Sheriff's Office, to continue to plan for the provision of law
enforcement and correctional scrvices and to make joint
recommendations to the Commission as a whole. This steering
committec could be augmcntcd by a sheriff's office employee who is
not a mcmber ofthc command team. This cmployee could serve as a
conduit of information to Sheriff's employees generally.
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. Ensure that the Sheriffs policies and procedures are consistent
with those of the County and that they are understood and
approved by the County Commission. The above-mentioned
steering committee could be used to facilitate understanding where
unique practices are necessary in the Saline County Sheriff's Office
and could follow up to ensure action!approval by the Commission in
a timely manner.
. The Sheriff form a Sheriffs--Employee Committee that would
allow employees at all levels to participate in discussing the
workplace, their uniforms and equipment, policies and procedures,
the facilities, career patterns, and other matters agreed to and include
serving on subcommittees to discuss and implement this report. The
committee would follow parliamentary rules of procedure and
decisions would be made on matters by the Sheriff who would
personally chair the committee.
· Officers /employees/supervisors should exercise initiative. When
it is apparent that a problem is developing, employees/supervisors
should act to solve it before it becomes more serious.
· Personnel in positions of leadership should practice "hands on
supervision." This should include visits by the Sheriff to roll
call/shift change to where he can emphasize his vision and goals for
the department. The Sheriff and command team should also pay
unannounced visits to units on duty and periodically participate \vith
them in operations. This could include the command team (Captains
and above) serving weekly tours as watch or duty officer for Patrol
and Corrections to ensure consistent management during night shifts
and on weekends and holidays.
· Supervisors should strive to be leaders and, in addition to
focusing on accomplishing the assigned mission, should look out
for the welfare of their personnel. Supervisors should also
encourage personnel to support the activities of other elements of the
department and cOllnty government rather than being unduly critical.
· An official spokesperson should be used to convey the overall
county position on public safety matters. In ordcr for this to work,
the Sheriff and other lcaders in the department must bc rcsponsive
(this does not mean always agreeing, but making an all out effort to
respond in a timely manner with the facts and/or appropriate action
on them). In short, the roles of all players in thc governance/law
enforcement system should be understood and observed. This takes
leadership.
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IV. POLICIES, PROCEDURES, AND MANAGEMENT PRACTICES
This chapter includes a discussion of:
· County policies and procedures and national accreditation
requirements.
· Other forms of government and umque approaches by local
government and law enforcement.
· SCSO planning, programming, and budgeting.
. Management of overtime.
· Performance measurement and reporting in law enforcement.
· Information systems support.
· Privatization of corrections.
· Equipment, facilities. and capital outlay.
National Accreditation and County Policies and Procedures
Accreditation, as discussed herein, applies in two areas:
· Overall law enforcement agency accreditation under the auspices of
the Commission on Accreditation for Law Enforcement Agencies, Inc
(usually referred to as CALEA). For example, the City of Salina
Police Department is accredited under CALEA.
· Accreditation ofthe Jail in accordance with the American Corrections
Association (ACA).
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CALEA
The Commission on Accreditation for Law Enforcement Agencies was formed in 1979,
with the support of thc International Association of Chicfs of Police and thc National Sheriff's
Association, to establish a body of standards designed to (1) increase law enforcemcnt agency
capabilities to prevent and control crime; (2) increase agency effectiveness and efficiency in the
delivery of law enforcement services; (3) increase cooperation and coordination with other law
enforcement agencies and with other agencies of the criminaljustice system; and (4) increase citizen
and employee confidence in the goals, objectives, and policies, and practices ofthc agency. In order
to facilitate the accomplishment these goals, the Commission developed an accreditation process that
provides law enforcement agencies the opportunity to demonstrate voluntarily that they can meet
established professional standards.
This Commission has developed, tested, and revised over 20 years an accreditation
process that includes the following steps:
CALEA Assessment Process
o Apply to, and acceptance by, CALEA
@ Carry out self assessment
~ On-site assessment by CALEA Tean1
o Commission review
o Maintaining compliance/re-accreditation
I. Application: The accreditation process begins when an agency
applies to thc Commission for applicant status. Once agency
eligibility has been confirmed, the agency and the Commission sign
an accreditation agreement that identifies what is expected of each
party. The agency completes and returns an Agency Profile
Questionnaire (APQ). thereby providing agency-specific information
to facilitate interaction with the accreditation manager in determining
applicability of standards, interpreting standards, and providing
program-related assistance.
2. Self-Assessment: The return of the APQ triggers the delivery of all
necessary materials for the accreditation manager to usc in
conducting the agency's self-asscssment. The manager initiates
agency sclf-assessment, which involves a thorough examination by
thc agency to determine whcther it complics with all applicablc
standards. The agency preparcs forms and develops "proofs of
compliancc" for applicable standards (including briefcxplanations for
not complying with other standards) and assembles thc material in a
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manner that will facilitate a review by Commission Assessors. When
the agency is satisfied that it has completed all compliance,
preparation, and planning tasks, it notifies the Commission that it is
ready to become a candidate for accreditation.
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3. On-Site Assessment: The Commission approves the agency's
candidate status, selects and trains a team ofassessors, and schedules
all activities for the assessment team's on-site review of the agency
during a period mutually agreeable. Assessors provide the agency
with verbal feedback on their progress during, and at the conclusion
of: the assessment. Later, the assessors submit a formal, written
report of their on-site activities and findings. If the final report
reflects compliance with all applicable standards and with required
on-site activities, the agency is scheduled for a Commission review.
If compliance issues remain unresolved, the agency may return to
Step 2 and complete unfinished work, or it may choose other options,
e.g., appeal or voluntary withdrawal.
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4. Commission Review: The assessor's final report is forwarded to the
Commission when all applicable standards and required activities
have been complied with. The Commission schedules a hearing at
one of its meetings, usually the meeting immediately following the
on-site assessment. The agency and its chief executive officer are
invited to attend, although attendance is not required. At the hearing,
thc Commission reviews the final report and receives testimony from
agency personnel, assessors, staff, or others. If satisfied that the
agcncy has met all compliance requirements, the Commission awards
the agency accredited status. Accreditation is for a three-year period.
5. Maintainin~ Comnliance and Reaccreditation: To maintain
accredited status, the accredited agency must remain in compliance
with applicable standards. The agency submits annual reports to the
Commission attesting to continued compliance and reporting changes
or difficulties experienced during the year, including actions taken to
resolve noncompliance. I f necessary, the Commission reserves the
right to schedule interim hearings to consider continuing accrcdited
status if noncompliance becomes a serious issuc. At the conclusion
of the three-year period, the Commission otTers the agency an
opportunity to rcpeat the process and continue accrcditcd status into
thc future.
A very important part of thc accreditation process is the development of policies and
procedures for the law enforcement agencies in areas encompassing:
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. Law enforcement, role, responsibilities, and relationships
. Organization, management, and administration
. The personnel structure
. The personncl process
. Law enforcement opcrations
. Operations support
. Traffic operations
. Prisoner and court-related activity
. Auxiliary and technical services
Please note that the CALEA requirements for policy and procedural development
are broad enough so that Saline County's Personnel Policies and Procedures (as described in
the County Manual with an effective data of 01-01-91) can be utilized without modification in
the Saline County Sherifrs Office. Unfortunately, in a recent disciplinary action the County's
policy related to progressive discipline was not follo\ved and the resulting choices for discipline were
such that appropriate action was not taken for serious infractions. This was caused in part by the
Saline County Sheriffs Office following an internal policy and using an approach to discipline that
did not follow county policy.
P AS reviewed all county personnel policies and procedures and concluded that they do
not conflict with CALEA standards and can readily be followed by the Sheriff. PAS does
recommend. however, that the county practice of limiting the hiring of patrol deputies to those
serving in Corrections be discontinued and that these deputies can be recruited and hired directly for
patrol functions.
As pertains to law enforcement technical standards (for example, use of deadly force),
the Shcriff should continue to have policies and procedures developed within CALEA level
standards.
Jail Accreditation
This is carried out by the American Corrections Association (ACA), which IS a
professional association of corrections officials. It is "self described" as follows:9
"More than 1,500 correctional facilities and programs are involved in
accreditation. a process that began in 1978. Approximately 80% of all state
departments of corrections and youth services are active participants. Also
included arc programs and facilities operated by the federal Bureau of
Prisons. the U.S. Parole Comm ission. and the private sector.
9From the home page of ACA. dated 5/5/99.
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For these agencies. the accreditation program offers the opportunity to
evaluate their operations against national standards. to remedy deficiencies,
and to upgrade the quality of correctional programs and services. The
recognized benefits from such a process include improved management. a
defense against lawsuits through documentation and the demonstration of
a 'good faith' effort to improve conditions of confinement. increased
accountability and enhanced public credibility for administrative and line
staff, a safer and more humane environment for personnel and offenders.
and the establishment of measurable criteria for upgrading programs,
personnel practices. and physical plant on a continuous basis."
The assessment and accreditation process is similar to the one previously described for
The benefits of accreditation are described as: 10
.
Reduced liability insurance costs. As an incentive for agencies
willing to participate in ACA's national accreditation program, two
insurance companies offer a credit on liability insurance premiums to
accredited facilities. Adherence to nationally recognized standards
for fire, safety, health, and training reduce claim expenses, allowing
up to a 10% credit on liability insurance premiums.
.
Defense a2:ainst lawsuits. Accredited agencies have a stronger
defense against litigation through documentation and the
demonstration of a "good faith" effort to improve conditions of
confinement.
.
Establishment of measurable criteria for up~radin2: onerations.
Through the standards and accreditation process, agencies
continuously review agency policies and procedures, and have the
ability to make necessary improvements Vv'hen deficiencies are
recognized.
.
Imnroved staff morale and professionalism. Accreditation is
awarded to the "best of the best" in the corrcctions tield. Staff have
a bctter understanding of policies and procedures and this contributes
to improved \vorking conditions tar staff.
.
Safer cnvironmentfor staff and offenders. Administrativc and line
staff, as \vell as offenders, benefit from increasc accountability,
attention to physical plant issues and security procedures.
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Conclusion and Recommendations
Follow county personnel policies and submit all SCSO policies and procedures to the
County Commission for approval. This is accomplished in accordance with the authority of the
Commission, the statutory requirement lor the Sheriff'to comply with county personnel policies, and
the desire to cooperate to provide a workplace that provides for equal treatment and effective public
service.
Sheriffs Plannin2:
Law enforcement planning, as discussed in this report, at the most basic level refers to
obtaining data and developing intorn1ation that can be used to facilitate and systematize decisions
on the use of personnel.
At present, there is no formal planning process in place in the Saline County
Sheriffs Office. .
The most pressing current planning need in the SCSO is for a series of automated
reports to support the management of Road Patrol. The computer-aided dispatch system
operated by the City provides the necessary report generating capability to provide useful reports on
calls for service by day of the week, hour of the day, by patrol districtlbcat; time spent on calls; self
initiated and preplanned activity by officers; reports by officers; incidents and workload
measurcmcnt by time period. These CAD based reports also provide the input for automated
models that evaluate results that could be achieved by fielding different numbers of patrol
units at different times of the day and days of the week.
In order to get started, responsibility for generating the necessary reports should be
assigned. The planing function should be placed in the Administration Division and should be
carried out by he Administration Captain who has the necessary computcr skills for the
assignment. He should coordinate with the Patrol Captain to ensure that all needs for operating
information are covered. Note: The assignment of responsibility has taken place as PAS is
completing the final report.
The basic reports necessary include thc following:
. Number and time spent on citizen gcnerated calls lor service by hour
of the day and day of the week. This is the primary source of data for
making staffing dccisions.
. Citizen generated calls for police service by type and priority, by day
of the \veek, and by patrol beats.
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· Incidents in error. This lists calls for service for which a "time
milepost" is missing such as arrival or clear timc which at bcst
invalidates data and at worst can bc a cover for taking cxcessive
"breaks. "
· Patrol plan input report. This provides the data to conduct an analysis
of patrol deployment.
· Response time by beat, four-hour time pcriod, priority and day of the
week.
· Administrative time by four-hour time periods, by beat, and day of
week.
. Planned patrol activity record.
· Officer initiated activity by four-hour time periods by beat and day of
week.
· Response units dispatched to calls for service received from reporting
areas in beats. This facilitates geographic responsibility and beat
integrity.
· Reports completed by patrol ofticers. The Patrol Captain should
monitor the time spent by officers completing reports in the field for
the different type of incidents, as well as reviewing the reports
As \vas previously mentioned, the Saline County Sheriffs Oftice is well on its way to
generating and using the above basic reports.
In addition to these patrol management information reports, the Road Patrol
Captain should reinstate written shift activity reports to be prepared and signed by each
officcr. The signing of this report closes the "accountability loop" by authenticating they carried
out certain activities. This report could be compared \vith the CAD generated activity reports and
discrepancics flagged and discussed with the officers concerned. A CAD generated activity report
that is not revicwed by the omcer and patrol supervisors will not suffice.
Subsequent to getting the above reports produced and used on a recurring basis, more
sophisticatcd planning can be undertaken to include the use of automated staffing models such as
Patrol Plan or Managing Patrol Resources, as is illustrated in the appcndices.
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In addition, the Administrative Captain and Sergeant should be assigned a long range
planning task of serving as a staff resourcc to dcvelop performancc measurcs for use in SCSO.
Notc that this projcct requires the pcrsonalleadcrship of the Sheriff and the participation of
the command tcam of the Undershcriff and all Captains.
Performance Measurement
The "how" of accountability is performance measurement. Performance measures have
been used in law enforcement for years with varying degrees of success." Organizational
pcrformance measurement is not currently in use in the SCSO.
Performance Measures--Link to Accountability
Performance measures in the hands of competent managers can be "drivers" of change
in an organization because they link use of resources to results. Establishing effective performance
measures allows law enforcement agcncies to meet service demands by linking the use of
resources to outcomes. These measures are important since they can be used to:
. Instill a sense of mission in the organization and urgency Il1
individuals.
. Serve as a means for communicating an organization's vision and
performance.
. Identify areas where productivity can be improved.
. Improve the credibility of the law enforcement agency.
. Provide a structured mcans for linking priorities and budget
decisions.
Most importantly, performancc measurcs can hclp organizations scrve customcrs
whilc monitoring the use ofresourccs. They allo\v a lav,: enforcement managcr to stay focused on
results and to allocate rcsourccs to achieve goals and objcctives. Mcasuring results also allows for
coursc corrcctions so that accomplishmcnt of primary objcctivcs can bc concentrated upon.
Performance measures support benchmarking and the identification of best practices.
Benchmarking cntails the comparison of an agency's performance on critical measures of success
with the performance of other organizations on these factors. With this information it is possible to
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identify opportunities for financial, organizational, and operational improvements. Benchmarking
comparisons can be used to identify below standard performance but more importantly can be
used to identify high performers and the practices that they use to achieve high performance.
No single array of performance measures will meet all needs. External factors peculiar
to a community intluence policing requirements and measures necessary to determine performance.
These include demographics such as population change--due to tourism, presence of a
college/university, seasonal transplants, migration of immigrants to follow a leader (for example,
various groups from Southeast Asia), land use change and growth, etc. Other factors include a
topographical variance (access, terrain, location as relates to facilities that can be used for the
infiltration of illegal aliens and drugs/contraband and the cultural dimensions), ethnic composition
of population, unemployment rate, homeless, single parent homes, latchkey children, age of
population, and the overall political environment.
The starting point for developing useful performancc mcasures is an understanding
the needs of the community. This is usually initiated with a citizen satisfaction survey carried
out at least every three years. Some other law enforcement agencies use "contact surveying" in
which a sample of individuals who have come into contact \vith the agency are asked to comment
on that contact.
Performance measures are usually of four different types:
1.
2.
Input
Output
-.
J.
Efficiency
Outcome
4.
. A definition and examples of these measures are as follows:
LAW ENFORCEMENT MEASURES
INPUT MEASURES: Address the amounts ofresoun:es OUTPUT MEASURES: Describe the activities undertaken
used to provide a particular service in providing a service
. Amount of time that units arc available for emergency . Number of parking violations issued.
response. . Number of arrests made.
. Hours spent providing road patrol. . Number of accidents investigated.
. Number of patrol cars. . Number of residential burglaries inv<:stigated.
. Number of sworn orticers versus non-sworn oflic<:rs. . Street value of illicit drugs s<:iz<:d.
OUTCOME MEASURES: Evaluat<: the quality and EFFICIENCY MEASURES: R<:late rcsourccs us<:d 10 units
clTectiv<:ness of programs of output
. Pncent increase in arrests. . A v<:rage warrants issued pn employ<:c pn day.
. Percent incrcase in patrol hours. . cost p<:r case arrest.
. Changc in crim<: rat<: by neighhorllOod. . I lours spent p<:r arrest.
. Public perception of salety by neighborhood. . Minutes spent per report.
. Percent of community involved in a community-based . Percen! of r<:ports rcceived daily and processed in a 2-l-
strategic plan for law enforcement. hour period.
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Law enforcement performance measures typically focus on activity and input
rather than outcomes or value provided to the community. In addition, modern measures should
consider customer satisfaction, bc designed to encourage positive change in scrvice delivery by thc
agency, and be developed with an undcrstanding of how activities drive organizational success.
Modern, Effective Performance Measurcmcnt
To be cffective, performance measures must address service delivery. It should be
recognized that the various areas/levels of an organization require different types of performance
measures and that they should reflect not only agency performance but also include individual effort
throughout the organization.
As relates to the organization, an effective modern performance measurement system
should have the following characteristics:
. Understandable significance of the measures used.
. Maximum congruence between the organization's objectives and
performance measures.
. A focus on what is important and not on what is simply easy to
measure.
. Flexibility to change measures when the organization's goals and
objcctives change.
An illustration of the linking of goals and objectives with performance measures is
provided in the table below, which is from the classic work by Harry P. Hattery, et al. entitled "How
Effective Are Your Community Services?" II
Ovcrall Goal: To promote the safety of the community and a feeling of security among
the citizcns, primarily through the deterrence/prevention of crime and thc apprehension of offendcrs,
providing scrvice in a fair, honest, prompt, and a courteous manner to thc satisfaction ofthc citizcns.
IIPages 86 and 87, "I-Iow Effective Are Your Community Scrviccs?" I-Iarry P. Hattcry.
Louis Blair, Donald Fisk, John Greiner, John Hall, and Philip Schaenman, thc Urban Institute
1997. This publication was updated in 1992 and the update I retlected in the rcferenced material.
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Table 14
PERFORMANCE MEASURES-LAW ENFORCEMENT
Quality Characteristic
Objective (or Service Aspect) Specific Measure Prime Data Sources
Prevention of crime Reported crime rates I. Number of reported crimes per 1.000 Incident reports
population. total. and by type of
crime.
Victimization rates 2. Number of reported plus the non General citizen survey
reported crimes per 1.000 households
(or residents or businesses) by type of
crime.
DifTerent households and 3. Percentage of (a) households. General . .
Cillzen survey.
businesses victimized (b) businesses victimized. business survey
Physical casualties 4. Number and rate of persons Incident reports
(a) physically injured. (b) killed III
course of crimes or nontraflic. crime-
related police work.
Property loss 5. Dollar propcrty loss from crimes per Incident reports
1.000 population (or. for businesses.
per S 1.000 sales).
Patrol c1Tectiveness 6. Number of crim<::s observable from Incident reports
the street per 1.000 population.
Inspection c1Tectiveness 7. Number of crimes per 1.000 Incident reports. inspection
businesses in relation to time since records
last crime prevention inspection.
Peacekeeping in 8. Percentage of domestic quarrels and Dispatch records. incident
domestic quarrels and other disturbance calls with no arrest reports
other localized and no second call within "x" hours.
disturbances
Apprehension of Crimes "solved" at least 9. Percentage of reported crimes cleared Incident reports
offenders in part by type of crime and whether cleared
hy arrest or by "exception."
Completeness of 10. Percentag'~ of known "person-crimes" Incident reports. arrest
annrehension cleared bv tvne of crime. I! rerorts
120ne person committing four crimes or four pcrsons committing one crime would be
four "person-crimes." When thc number of offcnders involved in a crime is unknown, as may
frequently happen with such crimcs as burglary, "one" criminal can be assumed for this statistic
(or thc historical average number of offenders for that type of crime could be used).
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Quality Characteristic
Objective (or Service Aspect) Specific Measure Prime Data Sources
Qual i ty /elTecl i veness of II. I'<.:rcentage of adult arrests that Arrest and court records
arn:st survive preliminary court hearing (or
state attorney's investigation) and
percentage dropped for police-related
reasons by type of crime.
12. Percentage of adult am:sts resulting Arrest and court records
in conviction or treatment (a) on at
least one charge. (b) on highest initial
charge by type of crime.
Speed of apprehension \3. Percentage of cases cleared in less Incident re po n. arrest
than "x" days (with "x" selected for reports
each crime category).
Stolen property recovery 14. Percentagc of stolen property that is Incident reports. arrest or
subsequently recovered: special property records
. vehicles
. vehicle value
. other property value
Respons:veness of Response time 15. Percentage of emergency or high- Dispatch records
[Jolice priority calls responded to within "x"
minutes and percentage of
nonemergency calls responded to
within "y" minutes.
Perceived responsiveness 16. Percentage of (a) citizens. General citizen survey.
(b) businesses that feel police come business survey. and
fast enough when called. complainant survey
Feeling of security Citizen perce[Jtion 17. Percentage of (a) citizens. (b) Citizen survey. business
business persons who feci safe (or survey
unsafe) walking In the i r
neighborhoods at night.
Honesty. !;limess. Fairness 18. Percentage of (a) citizens. General citizen survcy.
courtesy (and (b) businesses that feel police are business survey. and
general satisfaction)') generally fair in dealing with them. complainant survey
Courtesy 19. Percentage of (a) citizens. General citizen survey.
-
(b) businesscs who fed police are business survey. and I
gencrally courteous in dealing with complainant survey
them.
13 A satisfactory approach to measuring thc degree of corruption, mal feasance, or
negligence is lacking. Data on the number of complaints received by the County on thesc
problems should be examined, particularly when their number increases substantially.
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Quality Characteristic
Objective (or Service Aspect) Specific Measure Prime Dat:l Sou .-ces
Police behavior 20. Number of reported incidents or Police and mayor's office
complaints of police misbehavior and records
the number resulting in judgement
against the government or employee
by type of complaint (civil charge.
criminal charge. otha savlce
complaints) per 100 police.
Citizen satisfaction \\"ith 21. P.:rcentag.: of persons requesting Complainant surv.::-
police handling of assistance (or dissatislied \\"ith police
miscdlaneous incid.:nts handling of their p robkms.
categoriud by reason fo r
dissatisfaction. and by type of call).
Citizen satisfaction with 22. Pacentage of (a) citizens. General citizen survey.
overall perlorrllance (b) businesses rating police business survey. and
performance as excellent or good (or complainant survey
fair or poor) by n:ason lor satisfaction
(or dissatisfaction).
Vice. Drugs, and Similar Offensesl'
Apprehension Level and focus of arrest 23. Number of arrests for vice- and drug- Booking records
activity rdated crimes by type of crime (e.g..
prostitution. gambling. narcotics
possession. narcotics sales. etc.) and
type of drug and by "big fish" or
"little fish." if possible.
Quality ofarrcsts ~kasun:s II and 12. Arrest and court records
Citizen satisfaction Citizen perception of 24. Percentage of citizens \\"ho feel that General citizen survey
seriousness of problem (a) pornography. (b) rrostitution.
(c) gambling. (d) soft drug usage.
(e) hard drug usage. or (I) sale of
drugs is a major problem 111 their
neighborhood or community.
Apprehension Illegal materials seized 25. Quantity and stred value of illicit Pol ice property records
drugs seized.
Availability of drugs 26 Retai I and wholesale prices for illicit Vicc squad intclligence
drugs by type and quality. data
'~These offenses have special measurement difficulties, so mcasures for thcm have been
grouped separately.
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Performance Measures/Benchmarks Appropriate for
Use in the Saline County Sheriff's Office
Benchmarkin2:
Benchmarking is a systematic process that involves comparing performance across
and among organizational units to measure and improve an organization's overall
performance. It can provide a "report card" on services so administrators, elected officials. and
citizens can make choices on how the service can be improvcd and how much service they want to
pay for. In law enforcement and corrections benchmarking focuses on performance measurement
of four types:
. Process measures monitor actIVities agencies engage in. This
includes activity such as the number of dispatched calls, numbers of
complaints taken, numbers of arrests (by type), numbers of arrests by
officers.
. Effectiveness measures gauge the successful achievement of
departmental objectives. Effectiveness measures include patrol
response time, gang related incident cleared, victims per capita,
percent of neighborhood problems solved, property recovered based
upon work of the property crimes unit, etc.
. Efficiencv measures calculate costs incurred to achieve objectives.
Costs per investigation, cost per dispatch, costs per call for service
and related measures such as number of cases assigned, number of
calls answered per staffed position, etc.
. Outcome mcasures evaluate the end product achieved and include
indices such as percent of increase in arrests, percent of increasc in
patrol hours, change in crime rates in neighborhoods, public
perception of safety in a neighborhood, etc.
Proccss, effectiveness, and efficiency measure should all "build to" outcomes.
Recommended Performance Measurement/Benchmarkin2: for Saline County Sheriff's Office
In making recommendations for pcrformancc measures to be used. wc will start \vith the
major organizational units, statc thc overall goal they should bc attempting to address, and will then
list illustrations of overall perfom1ance measures or benchmarks that should be useful and then focus
on those that are essential. Thosc that arc "essential" to focus on are stated as end products or
outcomes. Note that these measures need to be further "tailored" for use in Saline County. This
should be carried out by a committee chaired by the Sheriff with staff \vork completed by the
Administrative Captain and Sergeant.
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PATROL GOAL: A WELL TRAINED DISCIPLINED PATROL FORCE THAT CARRIES
OUT PLANNEDPATROLACTlVITlES, RESPONDS SWIFTLY TO PRIORITY CALLS FOR
SERVICE, PROVIDES A LAW ENFORCEMENT PRESENCE IN ASSIGNED AREAS,
FACILITATES THE SAFE FLOW OF TRAFFIC AND SOLVES CRlil1E RELATED
PROBLEJVIS WITH CITIZENS OF THE COll1i~fUNITY.
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Type
Outcome A.
B.
C.
D.
E.
F.
G.
H.
I.
J.
K.
L.
M.
N.
O.
P.
Q.
R
[fli::ct i veness A.
B.
C.
D.
E.
F.
G.
II.
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Efficiency
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Potential Patrol Performance Measures
Performance "Ieasures
Description
Part one crimes committed per 1.000 population by beat (and whether this is an increase or decrease
over previous year). (Depending on beat develop a target or objective and state it as "achieved
objective of reducing crimes per 1.000 by _."
Achieved patrol h<:at customer satisfaction survey results objective of 70 percent + indicating patrol
activities good or excellent.
Achieved objective of 15 minute median response time to priority one (I) calls throughout the county.
Achieved objective of 30 percent planned time for community oriented problem solving.
Number of injuries resulting from crime in patrol beat(s) (and whether this is an increase or decrease
over last year).
Percentage of citizens who feel safe or moderately safe (customer survey) and whether this is an
increase or decrease over last year.
Achieved objective of keeping average time spent on calls below 30 minutes per call.
Achieved objective of keeping costs per call for service less than S 145.
Percentagc of calls for service for domestic quarrels and other disturbanccs with no arrest and no
second call within 12 hours.
Percentage of adult arrests resulting in conviction on atlcas! one charge.
Percentage of adult arrests that survive prosecutor review and preliminary hearing.
Number of accidents.
Number of fatal accidents.
Injury accidents as a percentage of total accidents.
Occurn:ncc of [)lJl n:lated fatality accidents.
Number of interdictions carried ouL
Number of arrests.
Number of traflic stops and citations issued.
Patrol response time to critical emcrgencies (priority one calls).
Youth related incidents clcared by arrest or other.
Number of substantiated internal investigation complaints of police misconduct.
Total number of citizen complaints.
Victims per capita.
Percentage of scat belt use violators.
[)UI arrests versus DUI related accidents.
Percentage of [)UI arrestees convicted in court.
A. Cost per call for service.
B. Average time per call for service.
C. Average administrative time of oflicers on patrol county wide.
D. Percent of time all cars arc busy.
E. Average uncommitted time per car.
F. Average numher of free cars.
G. Ratio 01' citations issued pcr hour of tranic patrol timc.
II. Cost pcr citation issued.
r. Numher of acciJents investigated pcr unicer.
J. Number of accident reports written per ollieer.
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Perform:lOce i\leasures
Type Description
Workload A. Numba of dispatched emcrgcncy and non-emcrgency calls.
B. Numbcr of complaints taken.
C. Number of felony arrests.
D. Number of misdemeanor arrests.
E. Number of warrant arrests.
F. Number of omeer sell~initiated activities.
G. Number of gang family interventions.
11. Number ofproblcm solving exercises undertaken with community.
I. Perccnt of time ofliccrs spcnd in court.
J. Citations issued.
K. Aecidcnts investigatcd and reports written.
L. Tramc service requests.
M. Tranic safety presentations made.
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DETECTIVES GOAL: TO SOLVE BY ARREST OR EXCEPTION ASSIGNED CASES AND
TO PROVIDE GUIDANCE TO PATROL OFFICERS CARRYING OUT PRELlillINARY
INVESTIGA TIONS.
Potentiallnvesti2ations Measures
Performance Measures
Type Description
Outcome A. Aehiev.:d case quality control obj.:ctives of Captain and the Pros.:cutor.
8. Achiev.:d obj.:ctiv.: of ckaring an averag.: of 75 p.:rcent of all cas.:s. with no typ.: of cas.: ckaranc.: of
kss than 60 p.:rcent.
C. Achiev.:d objecti v.: 01"70 percent of good or excellent ratings from surv.:y of victims of crim.:s against
persons or property (by typ.:)in which th.: victim com.:s in contact with a dd.:ctive.
D. Perc.:ntage ofcas.:s c1ear.:d. wher.: th.: p.:rpetrator was identitied as compar.:d with the number ofcas.:s
assigned.
E. Property recover.:d as a percentage of property stolen measured by valu.:.
F. Number of individuals in the Recidivism Intervention Program (RIP) being monitor.:d by detectiv.:s
arr.:st.:d again for criminal activity.
G. Percentage of cases that survive preliminary court hearing.
E tTecti veness A. Number and percentage of cases cleared by detectives by all means.
8. Number and perc.:ntage c1.:ared by detectives by arrest.
C. Number and percentage of cases cleared by exception.
D. Percentage of cases wher.: property is recovered.
E. Value of property recovered.
F. Percentage of crimcs againsl persons/j uvcn i Ie assault cases clearcd (whcrc the perpctrator \....as
identiticd).
G. Perc.:ntage of cases prosecuted when: conviction was obtained.
H. Percentage of cases by type cleared within 30 days.
Efliciency A. .Cost per investigation.
B. 1\ ,'erage case load of detecti ves over reporting period.
Workload A. Number of assigned cases over the rcponing period.
B. Percent time spcnt in coun on cases.
C. Percent of cases having the lowest potential for solvability.
D. Number of property crimes where items arc stolen.
E. Number of hours required searching pawn shop records.
F. Number of persons crimes/juvenile assault cases clcared (where the perpetrator was identified).
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CORRECTIONS GOAL: TO PROVIDE EFFICIENTLY MANAGED AND OPERATED
FACILITIES FOR SECURE, HUMANE, DETENTION.
Potential Corrections Performance Measures
Pcrformllnce ;\Icasurcs
Type Description
OUl<.:ome A. Inspections passed.
13. Special projects approved/accepted for impkmentation.
C. Number and percentage of initially detained inmates classilied accurately.
D. Number and percentage of subsequently reviewed inmates c1assiried accurately.
E. I nmate days injury free.
F. Staff days injury free.
G. Days inmates weapons and drug free (based upon shakedowns).
H. Inmates accounted for each day.
I. Percentage of inmates on work details.
J. Percentage of inmates requesting medical/mental health care.
K. Percentage of commitments that an: error fn.:e.
L. Percentage of participants in GEl) program who pass requirements.
:VI Percentage of inmates in literacy program that learn to read beyond primary kvd.
N. Percentage of inmates who successfully compkte other special devdopment programs.
Efkctiveness A. Number of newly detained inmates classitied com.:ctly the first time.
B. Percentage and number of inmate reclassifications necessary.
C. Amount of contraband found.
D. Percent reduction in number of incidents involving inmate battery.
E. Percent reduction in number of incidents involving inmate injuries.
F. Percent reduction in number of incidents involving ul1cooperati\e inmates.
G. Percent reduction in number of incidents involving the need of inmate rcstrainb.
II. Percent rcduction in number of incidents involving property damage.
I. Percent reduction in number of incidents involving self harm.
J. Percentage of inmates detained without escape.
K. Percentage of incident free days.
Efliciency A. Overall cost per inmate day.
B. ivkdical/mental health cost per inmate day.
C. Food service cost per inmate day.
D. Revenues generated based on inmate population.
E. Costs of inmate care VS. revenues.
F. Inmates committed and/or rcleased monthly.
G. Costs per inmate classilied.
IL Security costs per inmate day.
I. Work n:lcase cost per inmate day.
J. Cost/benefit or grants (by grant).
K. Cost pcr rcport.
Workload A. Daily inmate population.
13. Compliance inspections rcquired.
C. Inmates initially c1assilied.
[) Inmates classifications revicwcd.
E Inmatcs nceding health and mcntal hcalth contacts.
F. Inmates participating in all programs.
c; Incidents occurring by type.
II. Staff turnover.
I. New starf hires.
J. Stafr training n:quirements.
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ADMINISTRA TION DIVISION GOAL: IS TO PROVIDE ASSISTANCE AND SUPPORT TO
THE SCSO ftfANAGEMENTAND TO THE OPERATING DIVISIONS AND THE COURT
SYSTE1H.
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Potcntial Administration Division Performance Mcasurcs
ADMINISTRATION DIVISION PERFORMANCE MEASURES
Description
A. Coordinates budget process and compiles annual budget within County target budget
guidelines
B. Develops preliminary SCSO budget that will be sufficient to preclude overspending.
C. Achieves and enforces. on behalf of the Sheriff. budget implementation objective of
providing timely notice to operating and management officials of potential overruns and
excessive use of overtime.
D. Achieves objective of no material internal control deficiencies in the annual audit.
E. Adm inisters the purchasing program within SCSO so as to acquire necessary and appropriate
material and equipment in a timely manner at the lowest possible cost.
F. Establishes law enforcement planning program in SCSO.
G. Develops and provides necessary management reports to Patrol Captain.
H. Reduces backlog of civil processes to be served by 25% per year.
I. Reduces backlog of warrants to be served by 25% per year.
J. Complete internal affairs investigations within established guidelines.
K. Ensure records are provided to first appearance court one hour prior to deadlines.
L. Make VINS checks within 15 minutes of request.
M. Receive ratiilgs of satisfactory or better on customer contact surveys.
N. Number and value of grants awarded.
O. Reduce time of filling vacancies by 10%
P. Increase number of DARE classes by 15%
A. Sufficiency of SCSO budget to meet needs.
8. Number of budgetary appeals submitted and number granted.
C. Number of annual audit deficiencies.
D. Number and amount of budget overruns.
E. Number of warrants served and size of backlog..
F. Number of civil papers served and backlog
G. Number of internal affairs carried out.
H. Number of grievances processed.
I. Number of VINS checks made.
J. Amount of fees and charges collected..
K. Number of budget supplements requested of Commission
L. Number and value of grants "financially administered."
M. Number and type of material del~ciencies reported in t~nancial audits of grants
N. Hours spent to develop annual budget and capital program and cost.
O. flours spent on grant financial administration and cost.
P. Grants canceled due to inadequate financial administration
Q. Number of personnel actions submitted.
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Measu res
SHERIFF'S PERFORMANCE GOALS
Goals
Duty Roster.
Incidents involving SCSO employees.
Duty tour calls responded to.
Duty/Watch Ofticer policy.
Response time report.
Committed time report.
Directed patrol report.
Number of co mill unity problems addressed.
Number of citations issued.
Part I crime rate.
Number of accidents.
Number of accidents with fatal inJury.
Number of accidents with DU I
involvement.
Percent of second domestic calls to same
address in 12 hours.
Number of arrests/interdiction.
I. Provide for effective supervision of all divisions of the Saline
County Sheriffs Office on a 24-hollr a day, 7-day a week
basis.
The Undersheriff (responsible for Juvenile Detention) and
division chiefs (Captains in charge of Administration. Patrol. and
Corrections) are responsible to the Sheriff for the management of
their respective divisions at all times. Above and beyond this
level of supervision, and to ensure coordination and control on
weekends and after normal duty hours, a watch or duty ofticer
will be appointed on a rotating basis to monitor and respond to
requests for direction and assistance from division chiefs or
supervisors on duty in operating units. The duty officer/watch
officer will be rotated among the command team (Sheriff,
Undersheriff, and three Captains) on a weekly basis. Specific
duties of the duty/watch ofticer will be detailed in an SCSO
policy.
2. Provide for an effective and efficient patrol force by:
a. Responding to "emergency" calls for service (crimes against
persons in progress and life threatening calls) and "prompt"
calls for service (crimes against property in progress in
which there is no life threat but apprehension ofa suspect is
possible or situations in which a dispute could escalate)
within a county-wide average of 15 minutes.
b. Achieve objective of keeping average time spent on calls
below 30 minutes.
c. Achieve objective of spending at least 35% of patrol time on
planned, directed patrol including community oriented
problem solving.
d. Use computer generated reports such as a "committed time
report" and individual officer activity reports as tools in
managing patrol activity.
e. Carry out traffic enforcement activities that focus on areas
with high accident potential, school zones, DUI. and
area/neighborhood complaints.
f. Patrol officers will carry out prcliminary investigations (all
misdemeanors) and follow up on approximately 60% of
felony cases.
g. Increase intcrdiction work by 25%.
h. Establish a base for reporting on Part I (serious) crime.
I. Work domestic calls to reduce the likelihood of immediate
return calls.
J. Work to monitor quality ofcascs by tracking the pcrcentage
of adult arrests that result in convictions on one charge.
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SHERIFF'S PERFORMANCE GOALS (continued)
Measurcs Goals
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Budget overruns.
Incorrect coding of expenditures.
Requests for supplemental appropriations.
Year to date expenditure reports.
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Project reports to Steering Committee.
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Project reports to Steering Comm ittee.
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Project reports to Steering Committee.
Examples of reports.
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Project reports to Steering Comm ittee.
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Project reports to Steering Committee.
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J. Improvc overall dcvclopmcnt and administration of the SO
budgct by:
a. Assigning specific responsibility for coordinating the
development and management of the budget to the
Administration Captain.
b. Submit annual budget within county target budget guidelines
that funds priority needs and is based upon expenditure
history.
c. Provide necessary leadership and guidance to ensure
expenditures are coded correctly and that expenditures do
not exceed appropriations.
4. Continue to explore and implement joint activities with City
Police Department and other agencies that improve efficiency
and effectiveness to include:
a. Joint evidence facility and custody.
b. Joint training.
5. Continue to develop accreditation level policies and
procedures and forward for approval by the County
Commission on the basis of a schedulc submitted by the
Sheriff.
6. Implement a planning program in Administration that makes
optimumllscofalltomatcd patrol managcmcnt data from the
CAD systcm.
7. Place command emphasis on rcducing backlog of civil
processcs and warrants to be served by 25% per year.
a. Use two officer equivalents to accomplish this.
b. Assess situation at end of two years and design/staff a
maintenance program.
8. Enhance Jail operations by:
a. Supporting and implementing a certified corrections officer
program.
b. Providing leadership In achieving injury free days for
employees and inmates in Corrections.
c. Emphasizing need to properly classify inmates and tracking
number of reclassifications.
d. Place command emphasis on keeping down costs per inmate
day.
e. Support reclassification of booking officers to booking data
clerks (savings of S20.000).
f. When resources permit. utilize patrol officers for transport.
" Hire ;J work rel";J~e officer
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SHERIFF'S PERFORMANCE GOALS (continued)
Measures
Goals
Staff work.
9. Provide command emphasis to providing high quality staff
work internally and on material forwarded to the County
Com mission.
News reports.
Degree of cooperation.
10. Join the County Administrator and County Commission in
reducing rhetoric and working together in a shared effort to
provide an efficient and effective law enforcement program.
Reports to Steering Committee.
II. Implement agreed upon PAS study recommendations.
Provide a recommended timeline for implementation and
monthly progress reports.
Monthly and annual reports.
12. Build on the monthly progress report to an annual report that
provides meaningful information 011 the law enforcement
program and disseminate it to the public in hard copy
summary form and on home page on the Internet.
Recurring Reports Required bv the Sheriff and Management Team
Subsequent to the implementation of patrol management information reports and
performance measures, Administration can begin work on other recurring reports sllch as those
illustrated on the next few pages.
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DAILY REPORTS/UPDATE
(That should be available to each morning not later than 0900 hours)
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Serious criminal activity (Part I crimes) by beat occurring within the last 24 hours
(makeup report would cover weekend) and action taken by watch officers.
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Serious accidents (loss of life) occurring within the last 24 hours.
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Intelligence estimates on immediate potential for criminal activity and/or civil
disturbance (to include threats of action).
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Staffing of patrol beats vs. activity by hour of day and staffing/deployment
imbalances and recommended actions. Portrayed graphically.
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Requests for assistance by other agencies that has or will result in effecting patrol
or investigative manpower availability.
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Breaking infonnation on major investigations.
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New information on potential serious crime trends.
. Situation reports on special operations occurring within the last 24 hours.
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Line of duty injury to personnel.
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Actions by SCSO personnel that will discredit the agency.
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Matters the Sheriff. County Adm inistrator and County Comm issioners have
requested information on.
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MONTHLY REPORTS/GRAPHIC DISPLA YS
This information will be in the form of monthly reports (that will accumulate for use in annual
reportinll) that will feature and foster comparison and competition.
Operational
. Part I and Part II crime by patrol beat. contrasted with the same time frame in the
prevIous year.
. Amount of time available by patrol for proactive work by hour of day and day of
week.
. Type and number of problems solved with the community by beat patrol personnel.
. Median response time to priority one calls by patrol beat and countywide.
. Number of felony arrests made.
. Residents injured by criminal activity compared to same time frame in previous
year.
. SCSO employees injured in line of duty by unit of assignment.
. Number and percentage of cases by type closed by arrest and number closed by
exception. Clearance rates. Contrasted with same period in previous year.
. Value of property recovered based upon investigations as a percentage of property
stolen.
. Number of cases sent to prosecutor that also passed his review.
. Changes (e.g., reductions in criminal activity) in areas focused on by directed
planned patrol or other specialty program.
. Number of juveniles arrested for substance abuse offenses.
. Crime trends identified.
. Number of interactions carried out by beat by month.
. Total traffic citations issued.
. Total accident reports written.
. Patrol assists by Traffic units.
. Number and arrests for drug and vice related crime and value of drugs seized.
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ADMINISTRATIVE
.
May report by exception only through instances where a benchmark was
exceeded.
.
Overtime use by major organizational units and as a percent of normal
personnel service costs. Flag potential problem areas.
.
Expenditures per major unit vs. funds budgeted. Flag potential overruns.
.
Progress on implementing projects.
.
Progress on implementing PAS Organization and Management Report.
.
Grants requested vs. grants awarded (type and value).
· Authorized vs. assigned staffing. Exceptions report on critical vacancies.
.
Status of planning project.
.
Training highlights during reporting period vs. training needs not met.
.
Status of development of policies and procedures and approval of them by the
County Commission.
Sherifrs Bud2:cting
The County utilizes "target-based budgeting," which bases budget decisions on the
strategic policy or goals established by the governing body and provides parameters by
detcrmining revenue availablc for the new budget with the Chief Administrative Officer
setting budgct targets for departments. The departments then submit budgets within the
expenditure targets and the proposed county budget is prepared by the County Administrator for
consideration by the Commission. Theoretically, thcn the commission debates the policy and not
budget details. This works in theory but not always in actual practice. The real strength of target-
based budgeting from PAS's perspective is that it docs providc good guidance to dcpartment heads
on parameters or limits. which makes their job easier, and it docs providc for making policy (with
some detours for line item debatc on rclativcly minor mattcrs) and providing for its implemcntation
through thc budgct process. This approach to budgeting, if done well, also facilitates financial
oversight by the governing body.
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A TROUBLED HISTORY
[.ff Over an 18 year period the Sheriffs Budget was
overspent 15 years (expend itures exceeded the
budget). SCSO is only department to
consistently overspend.
[.ff Total overspending exceeded $ $1.3 million.
!t7 Budgeting was not taken seriously and needs not
L.!J made known.
!t7 Numerous expenditure code errors-coded to
L.!J accounts with money. Thus expenditure history
unreliable.
!t7 SSO budget has increased an average of 10% per
L.!J year for the last 19 years. and is the largest of the
publ ic safety budgets.
[ff There was no budget leadership or effective
expenditure controls in place.
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The County Administrator has correctly
commented that the annual budget is the single
most important function of the County
Commission and it is the foundation to support
the services provided to the citizens of the
County throughout the budget year.15 This
paper, supporting documents, auditors
comments, and budget vs. expenditure
comparisons shmv at best a casual approach
to budgeting and spending in the SCSO and
at worst, disdain for the process and
expenditure offunds without regard for the
financial plan with the belief the County
Commission would "pay the bills."
The SCSO approach to budgeting was self
defeating in as much as proper expenditure
histories were not established since
expenditures were routinely coded to accounts
that had "money" and not the proper ones.
Fund transfers were not usually requested and
what real annual costs were in various areas
was not known. In addition, there were instances of proper expenditure back-up not being provided
for the use of credit cards. The inmate telephone receipts were not paid to the County and
appropriated for specific purposes and non-budgetedjail construction funds may have been used to
supplement operating funds.
There have also been instances reported where proper back-up was not included to
support credit card expenditures.
Note that as pertains to the inmate telephone and jail construction fund, there was no
indication of any irregularities in the use of the funds reported on by the county auditors, but the
potential for misuse existed and internal controls were lax.
15From a paper entitled "Management Analysis of the Saline County Sheriff's Office- Thc
County Commission Perspcctive," dated April 15, 1998, presented by the Saline County
Administrator to the Sheriff's Budget Advisory Committee.
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Table 15
SCSO EXPENDITURE HISTORY
Amount Over
Year Budget 0/0 Increase Spent (Under)
1981 $705,940.00 11% $703,487.00 $(2,453.00)
1982 724.220.00 3% 736.689.00 12,469.00
1983 755.998.00 4% 777.679.00 21.681.00
1984 812.033.00 7% 802,047.00 (9.986.00)
1985 844.155.00 4% 845,945.00 1,790.00
1986 892,467.00 6% 918,710.00 26.243.00
1987 1.003.727.00 12% 1,072,774.00 69.047.00
1988 1.065.162.00 6% 1,077,401.00 12,239.00
1989 1,133,494.00 6% 1.111,277.00 (22,217.00)
1990 1.161.461.00 2% 1,211,773.00 50,312.00
-
1991 1,224,739.00 5% 1.349,595.00 124,856.00
1992 1.348,298.00 10% 1,481.896.00 133.598.00
1993 1,449,174.00 7% 1,591,127.00 141,953.00
1994 1.737,334.00 20% 1.964,341.00 227.007.00
1995 2,294,769.00 32% 2.458. I 64.00 163.395.00
1996 2,449.950.00 7% 2,756.243.00 306,293.00
1997 2.740.039.00 12% 2.914,877.00 174.838.00
1998 2.845,560.00 3.85% 3.052,599 207,039.00
1999 3.165,419.00 11.24%
Average $1.34 million 9% $1.6 million
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Please note that the current sheriff is aware of the importance of the budget process
and is taking an active part in budget development and administration, to include emphasizing
the proper coding of expenditures and the development of expenditure histories so that he has
a basis for appealing budget targets or appropriations that are not realistic based on past
experience. The Sheriff has a tendency to try to "jump in" and solve problems himself. This is not
possible in this area. He should set the tone, bring his Captains into the process in developing a
realistic budget, and evaluate them on how well they manage the budget.
A specific subordinate should be designated the SCSO Budget Officer who will be
primarily responsible for the details of integrating the division budgets into the SCSO budget
and in monitoring expenditure and revenue patterns. In the past, the Administrative Captain
compiled the budget but was not assigned responsibility for is accuracy, for making
recommendations to the Sheriff as to whether it met needs or not or for monitoring its
implementation. These duties could be assigned to the Administrative Captain, or since it is
recommended elsewhere in this report that he become heavily engaged in planning/reporting, the
responsibilities could be assigned to the Administrative Sergeant. Appropriate training should be
provided, supplemented by a brief detail for duty with the County Budget Officer to gain hands-on
experience. In addition, special instructions should be given the auditor to review the posting/coding
of expenditures and the internal controls in place in the SCSO.
Sherifrs Overtime
The following overtime line item review of the Sherifrs budget, shows extensive
reliance on overtime since 1995 and that the overtime budget was exceeded every year. The
largest variation was in Corrections in 1995, with actual expenditures exceeding budgeted by 340%.
The grcatest "overspending" in Patrol was by 37% in 1997. The 1995 Corrections overrun \vas, of
course, attributed to the new jail. What it portrays is an absence of planning.
Table 16
OVERTIME IN SHERIFF'S OFFICE PER YEAR
I I 95 I 96 ! 97 ~ 98 !
. I
Budget Actual Budget Actual Budget Actual Budget Actual
Patrol/Office $48.000 $65.319 $53.000 $49.708 $53.000 $72.985 $60.000 $79.040
Corrections 24,000 105.689 $35.000 S86.254 $35.000 $84.288 90.000 107.949
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The following tables illustrate overtime used over the last two years as a percent of
overtime and compares the SCSO to other county departments and other counties.
Table 17
OVERTIME COMPARISONS WITHIN SALINE COUNTyl6
1998 1997
Saline County Total Overtime % of Total Total Overtime % of Total
Departments Payroll Used Payroll Used Payroll Used Payroll Used
Comm issioners $99,466 $101,610
Attorney 467,394 $473.77 0.10% 446,412 $661.0 I 0.15%
Clerk 163,689 313.80 0.19% 175.557 60.94 0.03%
Deeds 99,626 2,282.79 2.29% 93,445 3.175.91 3.40%
SO-Patrol 1.061.038 79.039.86 7.45% 949,256 72,985.94 7.69%
SO-Corrections 985.336 107.949.48 10.96% 999.797 84.288.58 8.43%
Treasurer 155,556 146,801 235.82 0.16%
Adm in istrator 106,834 1.049.46 0.98% 77 ,660 1.095.65 1.41%
Coroner 4.600 4,600
Personnel 75,686 8.78 0.01% 71.092 3.12 0.00%
Emer. Mgmt 76.478 73,335
P&Z 45.769 448.34 0.98% 46,346 136.91 0.30%
SO-Juv. Del. Cntr 238.602 26.985.89 11.31% 228,239 16,821.56 7.37%
R&B 1,396.785 28.135.45 2.01% 1,311.588 24.294.59 1.85%
Appraiser 493.088 126.56 0.03% 455.031 113.91 0.03%
Weed 82.339 4,422.13 5.37% 78.192 2.743.00 3.51%
Livestock & Expo 158.309 9.624.26 6.08% 152.658 11.655.33 7.63%
Election 30.000 1.351.99 4.51% 40.000 595.05 1.49%
Total $5,740,595 S262,212.56 4.57% $5,451,619 S218,867.32 4.01%
16Provided by Saline County Administrator.
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Table 17 shows that the percentage of Saline County overtime attributable to the Sheriff
was 71.86% in 1997 and 71.31 % in 1998. (This does not include the Juvenile Detention Center.)
In short, the Saline County Sheriff's Office is the largest user of overtime in the County based upon
dollar value and percentage of payroll.
Table 18
OVERTIME COMPARISONS \VITH OTHER KANSAS SHERIFF'S OFFICESI7
Overtime as % of Overtime % of Overtime % of Overtime
Total %of Attributable to Attributable to Attributable to
County Payroll Total Payroll Corrections Patrol Carr. and Patrol
Douglas 9.5M 5.5% 25% 43% 68%
Shawnee* 29.7M 4.8% 45% 21% 66%
Saline* 5.7M 4.6% 41% 30% 71%
Sedgwick 71.7M 4.3% 21% 5% 26%
Johnson 102.8M 3.5% 8% 45% 53%
* Includes holiday pay
The above table places the Saline County Sheriffs Office overtime in context by
comparing it to other sheriffs offices in Kansas. This shows Saline County is second highest for
Corrections, the third highest for Patrol, and the highest overall as a percent of payroll. This
comparison indicates that the Saline County Sheriff's Office needs to focus management attention
on reducing overhead.
In Saline County, the basic problems are insufficient staffing of Corrections,
expectations for Road Patrol to be staffed to cover beats and perform random patrol even
though calls for service are low, to lax supervision, and to poor morale throughout. In the
sections of this report dealing with the patrol and corrections functions we make appropriate
recommendation for staffing and to improve leadership. On the other hand, note also the
expenditure history in Saline on overtime. It has been funded at levels lower than the
expenditure history would dictate.
17Ibid.
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Training
Effective training should meet four tests: 18
1. Training should be relevant to the officers and not just focus on
meeting the 40-hour Kansas State minimum requirement. It should
cover in a balanced approach essential tasks and functions important
to all officers and have specific job or assignment relevancy. For
example, surveillance training directly benefits narcotics officers,
while accident investigations training for the same officers serves
little purpose other than to accumulate hours towards meeting
minimum requirements.
2. Training should avoid the focus on a "fun and guns" syndrome. In an
attempt to overcome officer dissatisfaction with classroom training,
training managers sometimes select programs that are heavy on
tactics and weapons and light on essential legal, technical, and safety
matters. Firearms training and qualification is important and
required, but instruction on implementing new laws and coping with
blood borne pathogens and report writing are also important and a
balance should be maintained.
3. Trainin!2: must change with the times. Officers frequently do not like
change and lobby for the type of training they had at the academy 15
years ago. Training officers must constantly freshen up a
department's training program to make it relevant to modern law
enforcement. In Saline County this should include training in
problem solving with the community, community oriented policing,
directed patrol, managing criminal investigations, developing and
using management information, budgeting, total quality management,
and certification level training for Corrections Officers.
4. Training must be documented. Agencies and trainers must develop
and retain detailed lesson plans, outlines, handouts, and maintain
specific test results. The documentation process applies to recording
the results of training and learning. Accordingly, studcnts learning
and rctention should be checked by testing and maintained in spcci tic
records which show scores and not just pass or fail.
18From a presentation by Michael C. Gillespi, JD, Assistant Director and Staff Attorney,
Kansas Law Enforcement Training Center, University of Kansas, at thc 1997 Shcriffs
Administration and Managcment Seminar.
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SCSO needs to continue to upgrade training documentation. The Undersheriff serves
as the SCSO training officer and under his management individual training profiles have been
improved.
The PAS review of the training program reveals that there is a good balance between
action oriented and more technical training, and that the program meets general requirements and
individual officer needs. It includes firearms training and qualification on the one hand and
computer training and orientations on recent Supreme Court decisions on the other. The point is that
it is balanced and meets overall requirements and individual officer needs.
Certification Training for Corrections Officers
The Ellsworth Correctional Facility annually carries out basic Corrections Officer
training that would meet certification requirements if supplemented with American Corrections
Association or National Sheriff's Association correspondence courses and tests. PAS recommends
that the Undersheriff and the Jail Captain explore this approach. This will provide a viable
alternative should the Kansas Sheriff's Association be delayed in getting their Certification Program
for Corrections Officers up and running.
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V. REVIE\V OF ISSUES AND ANSWERS
Nation\'t'ide Role and Functions of the Sheriff
Whcn examining the functions and roles of sheriffs from just thc perspective of a
particular county, or a few local governments, one does not rcally get the complcte picture of
the activity of sheriffs in law enforcement nationwidc. For example, there are those who portray
sheriff's offices as limited in function (these comments are along the lines of--"they only are
responsible for court security and the jail"), or not as well trained and progressive as police
departments (this is illustrated in comments such as "where is the xxxxxx County Sheriffs Office?
and the response being "one mile down the road and 100 years behind").
The perspective of sheriff's functions being somehow limited and not carried out in
accordance with modem standards in many cases is a false one. This is demonstrated nationwide
in research contracted for by the Bureau of Justice Statistics of the U.S. Justice Department. An
example of this research is in Appendix E. It was carried out in 1993 and updated in 1996.
Discussions with Justice research officials reveal that the situation in 1999 continues the earlier
trends and the functions and responsibilities of sheriffs offices continue to be a significant part of
the criminal justice system. This is fairly illustrated in the appendix.
Note that 3, 1 00 sheri ffs' offices operate nationwide, employing more than 250,000 full-
time employees, (which have increased every year since the 1970s) and carry out the following
diverse functions:
· Nearly all sheriffs offices perfom1 court related functions such as
serving civil process (97%) and court security (93%), about 9 in 10
investigate crimes (92%), a large number (92%) responded to calls
for service (91 %) and provided routine patrol services (88%).
· Many sheriffs offices also had responsibility for dispatch (80%),
operating ajail (79%), drug enforcement (78%), traffic enforcement
(77%) and search and rescue (65%).
· Sheriffs operating expenses annually exceed $11 billion dollars and
operating expenditures per officer nationwide arc approximately
$69,000 pcr officer. '9
19These figures were updates of 1993 and 1996 data updated by Bureau of .Justicc
officials-they arc estimates. Thc original base numbers were for 1993 operating cxpcnditures of
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The contrasts between the functions and scope of services and police departments shown
in the attached research is as follows:
. A large majority of both sheriffs and local police departments receive
calls for service, investigate crimes, and provide routine patrol
services: Sheriffs are much more likely than police to perform
functions related to the operation of jails or courts.
I Function I Sheriffs I Police I
Receiving calls for service 91% 93%
Criminal investigations 92 97
Patrol 88 97
Jails (other than holding cells) 79 less than 10
Courts 97 less than 5
In short, sheriffs' personnel carry out more diverse functions than police. Police are
more heavily involved in community policing and intense activity in responding to calls for service
than all but a few sheriffs offices in areas like Los Angeles County, California, and King County,
Washington.
. On the average, nationwide sheriffs' offices have 73 full-time
employees including 51 sworn and 22 civilian. Sheriffs operate in all
environments nationwide to include injurisdictions serving a million
or more people where the average size of the force now exceeds
2,000, with close to 1,400 sworn. In contrast, Sheriffs also are in
jurisdictions with less than 10,000 residents who employ an average
of 6 sworn and 3 full-time civilians.
. The operating budgets of sheriffs offices throughout the United
States are approximately $11 billion, which accounts for 26% of the
$42 billion spent on state and local law enforcement in the United
States annually.
. About half of all sheriffs' officers work for 184 departments located
in jurisdictions with 250,000 or more residents and halfwerc located
in jurisdictions with fewer than 25,000 residents.
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Conclusion--National Research Related to Sheriff's Offices
The enclosed research shows that nationwide sheriffs and their employees are a
significant part of our law enforcement and criminal justice systems. The roles and functions of the
Sheriff are important, the numbers of employees and budgets have grown at rates higher than
inflation, and the functions carried out are broader than those performed by many municipal police
agencies. As is reported in Chapter I of this report, County Commissions clearly control the power
of the purse, and have fiscal and legislative oversight authority and control personnel actions. Just
as clearly, the Sheri ffhas the authority to operate the law enforcement agency. County Commissions
do not have the authority to interfere with law enforcement operations.
In order to make this complex system work, Attorneys General have coined the term
"shared authority" or "shared discretion." Based on our experience in overall local government and
law enforcement consulting, it is PAS's opinion that the County Commissioners (and their agent,
the County Administrator) and the Sheriff should recognize this shared authority and go the extra
step in trying to work together. The research in this chapter shows three things:
· The role and functions of the Sheriff nationwide continue to be
important and resources devoted to them are growing.
· The "Sheriffs are not going to go away" or cede their power to
administrative officials and governing bodies.
· County Commissioners clearly control the budget, its adoption, and
implementation.
In short, the importance and the sustainability of authority by County Commissions and
Sheriffs, in their respective areas over the years, demonstrates the need to work together to better
serve the public. The purpose of the chapter is to display the nationwide functions and resources of
the Sheriff so that we fully understand the nature and complexity on the arena in which we are
operating.
Other Forms of Government. UniQue Approaches
by Local Government and Law Enforcement
Forms of County Government
In addition to the traditional County Commission form ofgovemmcnt in place in Saline,
and in the majority of the counties across the United States, the othcr Corms includc:
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. County Board of Supervisors and County Executive form--in
which both the Board and the County Executive are elected but the
overall number ofclectcd officials involved in day-to-day operations
arc limited to officials referred to as Constitutional Officers (specified
in the State Constitution) that include a County Attorney (duties
include advice to Board and stafC legal representation of county, and
prosecution), a Sheriff (law enforcement, corrections, and court
support and warrant/civil process service), and the Clerk of the Court.
In this form, Judges are either appointed by the State Legislature or
elected (less frequent). This form appears across the Country,
prominent examples being San Diego County, California, and
Henrico County, Virginia. A variation of this form has an appointed
County Executive, a Sheriff (corrections and court support), a County
Police Department with a Chief of Police (law enforcement). This
exists in counties such as Fairfax, Virginia. Still another variation is
Saint Louis County, Missouri, with a Sheriff(court support), County
Police Department (law enforcement) and a jail administrator
(corrections) all of whom report to the County Executive, except the
Sheriffwhose reporting relationship is in thejudicial system. Another
variation is in King County, Washington, where until recently the
Sheriff was appointed and reported to the County Executive. Now
the Sheriff is elected but is still within a Department of Public Safety
with reporting relationships to the elected County Executive, in
addition to the electorate. The Sheriff here is full service less
corrections, which has an appointed administrator.
. County Board and County Administrator form--in which the
Board is elected and the County Administrator is appointed by the
Board. This form usually has more elected officials in day to day
operations, but less than the traditional commission fom1. This
includes a Sheriff who may be full service or limited service where
a County Police Department exists, such as the "Urban County
Board/Administrator fom1 in Arlington County, Virginia.
. County CommissionlFull Sunervision form--in which there is no
administrator and the Commission directly supervises appointed
department heads. This is a "long ballot form" with a full service and
a varicty ofelccted officials and appointed department heads, usually
in tcchnical rolcs such as county engincer. The Sheri fI' is full scrvice.
. Consolidated City/County Government model--in which the
govcrnments arc consolidatcd into cities such as Jacksonvillc,
Florida, in which thc elected Sheriff is the chief law cnforcement
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officer and runs municipal police, corrections, and court services and
carries out selected emergency service coordination. There is also a
unified government model such as in Athens and Clarke County
Georgia in which thc city and county police departmcnts have been
consolidated and the sheriff supports the court system.
There are a variety of other models and approaches to include municipalities purchasing
law enforcement services from the County Sheriff such as in Los Angeles County, California, and
King County, Washington, and regional police agencies in the Pacific Northwest and South.
The reasons for numerous models and variations include the good government reform
movements which started prior to WWII which tried to rationalize and professionalize local
government by reducing the number of elected officials in day two day operations-in many cases
officials involved in financial operations. In the 1960s consolidated governments came into vouge.
In addition, sheriffs offices in urban areas were refocused on court support/service and corrections
and County/City Police Departments assumed law enforcement responsibilities (even though sheriffs
retained sworn authority and coterminous jurisdiction). Then there were movements to
"professionalize" Corrections and place it under a Jail Administrator who may report to a chief
executive or a sheriff.
Obviously, it is much easier to work in a form of government where lines of authority
and responsibility is clear such as a County Board of Supervisors with a County Police Department
and a Jail Administrator reporting to an elected or appointed Chief Executive. On the other hand
there is a belief among law enforcement professionals that in order to survive and serve the public,
you are in a much stronger position ifelected. This again clouds role, authority, and responsibility.
It is PAS's opinion that in urban areas and in areas becoming more urbanized consolidated
government, county executivc, and or county administrator forms with a limited number of
clccted officials (particularly in financial functions) in the system work most efficiently. Note,
howcvcr, that the majority of urban county administrator/county board forms have sheriff's
with broad powers in law enforcement, corrections, and court servicc. In more rural areas
the traditional commission form with a sheriff elected at large is the prevalent form and with
constant attention and coopcration can bc made to serve the public well. It, however, requires
an ~lpprcciation of thc sometimes frustrating concept of shared rcsponsibility.
Unique Approaches
In addition to the forms of county governmcnt mentioned abovc, counties such as Clark
in Virginia, have jail administrators that report to a separate board appointcd by the County Board
of Supervisors. Larger counties in Ncbraska can establish county departmcnts of corrections, with
a corrections administrator, appointcd by the County Commission. Hall County has adopted this
option and its corrections administrator does not report to the Shcriff.
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In Kansas, Shawllee's corrections personnel are associated with the state corrections
department, and Reno has professionalized jail administration. Butler County has used home rule
powers to opt out of tax lid restrictions and the County Sheriff has his own budget. It, of course is
possible for any home rule county in Kansas to go through the process of emulating Butler, or
eliminating just the lid on more narrowly defined areas such as law enforcement, should county
commissions and the voters so decide. Note that on May 3, 1999, PAS was notified that "the
Kansas House and Senate voted to accept a conference committee report on SB 45 which
eliminates the aggregate tax lid and individual fund levy limits. This bill includes most of the
original language of SB 226, which requires a local governing body to pass an ordinary
resolution if it intends to levy property taxes greater than the amount levied the year before,
unless the property taxes are derived from new improvements to property. The bill contains
no protest procedure. . . it is simply a matter of notification and disclosure."2O
Conclusions
There are a very wide variety of county forms of government in use throughout the
United States. Generally speaking, in urban areas there are county executive/county board forms
in which county police departments/chiefs andjail administrators are appointed by CEOs or County
Boards. Note, however, these counties are in a minority, with over 80% of counties having Sheriffs
with broad and traditional powers. Unique arrangements exist in Kansas, including Shawnee and
Reno, where the corrections units do not report to the Sheriff. (Note previous discussion regarding
functions of sheriffs nationwide.)
Privatization of Corrections
Rapid increases in incarcerated populations over the last 15 years have placed major
strains on federal, state, and local corrections systems. A number of states are under court order to
improve their prison systems, and many jurisdictions are specifically required to reduce
overcrowding injails and prisons. In this climate, correctional administrators are examining many
options for dealing with their jail population, while at the same time meeting their overall
responsibilities for both public safety and the prudent usc of public resources.21 One of these choiccs
is to contract \vith the private sector to construct and operate jails.
20Copy of 3 May e-mail from Randy Allen. Forwarded to Hubler by Saline County
Assistant County Administrator Rita Deistcr on 3 May 1999.
21 Prison Construction and Operations Issues by Evatt, Fields, and Roof, of the National
Corrections Corporation, April 1997.
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In 1994 Saline County solved thc overcrowding issue by constructing a modern jail
funded through a temporary addition to a sales tax. Since then, howevcr, the costs of staffing and
operating the jail have been questioned (See Chapter II for write up on the Saline County Jail).
Constantly rising costs and difficulty in staffing the facility are among the underlying reasons for
this study and one of the matters that brought about a "review" by a citizen panel (appointed by the
Sheriff) of the budget of the SCSO. One of the options PAS reviewed is privatizing or contracting
out operations of the jail to the pri vate sector.
In a study entitled Private Sector
Involvement in Prison Services and
Operations, Camp and Camp explored
the extent, value, and potential of private
sector roles in corrections in order to
understand how and where private sector
roles might be modified, combined, or
expanded to produce the most
advantageous forms of prison
management. Their research included investigation and analysis of existing reports and
evaluations of private sector involvement in corrections, and a review and analysis of thc
opi nions of correctional adm inistrators, rescarchers, scholars, and private sector providers. The
study identified both benetits and I iabilities of pri vate sector involvement in prison opcrations.
It seemed to indicate that the pluses of private prison operation-less costly, morc cfficicnt
opcration, and improved pcrsonnel training and management-were significant cnough to
outweigh thc liabilities in thc opinion of the respondents.
Iniecting Competition bv thc
Privatc Sector--Does Privatization \York'?
Privatization of Corrections is a major issue in
the criminaljustice arena. The overall pros and
cons of privatization are shown in the adjacent
text box. The underlying question is whether
pri vate contractors can operate at lower costs to
taxpayers, while providing at least the same
level of services as public sector correctional
agencIes.
There are usually three studies
mentioned when this question is discussed.
The proponents of privatization interpret
thesc studies as follows:~~
.
~~Ibid, pages 3 and 4.
PROS AND CONS OF PRIVATIZATION
PROS
+ Private sector's competitive forces will
lower prices. .
+ Private companies can offer incentives like
performance based pay, profit sharing and stock.
+ Successful companies stability. insurance.
and indemnification agreements lessen public sector
liability.
+ Private company's sales and property taxes
provide "rebates" to state and local governments.
CONS
- Little competition. jail service/ operation
contractors become entrenched. More cost sh ifting or
lowering of service levels than savings.
- Food service and medical care may be
com prom ised to control costs.
- Profit motive leads companies to lower
wages to save costs and cheapen hiring standards for
critical positions.
- Governments civil liability is not lessened
but increased and extended to the private companies.
- Private prison/jail management try to
influence criminal justice polices to increase profits.
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. In a 1996 report, the GAO assessed the findings and conclusions of
five studies completed since 1991 that compare private and public
correctional facilities that were the focus of these studies varied in
terms of geographic location and the types of inmates housed. The
GAO could not conclude from the studies that privatization of
correctional facilities will not save money. However, the studies did
not offer substantial evidence that savings had occurred. With regard
to quality of service, of the two studies that made the most detailed
comparative assessments, one reported equivocal findings, and the
other reported no difference between the compared private and public
facilities.
On the other hand, those coming down on the "con side" of the argument 23 state:
. "Thus far, there have been only three impartial studies of prison
privatization about the issue of cost savings. One study was done
under the auspices of the National Institute of Corrections (NIC), a
second was done under the auspices of the National Institute of
Justice (NIl), and a third was performed by the U.S. General
Accounting Office, which reviewed the literature on the subject,
including the NIl study. The first two found no cost savings
associated with prison privatization. The GAO study asserted that at
best, the evidence on any cost savings associated with prison
privatization was inconclusive.
. Problems regarding security, staffing, and quality of services have
plagued prison privatization from its inception.
. A more thoughtful analysis about privatization of prisons would raise
the issues of its impact upon employees, acknowledge that wages and
benefits in private prisons are lower than in public prisons, and at
least ponder the employee and compensation consequences.
. Neither cost savings nor improvements in the quality of service have
resulted from prison privatization. After a decade of cxperimentation
\vith privately operated prisons, the only conclusion that can be made
regarding whether or not they save moncy is that the evidence is
inconclusive.
23Papcr by Dr. Russell Clemcns, presented at Crime and Justicc of thc Americas-
Privatizing Criminal Justice, the Corrections Debate: CON. Dr. Clemcns is a Labor Economist
with AFSCME.
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· Reports which purport to demonstrate that privately operated prisons
save money should be closely analyzed. One such report attempted
to demonstrate that Hamilton County, Tennessee, saved several
hundred thousand dollars by contracting out the management and
operation of its county penal farm. In actuality, the report confirmed
what AFSCME has said about privatization, namely, that cost savings
should not be confused with cost shifting. The alleged savings which
the report claimed for privatization were costs associated with county
commissioners' that in all likelihood were shifted to other
departments of county government.
· Escapes and problems pertaining to health care and food service have
characterized the low quality of services in privately operated prisons
from their inception, as have problems regarding accountability.
These problems are best understood as systematic, since corporations
work within certain parameters. Because corporations operate
prisons to produce a profit, it is important to ask how profits are made
with privately operated prisons. The key is to keep cells full of
inmates and keep costs low.
· The private sector does not possess a monopoly on efficiency and
cost savings."
Role of Privatization in Corrections
The number ofprjvate corrections operations in the United States grew in the late 1990s
to over 140 facilities used to incarcerate close to 95,000 inmates. Proponents predict that there will
be more than 275,000 inmates in privatized facilities by 2002Y There are 25 private firms involved
in operating these facilities with the Corrections Corporation of America and Wackenhut Corrections
being the largest. Another corporation that had been ranked third in the private corrections area, the
Pricor Corporation.25
At the same time this growth took place, increasing operational problems became public
to include thosc in CCA run facilities used to incarccrate Washington, D.C. inmates. This included
c1assi lication, visitation, and health care practices that \vere questioned in a series of articles in the
Washington Post. The contract was canceled by the District of Columbia government. Problems
with fully informing local officials with thc high risk inmates brought into CCA facilities have also
been reportcd (for cxample, in Santa Fe County, New Mexico jails).
24From the Private Adult Corrcctional Facility Census (PACAF).
25Covert Action Quarterly, 1993.
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The kcy point is that in order to survive, private sector corrections has to kcep
costs down. To kecp the costs down, they must kcep thc cells full and make dccisions that may
not seem to be in the public interest.
In order for privatized corrections to be used successfully by local government,
performance contracts favoring the local governments must be drafted, adopted by the governing
body (after sessions ofintcnsive lobbying and extensive promises), and be stringently administered.
The type of contract that must be developed and administrated is in ICMA "Greenbook" entitled
"Service Contracting-A Local Government Guide," dated 1992.
Sharing of Services-Now and in the Future
Now:
At present, the County provides central booking that services the City and County and
in return, the City provides police dispatch servicc and makes available data from the computer
aided dispatch system that can be used to generate management reports ( capability not used ly by
County Shcriff at this time-recommended elsewhere in this report for more extensive use). Thc
County also purchases information systems services from the City and the Sheriffs Office receives
good support.
Over the last year, the Sheriff, with the encouragemcnt of the Chairman of the County
Commission, purchases fuel and has police vehicles maintained at the city feet management
facilit),. The city fleet manager has also agreed to evaluatc sherifrs vehiclcs and make
recommendations on their replacement based on condition of the vehicle and milage. The City is in
the process of selecting and installing an automated fleet management system which will improve
an already good deal.
Other joint activities with the City Police Dcpartment include the Citizcns Academy,
thc Chaplains Program, and Crimc Stoppers. The drug enforcemcnt program is also multi-
j urisd ictional.
Thc Future:
Othcr opportunities for joint activities include a shared cvidcnce storage area and
the maintenance and record keeping by a civilian evidence technician. Evidence is now
stored/maintained by the Patrol Captain, which is a duty not commensurate with his rank. The
cvidencc facility and systcm at prescnt arc unsatisfactory. Entcring into a joint evidencc
operation would have the advantagcs of: improving safeguarding/storage and preserving the chain
of evidence, freeing up time for the Captain to focus on patrol and investigations supervision, and
making space available for a much needed interview room for the detectives. This could be done at
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an initial annual cost to the County of $11,734 with the City picking up the other half of the
salary/benefits cost and providing the space. PAS recommends the County participate.
Other possiblejoint activities could include a "shared records operation" in which the
City Police Department would run a would run a "joint records center." This is a natural since the
same records computer support system is now used and the City with the increased volume could
consider labor saving imaging technology to reduce costs and improve overall efficiency. The City
records unit currently has storage and equipment superior to that of the County. Another advantage
would be the sharing of data at the source which would benefit law enforcement in fighting crime.
A very important joint activity could be a joint training unit. Currently, the City's
trammg program is much more extensive than the SCSO's (which is being built up by the
Undersheriff). The SCSO is particularly \veak in orienting and training new patrol officers. There
is no Field Training Officer Program in use in the County Sheriffs Office and the City has an
excellent FTO program and is a nationally accredited law enforcement agency that has emphasized
training. An FTE program is designed to provide the new patrol officer with a regimen of practical
training and structured experiences prior to the officer's assuming full responsibility for working
on a shift. It is a formal program that is approximately 12 weeks long and concludes with an
"'evaluation patrol" and review by a board of officers. It is done during an officer's probationary
period and allows for certification to perform and/or remedial action or for tem1ination if
appropriate. PAS will provide an example of a field training progran1 and evaluation guide designed
for another department where it works well. The unbiased reader will agree that this type of training
is best done jointly when it involves smaller agencies.
One option to defer the cost of joint training would be to make the Undersheriff
available part time to participate in designing and running a joint training program. This
would be a logical extension of his current duties which focus on designing and implementing
an SCSO training program.
Another significant joint activity that would improve training and experience in handling
serious crimes against persons (rape, homicide, and other serious Part I crimes) would be a major
crimes squad that would work in the City and County. This would provide continuity in the
handling of major cases often perpetuated by the same individuals and sharpen the skills of the
investigators. This approach is used in counties such as St. Louis, Missouri, and works well.
Potential for Overall .Joint Administrative Suppor"t
The current joint activities and the potential "new" ones listed in this paper can build to
sharing as many administrative and support activities as possible to improve efficiency,
effectivencss, and public service and to reduce costs. This could result in the Sherifrs Office of
the future consisting of p~ltrol, corrections, and court services with administration, training,
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and support services being jointly provided to these two core operational areas and to the
City's operational divisions (Patrol and Investigations) by a joint services element. The ncxt
step could be consideration ofa totally unitied law enforcement agency, which is largely a political
decision that depends on what the area citizens and leaders desire in the way of a police service.
Le2islative Changes
Kansas Statues, K.S.A. 1998 Supp. 38-1616, 37-709,38-1624, 39-709 and amendments
thereto refer to reimbursement for "housing and care" of juveniles in custody of authorities and
placed in facilities such as Juvenile Detention Centers. At present, and not withstanding any law to
the contrary, when ajuvenile is placed in the custody of the Secretary of Social and Rehabilitation
Services or the Commissioner of the Juvenile Authority by the court, financial responsibility,
including payment for detention, medical care and any other residential care, shall remain with the
agency designated by the court, until the court relieves the agency of the custody.
The practical consequences of the above legislation is an inability on the part of local
authorities to claim and receive full and timely reimbursement of housing and medical care for
juveniles from their parents or legal guardians. It is recommended that this be researched further
by the County Legal Counselor and that if PAS's interpretation is correct the County Commission
should take action to work with the County's legislative delegation and Kansas Association of
Counties to change the law to permit full and timely collection.
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VI. BRINGING ABOUT CHANGE AND SERVICE EXCELLENCE
IN A LAW ENFORCEMENT AGENCY
Purpose and Introduction to Service Excellcnce Concept
To deal with the challengcs of to day's complex society, law enforcement needs to adopt
a concrete, integrated model that gets results. Modern law enforcement needs more than a
philosophv; it needs a disciplined decision making proccss that helps managers find the best ways
to provide high quality services to the public. Almost no one within the criminal justice system can
argue that the justice system is "working as well as it could" in addressing community problems or
in the important corrections function. As Edmonton Police Superintendent Chris Braiden has
argued, "we must wcan ourselves from the criminal justice system so that it becomes one of
our customers and not our sole customer."16 He goes on to state that what we need is a rc-
emergencc ofthe basic principle on which public police were first established in 1829: to help
citizens identify problems and apply solutions as community team leaders.
This introduction examines the role of officers in serving the community and the need
for an integrated model that addresses the diverse services officers are called upon to provide. Thc
Service Excellence process wiII bc described along with the potential benefits it can provide to
Saline County. Another way oflooking at this chapter is that it provides a unifying philosophy
and approach to "working smarter."
This service excellence model must be broad enough to address the varied
responsibilities of a sheriff that go beyond patrol and investigations and encompass court support
and services and the operation of a county jail and, in some cases, emergency services and dispatch.
The model must also provide an approach to bringing together the County Commission, County
Administration and the Sheriff, who have been at odds over their roles and responsibilities.
Role of thc "Sherifr'
Law enforcement is the most visible local government service being available to the
public 24 hours a day and 7 days a weck. As a result, people call "the police" for all kinds of
problems at all times of day and night. Calls-for-service from citizens can rcquire the officer to
investigate crimes, mediate disputes, to book and detain inmates, and to provide services to a wide
rangc of people in need.
26Braiden C. (1990, summer). Community Policing: Nothing New Under the Sun.
Problem Solving Quarterlv, Vol. 3, No.2.
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To support effecti ve patrol deployment, calls for pol ice service are categorized into three
basic types of services, crime control, order maintenance, and crisis intervention.
Crimc Control. Crime control is the mission that is most familiar to officers throughout
the nation. The role of patrol ofticers as "crime fighters" is first established in recruit academies.
This role is later reinforced throughout an officer's career, through the media, and in the minds of
families and friends. The crime fighting strategy that is emphasized most in many law enforcement
organizations is arresting offenders.
In a county with a large land arca, low population density, and a limited number
of officers, simply carrying out random road patrol is not an effective usc of resources. More
planned approachcs are necessary. There is another piece to this puzzle that can accelerate
improvement by changing focus and concentrating certain resources on habitual or repeat offenders.
We can think of this as "working smarter." Statistics reported by police to the Federal Bureau of
Investigation suggest that arrests of offenders are made for only about 25% of the serious crimes
committed in a community, leaving 75% uncleared. Since victimization surveys have determined
that nearly 65% of the serious crimes committed in the United States are not reported27 to the police
in the first place, the police bring an offender to justice for less than 10% of crimes committed.
Despite the best efforts of those who promote arrest as an agency's primary crime control strategy--
under this approach, crime pays.
We also know that there arc a relatively small number of habitual, "career" offendcrs
who are responsible for a disproportionate number of crimes. These offenders begin their criminal
careers asjuveniles and continue on into their adult years.~8 Many law enforcement agencies have
helped to make arrests count by focusing on these repeat offenders. The most effective career
criminal programs use formal criteria to identify the most active offenders. Police, in cooperation
with prosecutors and corrections officials, provide intensive community supervision, specialized case
handling, and information sharing among criminal justice agencies.
One way to think about crime control is to view crime as a triangle that includes
offenders, victims, and opportunity as depicted in the following figure. All three components of the
trianglc must be present for a crime to occur. Offenders can be removed from the community by
arrest or through intervention that keeps people from becoming offenders in the first place. The
number ofpotcntial victims can be reduced through education of the public to take steps to reduce
their attractiveness as a crime target. Public education is the traditional role of crime prevention
officers in police agencies. Finally, opportunities can be reduced through introduction ofa capable
guardian that keeps offenders from reaching potcntial victims. Opportunitics can be rcduced through
27Maquire, K. & Flanagan, T.1. (1991). Sourcebook of Criminal Justice Statistics -
1990. Washington, D.C.: U.S. Department ofJusticc.
28Wolfgang, M.E. (1977). Crime in a Birth Cohort, in Crimc and Justicc, The
Criminal in Society, Vol. r. New York: Basic Books.
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directed patrol, community surveillance, and/or security measures that change the social environment
to protect a potential victim from likely offenders.
While crime prevention efforts have been ongoing in England since the 1950's, this field
did not truly emerge in American law enforcement until the 1970's. Crime prevention began as an
effort designed to organize neighborhoods to report information to the police and to educate citizens
in order to reduce their risk of being victimized. In recent years, we have learned more about the
relationship between crime and the man-made environment. The discipline of Crime Prevention
Through Environmental Design (CPTEO)~9 has gained acceptance between planners and architects
as a set of principles that can be used to make neighborhoods and the people who live in them less
vulnerable to crime.
Despite advances in the crime prevention field, it continues to be the job of just a handful
of specialists rather than every police officer or sheriffs deputy. When asked what their job is, many
officers are quick to say that their job is to prevent crime. Yet most patrol officers receive almost
no training in crime prevention. Officers instead see their role in prevention as one in which they
place themselves between a victim and an offender. This mode of thinking, which addresses two
legs of the Crime Triangle in a very limited way, is built on the mistaken view that arrests and police
presence alone deter crime.
It should be noted that the police crime control mission extends beyond crimes that are
generally reported to the pol ice through 911 calls. Crimes like gambling, prostitution, drunk and
disorderly conduct, driving under the influence and narcotics sales represent the expression ofpublic
values about personal conduct. For these crimes, \vhich havc been called "victimless," the police
are in the position of protecting victims from themselves, as \vell as othcrs who often suffer from the
side effects of such activity. Efforts over the years to deal with these crimes have been mixed.
Neighborhoods can be made inhospitable as settings for these kinds of crimes. The result of such
efforts usually is to move the problem to some other neighborhood because demand for the "product"
remams.
Finally, calls-for-service related to security alarms can place as much demand on police
services as crime related calls-for-service from citizens. Research findings disclose that
apprehension of offenders as a result of alanns takes place in an extrcmely small percentage of the
alarm calls received.
Order Maintenance. Police and Sheriffs Deputies are called upon to deal with a wide
variety ofincidcnts that do not involve violations of criminal law. Thesc calls includc problcms like
loud parties, crowds, and other types of public nuisances that might represent violations of
ordinances or impedc the safc and orderly 1100v oftratTic.
~')Crowe, T.O. Crime Prevention throLI!:'.h Environmental Oesi~n. Stoneham, M.A.:
Butterworth Publishing.
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As part of their order maintenance responsibilities, officers are responsible for enforcing
traffic laws to protect the public from reckless drivers and people \vho drive under the influence of
drugs or alcohol. Traffic enforcement needs to be selective. You cannot detect every time a dri vcr
commits a minor infraction like turning without signaling. Realistically speaking, the system does
not have the resources to prosecute every violation. Instead, traffic enforcement should have speci fic
goals that focus on reducing accidents and improving traftic now.
In search of a measure of ofticer activity, some agencies require ofticers to generatc
certain levels of traffic citations. These "goals" mistake activity for results and can aggravate the
public by issuing high numbers of citations for meaningless traffic infractions. In many
communities, traffic enforcement shapes the nature of the relationship between the police and the
community. In some neighborhoods, young people are viewed as the target of overzealous police
traffic enforcement.
Crisis Intervention. Typically, patrol officers will find themselves mediating disputes
between husbands and wives, young people, and landlords and tenants. Suspicious or bizarre
behavior by an individual will usually result in a call to the police to come to the scene to assess the
situation. This is also true of people who are suspected to be under the influence of drugs or alcohol.
Similarly. the police must deal with juvenile runaways, missing persons, lost children, public
hazards, and other crises such as natural disasters.
Traditional Police Response to Problems
Police and sherifrs agencies generally do not have good information systcms which
allow supcrvisors to anticipate and thoroughly understand crimc problems. (The data exists
on the City system-the County Sheriff did not use it.) Those agencies do not look bcyond
individual calls-for-service in a neighborhood to find the common clements or "problcms" that
continually generate thosc calls. Rcsearch suggests that about two-thirds of calls-for-servicc
arc gencrated by only one-third of the locations in a community.JO
Similarly, traditional agencies allow patrol officers to engage in random patrol by
which officers circulate throughout a neighborhood based on no particular plan for using their
time. Time between calls-for-service is spent waiting for the dispatcher to send an officer to
another call. Typically, random patrol produces random and unproductive results.
In attempting to deal with neighborhood problems, traditional law enforcement agencics
use something resembling a medical model in which the police present themselves as experts who
know all the answcrs to crimc in ncighborhoods. The answer to problems typically offcred is
JOSherman, L. W. (1987). Repcat Calls to Police in Minncapolis. Washington. D.C.:
Crime Control Institute.
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enforcement that generates arrests. Citizens are trained to observe and report but are not invited to
work with the police and other community agencies to help identify causes and solutions to
neighborhood problems that often result in crime and disorder.
Police-Community Problem Solving
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If we are to move from a traditional model to one based on problem solving, law
enforcement needs to rethink their role in the community. Rather than being treated like the patient,
the community needs are viewed as a customer who receives service. In adopting this vie\v, the
police will need to accept the judgement of customers on the quality of services provided.
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Movin2: Toward Collaboration. In an attempt to make better use of community
resources, the concept of collaboration (most recently referred to in police and local government
literature by the buzz word coactivity) is being applied more and more. It is becoming unacceptable
to allow a system to operate in which multiple agencies can be serving the same children and
families and not know what each other is doing. By collaboration, we mean more than just
cooperation among the police, community agencies, the private sector, and neighborhood
residents. Collaboration instead calls for a shared vision, participatory problem-solving, and
sharing of resources. In a collaborative relationship, all partners have committed their
resources to meeting the same goals.31
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Collaboration is most sorely needed within the criminal justice system. Information
sharing needs to be improved so that better decisions can be made in dealing with offenders. Police,
prosecutors, and corrections officials need to work together to identify the most predatory offenders
and deal with the problems those offenders cause in the community. Human service agencies,
industries, institutions, and local governments need to realize that addressing neighborhood crime
problems is their joint responsibility, not just the job of the police.
Barriers to Police-Community Cooperation. One of the most obvious barriers to
police-community cooperation is a lack of trust on the part of both parties. Residents of
neighborhoods, especially those in crime prone areas or areas in which "new" ethnic groups are
residing have become jaded to more "outsiders" coming into their neighborhood to impose solutions
to neighborhood problems. Many times residents feel that these programs are done "to them," not
\vith them, and mainly for the aggrandizement of the implementers.
31Leavillc, A.I. (1991). What it Takes: Structuring Interagencv Partnerships to
Connect Children and Families w'ith Comprchensivc Serviccs. Washington, D.C.: Education
and Human Services Consortium.
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To complicate matters, officers in traditional agencies and those that have not effectively
moved to a community based orientation are not provided with adequate information that describes
crime problems, neighborhood conditions, and community resources. Confidentiality of criminal
and juvenile records notwithstanding, interagency agreements need to be developed that allow police
to share information and resources with other key agencies. Information sharing efforts among
agencies serving a neighborhood can sometimes run into turf battles and foot dragging of various
typcs becausc they have competing objectives.
One of the most critical barriers to effective police community relations can be the lack
of planned pro-active patrol time. Patrol officers need this time to complete directed patrols
designed to implement community projects and deal with neighborhood problems. Simply
designating specialty community units will not suffice. In fact better results can be expected by
concentrating thc available resources in generalist officers to work on these neighborhood programs.
Considerable traininl! needs to be delivered that provides officers and supervisors
with the communication and problem solving skills they will need to interact effectively with
residents. Because of growing cultural diversity, officers will need more training in techniques
for dealing with multi-cultural communities.
Responsive Infrastructure
The SCSO's law enforcement operations have been reactive, based on random patrol,
and incident oriented. A broader approach is needed that incorporates the community in law
enforcement and focuses resources \vhere they will be more effective.
An effort that best exemplifies a shift to a more responsive infrastructure are programs
that focus on repeat adult and juvenile offendersuindividuals who are (or are on the \vay to
becoming) career criminals. These individuals can best be dealt with through career criminal
apprehension programs such as the C-CAP program in California, ICAP (national integrated
criminal apprehension program) or SHOCAP (serious habitual offender program (focus on habitual
juvenile offenders) now in place in over 100 local governments across the United States.
Much more than just a program that focuses on habitual offenders, these programs
involve an integrated approach to the management of a police or sheriffs department's resources.
This approach also enhances operational decision making by providing value-added information at
critical points. Changing the focus from incidents to solving problems, this program provides
for more effective and efficient operations.
Implementation ofa C-CAP follows a process that help law enforcement agencies focus
resources on crimc problcms and repeat offenders. The key components of this program arc Crime
Analysis, Managing Patrol Operations (MPO), Managing Criminal Investigations (MCI), and Carecr
Criminal Prosecution.
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Crimc Analysis. The crime analysis function is the focal point of this effort.
Essentially, crime analysis provides line personnel and managers with information that describes
each of the legs of the Crime Triangle: victims, offenders, and opportunities. Crime analysis
products identify patterns, describe the probation or parole conditions ofrcpeat offenders, correlate
crimes with offenders, and suggest when and whcre crime control efforts should be attempted.
Sources of crime analysis data include information collected by the SCSO (Field
Interview Cards, CAD generated information, the records system, from corrections, etc and data
from other agencies inside and outside the criminal justice system. Crime analysis should provide
the basis for directed patrols, more effective criminal investigations, development of crime
prevention strategies, decisions made by the criminal justice system in dealing with arrested
offenders, and descriptions of the conditions that exist in an area that may generate crime problems.
Mana2:ing Patrol Operations (MPO). If SCSO is to play any meaningful role in
addressing problems, patrol staff resources must be utilized efficiently. Since policing is a labor
intensive business, "time is money." MPO calls upon an agency to reexamine ways in which patrol
time is utilized. Procedures for the processing of calls-for-service should accurately classify and
prioritize calls.
Calls-for-service workload should also be analyzed to develop policies to reduce time
spent on inappropriate tasks. Telephone reporting procedures should be expanded so that minor
crime reports can be taken over the telephone. Recovered time can then be redirected to more
productive work such as community problem-solving.
Thc most critical element of the MPO proccss is to analyzc patrol workload and
assign officers to duty in a way that fits staffing levels to variations in call-for-servicc workload
by hour of the day, day of the week, and season. The patrol work schedulc is the primary tool
police managers can utilizc to allocate patrol staff resources. The goal of this effort is to
provide patrol officers with adequate, uncommitted time at peak activity periods so that they
can focus on problems through directed patrol.
Directed patrol is a pre-planned activity that is either officer or supervisor generated and
is designed to address neighborhood problems. Directed patrols can encompass a wide range of
activities from canvassing neighborhoods to staking out high crime locations. Officers can apply
a great deal of ingenuity in developing directed patrols. It is a mechanism that can be used to
involve patrol officers in community oriented problem solving efforts.
Mana2:in2: Criminal Investh:ation (MCl). The MCI process helps an agency to
implemcnt a systematic approach to applying staff resources to thc task of conducting criminal
investigations. MCI calls for implementation of the following:
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. An expanded role for patrol officers in conducting preliminary and
some follow-up investigations. In the SCSO, patrol officers are used
to carry out all preliminary misdemeanor investigations and are also
assigned selectcd follow-up.
. A more effective quality control process for conducting and reporting
preliminary investigations, arrcsts, and field interviews.
. Specific criteria for identifying career criminals and repeat offenders
should be utilized.
. Improved case assignn1ent and management methods. Fom1al case
management procedures to assign and track cases have not been used
in the SCSO. The Sheriff indicates that they will be used.
. Improved police-prosecutor cooperation to help improve officer
training and case quality. Cooperation between the SCSO and
prosecutor are good. The Undersheriff can build on this cooperation
to provide training in case management and quality control.
At the heart of the MCI process is a case management system that is used to assign cases
for follow-up based on solvability factors and ongoing crime problems. This monitoring system is
then uscd to track progress made through investigations and the outcomes generated by investigators.
Realizing that many repeat offenders are juveniles, there is a spin-off from the C-CAP
effort called SHOCAP. Meaning Serious Habitual Offender Comprehensive Action Program. this
effort focuses on the most activc juvenile offenders. PAS administered this program, and technical
advice granted under it, for the U.S. Justice Department and can furnish additional information.
Usin2: Data to Mana2:e .Jails
The Service Excellence process does not just focus on patrol and investigations. It
should also include thc corrections function. Working smarter in corrections involves being properly
organized and staffed using data to manage more effectively and efficiently, and by conceptualizing
corrections as a system.
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Nceds Assessmcnt
The process of working smarter involves both a needs assessment and a risk assessment.
Needs Asscssmcnt
Risk Assessment
Medical
Assaultive
Mental Health
Escape
Suicide
Victimization
Programs
Mana2ement Decisions that Flow from Assessment
Subsequent to the needs and risk assessments, key decisions that should be made
include:
. Proper housing assignment
- Single ccll, double cell, dom1, infirmary, watch cell
. Staffing assignments
- Locations, positions
. Supervision levels
- Direct, indirect constant
. Service needs
- Medical, mental health
. Programs
- Educational, vocations, substance abuse
.
Resource managcment
Lcast restrictive housing
I-Iuman rcsource allocation
Purchase of scrvices
Program development and funding
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Attainin2: Goals
The primary goal in Corrections is to protect inmate safety. The subordinate objectives
in achieving this goal are:
. Identify assaultive inmates
. Identify potential victims
. Separate by housing/secure
. Closely supervise predators
. Evaluate process and outcome
Close the Loop-Follow-Up on Classification
"Close the loop" by monitoring a series of reports that show inmate behaviorto include:
. By classification
. By location
. By time of day
. By age
. By race
. By reporting officer
. By day of week
. By victim
. By name
Commitment to Qualitv
Implementation of a collaborative approach to community based policing and
conceptualizing the corrections process as a system closely parallel concepts inherent in the
commitment to quality thrust. The roots of quality focused management have been traced back to
the work of Dr. W. Edwards Deming and, over the years, has evolved into many fom1s.
Total Qualitv Leadershin (TQL). A spin-offofthe popular Total Quality Management
movement occurring in thc private sector, TQL is a process whereby the organization establishes
new structures in order to ". . . promote and implement continuous improvement of procedures,
processes, and services. "32 Furthermore, this process is composed of threc principal components:
(1) satisfaction of thc stakcholdcrs (citizcns, employecs, courts, etc.); (2) participation of the
32Margolis. S.M. & Mutz, J. (1991). Total Quality Leadership in the Van Nuvs Areau
Phase One. Los Angeles Police Department Technical Report.
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stakeholders in defining and solving problems that affect their satisfaction; and (3) improving the
process by which products and services are designed, produced, and deli vered. The third component
ofTQL, also referred to as Continuous Process Improvement (CPI), is aimed at preventing quality
problems rather than allocating resources for remediating or mitigating the effects of quality
problems that should not have occurred.
TQL is not just a bundle of good intentions. In order to implement this approach to
organizational improvement, there must be: (1) unifying goals and supporting objectives; (2) a
structure of teams that work on problems at the 100vest possible organizational level; (3) a climate
of trust, competence, and accountability that encourages organization members to innovate; and (4)
an informational support structure that provides problem solving teams with the data necessary to
monitor constantly the quality of the department's services.
Demin2.'s "13 Points." While Deming has not wTitten directly about law enforcement
management, his "points" about quality management can be infused into a Sheriffs office service
excellence process through commitment to quality and a responsive infrastructure.
I. Create constancy of purpose for improvement of product and
servlcc.
Law enforcement agencies around the country are rethinking the
trend to specialization that has reduced the role of patrol officers
to that of call answerers. Proliferation of special units is an
extension of incident orientation. Asking small specialized units
isolated from the patrol forcc to dcal with a problcm ignores thc
complexity of problems police arc called upon to address. Still
further, special units develop a life of their own and can pull an
agency in many directions at once based on the interests of each
special unit. These units establish constituencies that allow them to
exist beyond their useful life. In the process, these units tend to grow
in size and sap resources from primary service delivery by patrol
officers.
A law enforcement agency needs to use strategic management
techniques to decide its priorities and determine the "business" it
should be in. A mix of services needs to be identi fied that maximizes
the agency's strcngths and minimizes threats to success. The
community, as the primary "customers," needs to be invited to
participate in this strategic planning process. Thcn, staff from the top
to thc first-line necd to be trained to deliver scrvices to citizens in a
manner that is consistcnt with those stratcgies.
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2. Adopt the new philosophy.
Service excellence must be given command emphasis by the Sheriff
and it would be very desirable if this process were part of an overall
Salinc County program.
3. Cease dependence on mass inspection.
Traditional systems for inspecting the work of officers has become a
game in which officers find out what level of quality is acceptable to
pass the muster of inspectors at various steps in the process. We pay
three times for this practice. For example, information is lost early
on by an incomplete investigation. Someone else in the agency
detects the error and brings it to the attention of management. Then
someone else (or the original officer) has to go back and reinvestigate
the incident. And, while it is recognized that there is a place for
audits in police operations, they don't have to consume so much of
the agency's resources.
Quality control needs to be established through a new system of
accountability that makes officers directly accountable to customers
rather than just to first-line supervisors. Deming argues that quality
will result not from inspection but from improvement of the process.
For example, investigators, prosecutors, orother users of information
generated by officers rarely are able to provide direct feedback to
officers on the quality of their work. The work of patrol officers will
improve if they are trained to meet the needs of customers who use
information which officers collect. In turn, officers must be held
directly accountable to these customers for results, such as for cases
that are lost because of poor information gathering.
4. Improve constantly and forever the system of production and
service.
The organization necds to be critical of itself on an ongoing basis in
an cffort to continue to provide better service and make better use of
existing resources. The Saline County Shcriffs Officc must
strengthen its evaluation, feedback, and refinement efforts.
Continuous Process Improvement (CPI). as it is known, should usc
data on performance to define ways of improving service dclivery
continuously.
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Management information systems applications need to be developed
that directly support decision making by managers and employees.
Information on how time is spent and the quality of services delivered
to customers is critical to identification of mid-course adjustments as
well as to discovery of innovative ways to deliver better services.
5. Institutc additional training.
This includes training in topics such as mediation, problem solving,
using information, counseling, substance abuse, survival foreign
language training, harnessing diversity and ethics in order to deal
with the diverse problems they must address in the field. The an10unt
of training time accounted for in the calculation of department
staffing will need to be reevaluated to allow for more on-duty training
time. In addition to skill training for patrol officers and detectives,
supervisors and mid-managers will need more training in leadership,
coaching, motivation, group problem solving, and management
information.
6. Institutc leadership.
The role of supervisors needs to be changed from an inspector or
"hall monitor" to that of a "coach" who helps staff learn how to do
their job better. Rather than using the shotgun approach of applying
all training to everyone, supervisors must identify the needs of
individual employees and provide them with individualized
instruction on an ongoing basis. Mid-level managers will also need
to have their roles reexamined. Besides being competent technicians,
mid-managers will have to do more "leader things" such as inspiring,
teaching, and rewarding subordinates.
7. Drive out fear.
A principal method of reducing fear is to improve communication.
One way to improve communication is to implement a participatory
management process that taps the skills of staff. Broad based user
group participation in the research, planning, and development
process will help reduce fear of the unknown and resistance to
change. Ongoing change designcd to improve efficicncy and service
should become accepted as a normal part of life in the departmcnt.
However, attempting changes on onc's own can be fearful because of
the perceived lack of support by supcriors. Good pcople with good
intentions will fail occasionally if thcy arc working near their
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capacity. Failure under such conditions should not be punished.
Wise leaders know this. They also know how to make failure a
"growth" experience for all concerned.
8. Break down barriers between staff areas.
Conflicting goals of some of these components of the department lead
to wasted effot1 and inefficient use of resources. Team building
needs to take place that helps both operations and support elements
to adopt a common vision of the department's efforts to serve it's
customers. Barriers can be eliminated by revising the organizational
structure, more clearly defining work group objectives, and
improving accountability for obtaining results.
9. Eliminate slogans, exhortations, and targets for the work force.
Let people develop their own slogans and targets that are consistent
with the department's goals. Ownership is developed at the line level
not through organizational "group think." And while it is important
for morale that groups and problem solving teams create their own
slogans and activity targets, it should be emphasized that overall
performance standards must be maintained or the quality of service
will vary too much an10ng the geographic areas.
10. Eliminate numerical quotas.
If numerical goals for performance must be met at all costs, then
usually something else in the organization suffers. Working toward
numerical goals shj fts the focus from the desired end state to the
means by which the end is pursued; it becomes a numbers game.
Solving problems rather than meeting artificially established quotas
for performance can divert resources for more meaningful and
satisfying work.
This prescription should not be confused with the measurement and
reporting of results. The SCSO should always strive for better
results, such as faster responses to emergencies and reductions in
crimes; but encouraging people to perform a specific number of
activities which mayor may not cause a particular result is merely a
lazy form of supervision and should be avoided.
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II. Rcmove barriers to pride of workmanship.
Patrol officers should conduct expanded preliminary investigations
and some follow-up investigations. By doing so, officers will have
a chance to see cases to their completion, testify more often in court
and see an investigation as a complete product. This expanded role
of all patrol officers should extend to delivery of crime prevention
services such as home security surveys and participation in public
education efforts. Allowing patrol officers to participate in problem
solving efforts in geographic areas to which they are assigned will
increase pride of ovmership of the neighborhoods they serve.
Similarly, investigators should be freed from doing work that ought
to be performed by patrol officers. In turn, investigators should focus
on cases that are complex or time consuming that patrol officers
cannot adequately handle them.
12. Institute a vigorous program of cducation and retraining.
Oddly enough, most people who work in law enforcement know very
little about the nature of crime, juvenile delinquency, mental illness,
political science, and many other topics that directly relate to the
social problems the police confront every day. More and more, the
nature of policing has become multidisciplinary.
13. Takc action to accomplish the transformation.
Positive well-planned action is essential. Part of the planning phase
requires that current programs, ifvaluable, must be coordinated or the
transformation will suffer. When implementing a plan of action, Dr.
Deming warns managers to avoid some deadly diseases, to include:
. Focusing too much on short-term results.
. Using a management by objectives process that promotes
competition and defeats efforts at teamwork.
. Movement of managers too often such that they ncver get thc
chancc to sec the effccts of long-term changes.
A game plan to improve thc quality of service and efficiency of
operations nceds to be put together.
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The Service Excellence Process
The specific components of the Service Excellence model and how they fit together are
not new. In many ways, the model is an expansion of the S.A.R.A. (scanning, analysis, response,
assessment) steps used by the several agencies successfully employing the Problem-Oricnted
Policing (POP) approach to community-based policing. Likewise, this process shares many of the
features of the Integrated Apprehension Program (ICAP)/Career-Criminal Apprehension Program
(C-CAP) implementation model (data collection, analysis, planning, servicc delivery, feedback).
These approaches employ a problem management model that includes the following steps:
(I) sensing problems; (2) defining problems; (3) deriving solutions; (4) implementing solutions; and
(5) evaluating outcomes and refining.33 A five phase model, selected over the four phase S.A.R.A.
model because the latter puts too great an emphasis on responding and too little on preparing to
respond, is illustrated in Figure I.
Figure 1
SERVICE ~
~a
EXCELLENCE t1
PROCESS ~
L~~:~~alr.ktitb1:~~'~!r:t1
Phase I Phase II Phase III Phase IV
- Problem Problem Action - -
Identification Analysis Planning Implementation
Phase V
Assess
Results
Some supervisors and managers may see employee or community "empowerment" as
a threat to thcir power, privilege, or prerogative. But if they would view their jobs more in terms of
leading and coaching than monitoring and controlling, they would discover that they would bc
making fewer decisions, but thcir power would incrcasc. Rathcr than being involved in constantly
putting out thc "brush fires" associated with micro-management, supcrvisors would be morc
instrumental in the achievemcnt of organizational goals by their subordinates. Power comes in the
33Kilman, R.H. (1989). Mana~inl..!, Bevond the Quick Fix, San Francisco: Josscy
Bass.
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form of ensuring high performance rather than trying to control most activities and thcn finding
somconc or something to blame for lack of performancenand then having to take remcdial action.
A comprehcnsive integrated approach is nceded to improve thc SCSO. The Service
Excellence process should bc the starting point in planning such an approach. The specific benefits
from the adoption of this model are presented belo\v.
Value of the Service Excellence Process in Policing
There are three specific benefits that would accrue to the Saline County Sheriffs Office
in using this unifying process. First is improved interaction and collaboration with the community.
Second, better work would be produced. Third, it establishes a structure for continued development.
Imnrovin2: Responses to Community Needs. By involving citizens in the problem
identification, action planning, and implementation stages of this process, citizens not only become
involved "customers," but they develop a better understanding of exactly what police services to
expect. Defining expectations of citizens (and officers) is important because many police agencies
have helped create unrealistic expectations of what the police can do to solve problems. Counties
and cities no longer can commit unlimited resources to law enforcement to alone make a substantial
impact on its crime and order problems. Instead, the County needs to create a "multiplier" effect in
responding to community problems. This multiplier effect necessitates bringing!lli!.!J.Y more citizens
into the problem solving process. Herman Goldstein calls this "engaging" the community.34 It is
just not cost-effective for the police to do many of the things for specific neighborhoods that
neighborhoods could do for themselves, with a modicum of help.
The community orientation of the Service Excellence process also suggests the need for
collaboration with many city, county, state, federal, and private agencies. The City Police
Department and the SCSO cooperate and coordinate well.
It is unfortunate that many people do not fully understand how community-based
policing relates to law enforcement strategies such as apprehension. Some see the shift in focus
toward community problem-solving as an abdication of traditional law enforcement cfforts. This
"either/or" view is erroneous. Even if some of the time spent previously on apprehension or
suppression activities were shifted to police-community problem solving, the potential impact could
be easily offsct. This is accomplishcd in two ways.
34Goldstein, H. (1990). Problem Oricnted Policing. Philadelphia: Templc
University Press.
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First, by addressing a priority neighborhood problem that is creating conditions which
foster criminal activity or public disorder, the law enforcement agency is actually attempting to
solve the problem rather thanjust responding to calls generated by the problem. An example would
be focusing efforts on the well known strip of bars in Saline County that are source of disorders,
DUIs, and crime. This is in keeping with the central tenets of Commitment to Quality andjust plain
good management.
Second, much of the current apprehension activity that takes place in most counties and
cities is essentially non-directed, unrelated to series crime, and not focused on the repeat offender.
There is no compelling evidence that indicates that this approach is substantially reducing crime and
disorder problems in thc County--especially in light of the rising cost of incarceration. \Vith a more
focused approach, however, apprehension efforts focus more on the worst offenders-the small
number of whom are responsible for most of the serious crimes in the County. Thus, by
analyzing the criminal activities of repeat offenders, enhancing cases of arrestees, and supporting
their rigorous prosecution, career criminals can be averted from committing more crimes than by
current practices. This will occur because sentencing ofrepeat offenders can now be in proportion
to the number of offenses that they commit.
Produce Better Work. The second benefit to the SCSO, with the adoption of Service
Excellence, will be improved work products. Through a combination ofTQL procedures and the
participatory nature of both career criminal apprehension programs and community/directed
policing, there will be greater worker involvement. To the extent this involvement is supported by
the departmcnt, there will be greatcr ownership of the work effort by those employees. It is almost
a proverb that employee owncrship of the work product results in highcr quality and reduced "re-
work." Rather than just getting by--producing the minimum acceptable work or blaming others for
poor qualitynemployees now begin acting like entrepreneurs, and it is now in their enlightened self-
interest to produce better quality work.35
Given the participatory nature of each one of the three components of the Service
Excellence process, conflicts between projects are usually avoided. Moreover, the systematic
analysis of problems and strategies built into the process also mitigate against the likelihood of
projects conflicting.
Similarly, information flow is improved because of the essential structure of the fivc
phases of the Scrvice Excellence model. This modcl relies heavily on a competent infom1ation flov,;,
starting with problem identification through assessment and a completed feedback loop. In short,
information is the lifeblood of the process. To take advantage of that "lifcblood," the SCSO must
treat information more as a valuable resource and, consequently, put a much greater premium on its
quality and utilization.
35Block, P. (1987). The Empowered Mana~er. San Francisco: .Iossey-Bass.
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Establishin2: a Framework for Development. Beside improving responses to
community needs and producing better work, the Service Excellence process also puts into place a
methodology that is adaptable to any number of future organizational improvement efforts. It does
this by establishing common goals, supporting objectives, and logical activities. Resources are then
allocated based on organizational priorities in a planned, systematic way.
The extent to which objectives were achieved and unexpected results occurred can
readily be determined by the assessment-refinement-feedback loop built in the modcl. Although
frequently overlooked in an agency's rush to get a project implemented, this aspect of the Service
Excellence process is absolutely essential if the development effort is ever going to have a future.
On the other hand, if a new project is perceived as relatively meaningless, cosmetic, or a one-shot
effort, then a developmental framework is not needed because it will not have power to generate
widespread support anyway.
Often overlooked as a critical developmental prerequisite, a sound analytical capability
is nevertheless an essential element. It is essential because it seems improbable that problems can
be effectively solved before they are understood. Rushing headlong into the breech of
implementation without the benefit of a reasonable analysis of the situation seems foolhardy,
providing time permitted a better analysis. All too frequently, however, the reason for a cursory
analysis is not the lack of time but lack of an adequate analytical capability. The Service Excellence
process not only requires a competent analytic capability, but actually strengthens the capability
through thc assessment-refinement cycle. PAS's recommendations for the development of a
planning capability in the SCSO Administration Division is to provide the necessary analytic
capability.
Conclusion
A Service Excellence process for the Saline County Sheriffs Office is a unifying
concept comprising three principal organizational development efforts: responsive infrastructure,
commitment to quality, and community oriented policing. This is illustrated in the figure on the next
page. The first emphasis must be on Responsive Infrastructure or taking corrective action to change
the way the SCSO is organized and managed, its policies and procedures, and its use of information.
This can be reinforced with the emphasis on quality and moved to a higher level with community
based policing that maximizes the resources of all parties by providing for citizen and police joint
law enforcemcnt problem solving. Individually, each of thesc components promise significant
organizational improvement. A synergistic result is probable because the three improvement efforts
will not only be saving energy by not competing \vith each other, but the succcss ofonc component
\vill tend to support the work of the other two. In the abscncc ofthc unifying featurcs of the Service
Excellencc proccss, well-meaning organizational improvements now undcrway are likely to creatc
confusion and instill uncertainty throughout the department.
On the paQe after next is a fiQure which illustrates a "check sheet" on whcther the
necessary infrastructure is in place to achicve service excellence.
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Figu re 2
II
SERVICE EXCELLENCE
II
Responsive Infrastructure Commitment to Quality Community-Oriented Policing
Major Goal: Alajor Goal: Major Goal:
. Improve Planning and . Improved Quality of . Safer Neighborhoods
Resource Allocation Service
Approaches: Approaches: Approaches:
. Develop Planning . Customer Satisfaction . Problem Solving
Capability . Continuous Process . Customer Focus
. Use Model Reports in Improvement . Empowerment
Managing Patrol . Natural Work Teams . Building Partnerships
. Staff/Deploy Based on . Employee Development
Need
. Use Data to Manage Jail
. Improve Budget
Development and
Management
. Increase Joint Activities
with City
Participation Le\'els: Participation Le\'els: Participation Levels:
. County & City . All Employees . Police
Goveming Bodies . Community Members . Residents & Others
. Sheriff . Community Groups
. Police Department . Public Agencies
. County Administration
and City Management
Example Applications: E;wmple Applications: Example Applications:
. Career Criminal . Total Quality . Directed Patrol
Apprehension Program Leadership (TQL) . Neighborhood Drop In
. Directed Patrol . Total Quality . Crime Prevention
. Managing Criminal Management (TQM) . Interdiction
Investigations . Officers in Schools
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Sheriff's Infrastructure Improvement Checklist
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1. Managing Calls for Service 6. Linkage with Justice Agencics
A. Call priorities A. Prosecutor
B. Call screening B. Probation/parole
C. Teleserve C. Detent ion/corrections
D. Cellular options D. Juvenile service agencies
E. Using civilians/reserves E. Other L.E. agencies
2. Patrol Deploymcnt 7. Linkage with Neighborhood Groups
A. Hour of day/day of week/season A. Organizational structure
B. Geographic assignment B. Access to leaders
C. Use of uncommitted time C. Credibility of officers
D. Role of patrol supervisors D. Resources and skills
E. Use of generalists/specialists E. Goal compatibility
3. Investigative Case Management 8. Linkage with Service Organizations
A. Quality of preliminary investigations A. Mediation and counseling groups
B. Case assessment and assignment B. Churches and temples
C. Patrol-detective relationsh ip C. Youth oriented clubs
D. Case resolution and feedback D. Adult service agencies
E. Offender tracking process E. School and university groups
4. Crime Analysis & Analytic Capabilities 9. Linkage with Local Agencies
A. Strategic and tactical levels A. Social Services
B. Pattems and trends B. Public Works
C. Offender profiles C. Legal Department
D. Location profiles D. Parks and Recreation
E. Target profiles E. Housing and Dcvelopment
F. Using data to manage jails.
5. Em ployee Pa rticipation Proccss 10. Logistical Support
A. Role of bargaining units A. Equipment and supplies
B. Policies and procedures B. Facilities
C. Training C. Staffing
D. Recognition and rewards D. Maintenance
E. Problem solving roles E. Information systems
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The above listing is a onc-page summary or a check sheet of key elements (the
infrastructurc) necessary to accomplish service excellence in the Saline County Sheriffs Officc.
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Appendix A
STUDY GUIDELINES BY THE
SHERIFF AND COUNTY ADMINISTRATOR
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OFFICE of
COUNTY ADMINISTRATOR
300 W. Ash Room 217
r.O. Box 5040 Salina, Kansas 67402-5040
785/826-6555
FAX: 785/826-6629
November 25, 1998
George Hubler
Assistant Director
Public Administration Service
7927 Jones Branch Drive, Suite 100 South
McLean, VA 22102-3322
Dear Mr. Hubler:
Thank you for the Public Administration Service proposal for conducting a comprehensive
management, operations and productivity analysis of the Saline County Sheriffs Office. The
interview with PAS is scheduled for Monday, December 7, 1998, from 9:00 AM. to Noon in
room 217 of the City/County Building, 300 W. Ash.
The Saline County interview tean1 will consist of the following people: Commission Chairman
Deane Allen, Sheriff Glen Kochanowski, Personnel Director Rita Deister, Sister Mary Lou
Roberts (citizen representative), and myself. The interview team will ask a standard set of
questions of each firm to be interviewed. This will be followed by questions and discussion
regarding your firm's \vntten proposal. The interview will probably take less than the three
hours allotted.
The City/County Building is on the northeast comer of 9th & Ash (directly west of the Chan1ber
of Commerce building labeled "A" on the attached map). Directions are as follows: From
Kansas City take 1-70 west to Salina's 9th Street exit. Turn left (south) onto 9th Street and go
approximately 2.5 miles to Ash Street. From Wichita take 1-135 north to Salina's Crawford
Street exit. Turn right (east) onto Crawford Street and go approximately 1.5 miles to 9th Street.
Turn left (north) onto 9th Street for approximately I mile to Ash Street.
Thank you and have a nice Thanksgiving and safe travel.
Sincerely,
o~c~
David Criswell
County Administrator
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OFFICE of
COUNTY ADMINISTRATOR
300 W. Ash Room 217
P.O. Box 5040 Salina, Kansas 67402-5040
785/826-6555
FAX: 785/826-6629
January 26, 1999
George Hubler, Assistant Director
Public Administration Service
7927 Jones Branch Drive, Suite 100 South
McLean, Virginia 22101- 3322
Dear George:
I am pleased to report that the Consultant Review Committee's recommendation to hire Public
Administration Service has been approved by the Saline County Commission. The date for the
analysis to begin is set for February 8, 1999. Thank you for your assistance in helping us get to
this point.
We will follow your instructions regarding what needs to be done in preparation for your arrival.
Please advise.
Enclosed arc four copies of the agreement, signed by Saline County. Upon your signatures,
please return three copies to us.
Thank you.
S incerel y,
Oc<~ C~
David Criswell
County Administrator
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To: Major Carl Kiltz
From: David Criswell
Datc: 2-4-99
Re: Oricntation Sessions and Employee Interviews with George Hubler
Thank you for yourcxcellcnt assistance in preparing this schcdule for the best convenicncc
and efficicncy of Sheriffs Officc cmployees and the consultants.
I. ShcrifPs Office Employce Oricntation Sessions:
George Hubler will conduct four (more ifneeded) Sheriffs Office employee
orientation sessions in the S.O. training room of approximately 30 minutes in
length, after which the employees will be asked to fill-out confidential surveys
which are expected to take approximately 15 minutes to complete. The
orientation sessions will be conducted at the following dates and times:
(I) Tuesday, February 9th at 4:00 P.M. (corrections shift change)
(2) Tuesday, February 9th at 6:00 P.M. (patrol shift change)
(3) Wednesday, February 10th at 4:00 P.M.
(4) Wednesday, February 10th at 5:00 P.M.
II. SherifPs Officc Employec Intcrviews
All full and part-time Sheriff's Office employees, including deputy-hire positions, will have the
opportunity to meet with George Hubler or one of his assistants for each employee's choice of
either an individual interview or a small group interview with approximately 4 or 5 other
employees. These interviews are expected to take approximately 20-30 minutes. After the
employees have stated their preference for either an individual or group interview, we will begin
to schedule the interviews. It is expected that some employee interviews will be done while the
consultants are meeting with employees to gather information (for eXan1ple - while riding with
patrol officers).
Again, thanks for your help and please contact me if you have any questions.
cc: George Hubler
Steering Committee
County Commission
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Memo
To:
George Hubler, Public Administration Service (PAS)
From:
Sheriff Glen Kochanowski
Subject:
Issues
Date:
February 17, 1999
cc:
Sheriffs Study Steering Cornn1ittee and File
1. PURPOSE The purpose of this memorandum is to document briefly our conversations on
the "key issues" (from the Sheriff's perspective) that need to be addresses in the PAS Study of
the Sheriff s Office. The issues we discussed are shown here in brief bullet sty Ie and conclude
with remarks on how PAS can be of assistance on certain issues.
2. ISSUES
· Role Definition -- The role of the County Commissioners and County
Administrator versus that of the Sheriff regarding the County law
enforcement and corrections program needs review and comment.
County Commissioners (assisted by the County Administrator) are
responsible for the financial affairs of the County (power of budget and
purse), for county "legislation" and legislative oversight. The Sheriff, as
the County's chief law enforcement officer is charged with planning and
carrying out the law enforcement and corrections programs in accordance
with the state constitution, state law, and custom. These overlapping roles
cause adversarial relationships between officials nationwide. How can
communications be improved and the adversarial nature of this
relationship be alleviated in Saline County so that we can do our
respective jobs and serve the public better?
· Staffing/OvertimeuThe use of overtime in the Saline County Sheriffs
Office is due in part (particularly in Corrections) to filling in with overtime
to replace personnel who are absent due to use of sick leave and to the fact
that the staffing in certain areas is at minimalleveIs. For example, the
new jail was planned and implemented at the lowest staffing alternative
presented by the jail consultant. This combined with the excessive use of
sick leave and turnover in corrections personnel to move to road patrol or
court security or out of the system entirely creates a real problem. We
Sheriff G. Kochanowski
Page 2
February 16. 1999
look forward to having PAS examine our basic staffing and assumptions
on which it is based and to make appropriate recommendations.
· Leadership It is important for the County Commissioners and County
Administrator to realize that the elected Sheriff has the primary
responsibility for supervising the carrying out of the law enforcement
mission (defined broadly to include patrol, investigations, corrections,
process and warrant service, court security, etc.) and in order to do so the
Sheriff, must look out for the well-being of personnel working in the
Sheriff's Office. In order to lead them effectively I am obligated to speak
out pubIically and to try to obtain the resources necessary so that we can
best serve the residents of Saline County . PAS should comment on how
this leadership role is carried out in other counties.
· Vehicle Maintenance and Replacement I have taken the initiative to
purchase maintenance service from the City of Salina for Sheriffs Office
vehicles. This includes scheduled preventive maintenance and necessary
repairs at favorable rates. P AS should explore the City Maintenance
Superintendent making recommendations on the replacement of vehicles
based on condition of the vehicle and milage. (Note: PAS has explored
this with the City and the Superintendent would agree to keeping a
maintenance file on each vehicle and would make a recommendation if
asked. At present, the City does not have an automated fleet maintenance
system, but is in the process of examining/acquiring this type system. This
would improve the tracking of maintenance and vehicle condition and,
utilizing the system and diagnostics make even more precise the
Superintendent's recommendations ---GEH, PAS)
· Budgeting The current budget is the first of my administration. I believe
it is a reasonable and responsible financial plan. While we will make
every effort to comply with "target budgeting," it would be useful if some
incentive could be built in to the County's budgeting system that would
provide for reinvestment of a part of savings or revenue credits into
departments and agencies doing a good job. I understand that this
technique was used in the Phoenix, Arizona and in California in the past.
· Inmate Welfare Fund I take strong exception to the characterization of
the use of this fund made by county administration in their February 8
issue paper. Auditors can have different opinions of the proper placement
of responsibility of this fund, the existence of which was known to
previous county administrations and auditors. The handling of this fund in
Saline County has no similarity/relationship to the Rooks County situation
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Sheri IT G. Kochanowski
Page 3
February 16, 1999
cited by county administration and is an example of a statement that
makes positive communications difficult.
· As relates to personnel practices---the Sheriffs Office will comply with
County policies that apply to this office under the state constitution and
statutes. I reserve the right, however, to bring up matters that are unique
to law enforcement and to present forceful arguments for them. This
includes discipline systems necessary in law enforcement, appropriate
compensation and incentives for my employees, and the equipment and
supplies necessary to support our unique service mission.
3. COOPERATION IN STUDY
Sheriff's personnel are cooperating in providing the information requested by the Public
Administration Service Consultant and look forward to implementing elements of the study that
will be beneficial to the people of the county, the county governn1ent, and the Sheriffs Office.
Sincerely,
Glen Kochanowski
Note: George Hubler of PAS wrote a draft of this memorandum based upon an
interview with the Sheriff.
The comment on the City providing fleet management services was added
subsequent to the development of the draft.
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To: George Hubler, PAS Assistant Director
From: David Criswell and Rita Deister
Date: 2-08-99
Re: Summary of Issues Related to the Sheriffs Office
The following statements are not necessarily facts, but represent our perceptions of the major
issues regarding the Sheriffs Office: .
I. BUDGET ISSUES:
A. Targct-Bascd Budgeting: For the 1998 budget, the Sheriff did not distribute his budget
target among the line items in his budget according to historic spending. For most line
items, he placed the same amount in the line item as was budgeted in 1997 regardless of the
amount that had been spent in the line item. For cxample, in equipment repair (827.050)
the amounTb-udgeted in 1997 was $8,000 and the actual amount spent in 1997 was $24,792;
instead of shifting money from accounts that were underspent in 1997, he budgeted $8,000
again for 1998. This indicated little or no effort was made to manage the budget according
to target-based budgeting principles.
B. Padding of Discretionary Line Items: Historically, the Sheriffs Office underbudgeted
line items that could be easily justified when overspent. They explained that no discretion
was possible with certain line items such as inmate medical and meals becausc "we don't
have any choicc, we have to feed the inmates." On the other hand, line items were padded
for which there existcd greatcr opportunity for discretion. The result was poor managemcnt
of both discretionary and non-discrctionary line itcms. Non-discretionary linc itcms werc
ovcrspent as expected and discretionary line items were spent with little nced for restraint.
This game has been admittcd to by the Administrative Captain and the former Sheriff.
Also, purchases have frequently (until recently) been coded to line items that had money
regardless of whether it was the correct line item. This has madc it difficult to cvaluate thc
actual needs for any particular line item.
C. Discretionary Spending: Historically, when there are indications that the budget is in
trouble, these indications do not result in greatcr use of discretion with regard to spending.
For example, spending on promotional or public relations items such as Halloween trick-
or-treat bags, mugs, etc., continues despite indications that the budget may be in trouble or
is already in the red.
D. Inmate Welfare Fund: The Sheriffs Office Inmate Welfarc Fund was discovered in
September, 1998, as a result of the 1997 budget audit. Pay phone and commissary
revenues had been deposited into a Sunflower Bank checking account maintained by the
Sheriffs Office from which items were purchased outside of the county's accounts payable
system, without regard for the county's purchasing policy, and without Commission
oversight. This situation is identical to the misappropriation of public funds charge
currently filed against the Rooks County Sheriff by the Rooks County Attorney.
II. PERSONNEL MANAGEMENT ISSUES:
A. In 1996, the David M. Griffith & Associates Comprehensive Wage and Position
Classification Study determined, based on actual position requirements, that the
Administrative Captain should be one pay grade below the Patrol and Corrections Captains.
The Sheriff argued that all Captains should be payed the same. To justify paying the
Administrative Captain the samc as the other captains, the Sheriff placed the supervision of
DARE, court security and maintenance under the Administrative Captain.
..
B. Overtime:
I. Under the former Sheriff, it seems that training was done at the convenience of the
Undersheriff. The Sheriffs Office claimed they couldn't train employees during their
regularly scheduled work hours. All employees were required to come to training,
and, if an employee was not regularly scheduled to be working, he was usually paid
overtime while in training.
2. The Sheriff and Undcrshcriff are never scheduled for patrol duty. They are almost
totally administrative. It is not known how many hours per week the Patrol Captain
works patrol or ifhe schedules himself in a manner that would minimize some of his
officer's overtime. The same questions exist for the Corrections Captain.
3. The attitudc appears to bc that officers have significant lattitude in acquiring
overtime.
C. Hiring Methods: In the past, corrections officer positions have been applied for by
qualified people (passed the tests) who possessed the desire to be corrections officers and
expressed no interest in being patrol officers. Such people have often been turned away in
favor of people with more interest in being patrol officers who, upon being hired, used the
corrcctions officer position as a stepping stone toward becoming a patrol officer. It appears
that positioning corrections as a stepping stone to patrol may be a significant factor behind
the high turnover in corrections.
D. At exit interviews, persons terminating employment as corrections officers often tell the
Personnel Director that they almost never see the Sheriff in the jail area.
E. Personnel Policies: Unlike other departments, the Sheriffs Office creates its own
personnel policies without sending them to the Personnel Director to be reviewed for
compliance with county policy. The result is that Sheriffs Office policies exist that
conflict with county policy. The conduct under which such Sheriffs Office policies have
been created is symptomatic of the Sheriffs attitude that, for the S.O.. there are more
exceptions than rules. In regard to the S.O. discioline oolicy, the Sheriff professed that
S.O. personnel are more accountable and neld to a higher standard than other county
employees and therefore needed their own policy on discipline.
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F. Administration: The DMG consultant indicated that he suspected the S.O. was
administratively top heavy. This has not, however, been thoroughly evaluated. For
example, does there need to be both an Undersheriff and an Administrative Captain? Could
some or all of the duties performed by the Undersheriff or the Administrative Captain be
performed by personnel in less senior positions?
G. Other questions pertain to rctcntion and morale. Ifretcntion and morale are low, what
are the root causes?
III. COMMUNICATION / PUBLIC PERCEPTION ISSUES:
A. The Sheriffs manner of communicating or presenting infom1ation is often based more
upon dramatic presentations characterized by emotionally charged statements than upon
thorough analysis or factual accuracy. For example, a typical response to whether or not
spending is justified is: "What's the value of the life of one of my deputies?" Statements
likc this have no basis in reason; they are pure emotion and turn what should be a sound
analysis of costs, benefits and options into an emotional threat. Recently, the County
Attorney used this tactic when she publicly stated to the Commission "The blood will be on
your hands" if something were to go wrong with a high mileage vehicle because the
Commission didn't allow the Sheriff to buy the new cars he said he needed. The Sheriff
had no data to substantiate at what point it is impractical to maintain a high mileage vehiclc
in a safe condition. He refuscd to discuss what critical components ofa vchicle, ifthcy
malfunctioned, could create a deadly situation and, therefore, necessitated greatcr attcntion
to maintenance. Rathcr, he stated, if something went wrong with one of thc oldcr cars and
someone got hurt, he'd be one of the first ones in line to suc thc county. The goal ofthc
Shcriffs communication is to influence decisions to go his way. At the samc timc, his
emotional and alanning statcmcnts sensitize much of the public into believing that thcrc is
no other choice than to spend moncy as he says it should bc spcnt.
ACCOUNTABILITY ISSUES:
A. Historically, County Commissions have demanded much less accountability of the
Sheriffs Office regarding spending and compliance with county policy than has been the
case for most other departments. The Sheriffs Department has developed a cavalier
attitude toward spending and a resistance to acknowledge budget compliance as something
applicable to them. They have found it easier to claim that spending is beyond their control
than to force themselves to make the tough choices required to stay within budget.
B. The Sheriffs Office's method of operation puts a disproportionatc demand upon the
time and resourccs of other county departments. For instancc, the Personnel DeoC!rtment is
rarely kept informed regarding potentially litigious personnel matters In the ::>heritfs
Officc. When the Sheriffs Office handles SUen Issues without input or involvement from
the Personnel Department, the situation oftcn evolves into something serious. By thc time
the Pcrsonnel Department catches wind of the issue, it has often becomc a crisis which,
then, requires significant time and effort by the Personnel to Department to correct. With
regard to spending, other county departments recognize there is a double standard.
C. Because the position of Sheriff is an elected position (and, perhaps, for other reasons),
the Sheriff and the Commission are often at odds. The Sheriff has the luxury of setting his
own goals and direction. Historically, Sheriffs have seen the County Commission as the
body from which to get as much money as possible. However, unlike with appointed
departments, there is little accountability back to the Commission.
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To: George Hubler, PAS Assistant Director
From: David Criswell and Rita Deister
Date: 2-08-99
Re: Summary of Issues Related to the Sheriffs Officc
The following statements are not necessarily facts, but represent our perceptions of the major
issues regarding the Sheriffs Office:
I. BUDGET ISSUES:
A: Target-Based Budgeting: For the 1998 budget, the Sheriff did not distribute his budget
target among the line items in his budget according to historic spending. For most line
items, he placed the same amount in the line item as was budgeted in 1997 regardless of the
amount that had been spent in the line item. For example, in equipment repair (827.050)
the amounThudgeted in 1997 was 58,000 and the actual amount spent in 1997 was $24,792;
instead of shifting money from accounts that were underspent in 1997, he budgeted $8,000
again for 1998. This indicated little or no effort was made to manage the budget according
to target-based budgeting principles.
B. Padding of Discretionary Line Items: Historically, the Sheri ffs Office underbudgeted
line items that could be easily justified when overspent. They explained that no discretion
was possiblc with certain line items such as inmatc medical and mcals bccausc "we don't
have any choice, we have to feed the inmates." On the other hand, line items were paddcd
for which there existed grcatcr opportunity for discretion. Thc result was poor managemcnt
of both discretionary and non-discrctionary linc itcms. Non-discretionary linc itcms wcrc
ovcrspent as expected and discretionary line items were spent with lilllc nced for restraint.
This game has been admittcd to by the Administrativc Captain and thc former Sheriff.
Also, purchases have frequently (until recently) been coded to line items that had money
regardless of whether it was the correct line item. This has madc it difficult to cvaluate the
actual needs for any particular line item.
C. Discretionary Spending: Historically, when there are indications that the budget is in
trouble, these indications do not result in greatcr use of discretion with regard to spending.
For example, spending on promotional or public relations items such as Halloween trick-
or-treat bags, mugs, etc., continues despite indications that the budget may be in trouble or
is alrcady in the red.
D. Inmate Welfare Fund: The Sheriffs Office Inmate Welfarc Fund was discovered in
September, 1998, as a result of the 1997 budget audit. Pay phone and commissary
revenues had been deposited into a Sunflower Bank checking account maintained by the
Sheriffs Office from which items were purchased outsidc of the county's accounts payable
system, without regard for the county's purchasing policy, and without Commission
oversight. This situation is identical to the misappropriation of public funds charge
currently filed against the Rooks County Shcriff by thc Rooks County Attorney.
II. PERSONNEL MANAGEMENT ISSUES:
A. In 1996, the David M. Griffith & Associates Comprehensive Wage and Position
Classification Study determined, based on actual position requirements, that the
Administrative Captain should be one pay grade below the Patrol and Corrections Captains.
The Sheriff argued that all Captains should be payed the same. To justify paying the
Administrative Captain the same as the other captains, the Sheri ff placed the supervision of
DARE, court security and maintenance under the Administrative Captain.
B. Overtime:
1. Under the former Sheriff, it seems that training was done at the convenience of the
Undersheriff. The Sheriffs Office claimed they couldn't train employees during their
regularly scheduled work hours. All employees were required to come to training,
and, if an employee was not regularly scheduled to be working, he was usually paid
overtime while in training.
2. The Sheriff and Undersheriff are never scheduled for patrol duty. They are almost
totally administrative. It is not known how many hours per week the Patrol Captain
works patrol or ifhe schedules himself in a manner that would minimize some of his
officer's overtime. The same questions exist for the Corrections Captain.
J. The attitude appears to be that officers have significant lattitude in acquiring
overtime.
C. Hiring Methods: In the past, corrections officer positions have been applied for by
qualified people (passed the tests) who possessed the desire to be corrections officers and
expressed no interest in being patrol officers. Such people have often been turned away in
favor of people with more interest in being patrol officers who, upon being hired, used the
corrections officer position as a stepping stone toward becoming a patrol officer. It appears
that positioning corrections as a stepping stone to patrol may be a significant factor behind
the high twnover in corrections.
D. At exit interviews, persons terminating employment as corrections officers often tell the
PersonnerDirector that they almost never see the Sheriff in the jail area.
E. Personnel Policies: Unlike other departments, the Sheriffs Office creates its own
personnel policies without sending them to the Personnel Director to be reviewed for
compliance with county policy. The result is that Sheriffs Office policies exist that
conflict with county policy. The conduct under which such Sheriffs Office policies have
been created is symptomatic of the Sheriffs attitude that, for the S.O., there are more
exceptions than rules. In regard to the S.O. discioline Dolicy, the Sheriff professed that
S.O. personnel are more accountable and neld to a higher standard than other county
employees and therefore needed their own policy on discipline.
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F. Administration: The DMG consultant indicated that he suspected the S.O. was
administratively top heavy. This has not, however, been thoroughly evaluated. For
example, does there need to be both an Undersheriff and an Administrative Captain? Could
some or all of the duties performed by the Undersheriff or the Administrative Captain be
performed by personnel in less senior positions?
G. Other questions pertain to retention and morale. Ifretention and morale are low, what
are the root causes?
III. COMMUNlCA TION / PUBLIC PERCEPTION ISSUES:
A. The Sheriffs manner of communicating or presenting information is often based more
upon dramatic presentations characterized by emotionally charged statements than upon
thorough analysis or factual accuracy. For example, a typical response to whether or not
spending is justified is: "What's the value of the life of one of my deputies?" Statements
like this have no basis in reason; they are pure emotion and turn what should be a sound
analysis of costs, benefits and options into an emotional threat. Recently, the County
Attorney used this tactic when she publicly stated to the Commission "The blood will be on
your hands" if something were to go wrong with a high mileage vehicle because the
Commission didn't allow the Sheriff to buy the new cars he said he needed. The Sheriff
had no data to substantiate at what point it is impractical to maintain a high mileage vehicle
in a safe condition. He refused to discuss what critical components ofa vehicle, if they
malfunctioned, could create a deadly situation and, therefore, necessitated greater attention
to maintenance. Rather, he stated, if something went wrong with onc of the older cars and
someone got hurt, he'd be one of the first ones in line to sue the county. The goal of the
Sheriffs communication is to influence decisions to go his way. At the same time, his
emotional and alarming statements sensitize much of the public into believing that there is
no other choice than to spend money as he says it should be spent.
ACCOUNTABILITY ISSUES:
A. Historically, County Commissions have demanded much less accountability of the
Sheriffs Office regarding spending and compliance with county policy than has been the
case for most other departments. The Sheriffs Department has developed a cavalier
attitude to\vard spending and a resistance to acknowledge budget compliance as something
applicable to them. They have found it easier to claim that spending is beyond their control
than to force themselves to make the tough choices required to stay within budget.
B. The Sheriffs Office's method of operation puts a disproportionate demand upon the
time and resources of other county departments. For instance, the Personnel DeDllrtment is
rarcly kept informed regarding potentially litigious personncl matters In the :::>heritt's
Office. When the Sheriffs Office handle::. sut,;o Issues without input or involvement from
the Personnel Department, the situation often evolves into something serious. By the time
the Pcrsonnel Department catchcs wind of the issue, it has often become a crisis which,
then, requires significant time and effort by the Personncl to Department to correct. With
regard to spending, other county departments recognize there is a double standard.
C. Because the position of Sheriff is an elected position (and, perhaps, for other reasons),
the Sheriff and the Commission are often at odds. The Sheriff has the luxury of setting his
own goals and direction. Historically, Sheriffs have seen the County Commission as the
body from which to get as much money as possible. However, unlike with appointed
departments, there is little accountability back to the Commission.
. / 0 L (' r j I I .. iJ
't/" ,,,,_,,,~'.l..
OFFICE of
COUNTY ADMINISTRATOR
\
MAY 0 6 1999
300 W. Ash Room 217
P.O. Box 5040 Salina, Kansas 67402-5040
785/826-6555
FAX: 785/826-6629
To: George Hubler, Assistant Director of PAS
From: David Criswell, County Administrator
Date: 5-3-99
Number of pages: 3
Re: Issues Regarding Sheriff's Off!ce Ma:1agement A..na!ysis
I would like to add the following issues to those which I have already expressed in memos dated
2-8-99 and 4-14-99.
1. An increase in pay for corrections officers should be based upon real market factors including
the actual knowledge and skills required for the position and the work requirements for the
position. The pay for any position should be supportable by the David M. Griffith & Associates
rating system which the county has employed since 1996. If this is not done, the internal and
'external pay equity the county has achieved will be. undermined. As you stated on 4-22-99 and
4-29-99, the r~commendations you will make regarding corrections officer pay will be based on
the changes you envision and will recommend for the position, not on what the job is currently.
2. As has been stated, the County Commission wishes your final reportto come as close as
objectively possible to presenting the cold, hard facts. Obviously, any report will contain
elements of subjectivity. However, please attempt to present your findings in the most
straightforward manner possible. No consideration should be given to individual personalities,
sensibilities, or perceptions of what might be practical or feasible politically. The conditions,
problems or deficiencies which underlie each of your recommendations should be disclosed.
Your recommendations will be of most value if presented in the context of the actual specific
conditions or events which stimulatp.n them. Tlw~ f8X, your di5cl0sure of deficiencies has mcst!y
been limited to positions of Captain and lower rank. A thorough analysis should include all
persons involved in the chain of command, communication, policy-making and budgeting,
including the Undersheriff, Sheriff, County Administrator and the County Commission.
J. A recent draft report states: "The Sheriff has a hands on approach to administration in which
he participates in the internal budgeting and management process. . ." If this is so, why was
the Sheriff so unaware of the supervision defiCIencies of his Patrol Captain? What does "hands
on" mean if the Sheriff, although making a presence. doesn't necessarily do the right things
(doesn't manage his supervisors adequately, allows persistent incompetence, addresses discipline
inconsistently, sends unclear and inconsistent messages to his employees, etc.)? The need to
maintain the Sheriffs cooperation during the course of the study is essential and your ability to
do so has been commendable. In the final analysis, however, general terms such as "hands on"
may be difficult to interpret ifnot sufficiently qualified.
f
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4. A recent draft report states: "The Sheriff looks out for the welfare of his employees. . . .
Sometimes the public pronouncements seem to be overkill or inappropriate, but the effort is
important." The Sheriffs meddling into bargaining unit negotiations and the emotional
pronouncements he has made involving misleading or one-sided information, may give the
impression that he is concerned for the welfare of his employees. r don't doubt that he is
concerned for them. However, from my perspective, the Sheriffs antics are actually harn1ful to
his employees. At best, there is questionable benefit to employees when their feelings of
confusion and ill-will toward the county are perpetuated and exacerbated with misleading
information. For the purposes of bargaining unit negotiations, the Sheriff is not a member of the
bargaining unit, and his direct participation (and that of his captains) is not appropriate. Because
of legal restrictions involving the need to engage in good faith bargaining, the county cannot
(although we would like to) approach Sheriffs Office employees to try to correct unclear or
incorrect information the Sheriff has communicated to them either through his public
pronouncements or in private. The Sheriffs one-sided and often emotionally-charged
dissemination of information creates perceptions that are frequently inaccurate, unhealthy and
difficult to correct. I feel that the Sheriffs meddling and public pronouncements are often
misguided, self-serving, and of no constructive value to his employees or to the county at large.
5. Less than 1.5 years ago, the Civil Process Sergeant for the Sheriffs Office was assigned the
function of performing internal affairs investigations. This function has not, to my observation,
been used for a consistent and objective purpose. As an example, an internal affairs investigation
of break policy violations by four patrol officers (involving the questioning of many people) was
completed expeditiously in less than two months, while completion of an investigation of no
greater complexity of one officer (a former DARE Officer who may be a future candidate for
Sheriff) was delayed for several months and eventually completed following repeated insistence
by myself and the Personnel Director. My feeling is that internal affairs investigations may
result in the concealment and cover-up of internal problems. The internal affairs function
fulfilled by the Civil Process Sergeant is not likely to be employed toward Sheriffs Office
Captains, the Undersheriff or the Sheriff. Following the internal affairs investigation of four
patrol officers who had committed serious violations of the county s break policy over a period
of several years, the Patrol Captain responsible for their supervision was not disciplined.
6. I believe the Sheriff has a misguided and inept concept of loyalty toward his employees at the
expense of fair and consistent personnel practices. When asked why he allows employees who
repeatedly perform poorly and/or violate county or department policy to continue to work at the
Sheriffs Office, he responds that these employees are valuable to the department and that it is
the county's responsibility to work with the employees to help them overcome their deficiencies.
He says our only concern should be to give him the money he needs to work with his employees.
This method of personnel management sends confusing messages to employees regarding the
relationship between conduct and consequences. Good employees receive a confusing message
regarding discipline, and also must work with the poor performers. As we have discussed, I feel
there are several employees in the Sheriffs Office who should, by all reasonable measures, have
been tern1inated long ago. For example, the male corrections officer who engaged in sexual
petting with a female nurse while on duty received a written warning as discipline. The nurse, on
the other hand, was terminated by her employer. Later, after being promoted to patrol officer,
this officer violated the county's break policy and received an off-duty DUl for which, in both
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instances, he received "discipline" from the Sheriff. This officer continues to work for the
Sheriffs Office. Another example is a records clerk who has worked for the Sheriffs Office for
many years (including as a supervisor) during which she has repeatedly conducted herself in a
grossly unprofessional manner. Her actions have included verbal and physical abuse toward
fellow employees (ex. throwing things at them and slamming their fingers in doors). Other
records clerks have left employment with the Sheriffs Office because of this employee. One of
the ways the Sheriffs Office has dealt with this employee has been to move a Sergeant's office
closer to the employee so that the Sergeant could better observe her and intervene when she
misbehaves. This is an employee, among others, who has been coddled rather than dealt with in
a consistent, professional manner.
7. My observations are that promotions to mid and upper-level management positions in the
Sheriffs Office are based primarily on years of law enforcement experience, having a pleasing
personality, and on perceived loyalty to the Sheriff. Management skill does not appear to be an
essential qualification for promotion to management positions. Neither does there appear to be a
desire to attain such skill in those who have been promoted. For transfers from corrections to
patrol, the Personnel Department conducts testing of applicants to assist in the selection process.
The Personnel Department does no testing for promotions to positions of corporal and above.
For promotions to these management positions, the screening tests are developed internally by
the Sheriffs Office, rather than standardized tests. For these management positions, there are no
standardized measures for competence, nor are there fOffi1al educational requirements such as a
college degree in management. Occasionally I have questioned a certain way that something is
done and have received a statement such as: "We have 115 years of combined law enforcement
experience in this room." Such statements are meant to imply that the management decisions of
these veteran law enforcement professionals are above reproach. My perception is that the
supervising officers at the Sheriff s Office are strong on years of law enforcement experience,
and in some cases strong on charisma and joviality, but weak in professional management skills
(both personnel and financial). This may be a reflection of the fact that the position of Sheriff is
required to possess no fOffi1al measure of management ability. In Kansas, a Sheriff is required
only to be a citizen of the United States and a qualified elector of the county, possess a high
school education or its recognized equivalent, and have never been convicted of or pleaded guilty
or entered a plea of nolo contendere to any felony charge or to any violation of any federal or
state laws or city ordinances relating to gambling, liquor or narcotics.
8. My feeling is that conflicting goals and a gross lack of accountability will continue to be the
greatest challenges to creating significant and sustainable improvements in the operations of the
Sheriffs Office. Improvements ofa grand scale must focus on the basic stmcture of the Sheriffs
Office and its place within the organization of the county. The Sheriffs Office is primarily an
administrative agency. The County Commission is the principal policy making body for the
entire county. However, like County Commissioners, the Sheri ff is elected. In an administrative
sense, the Sheriffs accountability to the County Commission is shallow. Also, the Sheriffs
goals (as influenced by skill level and political motivations) greatly conf1ict with those of the
County Commission. The goals of the Sheriff and County Commission shou ld more closely
correspond. In the stmcture of city government, a healthy relationship between the governing
body (policy makers) and the police department (administrative agency) is more easily
attainable. How can such a relationship be created within the structure of county government?
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To: George Hubler, PAS Assistant Director
FAX: (703) 734-4965
From: David Criswell, Saline County Administrator
Date: 4-14-99
# of pages in fax: 4
Re: Questions and comments related to the P AS management analysis of the Saline County
Sheriffs Office
Rita and I would like to have a conference call will you once you've had a chance to read this
memo. Ifpossible, we would like to reach you for the conference call on Thursday or Friday,
April 15 or 16, 1999. Thanks.
1. What is the staff to inmate ratio in the Saline County jail (as compared to the staff to
inmate ratio discussed at the bottom of page 5 of article PAS obtained from the Internet
titled "Prison Construction and Operation Issues")? How does Saline County's ratio
compare to that of other facilities?
2. How is PAS looking at efficiencies of operation, cost savings or avoidances, improved
management practices?
J. How is PAS complying with the Scope of Services per agreement with Saline County?
The reports provided thus far by PAS are dated February 12, February 18 and March
30. There is 40 days between the two most recent reports. When will PAS begin to
provide, as promised, regular progress reports describing what has been done by PAS to
fulfill each requirement in the Scope of Services?
4. What does PAS think of Nebraska's statute that allows the County Commissions of
Nebraska's largest counties to establish a County Department of Corrections with a
corrections administrator appointed by the County Commission? Hall County,
Nebraska has a County Department of Corrections. Thus, the jail is not under the
Sheriff. At least two counties in Kansas have jails that are not under the Sheriff
(Shawnee and Reno). Do these examples offer any possibilities for Saline County?
5. How will PAS present/use the employee attitude survey infonnation in its final
conclusions and recommendations? Will PAS address the possible or likely reasons for
current employee perceptions (ex. impact of the media, impact of organizational
structure upon accountability and communication, etc.)?
6. Would it be possible to begin doing weekly conference call meetings between PAS and
the steering committee? We are concerned that there aren't many weeks remaining.
7. Per agreement, PAS agreed to provide 180 hours on site by February 19,1999. Thus
far, PAS has spent 120 hours on site (Hubler - 80 hours; Golightly - 40 hours). Does
P AS intend to spend the remaining GO hours on site working on the items listed in the
agreement? If not, how will this deficiency effect the quality of the final product? How
does PAS propose to address this 60 hour deficiency?
8. The Sheriff shows much more lenience toward employee discipline than exists for most
other county departments. Employees in other departments have been fired for
violations similar or less egregious than those committed by SO employees who
receive minor discipline. One SO employee has received 6 reprimands over the past 6
months; another SO employee received reprimands on three different occasions within
one year for fondling with a corrections nurse, violating the SO break policy and getting
a DUI while off-duty. By the Sheriffs choice, both of these individuals still work for
the Saline County Sheriffs Office. How will PAS address issues such as this?
9. Recently, four 3rd-shift SO patrol officers were disciplined for violating the Sheriffs
Office break policy. It was determined by a Sheriffs Office Internal Affairs
investigation that these violations had occurred in a blatant manner for a period of
several years (possibly up to 8 years) without being detected. In the opinion of county
administration, besides the violations by the employees themselves, this was an
example of extremely lax supervision and poor communication of policies to
employees and extremely poor documentation by the patrol captain. The patrol captain
received no formal discipline from the Sheriff. This indicates, in our opinion, a double
standard with respect to employee discipline as well as a reluctance by the Sheriff to
discipline the patrol captain because the Sheriff shares some responsibility for the
incident. How will PAS address issues of this type?
10. Each year, Saline County does what is termed "double budgeting" or
"interdepartmental transfer of shared expenses" (see page 61 of the 1997 Saline County
Annual Budget book) to increase the amount which can be spent under the state-
imposed tax lid. PAS needs to be aware of this.
11. Will PAS make any recommendations specifically regarding issues on which Saline
County is currently negotiating (and at impasse) with the Sheriffs Office bargaining
unit? These issues include:
(1) shift differential
(2) incentive pay for more education
(3) incentive pay for employees who are First Responders or EMTs
(4) shift lengths (8, 10 or 12-hour shifts
(5) increase in uniform allowance
(6) formation of a health insurance committee
(7) changing the number of hours after which employees will be paid time-and-one-half
for overtime to hours worked after 171 hours in a 28-day work period (this is allowed
by the Fair Labor Standards Act).
12. Are the 30 police and/or sheriffs departments to which the Saline County Sheriffs
Office is being compared all comparable to the Saline County Sheriffs Office? If so,
how are they comparable? Size? Organizational structure?
13. Regarding Table 5 of the employee attitude survey report, it appears ironic to county
administration that the SO employees are fairly satisfied with "Policies and Procedures"
(3.35) when the evidence indicates that SO employees generally have a poor knowledge
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of county or SO policies and procedures. Example, at the time this survey was taken,
the SO provided its employees with duplicate and conflicting policies on such issues as
employee discipline and blood borne pathogens, and a very confusing policy regarding
employee breaks. Perhaps, policies and procedures is an issue that had not touched
them directly enough to cause them to feel dissatisfied.
14. On Table 7, Roman Numeral II, letter D, the percent difference should be -30.38 rather
than -30.25. Letter F, the difference and percent difference figures should be negative
amounts (-0.12 and -6.74) rather than positive.
15. How will PAS use or present the input provided during the community respondent
interviews? How will this input fit into the overall project?
16. Regarding the second suggestion/recommendation from the top on page 16, would
establishment of this employee committee conflict in any way with the National Labor
Relations Act?
17. Will the basic suggestions beginning on page 15 be further refined and expanded upon
in draft reports and/or the final report? It appears that these suggestions are
generic/non-specific (i.e. they could apply equally well to any of Saline County's
departments). How will the recommendations in the final report relate specifically to
the needs/circumstances of the Saline County Sheriffs Office?
18. How will the final report extend beyond providing generic recommendations and
employee perceptions to a thorough and complete analysis and explanation of the data
with recommendations for changes that could enhance the management, efficiency and
effectiveness of the Sheriffs Office as well as the relationship of county administration
and the County Commission to the Sheriffs Office?
19. Will PAS provide an analysis and recommendations regarding the jail facility?
20. Do you need more data from us? Do you have any questions about the data you've been
provided?
21. How will PAS address issues presented in the issues papers provided by the County
Administrator and Sheriff?
22. The proposal offered by PAS indicated that three professional consultants (Hubler,
Hoffman and Bellmio) would be spending a total of 180 hours on-site prior to analyzing
the data off-site, at times two or three of the consultants would be here at the same time.
We felt this was advantageous because the consultants could question each othcr and
supplement each other's work. We also saw advantages to three people perfonning the
data analysis once they were off-site. It does not appear that this has occurred which
causes us to question how thorough and complete the final product will be. Also, while
according to the calendar, PAS is at the point at which it should be preparing a
complete draft document (as you indicated you were preparing), it appears to us that
much of the legwork of the study that should have occurred before a draft document
would be produced has not occurred. We feel that much of the on-site time, data
collection, and dialogue between PAS and us has not occurred sufficiently for a draft
document to be produced. We wish to disclIss this.
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OFFICE of
COUNTY ADMINISTRATOR
300 W. Ash Room 217
PO. Box 5040 Salina, Kansas 67402.-5040
785/826-6555
FAX: 785/826-6629
April 16, 1999
George Hubler, Assistant Director
Public Administration Service
7927 Jones Branch Drive, Suite 100 South
McLean, Virginia 22102-3322
Dear George:
I appreciate the discussion you, Rita and I were ablc to have earlicr today To restate our primary
objcctive, the County Commission wishes Public Administration Service to produce a rcport that
offers thorough and inciteful analyses, examples and conclusions that present the unbiased truth
to the best of PAS' ability.
The Commission desires the report to thoroughly dissect and analyze the Sheriffs Office
management and organization and to consider a variety of options for improvement in every area.
Potential options for improvement should not cxclude thosc which may not be cLIn"cntly allowed
by Kansas statute but which may, in PAS professional judgement, most effcctively improve
communication, accountability, efficiency, productivity and public service.
The Commission wishes PAS' recommendations to be objective, nonpolitical and unaffected by
Saline County personalities. Recommcndations should be untempered by PAS' perceptions of
what the community, the Sheriff or any individual or group may presently feel is acceptable or
possible. It will be up to the County Commission to decide what implementation options will be
acceptable to the community and the Sheriff.
I look forward to discussing this and other issues with you further. Thank you for the work you
are doing on our behalf.
Sincerely,
o~c~
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~ cc: County Commission
~ ._.~ ..- --. ._ n___._ .. _ un __n .. .....
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David Criswell
County Administrator
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To: George Hubler
From: SherifPs Office Management Analysis Steering Committee
Date: 5-26-99
Re: First Draft of the PAS Study of the Organization, Management and Operations of the
Saline County Sherifrs Office
This memo is intended to express the Steering Committee's concerns regarding the first draft of
the P AS study. The Committee feels that the first draft has numerous shortcomings that extend
beyond spelling and grammar to the presentation structure, lack of specific evidence and data to
support recommendations, and lack of practical step-by-step implementation measures. The
number of problems is so extensive that, before we put them in writing, we feel we need to meet
with you in person to discuss them. This memo will express, in a general sense, our concerns as
well as our perception of whether or not PAS has addressed each of the Scope of Services.
1. Presentation Structure: The document would be greatly enhanced if it were organized
such that each item in the Scope of Services was followed by PAS' work to address the
item. The current document structure requires the reader to read the entire document to
decide whether or not a particular item in the Scope of Services has been addressed.
Although the Scope of Services is listed beginning on page 2, specific references to the
Scope of Services in the body of the docwnent are lacking.
2. Supporting Evidence: The Committee feels that for PAS' docwnent to be
professional, all statements and recommendations should be supported by credible
evidence or data. There are numerous statements and recommendations made in the
document for which the supporting evidence is weak or non-existent. This is not to say
that, in our opinion, evidence does not exist; only that it is not clearly described in the
document. For example, on page 14, #16, the statement is: "The Corrections Officers
have been placed in the position of poor cousins and their positions graded too Iowan
the classification / salary plan." Where is the evidence or data to support this statement
as well as the 5% pay difference recommended on page 29? What is the basis for the
statement and recommendation? Would data from the Saline County Sheriffs Office
and other Sheriffs departments support this statement and recommendation?
The Committee feels that the statements on pages ES 11 and 95 have no place in a
professional document: "On the other hand, note also the expenditure history in Saline
on overtime. It has been funded at levels lower than history would dictate. Is this done
to try to hold overtime down, is it politics, is it retaliation for slights real or imagined,
or is it not believing expenditure histories from SSO due to historic inequities? The
answer, probably is 'all of the above. ,,, What of any value is Saline County to learn
from unsupported and unqualified speculations such as this?
3. Recommendations: The document would be greatly enhanced if it contained a section
that clearly states each of the recommendations and cites the page number for where the
recommendation and its supporting evidence is thoroughly explained. The document is
confusing as currently written.
Begirming on page ES3, PAS describes "Weaknesses/Opportunities for Improvement."
Some of the items discussed in this section are opportunities for improvement, but they
do not describe the deficiency for which there needs to be improvement. Solutions or
recommendations are proffered without the weaknesses or problems underlying the
recommcndations being cxplained. For cxample, # 18 on pagc ES4 states: "The
traditional approach to organizing/staffing should be rethought with consideration bcing
givcn to utilizing positions non-traditionally. For cxamplc, the Undersheriff could head
an operations division that would include separate patrol and investigation scctions.
Another approach would be to use the Undersheriff to manage a joint city/county law
enforcement training progran1." This opportunity for improvcment needs to be
qualified as to what weaknesses it addresses. In order for appropriate solutions to be
detcrmined, the weaknesses must be well-defined.
4. Theory versus Practical Implementation / Application Strategies: With regard to
the recommendations made by PAS, the document describes some theories that sound
good. However, how will Saline County translate these theories into practical
implementation strategies? What the Committee feels is needed are step-by-step
instructions describing practical applications of the theories. For example, in the
"Commitment to Quality" process which begins on page 119, what are some examples
of "unifying goals and supporting objectives?" What are practical ways to implement
"Continuous Process Improvement" mentioned on page 121? The principles of the
"Service Excellence" process beginning on page 124 sound good, but how does Saline
County implement these principles without step-by-step instructions, benchmarks, or
examples of appropriate goals, etc? On page 124, PAS says: "A game plan to improve
the quality of service and efficiency of operations needs to be put together." The
Committee's question is: "OK, but how?"
5. Scope of Services: The Steering Committee indicates below its perception of whether
or not PAS has addressed each item in the Scope of Services. Some of the items are
listed as "Yes," meaning PAS has addressed the item; however, the Steering Committee
wishes to stress that none of the itcms have been addressed thoroughly to the
satisfaction of the Steering Committee:
Numbered Items in the Scope of Services and Performance by PAS'
1. No - has not bcen performed by PAS
2. Yes
3. No
4. No. Little or no mention of areas of inconsistency of conflict with county policies
or national accreditation policies.
5. Very little examination oflnfonnation Scrvices support and use of management
infom1ation in making decisions in key areas. How is it done now? How can it be
improved?
6. Y cs - but not to our satisfaction. Need morc support for recommendations.
7. Yes
8. Ycs
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9. No - touched upon, but not completed.
10. No
II. No
12. Yes - sort of addressed.
13. No
14. No
15. No
16. No. What are the current law cnforcement strategics (not just what they're stated to bc),
in actual practice? Not well organized.
17. No
18. No. Incomplete.
19. No
20. Generally alluded to, but poorly covered.
This memo does not constitute a right to cure letter. Rather, it is intended to communicate the
Committee's concerns and allow you to address them according to the terms of the Agreement
(including the Scope of Services). The Committee requests you to call the County Administrator
by June 2, 1999, to discuss when you will be able to return to Saline County to discuss the
Committee's concerns and to work on the report document.
Upon your return to Saline County, the Committee wishes also to detern1ine with you a date by
which the Committee's concerns will be addressed and a final document completed. If the
concerns are not addressed by that yet to be determined date, the Committee will issue a right to
cure letter.
Pursuant to the terms of the Agreement, payment will be withheld until work is performed in
accordance with the Agreement. If you feel that personal or professional circumstances will
prevent you from completing the Scope of Services (or from doing so in a timely manner), please
let us know so that we may consider contracting with another consulting firn1 to perform the
remainder of the study.
Sincerely,
L~
Commissioner Deane Allen
_-r~1 \b~~A::;'
Asst. Co. Adm. Rita Deister
Oo..~ C~. ...v~JLQ
Co. Adm. David Criswell
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Public Administration Service 7927 Jones Branch Drive. Suile 100 Soulh. McLean. VA 22102-3322
ORGANIZATION/MANAGEMENT CONCEPTS USED BY PAS
Many books have been written about human relations and the behavior of people in
organizations. The majority of these books minimize or neglect entirely the formal aspects of
organization; yet, in successful organizations, experience teaches that there are hierarchies in which
authority, responsibility, and accountability are spelled out.
The concepts of guides for organization and management that PAS utilizes in studies
such as this, w'hich require organizational analysis and design, include the following:'
· Concept of On!anization. Organization is the process of grouping
people into a fom1al structure under leaders who possess authority.
The hierarchy is defined through three major actions: (1) dividing up
the work; (2) establishing the structure; and (3) spelling out the
authority, responsibility, and accountability of leaders.
Authority is the sum of the rights and powers people need to carry out
their responsibilities; responsibility is the obligation to perform
assigned functions or duties; and accountability is the judging or
evaluating of individuals based on the manner in which their carry out
assigned responsibilities.
· Unitv of Command. This means that one person should report to a
specified supervisor. When reporting to more than one supervisor,
arrangements for priorities, workload, and performance should be
defined.
· Span of Control. This concept acknowledges that a manager can
effectively supervise a limited number of employees. This is a
flexible concept depending on the supervisor's skill and his or her
level in the organization, the type of work, the employees' location,
and the potential coordination problems among managers.
IThe concepts outlined are extracted from PAS experience and research and from
Mana!;ement: A book of Readings by Koontz and O'Donnel, Management Essentials for Public
Works Administrators from A.P.W.A., and The Management of Organizations by Bertram M.
Gross.
Public Administration Service 7927 Jones Branch Drive, Suite 100 South. McLean. VA 22102-3322
--.'ii;
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· HomogenOuS Assi~nment of Functions. The idea here is to placc
similar work responsibilities in the same organizational element.
· Balance. This relates to compromise and practicability in the use of
management concepts.
· Coordination. Coordination is the process of unifying and integrating
managcrial functions, activities. and operations. PAS considers
coordination an all inclusive management activity. Tools or methods
to improve coordination include the proper use of:
Committees.
Assistant or deputy positions.
Policies and procedures that define or pinpoint responsibilities.
Up-to-date job descriptions that include coordination
responsibilities.
Individuals and organizational elements early in the planning
process.
Well-run staff meetings.
Temporary project organizations.
Informal and cross-lateral communications in the organization.
Special coordination meetings as required.
Within the framework of the above concepts, PAS uses the following guidelines for
structuring an organization:
1. Use the mission as the focus of departmentalization.
2. Prefer a consistent basis of primary and secondary
departmentalization.
3. Apply a standard, consistent system of organization nomenclature
(names).
4. Develop a reasonable span of control for each organization chief.
5. Apply the principle of homogenous assignment of functions.
6. Establish formal staff elements when these are required.
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Public Administration Service 7927 Jones Branch Drive, Suite 100 South. McLean. VA 22102-3322
7. Evaluate advantages of centralized staff services against advantages
and costs of decentralized staff services.
8. Avoid the establishment of too many organizational elements at any
horizontal level.
9. A void excessive layering, i.e., the establishment of too many vertical
levels.
10. Direct the structure, or any modification of it, toward long-range
progranl goals.
11. Build the structure, or alter the existing one, primarily around sound
organizational logic and principles, not around the personalities of the
incumbents of positions.
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52
INTERNAL AFFAIRS
The internal affairs function is important for the maintenance of professional conduct in a law
enforcement agency. The integrity of the agency depends on the personal integrity and discipline
of each employee. To a large degree, the public image of the agency is determined by the quality
of the internal affairs function in responding to allegations of misconduct by the agency or its
employees.
The standards in this chapter assume that in large agencies there will be a specialized
organizational component, usually as a pan of the office of the chief executive, responsible for
internal affairs matters. In those cases involving the integrity of the agency, the specialized unit
will actually conduct the investigation and carry out all assignments related to resolving the issue.
The specialized unit should be a resource and should review those internal affairs matters of
lesser importance that are investigated by supervisory personnel.
In smaller agencies, a specialized unit may not be established. However, the function is
important and investigations may be assigned to an individual on an as-needed basis or be
conducted by the chief executive officer.
Agencies having an internal affairs function consistent with these standards will have the
capability to respond appropriately to allegations of misfeasance, malfeasance, and nonfeasance
by employees, and to complaints about the agency's response to community needs, thereby
instilling public confidence in the agency.
52.1 Administration and Operations
52.1.1 A written directive requires all complaints
against the agency or its employees be inves-
tigated, and specifies:
a. the type of complaints to be investigated by line
supervisors;
b. the type of complaints that require investigation
by the internal affairsfunction; and
c. the type of complaints to be reviewed by the in-
ternal affairs function.
Commentary: The intent of this standard is to
provide guidelines regarding which categories of
complaints are to be handled by the internal affairs
function and which as part of routine discipline.
The criteria for determining the categories of com-
plaints to be referred to the internal affairs function
may include allegations of conuption, brutality,
misuse of force, breach of civil rights, and criminal
misconduct Criteria for assignment of the inves-
tigation of the complaint to line supervisors may
include, for example, alleged rudeness on the part
April 1994
of the officer, tardiness, or insubordination.
(M M M M)
52.1.2 A written directive specifies that the posi-
tion responsible for the internal affairs function
has the authority to report directly to the agency's
chief executive officer.
Commentary: The sensitivity and impact of inter-
nal affairs matters on the direction and control of
an agency require that the agency's chief executive
officer receive all pertinent information directly.
(M M M M)
52.1.3 A written directive specifies the procedures
for notifying the agency's chief executive officer of
complaints against the agency or its employees.w
Commentary: The directive should specify the
nature of those complaints that should be brought
immediately to the attention of the agency's chief
executive officer and those that can be postponed
to a later time. (0 0 0 0)
52.1.4 A written directive specifies a time limit for
completing an internal affairs investigation, with
provisionsfor extensions.
Commentary: None. (M M M M)
52.1.5 The agency keeps the complainant informed
concerning the status of a complaint, to include at
minimum:
a. verification of receipt that the complaint has
been receivedfor processing;
b. periodic status reports; and
c. notification of the results of the investigation
upon conclusion.
Commentary: The verification, usually in the
form of a receipt, furnished to persons initiating
complaints alleging misconduct on the part of the
agency or an agency employee may contain a
description of the investigative process. The status
of investigations should be communicated to the
complainant, although the degree of specificity of
the notice is left to the discretion of the agency.
This standard does not apply to anonymous com-
plaints. (0 0 0 0)
52.1.6 When employees are notified that they have
become the subject of an internal affairs investiga-
tion, the agency issues the employee a written
statement of the allegations and the employee's
rights and responsibilities relative to the investiga-
tion.
Commentary: None. (M M M M)
52.1.7 A written directive specifies the conditions.
if any. during an internal affairs investigation.
when:
a. medical or laboratory examinations are ad-
ministered;
b. photographs are taken of employees;
c. an employee may be directed to participate in a
line-up;
d. an employee may be required to submit finan-
cial disclosure statements; and
e. instruments for the detection of deception are
used. '
Commentary: The written directive should be
based on the legal requirements in the jurisdiction,
case law, and precedent and should be consistent
with other administrative decisions. An employee
may be required to submit to a medical or
laboratory examination, at the agency's expense,
when the examination is specifically directed and
narrowly related to a particular internal affairs in-
vestigation being conducted by the agency. An ex-
ample is the use of this process in determining drug
use by employees. An employee may also be re-
quired to be photographed, to participate in a line-
up and/or submit to a financial disclosure statement
when the actions are material to a particular inter-
nal. affairs investigation being conducted by the
agency. (M M M M)
52.1.8 A written directive specifies the circum-
stances in which an employee may be relievedfrom
duty.
Commentary: The written directive should be
supported by other documents establishing the
powers and authority of the office of the chief ex-
ecutive. TIle relief from duty may be a temporary
administrative action pertaining to an employee's
physical or psychological fitness for duty or an ac-
tion pending disposition of an intemal affairs in-
vestigation. The authority to relieve an officer from
duty should extend to supervisory levels.
(0 0 0 0)
52.1.9 A written directive requires a "conclusion
of fact" for each investigation into allegation of
misconduct.
Commentary: TIle conclusion of the disciplinary
process should be structured and should provide in-
formation to all participants in the process. The
agency needs to be aware of changes in policies,
procedures, rules, and regulations that may prevent
future allegations of misconduct, as well as the
need to modify or expand training.
Reference is made for guidance purposes to the
Police Executive Research Forum Model Policy
Statement "Police Agency Handling of Citizen
Complaints" (September 1981) and the Internation-
al Association of Chiefs of Police, Inc., National
Law Enforcement Policy Center Concepts and Is-
sues Paper and "Complaint Review Model Policy"
(January 1990). (0000)
52.1.10 A written directive requires the agency to
maintain a record of all complaints against the
agency or employees and to protect the confiden-
tiality of these records by maintaining them in a
secure area.
Commentary: The confidentiality of internal af-
fairs records is important, and proper security
precautions should be taken. This records activity
is a task of the internal affairs function and is an
exception to the personnel records or centralized
records systems. (M M M M)
Aoril 1994
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SALINA POLICE DEPARTMENT
Number
GENERAL ORDER
SUBJECT: INTERNAL AFFAIRS
M1107
EFFECTIVE: 1/19/96
CANCELS:
AMENDS:
ISSUED: 1/17/96
REVIEW: 1/17/97
Distribution
CALEA References: 52.1.1 - 52.1.2, 52.1.4 - 52.1.7, 52.1.10 _ 52.1.11
A
POLICY
The Department must provide a formal internal system for the processing of complaints
relative to Department operations, policies and procedures, and the conduct of police personnel. The
character and the reputation of the Department rests on an adequate program of fair and impartial
investigations. The purpose of this order is to establish an Internal Affairs Unit and delineate its
authority, duties, and standard operating procedures.
INTERNAL AFFAIRS UNIT
1. Authority - The Internal Affairs Unit shall be under the direct command of the Chief of Police
and is acting for the Chief when conducting investigations.
2. Selection - Internal Affairs Unit personnel will be appointed at the discretion of the Chief of
Police.
3. Duties - The Internal Affairs Unit will initiate, complete, and maintain records of all
investigations relative to complaints against the Department or any of its members. All findings
and recommendations made during the course of the investigation will be recorded and
forwarded to the Chief of Police for tinal disposition.
4. For purposes of this General Order, a complaint shall be defined as an act of expressed
dissatisfaction which relates to Salina Police Department operations, policies and procedures,
or conduct of department personnel.
5. Internal Affairs shall be responsible for any other investigations as directed by the Chief of
Police.
6. The primary objectives of Internal Affairs investigations are:
6.1. Protection of the public. The public has a right to expect efficient, fair, and impartial
law enforcement. Therefore, any misconduct by Department personnel must be
detected, thoroughly investigated and properly adjudicated to assure the maintenance
of these qualities.
6.2. Protection of the Department. The Department is often evaluated and judged by
the conduct of individual members. It is imperative that the entire organization not be
subjected to public censure because of misconduct by one of its members.
6.3. Protection of the employee. Employees must be protected against false allegations
of misconduct. This can only be accomplished through a consistently thorough
investigative process. /
6.4. Correction of procedural problems. The Department is constantly seeking to
improve its efficiency and the efficiency of its personnel. Internal investigations
occasionally disclose faulty policies and procedures that would otherwise have gone
undetected. These procedures can then be improved or corrected.
7. The Internal Affairs Unit or the Chief of Police may refer investigations to the employee's
supervisor for investigation.
1/96
GENERAL ORDER
NUMBER; M1107
8. Internal Affairs Unit members or officers temporarily assigned to that unit shall have the
authority to interview any member of the Department and to review any record or report of the
Department relative to their assignment. Members of the Internal Affairs Unit will come under
the direct authority of the Chief of Police.
9. The Internal Affairs Unit will maintain a comprehensive central complaint file on complaints
received, whether investigated by Internal Affairs or any other member of the Department.
10. The Internal Affairs Unit Shall:
10.1. Maintain liaison with the prosecutor's office in investigations involving alleged criminal
conduct by Department members.
10.2. Provide assistance to and close coordination with CitylDepartment defense counsel
on civil claims or suits against the Department and its personnel.
10.3. Conduct on scene inspection and investigation of police involved shooting incidents
and firearms diSCharges.
10.4. Appear before legislative and judicial bodies in matters pertaining to the Department's
disciplinary policies and procedures.
PROCEDURE
11. Acceptance and Referral of Complaints
11.1. All members of the Department are charged with the responsibility for courteously
and willingly receiving any complaint that may be lodged against the Department or
any employee.
11.2. Complaints will be accepted from any source, whether made in person. by mail or by
telephone. Anonymous complaints shall be evaluated to determine the extent to
which they should be investigated.
11.3. Complaints will be referred directly to the Intemal Affairs Unit (telephone number 826-
7225) during normal business hours of 0800 to 1700, Monday - Friday.
11.4. All formal complaints received during other than normal business hours will be
referred to the involved member's supervisor (or on-duty supervisor in his absence).
who will document the complaint on the Salina Police Department Complaint Form
(Attachment A), and forward same to the Internal Affairs Unit. After documenting the
complaint, the supervisor shall advise the complainant to contact the Internal Affairs
Unit during normal business hours.
11.5. Upon receipt of a complaint, Internal Affairs will notify and brief the Chief of Police or
his designated representative as soon as possible.
11.5.1. The following types of formal complaints will be forwarded to and handled by
the Internal Affairs Unit.
a. Excessive force
b. Discrimination
c. False arrestlimprisonment
d. Unlawful search/seizure
e. Shooting policy/weapons
f. Sexual harassment
g. Drug or alcohol use or intoxication on duty
h. Alleged perpetration of a criminal act
I. Violations of civil rights
j. Internal theft/dishonesty
1/96
.1
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GENERAL ORDER
NUMBER: M1107
k. Misconduct, on or off-duty, which brings the department into disrepute or
reflects discredit upon the employee as a member of the department,
<lnd
I. Any other investigation as directed by the Chief of Police.
12.
Formal Complaints
12.1. Upon accepting a formal complaint from a citizen, the Internal Affairs officer is
responsible for notifying the person verifying that the complaint has been received and
an investigation will be conducted.
12.2. Department employees involved in a formal complaint shall be notified of the
complaint by letter. The employee's Commanding Officer and Division Commander
shall also be notjfied by letter. Upon receipt of the letter, the employee must call the
Internal Affairs Unit to set up an appointment for an interview to be held within five
working days of the notification. No overtime will be authorized for any off duty
employee who appears without a scheduled appointment.
12.3. When requested by the Chief of Police or his designee, employees shall submit a
written report to the Internal Affairs Unit in regards to the allegation(s) within five
working days of the letter notification. The report shall contain the following:
12.3.1. All pertinent information pertaining to the allegation.
12.3.2. A list of all officers and witnesses known.
12.3.3. Any other information that would be of assistance in the investigation.
12.4. A thorough, complete and impartial investigation will be conducted by the Internal
Affairs Unit. This investigation may include the taking of formal, signed statements,
gathering and preservation of physical evidence and any other information relevant
to the investigation. AI! employee interviews shall be recorded and interviews with
complainants should be recorded whenever possible.
12.4.1. Whenever an employee is questioned concerning matters which mayor may
not result in a criminal prosecution against him, he shall be given the
"Miranda-Garrity" or "Reverse Garrity" Warning, whichever is applicable.
(See Attachment 8 and C)
12.5. Pursuant to and in congruence with all legal requirements, the Chief of Police may,
at Department expense, require an employee to submit to a medical or laboratory
examination and provide a sample of blood, breath, or urine, when such examination
is specifically directed and narrowly related to a particular investigation. For example:
This process may be used in determining alcohol and/or illicit drug use by an
employee. In addition, upon order of the Chief of Police, an employee may be
required to be photographed; to partiCipate in a line-up; submit to a financial
disclosure statement; submit to a polygraph, psychological and/or physical
examination, provided that 1) such actions are material to a particular investigation,
and 2) such actions are specifically directed and narrowly related to said investigation.
12.6. Failure to follow a direct order requiring employee participation in the above
constitutes a separate infraction, and may result in diSCiplinary action up to and
including termination.
12.7. When the investigation is completed, a copy of the investigative reports will be
forwarded to the Chief of Police for review. These reports will include a recommen-
dation as to the findings.
12.8.
The following findings are available to the Internal Affairs Unit:
12.8.1. Unfounded - The investigation conclusively proved that the act complained
of did not occur. This finding also applies when an individual employee
named in the complaint was not involved in the act which may have occurred.
GENERAL ORDER
NUMBER: M1107
..
'f
~
12.8.2. Exonerated - The act which provided the basis for the complaint or allegation
occurred; however, the investigation revealed that the act was justified, lawful
and proper.
~.
12.8.3. Not Sustained - The investigation failed to disclose sufficient evidence to
clearly prove the allegation made in the complaint or to conclusively disprove
such allegation.
12.8.4. Sustained - The investigation disclosed sufficient evidence to clearly prove
the allegation made in the complaint.
....
12.8.5. Sustained Aaainst Policy - The investigation revealed a faulty policy and/or
procedure..
12.9. The Chief of Police shall approve each formal investigation and may, at his discretion.
make a new and separate finding as to appropriate Department action.
12.10. Any investigation disapproved by the Chief of Police shall be returned to the Internal
Affairs Unit for required action necessary for approval.
12.11. All Internal Affairs investigations should be completed within 30 days after receipt of
the complaint. The Internal Affairs Unit shall provide the Chief of Police with status
reports at seven day intervals until the investigation is complete. If for any reason the
investigation cannot be completed vvithin allotted time, the Internal Affairs officer shall
request an extension from the Chief of Police and notify the complainant of a new
completion date.
'<.:.
13. Informal Complaints
13.1. If the complainant does not desire formal Internal Affairs processing, the following
types of complaints may be handled by the involved employee's commanding officer
or immediate supervisor:
13.1.1. Complaints of demeanor,
13.1.2. Neglect of duty, and
13.1.3. Minor rules and regulations, or policy and procedure violations.
13.2. All informal complaint investigations shall be documented and, upon completion,
forwarded to the Internal Affairs Unit for control and statistical purposes. The results
of an informal investigation may be reviewed by Internal Affairs if so directed by the
Chief of Police or his designated representative.
14. Disposition of Investigation Results
14.1. Approved investigations shall be processed in the following manner:
14.1.1. Sustained Cases
;.
a. The involved employees shall be notified by letter as to the completion
of the case and of the findings.
b. A letter indicating the finding shall be sent to the employee's
Commanding Officer and Division Commander.
c. An administrative hearing, attended by the involved employee, his
immediate supervisor and commanding officer, the Internal Affairs
Officer, and the Chief of Police, will be held within ten days of the
completion of an Internal Affairs case. The purpose of this hearing is to
explain the case findings and give the involved employee a meaningful
opportunity to present his position prior to final disposition by the Chief of
Police.
3/96
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GENERAL ORDER
NUMBER: M1107
d. Following the aforementioned administrative hearing, a letter indicating
the finding and disposition will be sent to the complainant.
e. All copies of the reports shall be retained by the Internal Affairs Unit.
14.1.2. Other than Sustained Cases
a. The involved employees shall be notified by letter as to the completion
of the case and of the findings.
b. A letter indicating the finding shall be sent to the employee's
Commanding Officer and Division Commander.
c. A letter indicating the finding and disposition will be sent to the
complainant.
d. All copies of the reports shall be retained by the Internal Affairs Unit.
15.
Internal Affairs' Files
15.1. In order to maintain the confidentiality of IntemafAffairs' files, access to the files within
the Department will be restricted. Only persons with a need to know the content of
the files, based on some part in the Internal Affairs or the discipline process, will be
allowed to examine those documents. Access shall be granted only by order of the
Chief of Police.
15.2. Excepting a court order, or unless specifically authorized by the Chief of Police, no
portion of an investigative Internal Affairs report shall be given to, or maintained by,
anyone outside the Department.
15.3. The Internal Affairs officer shall compile annual statistical summaries, based upon
records of internal affairs investigations, and provide same to the Chief of Police and
other Department personnel, as directed by the Chief of Police. This statistical
summary may be made available upon request to agency employees and the public.
BY ORDER OF
fk~ !} ?I~
CHIEF OF POLICE
3/96
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ATTACHMENT A
SALINA POLICE DEPARTMENT
COMPLAINT FORM
NAME OF COMPLAINANT:
ADDRESS OF COMPLAINANT:
PHONE: HOME:
WORK:
DATE AND TIME OF INCIDENT:
NATURE OF COMPLAINT:
LOCATION OF INCIDENT:
PERSON TAKING COMPLAINT:
DATE COMPLAINT FILED:
EMPLOYEE:
IN YOUR OWN WORDS DESCRIBE THE COMPLAINT:
(Continued Narrative on back)
(Please sign and date on back)
IN YOUR OWN WORDS DESCRIBE THE INCIDENT:
SIGNATURE
DATE
SUBSCRIBED AND SWORN TO BEFORE ME ON THE DAY OF
19
NOTARY PUBLIC FOR STATE OF KANSAS
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INTERNAL AFFAIRS - ATTACHMENT B
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MIRANDA-GARRITY WARNING
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(To be used when a member is being questioned about matters which could result in criminal
prosecution against him and D..Q decision has been made as to whether or not the member's
statements will be used against him in a criminal prosecution.)
1
At this time I would like to question you concerning (state the general nature of the matter under
investigation). This questioning concerns criminal matters. You (are) (are not) under arrest. (If the
person being questioned is suspected of committing a crime, he should be informed of the specific
offense for which he is suspected, unless such disclosure would endanger the investigation.)
I
I am now going to advise you of your rights as established by the Supreme Court in the cases of
Miranda v. Arizona and ~ v. New Jersey.
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First, you have the right to remain silent. You are not required to say anything at any time or to
answer any questions. If you do make a statement or answer questions, anything you say can be
used against you in a court of law.
1
Second, you have the right to talk to a lawyer for advice before making a statement or answering
any questions, and you may have a lawyer present with you during questioning if you wish. If you
do want a lawyer but cannot afford one, a lawyer will be provided for you. If you want to answer
questions now without a lawyer present, you still have the right to stop answering at any time. You
also have the right to stop answering at any time until you talk to a lawyer
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Third, even though you are an employee of the Salina Police Department and ordinarily you would
be required by regulations to answer questions put forth to you by a superior officer regarding your
official duties, in this instance those regulations do not apply, and you will not be required to answer.
If you do not wish to answer any of these questions, your refusal to answer alone will not subject you
to disciplinary action by the Salina Police Department.
1
Do you understand that I want to question you about criminal matters?
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Do you understand that you do not have to make a statement or answer any questions?
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Do you understand that if you do make a statement or answer questions, anything you say which
incriminates you can be used against you in a court of law?
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Do you understand that you have the right to talk to a lawyer and have one present during
questioning?
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INTERNAL AFFAIRS - ATTACHMENT C
"REVERSE GARRITY" WARNING
(To be used only when a member is being questioned about possible criminal matters and it has
been officially determined that any self-incriminating statements that the member makes will nm be
used against him in a criminal prosecution.)
At this time I am going to question you about (state the general nature of the matter under
investigation.) This questioning concerns administrative matters relating to the official business of
the Police Department. I am not questioning you for the purpose of instituting a criminal prosecution
against you. During the course of this questioning, even if you do disclose information which
indicates that you may be guilty of criminal conduct, neither your self-incriminating statements nor
the fruits of any self-incriminating statements you make will be used against you in any criminal legal
proceedings.
Since this is an administrative matter and any self-incriminating information you may disclose will
not be used against you in a court of law, you are required to answer my questions fully and truthful-
ly. If you refuse to answer my questions, this will be considered insubordination and you will be
subject to disciplinary penalties.
Do you understand what I have just explained to you?
Do you have any questions concerning what I have just explained to you?
I now order you to answer the following questions.
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U S. Ce;;a'.r.1e,,: of ..:us:!C~
Bureau of Justice Statistics
Sheriffs' Departments, 1993
Based on the 1993 Law Enforcement and Management and Administrative Statistics
(LEMAS) survey, this BJS Bulletin presents data collected from a representative
sample of the nearly 3,100 sheriffs' departments operating nationwide. Tabies
describe the number and size of agencies, job classification of personnel. race and
sex of sworn personnel. agency functions, 911 system, lockup facilities. operating
expenditures. starting salaries, special pay. education and training requirements.
sidearms. nonlethal weapons. body armor policies, vehicle use policies, computers,
special units, written policy directives. and complaint review processes 6/96 NCJ-
148823
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B~JJJil...U_';:'~2~'i.:_;:~~'" ::':..:..; I G_oJo.thetop of this page
Bureau of Justice Statistics
U.S. Department of Justice
www.ojp.usdoj.gov/bjs
Send comments to_~~,:..___ .:'.':.'~____'.
Page last revised on August 12, 1998
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U.S. Department of Justice
Office of Justice Programs
Bureau of Justice Statistics
Sheriffs' Departments 1993
Brian A. Reaves, Ph.D. and
Pheny Z. Smith, Ph.D.
BJS Statisticians
June 1996, NCJ-148823
(A full copy of this report with graphics is
available on the BJS home page
(http://www.ojp.usdoj.gov/bjs/) in Acrobat
Portable Document Format [PDFJ, viewable on any
computer and printable on any printer. For a
printed copy call the BJS Clearinghouse at
1-800-732-3277 or use the online order form.)
U.S. Department of Justice
Bureau of Justice Statistics
Jan M. Chaiken, Ph.D.
Director
Brian A. Reaves, Ph.D., and Pheny Z. Smith, Ph.D.,
BJS statisticians, wrote this report. It was
produced by Yvonne Boston under the supervision of
Marilyn Marbrook. Sample design, selection, and
weighting were provided by David Hubble and Carol
Perseley of the Demographic Statistical Methods
Division, Bureau of the Census. The data were
collected and processed by Martha Greene, Etta
Herrin, Linda Huang, Sheryl Jones, Charlene
Sebold, and Charline Watz of the Governments
Division, Bureau of the Census.
Data utilized in this report are available from
the National Archive of Criminal Justice Data at
the University of Michigan, P.O. Box 1248, Ann
Arbor, MI 48106; 1-800-999-0960. The dataset is
archived as Law Enforcement Management and
Administrative Statistics, 1993 (ICPSR 9749).
An electronic version of this report and the data
analyzed in the report may be found on the
Internet at http://www.ojp.usdoj.gov/bjs/
CONTENTS
Highlights
The LEMAS survey
Personnel
Expenditures and pay
Operations
Equipment
Computers
Policy directives
Methodology
HIGHLIGHTS
* As of June 30, 1993, sheriffs' departments in
the United States had an estimated 224,236
full-time employees, 10% more than in 1990. This
total included 155,815 sworn personnel and 68,421
civilian employees.
* Nearly all sheriffs' departments were
responsible for performing court-related functions
such as serving civil process (97%) and providing
court security (93%). About 9 in 10 investigated
crimes (92%), responded to calls for service
(91%), and provided routine patrol services (88%)
* Many sheriffs' departments also had primary
responsibility for dispatching calls for service
(80%), operating a jail (79%), drug enforcement
(78%), traffic enforcement (77%), and search and
rescue operations (65%). (See following page for
comparisons of sheriffs' departments with local
police.)
* For fiscal 1993, sheriffs' departments had
operating expenditures of $10.7 billion. This was
6% more than 1990 after adjusting for inflation.
Operating expenditures averaged $66,500 per sworn
officer, $45,900 per employee, and $45 per
resident for 1993.
* Overall, 16.9% of the full-time sworn personnel
employed by sheriffs' departments in 1993 were
members of a racial or ethnic minority. This was
an increase compared to 1990 (15.5%) and 1987
(13.4%). Blacks accounted for 10% of sworn
personnel in 1993, and Hispanics comprised about
6%.
* In 1993, 8% of sheriffs' departments required
new deputy recruits to have completed at least
some college course work, compared to about 4% in
1990. Less than 1% of all departments required a
4-year degree; however, 5% required a 2-year
degree.
* New deputy recruits were required to undergo an
average of about 750 hours of training in 1993.
The average requirement ranged from about 900
hours among departments serving a population of 1
million or more, to about 450 hours in those
serving fewer than 10,000 residents.
* Eighty-two percent of sheriffs' departments
authorized their regular field officers to use
semiautomatic sidearms in 1993, up from 74% in
1990. Departments authorizing semiautomatic
sidearms employed 91% of all sheriffs' officers in
1993, compared to 83% in 1990.
* Nearly all (97%) sheriffs' departments
authorized the use of nonlethal weapons by
officers. Impact devices such as batons were
authorized by 85% of all departments. Chemical
agents were authorized by 77%, with pepper spray
(56%) the type most commonly approved.
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* Thirty percent of sheriffs' departments required
all of their regular field officers to wear
protective body armor while on duty during 1993,
up from 21% in 1990. Departments with such a
requirement employed 35% of all sheriffs' officers
in 1993, compared to 23% in 1990.
* Sixty-five percent of sheriffs' departments
participated in a 911 emergency telephone system
during 1993, a considerably higher percentage than
in 1990 (42%) and more than twice as many as in
1987 (28%).
* A majority of the 911 systems that sheriffs'
departments participated in during 1993 were
enhanced systems, capable of pinpointing the
source of a call automatically. Overall, 36% of
sheriffs' departments had an enhanced system in
1993, compared to 11% in 1990 and 8% in 1987.
* An estimated 62% of sheriffs' departments were
maintaining computerized files on warrants in
1993, up from 47% in 1990. A majority of
departments (58%) also maintained computerized
arrest information during 1993, compared to 42% in
1990.
Functions of sheriffs' and police
departments and their officers
Among the 156,000 full-time sworn personnel
employed by sheriffs' departments in 1993, about
60,000 were uniformed officers whose regularly
assigned duties included responding to calls for
service. This amounted to 39% of sheriffs'
department sworn personnel handling calls for
service, compared to 63% of officers in local
police departments. This difference is
attributable to the fact that, relative to local
police, sheriffs' departments are much more
likely to be responsible for activities related to
jail and court operations. More often than not,
these responsibilities are in addition to
traditional law enforcement duties.
A large majority of both sheriffs' and local
police departments receive calls for service,
investigate crimes, and provide routine patrol
services
Percent of agencies
Function
Sheriffs'
Local police
---------------------------------------------
Receiving calls
for service
Crime investigation
Routine patrol
91%
92
88
93%
97
97
Sheriffs' departments are much more likely than
local police departments to perform functions
related to the operation of courts and jails
Percent of agencies
Function
Sheriffs'
Local police
Process serving
Court security
Jail operations
97%
93
79
11%
19
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Sheriffs' departments are also more likely than
local police departments to perform search and
rescue operations, dispatch calls for service, and
process fingerprints
Percent of agencies
Function
Sheriffs'
Local police
---------------------------------------------
Search and rescue
Dispatching calls
for service
Fingerprint processing
65%
33%
80
55
52
41
Most sheriffs' departments perform traffic-
related functions; however, they are less likely
to do so than local police departments
Percent of agencies
Function
Sheriffs'
Local police
---------------------------------------------
Enforcing traffic
laws
Accident
investigation
Traffic direction
and control
77%
99%
69
98
64
90
SHERIFFS' DEPARTMENTS 1993
During 1993, the Bureau of Justice Statistics
(BJS), as a part of its Law Enforcement Management
and Administrative Statistics (LEKAS) program,
surveyed a nationally representative sample of the
more than 17,000 State and local law enforcement
agencies operating nationwide. This report
presents data describing the more than 3,000
sheriffs' departments operating in the United
States in terms of their personnel, expenditures
and pay, operations, equipment, computers and
information systems, and policies.
The sheriffs' departments included in this report
are operated by county or independent city
governments. Since sheriffs are typically elected
officials, these agencies are sometimes known as
sheriff's offices, but the term departments is
used universally in this report as a matter of
convenience. Consolidated police-sheriffs'
departments are classified as local police for the
LEMAS survey and are excluded from this report.
The LEMAS survey
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The 1993 LEMAS survey questionnaire was mailed to
all 854 State and local law enforcement agencies
with 100 or more sworn officers and to a
representative sample of 2,416 agencies with fewer
than 100 officers (see Methodology for a
description of the sample). Of the 3,270 agencies
receiving the LEMAS questionnaire, 3,028 (92.6%)
responded.
Detailed agency-by-agency tabulations from the
1993 LEMAS survey were previously published for
agencies with 100 or more officers (see Law
Enforcement Management and Administrative
Statistics, 1993, NCJ-148825). This report and
its companion report (Local Police Departments
1993, NCJ-148822), summarize the data collected
from agencies of all sizes.
This is the third LEMAS survey. Data from the
previous surveys in 1987 and 1990 are used for
comparison purposes in this report. Law
enforcement manpower data collected by BJS in
1992 are less comprehensive in content (they
include only personnel counts) and therefore are
not used for comparisons.
Personnel
During 1993 an estimated 17,120 publicly funded
State and local law enforcement agencies were
operating in the United States (table 1).
Table 1. Employment by State and local law enforcement agencies
in the United States, 1993
Number of employees
Number Full-time Part-time
Type of agency of agencies Total Sworn Civilian Total S
Total 17120 828435 622913 205522 87875
Local police 12361 474072 373554 100518 58146
Sheriff 3084 224236 155815 68421 19660
State police 49 76972 51874 25098 845
Special police 1626 53155 41670 11485 9224
Note: Special police category includes both State-level and local-level agencies.
Consolidated police-sheriff agencies are included under local police category.
Data are for the pay period that included June 30, 1993.
Excluding a small number of consolidated
police-sheriff agencies, there were 3,084
sheriffs' departments, all operated by counties
and independent cities.
As of June 30, 1993, sheriffs' departments had an
estimated 224,236 full-time employees. They
employed an additional 19,660 persons on a
part-time basis. About 156,000, or 69%, of
full-time sheriffs' department employees were
sworn officers. This represented a fourth of all
State and local officers nationwide. The
estimated 68,421 civilian sheriffs' department
personnel in 1993 accounted for a third of all
nonsworn State and local law enforcement employees
in the United States.
There were about 20,000, or 9.9%, more full-time
employees in sheriffs' departments in 1993 than in
1990, and about 47,000, or 26.6%, more than in
1987 (figure 1). For all State and local law
enforcement agencies, the increase in number of
employees from 1990 to 1993 was about 35,000, or
4.5%, and from 1987 to 1993 it was about 79,000,
or 10.5%.
When only sworn personnel are considered,
employment by sheriffs' departments increased by
about 14,000 officers, or 10.2%, from 1990 to 1993
and by about 33,000, or 27.2%, from 1987 to 1993.
The number of full-time sworn personnel employed
by all State and local law enforcement agencies in
1993 was up by about 27,000, or 4.5%, compared to
1990, and by about 55,000, or 9.7%, compared to
1987.
As with local police departments, the size of
sheriffs' departments varies greatly. The Los
Angeles County Sheriff's Department was the
largest in 1993, with 11,285 full-time employees.
Included in this total were 7,629 full-time sworn
officers, of which about 3,400 were assigned to
field operations.
Nationwide, there were 17 sheriffs' departments
that employed 1,000 or more sworn officers (0.6%),
and more than 300 that employed at least 100
officers (10.3%) (table 2).
Table 2. Sheriffs' departments, by number
of sworn personnel, 1993
Agencies
Number of
sworn personnel Number Percent Number
Total
1,000 or more
500-999
250-499
100-249
50-99
25-49
10-24
5-9
2-4
1
3084
17
24
77
199
307
564
936
602
340
19
100
0.6
0.8
2.5
6.4
10
18.3
30.4
19.5
11
0.6
155815
32045
15010
26775
29022
18735
16596
12782
3811
1028
10
Percent
100
20.6
9.6
17 .2
18.6
12
10.7
8.2
2.4
0.7
Note: Detail may not add to total because of rou
*Includes both full-time and part-time employees.
-- Less than 0.5%.
Nearly 1,000 sheriffs' departments employed fewer than 10
officers (31.2%), including 19 with just one sworn
officer (0.6%).
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About a fifth of all full-time sheriffs' officers
were employed by a department with 1,000 or more
officers, and two-thirds were employed by a
department with at least 100 officers. Sheriffs'
departments that employed fewer than 10 officers
accounted for about 3% of all sheriffs' department
sworn personnel nationwide.
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About half of all sheriffs' department officers
worked for the 184 departments located in a
jurisdiction with 250,000 or more residents and a
fifth were employed by 1 of the 25 departments
serving a population of 1 million or more (table
3). Just over half of all sheriffs' departments
were located in a jurisdiction with fewer than
25,000 residents. These departments employed
about 11% of all sworn sheriffs' department
personnel nationwide.
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Table 3. Sheriffs' departments and full-time sworn
personnel, by size of population served, 1993
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Agencies
Population served Number Percent
All sizes 3084 1
1,000,000 or more 25 0.8
500,000-999,999 63 2
250,000-499,999 96 3.1
100,000-249,999 260 8.4
50,000-99,999 376 12.2
25,000-49,999 616 20
10,000-24,999 916 29.7
Under 10,000 731 23.7
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On the average, sheriffs' departments nationwide
had 73 full-time employees including 51 sworn
personnel and 22 civilian employees (table 4). The
size of departments varied greatly depending on
the jurisdiction population: Sheriffs'
departments in jurisdictions with a population of
1 million or more had an average of 1,936
full-time employees, including 1,233 sworn
officers and 703 civilian employees. In contrast,
sheriffs' departments in jurisdictions with fewer
than 10,000 residents employed an average of 6
full-time sworn officers, and 3 full-time
civilians.
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Table 4. Average number of employees in sheriffs'
departments, by size of population served, 1993
Full-time sworn
personnel
Number Percent
155815
1
31266
24483
21504
27442
19144
15244
12146
4585
20.1
15.7
13.8
17.6
12.3
9.8
7.8
2.9
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Full-time
Sworn
Average number of employees
Part-time
Nonsworn Total Sworn
Population served Total
All sizes
73
51
1
22
6
4
1,000,000 or more 1936 1233 703 48 29
500,000-999,999 551 390 161 39 17
250,000-499,999 321 224 97 20 8
100,000-249,999 151 106 45 11 6
50,000-99,999 69 51 18 7 5
25,000-49,999 35 25 10 6 4
10,000-24,999 18 13 5 3 2
Under 10,000 9 6 3 2 1
Note: Detail may not add to total because of rounding.
Race and sex of officers
Of the estimated 155,518 full-time sworn personnel
employed by sheriffs' departments in 1993, an
estimated 22,657, or 1 in 7, were women (table 5).
The percentage of female officers varied slightly
across population sizes, ranging from about 16% in
jurisdictions with a population of 100,000 to
999,999 to just under 12% in jurisdictions with a
population of 10,000 to 49,999.
Table 5. Sex of full-time sworn personnel in sheriffs' d
by size of population served, 1993
Population All sworn employees
served Total Male Female
All sizes 100 85.5 14.5
1,000,000 or more 100 85.5 14.5
500,000-999,999 100 84.0 16.0
250,000-499,999 100 83.6 16.4
100,000-249,999 100 84.3 15.7
50,000-99,999 100 86.6 13.4
25,000-49,999 100 88.5 11. 5
10,000-24,999 100 88.2 11.8
Under 10,000 100 86.8 13.2
Note: Detail may not add to total because of rounding.
Compared to 1990, the number of female officers
was up by less than a thousand, and the percentage
of all sheriffs' officers represented by women was
down slightly from 15.4% to 14.6% (figure 2) .
However, there were about 7,200 more female
officers in 1993 than in 1987, when 12.6%
of sheriffs' officers were women.
In 1993, about a sixth of full-time sheriffs'
officers were members of a racial or ethnic
minority, with the percentage of minority officers
higher in jurisdictions with a population of
500,000 or more (table 6). Overall, the number of
sheriffs' officers who were members of a racial or
ethnic minority in 1993 (26,367) was about 20%
greater than in 1990 (21,290) and about 61%
greater than in 1987 (16,420).
1 Table 6. Race and ethnicity of full-time sworn personnel in sheriffs' departments,
Percent of full-time sworn employees who
White Black
Total Male Female Total
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Population served
Total
All sizes
100
83.1
72 .1
11
lC
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
100
100
100
100
100
100
100
100
73.1
78.9
83.3
85.8
90.5
89.8
87.7
90.1
63.6
67.5
70.8
73.9
79.2
79.9
78.0
79.0
9.5
11.4
12.5
11. 9
11.3
9.9
9.8
11. 2
11. 4
14.1
11. C
10.7
6.3
6.1
7.S
4.8
Note: Detail may not add to total because of rounding.
*Includes Asians, Pacific Islanders, American Indians, and Alaska Natives.
--Less than 0.05%
Blacks accounted for 10% of all sheriffs' officers
in 1993, with departments serving a population of
500,000 to 999,999 employing the highest
percentage of black officers (14.1%). About 6% of
sheriffs' officers nationwide were Hispanic, with
departments serving a population of 1 million or
more having the most Hispanic officers (13.3%).
The estimated 15,621 full-time black officers
employed in 1993 represented an increase of 1,762
compared to 1990 and 5,450 compared to 1987. The
percentage of black officers in 1993 (10.0%) was
about the same as in 1990 (9.8%), but up
significantly from 1987, when 8.3% of all
sheriffs' officers were black.
There were an estimated 8,979 Hispanic officers
employed by sheriffs' departments in 1993. This
was 35% more than in 1990 (6,647) and 70% more
than in 1987 (5,269). The percentage of sheriffs'
officers represented by Hispanics in 1993 (5.8%)
represented an increase over 1990 (4.7%) and 1987
(4.3%) levels.
Education and training requirements
for new officers
Nearly all (97%) sheriffs' departments had a
formal education requirement for new officer
recruits in 1993 (table 7). The typical minimum
educational requirement was completion of
highschool (89%). About 8% of departments, twice
as many as in 1990, required at least some college
course work of new deputy recruits. Although less
than 1% of sheriffs' departments required new
deputy recruits to have a 4-year college degree,
5% did require a 2-year degree. Overall, 99% of
sheriffs' officers nationwide were employed by a
department that required new deputies to have at
least a high school diploma, including 7% who were
employed by a department that required them to
have at least some college.
Table 7. Minimum educational requirement for new officer recruits
in sheriffs' departments, by size of population served, 1993
Percent of agencies requiring a minimum of:
Total High 2-year 4-yea
Population with school Some college collE
served requirement diploma college* degree degrE
All sizes 97 89 2 5
1,000,000 or more 1 96 4 0 C
500,000-999,999 93 83 6 2 2
250,000-499,999 100 88 7 3 1
100,000-249,999 100 88 2 10
50,000-99,999 99 89 5 2 2
25,000-49,999 97 88 1 7 C
10,000-24,999 95 89 1 5 C
Under 10,000 98 92 1 5 C
Note: Detail may not add to total because of rounding
*Nondegree requirements.
--Less than 0.5%.
An estimated 90% of all sheriffs' departments,
employing 97% of all officers, required new deputy
recruits tocomplete formal training (table 8).
All of the departments serving a population of
500,000 or more and more than 90% of those serving
a population of 25,000 to 499,999 required
training. The percentage of departments in
smaller jurisdictions that required training was
slightly lower--86% in jurisdictions with a
population of 10,000 to 24,999, and 83% in
jurisdictions with fewer than 10,000 residents.
Table 8. Training requirements for new deputy
recruits in sheriffs' departments, by size of
population served, 1993
Percent of Average number
agencies of hours required
Population requiring Class-
served training room Field
All sizes 90 366 199
1,000,000 or more 100 615 286
500,000-999,999 100 414 331
250,000-499,999 96 411 336
100,000-249,999 96 388 255
50,000-99,999 98 414 242
25,000-49,999 92 357 239
10,000-24,999 86 343 155
Under 10,000 83 342 109
Note: Computation of average number of training
hours required excludes departments not requiring
training.
On average, sheriffs' departments required 565
training hours of new deputy recruits, with about
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two-thirds of the training in the classroom.
Sheriffs' departments in jurisdictions with 1
million or more residents (901 hours), required
about twice as many training hours of new recruits
as those serving a population of less than 10,000
(451 hours).
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Classroom training requirements were most
stringent among departments serving a population
of 1 million or more (an average of 615 hours),
while departments serving a population of 250,000
to 999,999 (about 330 hours) required the most
field training hours on average.
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When sheriffs' departments are weighted according
to number of officers, it is estimated that the
average new deputy recruit in 1993 was required to
undergo 748 hours of training, with 478 hours, or
64%, of it in the classroom.
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Compared to 1990, the average number of training
hours required of new deputy recruits in 1993 was
up significantly in most sheriffs' departments
(figure 3). Departments serving a population of
less than 25,000 required an average of 416 hours
of training in 1993, compared to 346 in 1990.
Among departments serving a population of 25,000
to 99,000, the average training requirement was up
by more than 100 hours, from 474 hours in 1990 to
579 hours in 1993. Departments serving a
population of 100,000 to 499,999 increased their
average requirement by nearly 100 hours, from 553
hours to 646 hours. Among departments serving
500,000 or more residents, training requirements
for new recruits remained about the same,
averaging just under 800 hours.
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Applicant and employee drug testing
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A fourth of all sheriffs' departments, employing
half of all officers, required that all applicants
for sworn positions be tested for illegal drug use
(table 9). A majority of the departments serving
a population of 500,000 or more re-quired a drug
test of all officer applicants, as did 41% of
those serving a population of 100,000 to 499,999.
Applicants for officer positions were least likely
to be tested for drugs in small jurisdictions:
18% of departments serving a population of 10,000
to 24,999 and 12% of those serving fewer than
10,000 residents had a mandatory drug testing
requirement for applicants.
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Table 9. Drug testing of applicants for sworn positions, regular field
officers, and civilian employees in sheriffs' departments, by size of
population served, 1993
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Percent of
Any type
of testing
program
agencies with a
Mandatory
(all are
tested)
Personnel category
and population served
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Applicants for sworn positions
All sizes 30
25
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drug testing
Random
selection
process
5
program
Use of
drugs is
suspected
5
1,000,000 or more 55 50 5 9
500,000-999,999 66 65 3 6
250,000-499,999 46 41 1 8
100,000-249,999 46 41 4 6
50,000-99,999 38 36 2 9
25,000-49,999 34 29 5 4
10,000-24,999 24 18 4 6
Under 10,000 20 12 7 3
Regular field/patrol officers
All sizes 26 6 12 13
1,000,000 or more 50 5 14 45
500,000-999,999 54 3 15 49
250,000-499,999 44 4 12 36
100,000-249,999 42 4 16 23
50,000-99,999 37 4 17 20
25,000-49,999 28 9 14 13
10,000-24,999 20 6 10 9
Under 10,000 15 4 7 5
Civilian employees
All sizes 24 8 8 12
1,000,000 or more 50 4 14 45
500,000-999,999 56 21 10 38
250,000-499,999 40 3 7 32
100,000-249,999 35 9 12 19
50,000-99,999 30 8 8 15
25,000-49,999 24 8 10 12
10,000-24,999 19 7 6 8
Under 10,000 17 7 7 6
Note: Some agencies had more than 1 type of testing program.
Overall, about a fourth of sheriffs' departments,
employing about half of all sheriffs' officers,
had some type of drug testing program that
included regular field officers. Drug testing
programs that were mandatory for all regular field
officers were reported by 6% of sheriffs'
departments, employing 5% of all officers. More
common were testing programs limited to officers
suspected of using illegal drugs (13%) or to those
selected through a random selection process (12%).
Nearly half of the departments serving a
population of 500,000 or more tested regular field
officers suspected of using illegal drugs and 39%
of all sheriffs' officers nationwide were employed
by a department with such a program. Departments
with a random selection testing program for
regular field officers employed 24% of all
officers nationwide.
About a fourth of all sheriffs' departments
included civilian employees under one or more
types of drug testing program. These departments
employed about half of all nonsworn sheriffs'
department personnel.
Twelve percent of departments, employing 35% of
all nonsworn employees, had a testing program for
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such employees suspected of using illegal drugs.
This included nearly half of the departments
serving a population of 1 million or more, and
about a third of those serving a population of
250,000 to 999,999. Mandatory and random
selection drug testing programs for civilian
employees were both found among 8% of all
departments; however, departments with random
selection programs employed twice as many civilian
personnel nationwide as those with a mandatory
testing program (18% versus 9%).
Expenditures and pay
Operating expenditures
The total annual operating expenditure of
sheriffs' departments during fiscal year 1993 was
$10.7 billion, an increase of 17% compared to
1990. After controlling for inflation, the net
increase in spending was about 6%. (These figures
do not include capital expenditures such as those
for equipment purchases or construction projects.)
Sheriffs' departments accounted for 26% of the
$41.9 billion in total operating expenditures for
all State and local law enforcement agencies
during fiscal year 1993.
Billions
Total State and
local operating
expenditures
1993
1990
$41.9
$36.0
Local police
Sheriff
State police
Special police
$24.3
10.7
4.2
2.8
$20.6
9.1
3.7
2.6
Operating expenditures averaged about $3.5 million
per sheriffs' department for fiscal 1993, ranging
from an average of $132,467,000 for departments
serving a population of 1 million or more, to
$273,000 among those serving fewer than 10,000
residents (table 10). The overall operating cost
per resident was $45, with departments in
jurisdictions with a population of 1 million or
more costing the most to operate, $60 per
resident, followed by those in jurisdictions with
fewer than 10,000 residents at $48 per resident.
Departments in jurisdictions with a population of
25,000 to 49,999 residents had the lowest per
resident cost--$34.
Table 10. Operating expenditures of sheriffs' departments, by size of population s
Population
served
Operating expenditures in dollars, fiscal year 1993
Per Per Per
Total agency sworn officer emplc
All sizes
10732086000
3480000
66500
45S
1,000,000 or more
3311663000
132467000
104700
66E
500,000-999,999 1726039000 27397000 69000 482
250,000-499,999 1474363000 5358000 67300 464
100,000-249,999 1698813000 6534000 60300 41S
50,000-99,999 1015455000 2701000 50700 371
25,000-49,999 739475000 1200000 44700 318 ~
10,000-24,999 566436000 618000 43600 308
Under 10,000 199842000 273000 39500 27E
Note: See the printed report for the table note.
Nationwide, sheriffs' departments cost $66,500 per
sworn officer to operate for fiscal 1993, ranging
from $104,700 per officer in jurisdictions with
more than 1 million residents to $39,500 per
officer in jurisdictions with fewer than 10,000
residents. When both sworn and nonsworn employees
are included, the average operating expenditure
for sheriffs' departments was $45,900 per employee
for the year, ranging from a high of $66,600 per
employee in jurisdictions with 1 million or more
residents to a low of $27,600 in the smallest
jurisdictions. Overall, employee salaries and
benefits accounted for about $4 of every $5 in
sheriffs' department
operating expenditures.
Table 11. Average base starting salary for selected
positions in sheriffs' departments, by size
of population served, 1993
Average base starting salary, 1993
Entry-
Population level
served deputy Sergeant Sheriff
All sizes 19300 24400 37700
1000000 or more 28300 40200 89800
500,000-999,999 23900 33300 67200
250,000-499,999 23400 31900 63800
100,000-249,999 22200 28600 53500
50,000-99,999 20600 26200 42400
25,000-49,999 19200 23900 37900
10,000-24,999 18500 22900 33800
Under 10,000 17400 20600 26700
Note: Salary figures have been rounded to the nearest
Computation of average salary excludes departments with
employee in that position.
Salaries
The average base starting salary offered by
sheriffs' departments to entry-level deputies was
about $19,300 in 1993. This was an increase of
11% compared with 1990; however, the net increase
after controlling for inflation was just 0.3%
(table 11). Departments in jurisdictions with
50,000 or more residents had an average starting
salary that was higher than the overall average,
ranging from $20,600 (population of 50,000 to
99,999) to $28,300 (population served of 1 million
or more). The average starting salary for
deputies in departments serving a population of
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less than 10,000 was about $2,000 below the
overall average. When departments are weighted
according to number of officers employed, the
estimated average base starting salary for
entry-level deputies in 1993 was $23,300.
Except for the largest agencies, base starting
salaries for entry-level officers were generally
lower in sheriffs' departments than in comparably
sized local police departments (figure 4). The
greatest difference was found among agencies with
at least 25 officers but fewer than 250--about
$5,000 per year on average.
Among agencies employing fewer than 25 full-time
officers, local police departments offered an
average starting salary that was about $1,600
higher than sheriffs' departments. Among agencies
with 250 to 999 full-time sworn personnel, the
difference was about $3,400. Sheriffs'
depart-ments employing 1,000 or more sworn
personnel offered a starting salary to entry-level
officers that was slightly higher than in local
police departments.
Salaries for the positions of sergeant and sheriff
increased with jurisdiction size in a pattern
similar to that for entry-level officers. By
department, the average starting salary for
sergeants was $24,400, with sergeants in the
largest jurisdictions starting at $40,200 on
average, about twice as much as in departments in
the smallest jurisdictions ($20,600). When
departments are weighted according to size, the
estimated average base starting salary for
sergeants was $31,100.
The overall average base starting salary for
sheriffs in 1993 was $37,700, but sheriffs in
jurisdictions with 100,000 or more residents had a
starting salary that was considerably higher. The
average starting salary for sheriffs in
jurisdictions with 1 million or more residents was
$89,800, more than 3 times as much as in
jurisdictions with a population of less than
10,000 ($26,700).
Special pay
Some sheriffs' departments offered certain types
of special pay to full-time officers (table 12).
For example, 16% of sheriffs' departments,
employing 45% of all sheriffs' officers
nationwide, offered education incentive pay to
qualifying officers. About two-thirds of the
sheriffs' departments in jurisdictions with a
population of 1 million or more offered education
incentive pay to officers; however, less than 10%
of agencies serving fewer than 25,000 residents
offered this type of pay.
Table 12. Sheriffs' departments authorizing special pay for full-time
sworn personnel, by size of population served, 1993
Percent of agencies authorizing
Population Education Shi ft Hazardous
served incentive differential Merit duty
All sizes 16 15 13 5
1000000 or more 65 54 42 42
500,000-999,999 45 42 29 27
250,000-499,999 55 34 38 21
100,000-249,999 32 34 27 7
50,000-99,999 22 24 22 4
25,000-49,999 15 16 13 6
10,000-24,999 9 7 9 1
Under 10,000 8 6 3 2
Fifteen percent of all sheriffs' departments
offered shift differential pay to their full-time
officers. More than half of the departments in
jurisdictions with 1 million or more residents,
and more than a third of those serving 100,000 to
999,999 residents, had shift differential pay.
Nationwide, about a fourth of all sheriffs'
officers were employed by a department with shift
differential pay.
Thirteen percent of all sheriffs' departments
offered merit pay to qualifying officers,
including 42% of those serving a population of 1
million or more. About a third of all sheriffs'
officers nationwide worked for a department that
offered merit pay.
Hazardous duty pay was offered by just 5% of all
sheriffs' departments; however, 42% of the
departments in jurisdictions with a population of
1 million or more offered it, as did more than 20%
of the departments in jurisdictions with 250,000
to 999,999 residents. Nationwide, a fourth of all
sheriffs' officers were employed by
a department that offered hazardous duty pay.
Collective bargaining and union membership
Nationwide, 30% of all sheriffs' departments,
employing 47% of all officers, authorized
collective bargaining for sworn personnel (table
13). A majority of the departments serving a
population of 100,000 or more authorized
collective bargaining for officers, including
about three-fourths of the departments in
jurisdictions with a population of 500,000 or
more. Departments in jurisdictions with fewer
than 25,000 residents were the least likely to
authorize collective bargaining for sworn
personnel.
Table 13. Sheriffs' departments authorizing
collective bargaining, by size of population
served, 1993
Population
Percent of agencies authorizing collective bargaining
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served
Sworn employees Nonsworn employees
All sizes
30 24
1,000,000 or mo
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
77 68
73 59
58 52
51 42
41 35
35 27
20 18
15 10
Nonsworn personnel in sheriffs' de-partments were
slightly less likely to have collective bargaining
rights than sworn employees. Overall, 24% of
sheriffs' departments, employing 41% of all
nonsworn sheriffs' department personnel,
authorized collective bargaining for civilian
employees. A majority of the departments in
jurisdictions with a population of 250,000 or more
authorized collective bargaining for civilians;
however, just 1 in 10 departments serving a
population of less than 10,000 did so.
Twenty-four percent of all sheriffs' departments
authorized police union membership by their sworn
personnel, including a majority of those in
jurisdictions with 500,000 or more residents
(table 14). Nationwide, 43% of all sheriffs'
officers were employed by a department that
authorized them to belong to a police union.
Table 14. Sheriffs' departments authorizing police
membership organizations, by size of
population served, 1993
Percent of agencies authorizing membership
Non-
Population police Police Police asso-
served union union ciation
All sizes 6 24 25
1,000,000 or more 14 6 38
500,000-999,999 11 55 36
250,000-499,999 13 41 38
100,000-249,999 14 37 25
50,000-99,999 7 33 24
25,000-49,999 4 32 29
10,000-24,999 5 20 23
Under 10,000 3 8 21
Six percent of sheriffs' departments, employing
16% of all sheriffs' department officers
nationwide, authorized membership in a nonpolice
union. Twenty-five percent of all departments
authorized officer membership in a police
association. These departments employed 30% of
all sheriffs' officers nationwide.
Operations
Crime investigation
About 9 in 10 sheriffs' departments had primary
responsibility for investigating violent crimes
occurring in their jurisdiction (table 15).
Departments in jurisdictions with a population of
less than 100,000 were more likely to be
responsible for investigating violent crimes than
those in larger jurisdictions. Departments
serving a population of 500,000 to 999,999 were
the least likely to be the primary investigative
agency for violent crimes.
Table 15. Crime investigation responsibilities of sheriffs' departments,
by size of population served, 1993
Population
served
All sizes
Percent of agencies
Violent crimes
Homicide Other/a
89 91
with primary responsibility for investigatic
Property crimes Environmental
Arson Other/b crimes
80 92 22
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
75 75 61 79 19
51 58 46 53 27
71 72 65 76 17
75 79 68 79 16
90 89 85 88 19
90 93 81 95 25
96 96 84 97 22
91 94 80 94 25
/aRape, robbery or assault.
/bBurglary, larceny/theft, or motor vehicle theft.
Ninety-two percent of sheriffs' departments had
primary responsibility for investigating property
crimes such as burglary, larceny, or motor vehicle
theft. As with violent crimes, departments serving
a population of 500,000 to 999,999 were the least
likely to be responsible for investigating
property crimes, and those serving fewer than
100,000 residents were the most likely to handle
such investigations.
Eighty percent of sheriffs' departments were
responsible for investigating arson incidents.
Again, those serving a population of less than
100,000 were most likely to handle such cases, and
those serving a population of 500,000 to 999,999
were least likely.
An estimated 22% of sheriffs' departments were
responsible for the investigation of environmental
crimes, with only a slight variation by population
category.
Investigative support functions
Some sheriffs' departments had primary
responsibility for investigative support functions
such as fingerprint processing, laboratory testing
of substances, or ballistics testing (table 16).
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A majority were responsible for fingerprint
processing (55%), including about two-thirds of
those in jurisdictions with a population of 1
million or more, or a population of 100,000 to
499,999. Nearly three-fourths (71%) of sheriffs'
officers nationwide were employed by a department
that was responsible for fingerprint processing.
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Table 16. Investigative support
functions of sheriffs' departments,
by size of population served, 1993
1
Percent of agencies with primary
responsibility for:
Finger- Laboratory
print testing
processing of substances
1
Population
served
1
All sizes
5
55
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
66
55
67
66
60
51
52
54
38
16
20
8
7
5
2
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Overall, few sheriffs' departments were
responsible for laboratory testing of substances
(5%) or ballistics testing (2%). Departments in
jurisdictions with a population of 1 million or
more were the most likely to be responsible for
these functions: 38% conducted laboratory tests of
substances and 33% conducted ballistics tests.
Less than 10% of the departments in jurisdictions
with a population of less than 250,000 performed
these functions.
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Drug and vice enforcement
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An estimated 78% of all sheriffs' departments had
primary responsibility for drug enforcement in
their jurisdiction, and these departments employed
78% of all sheriffs' officers nationwide (table
17). Departments in jurisdictions with a
population of less than 25,000 (85%) were the most
likely to be responsible for drug enforcement,
while those in jurisdictions with 500,000 to
999,999 residents (47%) were the least likely.
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Table 17. Drug and vice enforcement
responsibilities of sheriffs' departments,
by size of population
served, 1993
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Percent of agencies with primary
responsibility for
Drug Vice
enforcement enforcement
78 49
Population served
All sizes
I
Bal-
listics
testing
2
33
18
10
2
2
4
o
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
80
47
60
58
71
78
85
85
56
47
56
57
56
56
45
41
About half of all sheriffs' departments, employing
two-thirds of all sheriffs' officers, had primary
vice enforcement responsibilities. By population
category, slightly more than half of the
departments in jurisdictions with a population of
1 million or more or a population of 25,000 to
499,999 were responsible for vice enforcement.
Slightly less than half of the departments in
other population categories were responsible for
vice enforcement.
Patrol and response
Eighty-eight percent of all sheriffs' departments
were responsible for providing routine patrol
services in their jurisdiction (table 18). About
90% of the departments in jurisdictions with a
population of less than 50,000 provided patrol
services. Except for departments serving a
population of 500,000 to 999,999 (53%), a large
majority of the departments serving other
jurisdiction sizes also provided patrol services.
Nationwide, 86% of all sheriffs' officers were
employed by a department that performed patrol
services.
Table 18. Patrol and response of sheriffs'
departments, by size of population served, 1993
Percent of agencies with primary
responsibility for
Calls for service
Population Routine Re- Dis-
served patrol ceiving patching
All sizes 88 91 80
1,000,000 or more 83 75 75
500,000-999,999 53 61 51
250,000-499,999 73 69 62
100,000-249,999 79 81 64
50,000-99,999 86 90 72
25,000-49,999 92 95 84
10,000-24,999 90 94 86
Under 10,000 90 94 82
About 9 in 10 sheriffs' departments reported they
had primary responsibility for receiving calls for
service from citizens. The percentage of
departments that received service calls was 90%
or higher in all population categories less than
100,000. About 4 in 5 sheriffs' departments also
had responsibility for dispatching calls for
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service to officers in the field, with departments
serving a population of less than 50,000 the most
likely to perform dispatch services.
911 emergency telephone system
In 1993, 65% of all sheriffs' departments
participated in an emergency telephone system
whereby one of their units could be dispatched as
a result of a citizen call to 911 or its
equivalent (table 19). This was a significant
increase from 1990 when 42% of all sheriffs'
departments were 911 participants, and more than
twice the percentage of departments reporting 911
participation in 1987 (28%) (figure 5). A
majority of the sheriffs' departments in each
population category were participating in a
911 system in 1993, including more than 70% of
those serving a population of 25,000 to 499,999.
Table 19. Sheriffs' department participation in a 911
emergency telephone system, by size of population served, 1993
Population served
Percent of agencies participating
in a 911 system
Total Enhanced Basic
All sizes
65
36
29
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
70
56
74
80
75
74
61
54
46
46
68
61
61
44
28
13
24
10
5
19
14
30
33
41
Note: Participation is defined as the capability
to dispatch a unit as the result of a call to 911.
Detail may not add to total because of rounding.
In 1993, slightly over half of the sheriffs'
departments with a 911 system reported their
system was an enhanced system, capable of
pinpointing the location of a caller
automatically. This was in sharp contrast to 1990
and 1987, when just a fourth of the sheriffs'
departments with a 911 system had an enhanced
capability. The percentage of sheriffs'
departments that had an enhanced 911 system in
1993 (36%) was about 3 times greater than in 1990
(11%), and about 4 times greater than in 1987
(8%) .
Departments in jurisdictions with a population of
250,000 to 499,999 (68%) and those in
jurisdictions with 50,000 to 249,999 residents
(61%) were the most likely to have an enhanced 911
system, while those in jurisdictions with a
population less than 10,000 (13%) were the least
likely. A majority of the 911 systems operated by
sheriffs' departments in each population category
of 25,000 or more were enhanced systems.
In 1993, 79% of all sheriffs' officers worked for
a department with 911, and 60% worked for one with
enhanced 911. The comparative percentages for
1990 were 68% and 36%, respectively.
Traffic-related functions
About three-fourths of sheriffs' departments were
responsible for the enforcement of traffic laws
(77%), while about two-thirds handled accident
investigation (69%), and traffic direction and
control (64%) (table 20). At least half of the
departments in each population category under
500,000 had traffic-related responsi-bilities,
with departments serving a population of less than
100,000 the most likely to perform such duties.
More than 80% of the departments serving a
population of less than 10,000 were responsible
for traffic enforcement (84%) and accident
investigation (81%).
Table 20. Traffic-related functions of sheriffs'
departments, by size of population served, 1993
Population
served
Percent of agencies with primary responsibility for:
Enforcing Investigating Directing and
traffic laws accidents controlling traffic
All sizes
77 69 64
70 56 47
49 43 39
65 SO 55
67 54 56
80 62 66
75 71 62
77 69 64
84 81 72
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
Jail- and court-related functions
To a much greater extent than their local police
counterparts, sheriffs' departments were
responsible for functions related to court and
jail operations. Nearly all sheriffs' departments
had primary responsibility for serving civil
process (97%) and providing court security (93%),
while 79% operated a jail (table 21) . For the
large majority of departments, these duties were
in addition to traditional law enforcement
responsibilities.
Table 21. Jail- and court-related functions of sheriffs'
departments, by size of population served, 1993
Population
served
Percent of agencies with primary responsibility for:
Serving Court Jail
civil process security operation
All sizes
97
93
79
1,000,000 or more
76
68
84
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500,000-999,999 98 88 71
250,000-499,999 96 91 73
100,000-249,999 98 93 83
50,000-99,999 97 96 85
25,000-49,999 99 95 85
10,000-24,999 98 94 83
Under 10,000 95 91 67
Nearly all of the sheriffs' departments serving a
population of less than 1 million were responsible
for serving civil process. About three-fourths of
those in jurisdictions with a population of 1
million or more had process-serving
responsibilities. Nationwide, 92% of all
sheriffs' officers were employed by a department
that handled process serving.
More than 90% of the departments serving a
population of less than 500,000 provided court
security services, as did 88% of those serving a
population of 500,000 to 999,999. Departments in
jurisdictions with a population of 1 million or
more (68%) were the least likely to provide court
security. Eighty-nine percent of all sheriffs'
officers were employed by a department that
provided court security.
About 4 in 5 sheriffs' departments operated at
least one jail during 1993. Among departments in
jurisdictions with a population of 1 million or
more or a population of 10,000 to 249,999, about 5
in 6 operated a jail, a slightly higher proportion
than in other population categories. Ninety
percent of all sheriffs' officers nationwide were
employed by a department that operated one or more
jails.
Lockup facilities
Just 6% of sheriffs' departments were operating a
lockup facility in 1993 (table 22). Lockup
facilities are temporary holding facilities
operated separately from a jail with a limited
holding time--an average maximum holding time of
12 hours was reported by the departments that
operated such a facility. About 3 in 10
departments in jurisdictions with a population of
250,000 to 999,999 were operating a lockup, as
were about 4 in 10 departments in jurisdictions
with 1 million or more residents. The average
total lockup capacity for all departments with a
lockup was 49 persons, ranging from 137 in
jurisdictions with 1 million or more residents to
4 in jurisdictions with fewer than 10,000
residents.
Table 22. Lockup operation by sheriffs' departments,
by size of population served, 1993
Population
served
Percent of
agencies
operating
a lockup
Average
lockup
capacity
All sizes 6 49
1,000,000 or more 41 137
500,000-999,999 30 90
250,000-499,999 32 88
100,000-249,999 12 61
50,000-99,999 5 54
25,000-49,999 5 14
10,000-24,999 2 7
Under 10,000 5 4
Note: Computation of average lockup
capacity excludes departments not operating such
a facility
Special public safety functions
Another important area of responsibility for
sheriffs' departments in 1993 involved the
performance of special functions related to public
safety. Examples of such functions included
search and rescue, animal control, civil defense,
emergency medical services, and fire services.
About two-thirds of all departments were
responsible for search and rescue, including a
majority of the departments in all population
categories except 500,000 to 999,999 (table 23).
The percentage of sheriffs' departments
responsible for search and rescue operations was
highest among those serving a population of less
than 10,000 (73%).
Table 23. Special public safety functions of sheriffs' departments,
by size of population served, 1993
Percent of agencies with primary responsibility for:
Search Emergency
Population and Animal Civil medical Fire
served rescue control defense services services
All sizes 65 28 22 13 8
1,000,000 or more 51 9 14 0 0
500,000-999,999 44 4 14 14 2
250,000-499,999 57 11 11 13 2
100,000-249,999 64 16 15 13 3
50,000-99,999 64 26 21 9 8
25,000-49,999 59 29 15 11 6
10,000-24,999 67 29 22 12 9
Under 10,000 73 38 34 18 13
About a fourth of sheriffs' departments had
primary responsibility for animal control.
Departments in jurisdictions with a population of
less than 10,000 (38%) were the most likely to
provide animal control services, followed by those
in jurisdictions with a population of 10,000 to
49,999 (29%), and those with a population of
50,000 to 99,999 (26%). Less than 10% of
sheriffs' departments serving a population
of more than 500,000 were responsible for animal
control.
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Twenty-two percent of all sheriffs' departments
were responsible for civil defense functions,
including 34% of those in jurisdictions with fewer
than 10,000 residents. Smaller percentages of
sheriffs' departments provided emergency medical
services (13%) or fire services (8%). None of the
departments in jurisdictions with 1 million or
more residents was responsible for providing these
services.
Training academy operation
Another area of responsibility for 9% of sheriffs'
departments was the operation of a training
academy (table 24). Although just 1 in 11
departments operated their own training academy,
these departments employed 38% of all sheriffs'
officers. Two-thirds of the departments in
jurisdictions with a population of 1 million or
more operated a training academy, as did nearly
half of those in jurisdictions with 500,000 to
999,999 residents. Less than 10% of the sheriffs'
departments in jurisdictions with a population of
less than 50,000 operated a training academy.
Table 24. Training academy operation
by sheriffs' departments, by size of
population served
Population
Percent of agencies
operating an academy
All sizes
9
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
66
43
24
20
13
8
3
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Equipment
Sidearms
In 1993, 82% of sheriffs' departments, employing
91% of all sheriffs' officers, authorized the use
of some type of semiautomatic weapon as a sidearm
(table 25). These figures represent increases
compared to 1990, when 73% of departments,
employing 83% of all officers, authorized
semiautomatic sidearms.
Table 25. Selected types of sidearms authorized for use by sworn officers in sheri
of population served, 1993
Semi-automatic
Percent of agencies authorizing:
Revolv
Population served Any type 9mm .45 10mm .380 Any ty
All sizes 82 65 42 18 11 65
1,000,000 or more 96 79 64 23 9 91 ;-
500,000-999,999 85 70 41 11 13 65
250,000-499,999 89 75 35 15 18 58
100,000-249,999 86 75 54 25 15 77
50,000-99,999 92 68 43 20 11 52
25,000-49,999 83 66 38 17 15 64
10,000-24,999 77 65 42 17 10 63
Under 10,000 78 58 41 18 9 68
Note: Specific calibers of sidearms listed in table are limi ted to those for which
agencies authorized.
Sheriffs' departments serving a population of 1
million or more (96%) were the most likely to
authorize semiautomatic sidearms in 1993. Such
weapons were least likely to be authorized by
departments in jurisdictions with a population of
less than 25,000, where just under 80% of
departments authorized them.
As in 1990, the 9mm semiautomatic was the most
popular type of sheriffs' sidearm, with 65% of
sheriffs' departments authorizing its use by
officers. Forty-two percent of departments
authorized .45-caliber semiautomatic sidearms.
Smaller percentages authorized 10mm (18%) or
.380-caliber semiautomatics (11%).
About two-thirds (65%) of sheriffs' departments
authorized the use of one or more types of
revolvers by officers, with .357-caliber (57%) and
.38-caliber (34%) revolvers the types most
commonly authorized.
A majority (58%) of sheriffs' departments supplied
sidearms to officers, and another 5% provided a
cash allowance to officers for the purchase of
sidearms (table 26). At least 70% of the
departments in each population category of 50,000
or more supplied sidearms, compared to 44% of
those serving a population of less than 10,000.
Overall, about three-fourths of all sheriffs'
officers nationwide were employed by a department
that either supplied sidearms (71%) or provided a
cash allowance for their purchase (6%).
Table 26. Supply of/cash allowance for sidearms in sheriffs'
departments, by size of population served, 1993
Population
served
Percent of agencies supplying
or providing cash allowance for sidearms
Supplied Cash allowance
All sizes
58
5
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
81
74
83
77
70
5
3
7
9
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25,000-49,999
10,000-24,999
Under 10,000
61
52
44
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Body armor
Sixty-eight percent of sheriffs' departments,
employing 76% of all officers, supplied protective
body armor to their regular field officers (table
27). An additional 4%, employing 6% of all
officers, provided a cash allowance for
armor. At least 62% of the departments in each
population category supplied body armor, including
more than 70% of those serving a population of
25,000 to 499,999. Departments in jurisdictions
with a population of 500,000 to 999,999 (12%) were
the most likely to provide a cash allowance for
the purchase of body armor.
Table 27. Supply of/cash allowance for
protective body armor in sheriffs' departments
by size of population served, 1993
Population
served
Percent of agencies supplying
or providing a cash allowance for armor
Supplied Cash allowance
All sizes
68
4
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
68
68
71
71
76
73
66
62
5
12
7
7
6
3
4
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In 1993, 35% of sheriffs' departments required at
least some of their regular field officers to wear
protective armor while on duty (table 28). These
agencies employed nearly half of all sheriffs'
officers.
Table 28. Body armor requirements for officers in sheriffs'
departments, by size of population served, 1993
Population
served
Percent of agencies requiring regular field
officers to wear protective armor while on duty
Total All officers Some officers
All sizes
35 30 5
49 32 17
36 26 10
49 43 5
43 34 9
43 39 4
38 33 4
31 27 3
29 24 4
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
Note: Detail may not add to total because of rounding.
The percentage of sheriffs' departments requiring
all regular field officers to wear body armor
increased from 21% in 1990 to 30% in 1993. Such
an increase was seen in all population categories
(figure 6). In jurisdictions with 500,000 or more
residents, 28% of the sheriffs' departments
required all officers to wear armor in 1993,
compared to 19% in 1990. Among departments
serving a population of 100,000 to 499,999, the
increase was from 26% to 36%, and among those
serving a population of 25,000 to 99,999, the
increase was from 21% to 36%. Among departments
serving fewer than 25,000 residents, 26% required
all officers to wear armor in 1993, compared to
19% in 1990. The percentage of all sheriffs'
officers employed by a department with such a
policy increased from 23% in 1990 to 35% in 1993.
Nonlethal weapons
In nearly all sheriffs' departments (97%),
officers were authorized to use one or more types
of nonlethal weapons (table 29). Impact devices
such as batons were the type most commonly
authorized: 85% of all departments, employing 94%
of all officers, authorized this type of nonlethal
weapon. The second most popular category of
nonlethal weapon, chemical agents, were authorized
by 77% of all departments. These departments
employed 84% of all officers. About a fourth of
all departments, employing about a third of all
officers, authorized the use of one or more types
of electrical devices as nonlethal weapons.
Table 29. Types of nonlethal weapons authorized for use by sworn officers
in sheriffs' departments, by size of population served, 1993
Percent of agencies authorizing nonlethal weapons
My Impact Chemical Electrical Other
Population served type devices agents devices types
All sizes 97 85 77 26 31
100 78 23 69 .
1,000,000 or more 100 ~
500,000-999,999 100 92 93 24 59
250,000-499,999 100 94 85 28 57
100,000-249,999 98 89 89 30 50
50,000-99,999 100 92 79 27 36
25,000-49,999 98 85 77 22 27
10,000-24,999 95 82 78 26 25
Under 10,000 96 79 69 26 24
Among chemical agents, pepper spray (56%) was the
one most commonly authorized (table 30). The
percentage of departments authorizing pepper spray
was highest among those serving a population of
500,000 to 999,999 (78%) or 100,000 to 249,999
(75%). Overall, 64% of a sheriffs' officers were
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mobile digital terminals nearly doubled--from 28%
to 54%.
Computer functions
For each of the management functions included in
the LEMAS survey, the percentage of sheriffs'
departments that were utilizing computers to
perform that function was greater in 1993 than in
1990. An estimated 65% of sheriffs' departments,
employing 88% of all officers, were using
computers for recordkeeping in 1993 (table 36).
This included more than 90% of the departments
serving a population of 500,000 or more and more
than 80% of those serving a population of 50,000
to 499,999.
Table 36. Selected functions of computers in sheriffs' departments,
by size of population served, 1993
Percent of agencies using computers
Criminal Jail
Population Record- investi- manage- Dis- Bud-
served keeping gations ment patch geting
All sizes 65 52 47 41 37
1,000,000 or more 95 73 79 61 78
500,000-999,999 94 56 67 53 68
250,000-499,999 81 62 61 56 75
100,000-249,999 84 68 63 60 68
50,000-99,999 87 75 72 59 59
25,000-49,999 71 52 53 43 38
10,000-24,999 56 46 42 37 22
Under 10,000 49 40 25 26 24
About half of all sheriffs' departments utilized
computers for criminal investigations (52%) or
jail management (47%). A majority of the
departments serving a population of 25,000 or more
used computers for these purposes. Other
functions for which computers were used by more
than a third of sheriffs' departments included
dispatch (41%) and budgeting (37%). A majority
of the departments serving a population of 50,000
or more used computers for these functions. About
a fourth of sheriffs' departments used computers
for crime analysis or fleet management.
Overall, about two-thirds of all sheriffs'
officers worked for a department that used
computers for criminal investigations or dispatch,
and nearly three-fourths were employed by a
department that used computers for jail management
or budgeting. About half worked for a department
that used computers for crime analysis or fleet
management.
Computerized files
Nearly two-thirds of sheriffs' departments (62%)
were maintaining computerized files on warrants in
1993, and a majority (58%) had computerized arrest
Percent of agencies using each type of computer:
Population
served My type Personal Mainframe Laptop Mini
All sizes 82 66 47 17 16
1,000,000 or mo 100 91 91 64 64
500,000-999,999 98 89 75 51 59
250,000-499,999 94 91 80 52 30
100,000-249,999 98 84 69 40 30
50,000-99,999 97 81 69 31 28
25,000-49,999 86 70 52 17 20
10,000-24,999 80 60 37 7 8
Under 10,000 66 49 26 5 6
The type of computer most commonly used by
sheriffs' departments in 1993 was the personal
computer, used by two-thirds of all departments.
This represented an increase compared to 1990 when
just under half of all departments were using
personal computers. A majority of the departments
in each population category were using personal
computers with the exception of those serving
fewer than 10,000 residents (49%). About 90% of
the departments serving a population of 250,000 or
more were using personal computers in 1993, as
were more than 80% of those serving a population
of 50,000 to 249,999. Overall, sheriffs'
departments using personal computers in 1993
employed 87% of all sheriffs' officers.
Nearly half of all sheriffs' departments were
using a mainframe computer (47%) in 1993 compared
to just under a third in 1990. At least
two-thirds of the departments in each population
category of 50,000 or more were using a mainframe
in 1993, including 91% of those serving a
population of 1 million or more. About 1 in 6
departments were using a minicomputer, including
a majority of those in jurisdictions with a
population of 500,000 or more. Departments using
mainframes employed 73% of all officers in 1993,
and those using minicomputers about 42%.
More than 3 times as many sheriffs' departments
were using laptop computers in 1993 (17%) as in
1990 (5%). Nearly two-thirds of the departments
in jurisdictions with a population of 1 million or
more (64%) were using laptops in 1993, as were
about half of those serving a population of
250,000 to 999,999. Departments using laptop
computers in 1993 employed about half of all
sheriffs' officers.
An estimated 4% of sheriffs' departments were
using mobile digital terminals in 1993, with about
three-fourths of these departments using the
car-mounted type and a fourth the hand-held
variety. Overall, 18% of sheriffs' departments
were using either laptop computers or mobile
digital terminals in 1993 compared to 6% in 1990.
During the same period, the percentage of officers
working in a department that utilized laptops or
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employed by a department that authorized the use
of pepper spray.
Table 30. Selected nonlethal weapons authorized for use by sworn officers
in sheriffs' departments, by size of population served, 1993
Percent of agencies authorizing:
Tear
Tradi- Collap- gas,
Population Pepper tional PR-24 sible per-
served spray baton baton baton sonal
All sizes 56 52 51 37 27
1,000,000 or more 60 82 55 33 47
500,000-999,999 78 60 51 59 29
250,000-499,999 59 62 68 48 33
100,000-249,999 75 57 58 44 27
50,000-99,999 60 59 54 44 19
25,000-49,999 51 57 54 41 29
10,000-24,999 56 49 49 35 25
Under 10,000 47 43 47 29 29
Traditional batons (52%) and PR-24 batons (51%)
were the only nonlethal weapons other than pepper
spray authorized by at least half of all sheriffs'
departments. Departments serving a population of
1 million or more (82%) were the most likely to
authorize the traditional baton, while those in
the 250,000 to 499,999 population category (68%)
were the most likely to authorize use of the PR-24
baton. Collapsible batons were authorized by
37% of all departments, including a majority of
those serving a population of 500,000 to 999,999.
An estimated 64% of sheriffs' officers nationwide
worked for a department that authorized them to
use a traditional baton, 61% for a department that
authorized the PR-24 baton, and 51% for a
department authorizing the collapsible baton.
Thirty-five percent of sheriffs' departments
authorized the use of tear gas. Departments were
more likely to authorize tear gas in the personal
issue size (27%) than in the bulk form (15%).
About half of all sheriffs' officers were employed
by a department that authorized the use of tear
gas in one or more forms.
About a fourth of sheriffs' departments authorized
the use of stun guns. Fifteen percent authorized
the use of flash/bang grenades, including a
majority of those serving a population of 500,000
or more. Just 10% of all departments authorized
the use of carotid holds or choke holds; however,
nearly half of the departments serving a
population of 1 million or more (47%) authorized
officers to use a carotid hold.
Vehicles
Nationwide, sheriffs' departments operated about
52 cars per 100 sworn personnel (table 31). The
ratio of cars to officers increased as population
decreased, ranging from 29 cars per 100 officers
in jurisdictions with 1,000,000 or more residents
to more than 70 per 100 in jurisdictions with
fewer than 25,000 residents. An estimated 37% of
the cars operated by sheriffs' departments were
unmarked. The proportion of cars that were
unmarked ranged from about half in jurisdictions
with a population of 500,000 or more to about a
fourth in jurisdictions with a population of less
than 25,000.
Table 31. Number of cars per officer
and percent of unmarked cars in
sheriffs' departments, by size
of population served, 1993
Number Percent
of cars of cars
Population per 100 that were
served officers* unmarked
All sizes 52 37
1,000,000 or mor 29 51
500,000-999,999 41 47
250,000-499,999 50 42
100,000-249,999 58 37
50,000-99,999 65 32
25,000-49,999 70 32
10,000-24,999 73 28
Under 10,000 77 22
*Part-time officers are included with a weight of .5.
Eighty-four percent of sheriffs' departments,
employing 73% of all sheriffs' officers, allowed
sworn personnel to take marked vehicles home
(table 32). About 9 in 10 departments in
jurisdictions with fewer than 25,000 residents had
such an allowance, as did about 8 in 10
departments in jurisdictions with a population of
25,000 to 249,999. Less than half of the
departments in jurisdictions with a population of
500,000 or more allowed marked vehicles to be
taken home by officers.
Table 32. Vehicle use policies in sheriffs' departments,
by size of population served, 1993
Population
served
Percent of agencies allowing officers
to take marked vehicles home
Personal Personal
use use not
Total allowed allowed
All sizes
84
22
61
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
46
44
56
78
5
11
12
23
41
33
44
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50,000-99,999 80 12 68
25,000-49,999 80 21 59
10,000-24,999 90 25 66
Under 10,000 91 29 63
Note: Detail may not add to total because
of rounding
In a large majority of the sheriffs' departments
that allowed marked vehicles to be taken home,
officers were allowed only to drive the vehicle to
and from work. Just 22% of all departments
allowed officersto operate a marked vehicle for
private errands, ranging from 5% in jurisdictions
with a population of 1 million or more to 29% in
jurisdictions with fewer than 10,000 residents.
An estimated 30% of sheriffs' departments operated
at least 1 boat, including 56% of those
serving a population of 1 million or more (table
33). Nearly half of the departments in
jurisdictions with a population of least 50,000
but less than 1 million also operated 1 or more
boats. Small percentages of sheriffs' departments
operated airplanes (5%) or helicopters (3%);
although about 1 in 3 departments in jurisdictions
with a million or more residents did so. Just
over half of sheriffs' officers were employed by
a department with at least 1 boat, while a fourth
were employed by a department with at least 1
airplane or helicopter.
Table 33. Off-land vehicles operated by sheriffs' departments,
by size of population served, 1993
Percent of agencies operating
Fixed-
Population wing Heli-
served Boats aircraft copters
All sizes 30 5 3
1,000,000 or more 56 33 38
500,000-999,999 46 16 16
250,000-499,999 46 17 21
100,000-249,999 47 12 7
50,000-99,999 47 8 4
25,000-49,999 33 4 1
10,000-24,999 26 2
Under 10,000 13 1 1
--Less than .5% .
Animals
An estimated 39% of sheriffs' departments
maintained 1 or more dogs for use in activities
related to law enforcement, including a majority
of those serving a population of 50,000 or more
(table 34). In general, the proportion of
departments using dogs declined with size of
population served. About 5 in 6 departments in
jurisdictions with a population of 1 million or
more used dogs, compared to 1 in 6 departments
serving fewer than 10,000 residents. Nationwide,
sheriffs' departments maintained about 3,000 dogs
for activities related to law enforcement, and
departments using dogs employed about
three-fourths of all sheriffs' officers.
~
Table 34. Animals maintained by sheriffs' departments,
by size of population served, 1993
Population served
Percent of agencies
maintaining animals for
law enforcement work
Dogs Horses
All sizes
39
4
1,000,000 or more
500,000-999,999
250,000-499,999
100,000-249,999
50,000-99,999
25,000-49,999
10,000-24,999
Under 10,000
83
70
72
59
63
43
31
17
28
19
15
8
8
1
1
3
Just 4% of all sheriffs' departments used horses
for law enforcement purposes, with those in
jurisdictions with 1 million or more residents
(28%) the most likely to be maintaining at least
1 horse. Sheriffs' departments collectively
maintained approximately 1,000 horses, and those
using horses employed 21% of all sheriffs'
officers.
Computers
Types of computers used
An estimated 82% of all sheriffs' departments were
using 1 or more types of computers in 1993,
compared to 63% in 1990. Well over 90% of the
departments in juriSdictions with 50,000 or more
residents were using computers, including all
departments serving a population of 1 million or
more (table 35). A large majority of the
departments serving a population of 25,000 to
49,999 (86%) and those serving a population of
10,000 to 24,999 (80%) were also using computers.
About two-thirds of the sheriffs' departments in
jurisdictions with fewer than 10,000 residents
were using computers. The percentage of all
sheriffs' officers nationwide that were employed
by a department using computers increased from 89%
in 1990 to 96% in 1993.
Table 35. Types of computers used by sheriffs' departments,
by size of population served, 1993
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files (table 37). More than two-thirds of the
departments in each population category of 50,000
or more had computerized arrest files in 1993, and
more than three-fourths of the departments in each
of these population categories had computerized
warrant information.
Table 37. Types of computerized information files maintained
by at least a third of sheriffs' departments, by size of population
served, 1993
Percent of agencies maintainin
Stolen Calls
Population War- Ar- prop- Criminal for
served rants rests erty histories service
All sizes 62 58 48 46 42
1,000,000 or more 87 79 47 87 61
500,000-999,999 79 70 44 66 45
250,000-499,999 81 70 51 67 67
100,000-249,999 84 76 59 63 64
50,000-99,999 82 86 61 56 64
25,000-49,999 71 63 57 50 51
10,000-24,999 55 51 45 41 33
Under 10,000 41 40 33 33 22
Nearly half of all sheriffs' departments had
computerized files on stolen property (48%) and
criminal histories (46%). A majority of the
departments serving a population of 50,000 or more
maintained computerized criminal history
information during 1993, including 87% of those
serving a population of 1 million or more.
Other types of computerized information files
maintained by at least a third of all sheriffs'
departments in 1993 included calls for service
(42%), agency personnel (41%), stolen vehicles
(41%), summary Uniform Crime Reports (37%),
traffic citations (36%), inventory (35%), and
summonses (34%). Except for the 500,000 to 999,999
population category, a majority of the departments
in each category of 25,000 or more maintained
com-puterized information on calls for
service. A majority of the departments serving a
population of 50,000 or more had computerized
personnel information.
For each subject area covered by the LEMAS survey,
sheriffs' departments were more likely to be
main-taining that type of information in a
computerized format in 1993 than in 1990 (figure
7). For example, the 62% of departments with
computerized warrant information in 1993
represented a significant increase over 1990, when
47% of departments had this type of information
computerized. Similar increases in use of
computerized files were seen for arrests (58% in
1993 versus 42% in 1990), stolen property (48%
versus 34%), criminal history information (46%
versus 35%), and calls for service (42% versus
28%) .
Less than a third of sheriffs' departments
reported that they maintained computer files
containing information on the following: traffic
accidents (29%), evidence (29%), vehicle
registration (28%), payroll (26%), driver's
license information (26%), incident-based Uniform
Crime Reports (24%), and fingerprints (7%) (table
38). A majority of the departments in
jurisdictions with a population of 1 million or
more maintained computerized files on evidence
and fingerprints. A majority of the departments
serving a population of 100,000 or more had
computerized payroll information.
Table 38. Types of computerized information files maintained
by fewer than a third of sheriffs' departments,
by size of population served, 1993
Percent of agencies maintaining computerized information file
Driver's
license
information
Population Traffic Vehicle
served accidents Evidence registration Payroll
All sizes 29 29 28 26
1,000,000 or more 47 61 46 78
500,000-999,999 35 31 38 72
250,000-499,999 31 55 29 63
100,000-249,999 35 52 41 58
50,000-99,999 41 44 31 40
25,000-49,999 36 31 27 26
10,000-24,999 25 21 23 14
Under 10,000 20 15 26 11
Policy directives
-----------------
An estimated 90% of all sheriffs' departments
maintained a written policy directive on the use
of deadly force, including 94% or more of those in
each population category of 25,000 or more. More
than 80% had written directives pertaining to
employee conduct and appearance (86%), and pursuit
driving (83%). Overall, departments with a policy
directive on deadly force employed 97% of all
sheriffs' officers nationwide; those with a
directive on employee conduct and appearance, 95%
of all officers; and those with a directive on
pursuit driving, 89% of all officers.
More than three-fourths of all sheriffs'
departments had written policy directives
pertaining to the handling of juveniles (79%) and
domestic disputes (78%). At least two-thirds had
policy directives that addressed strip searches
(72%), off-duty employment by officers (70%),
citizen complaints (69%), and mentally ill persons
(67%) .
Sheriffs' departments with a policy directive
pertaining to off-duty employment by officers
26
46
37
27
39
32
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employed 90% of all sheriffs' officers nationwide.
Eighty percent or more of all officers were
employed by a department with a policy directive
on the handling of juveniles, strip searches,
citizen complaints, domestic disputes, and
mentally ill persons. More than 70% of all
sheriffs' officers were employed by a department
with a policy directive on use of confidential
funds and employee counseling assistance.
Except for the subjects of juveniles, private
security firms, and homeless persons, departments
serving fewer than 10,000 residents were less
likely than those in larger jurisdictions to have
a policy directive for each subject area covered
by the LEMAS survey. A majority of these smaller
departments, however, did have a directive
covering most of the subject areas included in the
survey.
Table 39. Selected subject areas of written policy directives maintained by sheriff
by size of population served, 1993
Percent of agencies maintain
Population Deadly Code of Pursuit Domestic
served force conduct driving Juveniles disputes
All sizes 90 86 83 79 78
1,000,000 or more 100 100 87 92 80
500,000-999,999 98 89 80 79 66
250,000-499,999 100 99 81 86 74
100,000-249,999 97 95 87 82 76
50,000-99,999 96 95 89 82 83
25,000-49,999 94 90 86 79 81
10,000-24,999 87 84 83 76 80
Under 10,000 82 76 77 78 72
Methodology
-----------
The Law Enforcement Management and Administrative
Statistics (LEMAS) survey collects data from a
nationally representative sample of the more than
17,000 publicly funded State and local law
enforcement agencies in the United States. This
report focuses on sheriffs' departments and
offices operated by a county or independent city
government. Consolidated police-sheriffs'
departments are defined as local police for the
LEMAS survey.
The LEMAS survey uses official Census Bureau
county (or equivalent) population figures. In
many counties, the actual population served by the
sheriff's department for law enforcement purposes
is less than the actual county population due to
the existence of local police departments that
have primary jurisdiction over specified areas
within the county. However, since other aspects
of sheriffs' department operations, such as those
related to jail and court functions, often involve
serving the entire county, the county population
is deemed appropriate for use as the "population
served" in this report.
All 854 State and local law enforcement agencies
in the United States with 100 or more sworn
officers (as reported in the 1992 BJS Directory
Survey of Law Enforcement Agencies) received the
full-length LEMAS questionnaire. The 854
self-representing {SRi agencies were supplemented
by a nationally representative sample of agencies
with fewer than 100 sworn officers. These
nonself-representing (NSR) agencies were chosen
using a stratified random sample with cells based
on the type of agency (local police, sheriff, or
special police), size of population served, and
number of sworn officers. The 2,416 NSR agencies
received a slightly abbreviated version of the
LEMAS questionnaire that was mailed to the SR
agencies.
The initial mailing of the survey questionnaire
was conducted in August 1993. The pay period
containing June 15, 1993, was used as the
reference date for personnel-related questions and
June 30, 1993, for other questions. The data were
collected by the Bureau of the Census for the
Bureau of Justice Statistics.
After two followup mailings and additional
telephone calls as needed, a final total of 3,028
agencies responded to the LEMAS questionnaire,
including 831 SR agencies and 2,197 NSR agencies.
The overall response rate was 92.6%. The final
database includes responses from 1,827 local
police departments, 918 sheriffs' departments, 234
special police departments, and the 49 primary
State police departments.
The base weight for all SR agencies is 1. For NSR
local and special police departments, the base
weight is 8, and for NSR sheriffs' departments it
is 4. The final weight associated with every
agency, both SR and NSR, is the product of the
base weight and a factor that adjusted for any
nonresponding agencies in each cell. This agency
nonresponse factor was based on number of sworn
officers for SR agencies and on number of agencies
for NSR agencies.
Some responding agencies did not fully complete
the LEMAS questionnaire. When an agency did not
supply a response to an item, a donor agency was
randomly selected from responding agencies in the
same sample cell. The donor agency's value for
the item was placed into the nonresponding
agency's response field with an indicator that the
value had been imputed. Complete documentation
regarding sampling procedures and nonresponse
adjustments is available upon request.
Because the data from agencies with fewer than 100
sworn personnel were collected from a sample, the
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results are subject to sampling error. All
statements of comparison in this report have been
tested to ensure that observed differences between
values are significant at 2 standard errors (the
95-percent confidence level) or higher.
Data on the number of employees and on the amount
of agency expenditures in this report are not
comparable with figures based on the BJS Survey of
Criminal Justice Expenditure and Employment
series. In the latter, these data are presented
by governmental function, whereas in the LEMAS
survey, expenditures are classified by type of
agency. For example, what might be attributed to
sheriffs' departments in the LEMAS survey would be
apportioned among various functions, such as
police protection and corrections, in the
expenditure and employment series. Also, the
LEMAS figures for operating expenditures include
employee benefits, but the expenditure and
employment figures do not.
(END OF FILE)
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JOB DESCRIPTION
CORRECTIONS OFFICER I
This is responsible entry to journey level corrections work in the Saline County Jail. Subsequent
to successfully completing orientation and basic corrections officer training, the incumbent of this
position carries out the following duties under direct supervision of Corrections Officer lIs and/or
Corporals. I
Bookin~ and Reception
Provides security as directed for Booking Data Clerks in their receiving of prisoners from arresting
officers. When Booking Data Clerks are not available, the Corrections Officer I will receive
prisoners and process them as inmates. This includes fingerprinting inmates and classifying prints,
obtaining identifying data and entering it into the jail management system, processing bond notices
and notices to appear and entering this data into the system, and recording the receipt of and storing
of innlate property. Upon direction from supervisors at inmates release, return the stored property.
Inmate Orientation, Support Services, and Internal Movement Control
Issues bedding, clothing, hygiene items, andjail inmate rule book. Process incoming and outgoing
mail. Process inmates' work release paperwork and work assignments. Supervise trustees. Escort
and supervise maximum classified inmates in the jail yard and recreation area. Record/log visitors,
professional interviews (for example, visits by law enforcement personnel, prosecutors, and defense
attorneys) deposits, and withdrawals to inmate money accounts and to inmate's property inventory.
Monitor inmates during video arraignment. Assist officers assigned to POD duties, as directed.
Perform contraband control searches. Perform jail checks on midnight to eight shift to ensure well
being of inmates. Perform inmate count at the end of each shift.
Medical Assistance
Observe inmates for signs of ill health or injuries and request medical assistance. Record doctors
and clinic visits. When required, provide first aid until an ambulance arrives. Accompany nurses
on their rounds, as directed. '
Master Control
Supervise exercise yard activity and access to security doors. Maintainjail keys and radio inventory.
Monitor cameras. Assist at visitation windows and supervise the visitation area. Assist with
processing outgoing mail. Notify movement officers, by radio of assignments.
INote that the functions and duties listed are illustrations. Other duties and functions may
be required.
CORRECTIONS OFFICER I
page 2
POD Officer
Monitor cameras and intercom. Monitor inmate movements. Process outgoing mail. Provide
authorized personal items to the inmates. Ensure inmates follow rules in the inmate handbook.
Supervise trustees working in POD area. Process, commissary purchases. Post records and
distributes items ordered to inmates. Handle inmate requests and grievances as needed. Maintain
list of inmates attending jail programs and going to the recreation yard. Open doors for inmates.
Miscellaneous
Maintain Sheriffs Department physical performance standards. Obtain and keep current certification
for CPR and personal defense tactics. Complete basic Corrections Officer Training and enroll as
directed in Corrections Officer Certification Training. Completion of this certification level training
and successful performance as a Corrections Officer I for two years prepares incumbent of position
for movement in this career pattern to Corrections Officer II. May be required to write KBI reports
or other reports on incidents occurring in the jail. Follow all policies regarding security of the jail.
Minimum Qualifications
1. Must have ability to read and comprehend English.
2. Must be at least 21 years old.
3. Must have a high school diploma or equivalent.
4. Must have a valid Kansas drivers lieense.
5. Must be insurable under Saline County's fleet insuranee policy.
6. Must have a record clear of any felony eonvictions.
7. Must have basic clerical skills.
Essential Mental Functions
Must have the ability to read and write the English language at a level sufficient to comprehend and
interpret jail rules and regulations and to understand and communicate this and related information
to inmates.
Must have the ability to listen to, understand, and to apply information and instructions to situations
in the jail workplace.
Must have the ability to comply promptly with orders, instructions, policies, and procedures; analyze
information; and make reasonable judgments based upon the information in a jail environment.
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CORRECTIONS OFFICER I
page ~
Essential Phvsical Functions
Ability to communicate ideas by means of the spoken work. Must be able to give directions and
present a positive image to the public.
Possess eye/hand/food coordination sufficient to drive vehicle.
Job performance and/or safety of self and others demands being able to see clearly 20 feet or more.
Must have fine and gross manual dexterity to operate computer, telephone, and fingerprint machine.
Ability to lift, push, carry, or pull 100 pounds or more. Must be physically able to subdue prisoners
to inmates.
Ability to maintain balance to prevent falling when walking, standing, crouching, or running. Must
be able to pursue detainees/inmates if necessary.
Ability to hear oral communication. Must be able to hear directions from supervisors. Must also
be able to hear residents activities and communications.
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JOB DESCRIPTION
CORRECTIONS OFFICER II
This is advanced and lead corrections work in the Saline County Jail. Subsequent to successfully
completing basic corrections officer training, certification level corrections officer training and two
years of satisfactory service (or the equivalent training and experience) the incumbent of this
position carries out the following duties under the supervision of Corporals, the Jail Sergeant, and
the Jail Captain. I
Assist Supervisor
Assist Corporals in supervisory roles. May be assigned to fill a Corporal's position in
the absence of individuals in this rank.
Booking and Reception
Provide security for Booking Data Clerks in their receiving of prisoners from arresting
officers. When Booking Data Clerks, or Corrections Officer I's are not available (or to meet needs
at the discretion of the shift supervisor), the Corrections Officer I will-receive prisoners and process
them as inmates. This includes fingerprinting inmates and classifying prints, completing identifying
data entry into the jail management system, processing bond notices and notice to appear paperwork
and entering it into the system, and recording and storing inmate property. At inmates release, return
stored property.
Inmate Orientation. Support Services. and Movement Officer Functions
Issue bedding, clothing, hygiene items, and jail inmate rule book. Process incoming and outgoing
mail. Process inmates' work release paperwork and work assignments. Supervise trustees. Escort
and supervise maximum classified inmates in the jail yard and recreation area. Record visitors,
professional interviews (aw-enforcement and legal) deposits, and withdrawals to inmate money
accounts and to inmate's property inventory. Monitor inmates during video arraignment. Take the
lead in performing contraband control searches. Take the lead in performing jail checks to ensure
well being inmates. Perform inmate count at the end of each shift. Transport prisoners and inmates
to and from various locations in Salina, the State of Kansas, and other states as directed. Make
extradition trips as directed to return fugitives to Saline County for trial.
'Note that the functions and duties listed are illustrations. Other duties and functions may
be required.
CORRECTIONS OFFICER II
page 2
Medical Assistance
Observe inn1ates for signs of ill health or injuries and request medical assistance. Record doctors
and clinic visits. Accompany nurses on rounds as necessary, administer medication upon direction
of superior and medical personnel, and transport inmates to doctors. When required, provide first
aid until an ambulance arrives.
Master Control
Supervise exercise yard activity and access to security doors. Maintainjail keys and radio inventory.
Monitor cameras. Assist at visitation windows and supervise the visitation area. Assist with
processing outgoing mail. Notify movement ofticers, by radio of assignments.
PO D Officer
Monitor cameras and intercom. Monitor inmate movements. Process outgoing mail. Provide
personal items to the inmates. Ensure inmates follow rules in the inmate handbook. Supervise
trustees working in POD area. Process, commissary purchases. Post records and distributes items
ordered to inmates. Handle inmate requests and grievances as needed. Maintain list of inn1ates
attending jail programs and going to the recreation yard. Open doors for inmates.
Miscellaneous
Maintain Sheriffs Department physical performance standards. Obtain and maintain current
certification for CPR and personal defense tactics. Complete basic Corrections Officer Training and
enroll as directed in Corrections Officer Certification Training. Completion of this training and
successful performance as a Corrections Officer I for two years prepares incumbent of position for
movement in this career pattern to Corrections Officer II. In order to transport prisoners (serve as
Transport Officer), maintain Sheriffs firearms standards and Corrections Officer certification by
meeting annual training requirements. It is desirable that Corrections Officers who serve as
Transport Officers (on a regular scheduled basis), also be sworn law enforcement officers and
maintain 40 hours oflaw-enforcement training annually. May be required to write KBI reports and
reports on incidents occurring in the jail and while transporting inmates. Follow all policies
regarding security of the jail. Testify in court cases arising from incidents injail or in transportation
status.
Minimum Oualifications
1. Must have ability to read and comprehend English.
2. Must be at least 21 years of age.
3. Must have a high school diploma or equivalent.
4. Must have a valid Kansas drivers license.
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CORRECTIONS OFFICER II
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5. Must be insurable under Saline County's fleet insurance policy.
6. Must have successfully completed probation and two years service as a Corrections Officer I.
7. Must have successfully completed Corrections Officer Basic Training and Corrections Officer
Certification Training.
8. Must have a record clear of any felony convictions
9. Must have advanced clerical/micro computing skills.
Essential Mental Functions
Must have the ability to read and write the English language at a level sufficient to comprehend and
interpret jail rules and regulations and to understand and communicate this and related information
to inmates.
Must have the ability to listen to, understand, and to apply information and instructions to situations
in the jail workplace.
Must have the ability to comply promptly with orders, instructions, policies, and procedures; analyze
information; and make reasonable judgments based upon the information in a jail environment.
Must have the ability to issue understandable orders and instructions.
Essential Physical Functions
Ability to communicate ideas by means of the spoken work. Must be able to give directions and
present a positive image to the public.
Possess eye/handlfood coordination sufficient to drive vehicle.
Job performance and/or safety of self and others demands being able to see clearly 20 feet or more.
Must have fine and gross manual dexterity to operate computer, telephone, and fingerprint machine.
Ability to lift, push, carry, or pull! 00 pounds or more. Must be physically able to subdue prisoners
to inmates.
Ability to maintain balance to prevent falling when walking, standing, crouching, or running. Must
be able to pursue detainees/inmates if necessary.
Ability to hear oral communication. Must be able to hear directions from supervisors. Must also
be able to hear residents activities and communications.
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JOB DESCRIPTION
BOOKING DATA ENTRY CLERK
This is responsible clerical and advanced data entry work in the Saline County Jail. It is routinely
carried out in support of the inmate booking process under the general direction of the shift
supervisor or other supervisor designated by the Jail Captain. The incumbent of this position carries
out the following duties. I
Bookin~ and Reception
Receives prisoners from arresting officers and processes them as inmates. This includes
fingerprinting inmates and classifying prints, obtaining relevant identifying and arrest data and
entering it into the jail management system, processing bond notices and notices to appear and
entering this data into the system, and recording the receipt of and storing inmate property. At
inmates release, upon direction from supervisors, returns the stored property.
Office Services
When booking workload permits, and/or upon direction of a supervisor, carry out general clerical..
data entry, administrative, and/or micro computing tasks. Answers the work area phone. Greets the
public at the correction's window to provide information on visitation or related matters. Keeps
records of inmate visits and monetary transactions. Provides clerical, data entry, and micro
computing work for other divisions of the Sheriffs Office, as directed by the shift supervisor, the
Jail Sergeant, and/or the Jail Captain.
Assistance in the Orientation and Reception Process
When directed by supervisory personnel, assists Corrections Officers in orientation of inmates by
handing out the jail inmate rule book and by issuing bedding, clothing, and hygiene items, and by
receipting for and storing inmates' property, and by returning inmate property upon their release.
Minimum Qualifications
1. Must have the ability to read and comprehend English.
2. Must be at least 21 years old.
3. Must have a high school diploma or equivalent.
4. Must have a valid Kansas State drivers license.
5. Must be insurable under Saline County's fleet insurance policy.
6. Must have a record clear of any felony convictions.
7. Must have advanced data entry skills.
8. Must be capable of using with advanced skill the standard word processing software in use in
the Saline County government.
INote that the functions and duties listed are illustrations. Other duties and functions may
be required.
BOOKING DATA ENTRY CLERK
page 2
Essential Mental Functions
Must have the ability to read and write the English language at a level sufficient to comprehend
work place jail rules and regulations and to comply with them.
Must have the ability to listen to, understand, and to apply information and instructions to situations
in the corrections workplace.
Must have the ability to comply promptly with orders, instructions, policies, and procedures; analyze
information, and make reasonable judgments based upon the information in a jail environment.
Must have the ability to work in the corrections, administrative, and booking areas.
Essential Physical Functions
Ability to communicate effectively with inmates, the public, law enforcement officers, coworkers,
and superiors by means of the spoken and written word. Must also be able to communicate effective
by telephone and other electronic means.
Ability to hear directions and other forms of oral communications.
Ability to see and comprehend visual signs and signals.
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JOB DESCRIPTION
JUVENILE CORRECTIONS OFFICER I AND II
These are responsible entry, journey, and advanced Corrections Officer positions that work in the
Juvenile Detention environment. The duties, functions, and requirements shown below supplement
and/or are in addition to those for officers working in the Saline County Jail environment. I The
primary distinction between "Juvenile Corrections Officer I and II" is that in work situations, the
Juvenile Corrections Officer II will be considered a lead worker/assistant supervisor. The experience
(two years) and certification requirements for Juvenile Corrections Officers II is the same for the
Corrections Officer II position. Note, however, the differing educational and/or experience
requirements for the Juvenile Corrections speciality.
Reception and Bookinl!
Receive juvenile and determine status according to statute requirements. Enter data into computer
Provide security during the booking process. Finger print juvenile. Record and store juvenile's
personal property and return it at book out time.
Processing Residents
Check medical condition and mental status of resident. Strip search resident for contraband. Change
resident into detention center clothing. Acquaint juveni Ie with detention center and/or attendant care
rules and schedules.
Medical Assistance
Observe residents for signs of ill health and Injuries. Request medical assistance and make
arrangements for residents to go to doctor's office or clinic. Dispense medication as ordered by
physician, and supervise to assure that medication is taken properly. Maintain records of medical
treatment.
Housekeepinl!
Issue bedding, personal hygiene items, and cleaning supplies to residents. Assign and supervise
juveniles performing housekeeping duties. Insure detention center cleanliness. Maintain supply
inventory. Assure that laundry is done each day.
INote that the functions and duties listed are illustrations. Other duties and functions may
be required.
JUVENILE CORRECTIONS OFFICER I AND II
page 2
Resident Records
Monitor juveniles and report to the facility manager and director any significant behavior problems.
Maintain record of incoming/outgoing phone calls, visits, mail, and doctor/clinic visits. Insure
juveniles cash box balances on each shift. Record resident bookouts for appointments and time of
return.
Resident Services
Interact with and counsel juveniles to encourage proper behavior. Administer discipline as outlined
in Kansas Department of Health and Environment (KDHE) guidelines. Insure that juvenile rights,
as listed in KDHE regulations are followed. Conduct juvenile council. Supervise part-time sitters
while on duty. Attend specialized training in Juvenile Corrections. Make telephone calls for
residents. Process commissary purchases. Serve meals and snacks to residents.
Record money received by residents on Inmate Multiple Information Form.
Court Appearances and Appointments
Validate court appearances.
General Office
Perform clerical duties including computer entry work, daily rosters, behavior charts, observation
sheets, and monthly inspection sheets.
Security
Perform daily inspections for contraband and tidiness. Check residents and visitors for weapons,
drugs, and other contraband. Check exercise yard for contraband and security. Insure alarm systems
are in proper working order. Know proper procedure for emergencies.
Transportation
Transport juveniles to and from required locations. Make extradition trips to return juveniles for
court appearances.
Minimum Qualifications
1. Must be at least 21 years old.
2. Must have a high school diploma or the equivalent.
3. Must have a valid driver license and be insurable under Saline County's fleet insurance policy.
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JUVENILE CORRECTIONS OFFICER I AND II
page 3
4. Must have good clerical skills.
5. Must have a minimum of three semester hours of academic study in adolescent development,
psychology, or related subject; or equivalent training courses in child development or caring
for youth; or enroll in such study within the first six months of employment and successfully
complete it within the first year.
6. One year's experience as a child care worker or house parent in a facility serving youth between
the ages of 10 and 18 can be substituted for the academic study.
7. Must adhere to confidentiality policies.
Essential Mental Functions
Ability to read and apply directions. This skill is needed when distributing prescribed medicine,
reviewing list of personal property, filing medical forms, and checking daily request sheets.
Ability to listen to information and instructions and apply to new situations.
Ability to analyze and to make sound judgements when perforn1ing day-to-day activities.
Ability to cope with directly supervised adolescents who demand constant attention and immediate
gratification.
Essential Physical Functions
Ability to communicate ideas by means of the spoken word. Must be able to give directions and
present a positive image to the public.
Possess eyelhand/food coordination sufficient to drive vehicle.
Job performance and or safety of self and others demands being able to see clearly 20 feet or more.
Must have fine and gross manual dexterity to operate computer, telephone, and fingerprint machine.
Ability to lift, push, carry, or pulll 00 pounds or more. Must be physically able to subdue prisoners
or inmates.
Ability to maintain balance to prevent falling when walking, standing, crouching, or running. Must
be able to pursue juveniles if necessary.
Ability to hear oral communication. Must be able to hear directions from supervisors. Must also
be able to hear residents activities and communications.
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JOB DESCRIPTION
TRANSPORT A TION OFFICER
This is a speciality which may be awarded to Corrections Officers assigned to duties involving
primarily the transportation of prisoners.' The below mentioned duties and functions are in addition
to those specified for a Corrections Officer IL2
Transportation
Arranges for, and carries out, travel to various locations in Kansas and the United States to pick up
and return prisoners for trial in this jurisdiction.
Arranges for, and transports prisoners to the Department of Corrections, mental institutions, and
other places of confinement of treatment within the State.
Arranges for, and transports persons in custody to various locations in the City of Salina, such as
hospitals, doctors and dentist offices, and court.
Once it is determined who, what, where and when, arrangements for travel are made by the most
speedy and economical means available. Decisions will be made as to what member of the
department will be utilized for transportation, or if it would be more feasible to use special deputy
hire. Once the person is selected, it will be necessary to ensure that they have proper restraints,
warrants, cash, and credit cards.
Fleet Maintenance
Responsible for service, repair, radio repair, and maintenance of vehicles. Maintains a computerized
progran1 reflecting service due, cost per unit, cost for entire fleet with a breakdown into various
categories, which provides valid information for planning fleet replacement at the most economical
time.
INote that the functions and duties are illustrations. Other duties or functions may be
required.
20uring the period in which there are no certified Corrections Officer IIs, individuals
with at least three years successful law enforcement and/or corrections experience, current
law enforcement certification, and who meet the Sheriffs weapons and physical qualification
standards and have good driving records, may be designated by the Sheriff to be a
Transportation 0 fficer.