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Police Study from Berkshire
BERKSHIRE ADVISORS, INC. General Management Consultants Boynton Beach, Florida REPORT OF A POLICE DEPARTMENT MANAGEMENT STUDY August 2093 POLICE DEPARTMENT MANAGEMENT STUDY TABLE OF CONTENTS Chapter Page I INTRODUCTION 2 Project Objectives 4 Approach And Methodology 4 Arrangement Of The Report 4 II EXECUTIVE SUMMARY 12 A — Core Challenges Facing The Department 2 B — Other Management Issues 7 C — Staffing And Scheduling 12 D — Performance Metrics 15 E — Outsourcing Analysis 16 F — Civilianization Analysis 16 G — Implementation Plan 16 III CORE CHALLENGES FACING THE DEPARTMENT A — Current Situation 2 B -- Short -Term Improvement Initiatives 5 C — Ongoing Improvement Initiatives 9 D — Staffing Implications 13 IV OTHER MANAGEMENT ISSUES Issues Affecting The Entire Department 2 Patrol Issues 6 Traffic Enforcement Issues 11 Code Compliance Issues 12 Investigations Issues 12 Communications Issues 14 Technical Services Issues 14 V STAFFING AND SCHEDULING A— Patrol Staffing And Scheduling 2 B — Communications Staffing And Scheduling 6 C — Professional Standards Staffing 8 VI PERFORMANCE METRICS VII OUTSOURCING ANALYSIS Assessing The Potential Benefits Of Outsourcing 2 Weighing Benefits Against Costs And Risks 3 VIII CIVILIANIZATION IX IMPLEMENTATION PLAN APPENDIX A - ACTIVITY ANALYSIS RESULTS APPENDIX B - EMPLOYEE SURVEY RESULTS APPENDIX C - BENCHMARKING FINDINGS APPENDIX D - BEST PRACTICES FINDINGS APPENDIX E - SUMMARY OF COMMUNITY FOCUS GROUP DISCUSSIONS I - INTRODUCTION 1-1 I — INTRODUCTION This introductory chapter briefly presents the objectives and scope of the review of the Boynton Beach Police Department and the approach used to conduct it. It also presents the organization of this report. PROJECT OBJECTIVES The purpose of this engagement was to conduct a review of the Police Department functions, to provide suggestions for process improvement, and to develop staffing models based on workload requirements. APPROACH AND METHODOLOGY Both quantitative and qualitative analytic methods were used to conduct this study. Individual interviews, briefings, and focus groups were held with the City's Finance Director, Human Resources Director, City Manager, Vice Mayor, City Commissioners, and the State's Attorney. Extensive interviewing was conducted within the Police Department. The former police chief, his key managers, and more than 60 line employees were interviewed and the consultants observed patrol operations while riding along with on -duty officers. To ensure all Department employees had the opportunity to provide input to the study an online survey was made available to all employees and 126 employees (57.0 percent) responded and an activity analysis survey — in which patrol officers were asked to estimate how they spend their time — was also conducted. In addition, two focus groups were held with community representatives, information from seven benchmark police departments was collected and analyzed, and best practices information was gathered in a number of areas. Lastly, the study team requested and thoroughly reviewed a range of documents and data covering all areas of the Police Department's operations. ARRANGEMENT OF THE REPORT This report is divided into six chapters and four appendices. I — Introduction (this chapter) II — Executive Summary III — Core Challenges Facing The Department IV -- Other Management Issues V — Staffing And Scheduling VI — Performance Metrics VII — Outsourcing Analysis VIII — Civilianization 1-2 IX — Implementation Plan Appendix A: Activity Analysis Survey Results Appendix B: Employee Survey Results Appendix C: Benchmark Findings Appendix D: Best Practices Findings Appendix E: Summary Of Community Focus Group Discussions 1-3 II - EXECUTIVE SUMMARY II — EXECUTIVE SUMMARY This executive summary, which summarizes study findings and recommendations, is divided into seven sections: core challenge facing the department; other management issues; staffing and scheduling; performance metrics; outsourcing analysis; civilianization analysis; and implementation. A — CORE CHALLENGES FACING THE DEPARTMENT This section discusses the core challenges facing the Boynton Beach Police Department and details the steps that should be taken to address them in both the short term and the long term. The section is divided into four subsections: current situation; overall approach to addressing these issues; short-term improvement initiatives; and ongoing improvement initiatives. CURRENT SITUATION While the Boynton Beach Police Department is a troubled organization that faces significant challenges, by combining forceful action in the short term with a long-term program of improvement not only can the Department address its current challenges but will also emerge as a strong Department that will be better able to address the needs of the Boynton Beach community. In spite of the challenges that face the Boynton Beach Police Department, the organization is by no means dysfunctional and provides competent service to Boynton Beach residents and businesses. In focus groups residents expressed generally high satisfaction with the Department's performance and some external stakeholders have an extremely positive view of the Department. Nonetheless, the Police Department is beset by strife that saps morale and creates internal conflict. A number of factors contribute to this situation: ■ The Department lacks a clear sense of organizational identity and shared norms. Within broad parameters individuals are allowed to establish their own norms for acceptable behavior which creates consternation when the performance norms of different officers conflict. Moreover, in part because they do not identify with the overall organization many staff identify with competitive factions within the Department creating ill will, jealousy, and conflict. ■ A shared sense of organizational purpose has not been established. Discord within the Department has been magnified in part because so much management and staff attention is focused on these issues. The attention of managers and staff on internal issues results, at least in part, because a strong sense of purpose and direction has not been established. ■ Employee misconduct has lowered morale and reduced employee pride in the Department (at least for some officers). Over the past few years a number of examples of employee misconduct have been highly publicized. Officers have been accused of falsifying police reports, conducting illegal searches, accessing pornography using Department computers, and, most seriously, trafficking drugs. 11-2 These incidents have lowered morale and reduced employee pride within the Department. ■ Many civilian employees do not feel valued by the Department. Interviews and a the results of the employee survey indicate that many civilians do not feel vlued by Most Positions were maintained. in addition, the manner in the organization. A number of factors seem to contribute to this situation. notably, during recent budget cuts civilian positions were reduced while sworn which the reductions were handled — the perception of many civilian employees is that civilian employees were summarily dismissed — contributed to civilian concerns that they are not valued employees. OVERALL APPROACH TO ADDRESSING THESE ISSUES While the challenges facing the Department are daunting, through forceful action the Department can address these challenges and, over time, become a strong organization that is better able to address Boynton Beach's needs. The Department must approach the challenges facing it from both a short-term and a long-term perspective. in the short term the Department must, through its actions, clearly signal a break with the past. The types of issues the Department faces cannot be addressed through incremental change. Instead, aggressive action must be taken to change the Department's focus and direction. Once the new direction has been charted, however, management systems and practices must be established to gauge progress and ensure the Department remains on course. Any changes will be short-lived unless the management systems and training needed to support them are developed. in addition, the city manager and Police Department managers will not be able to ensure improvement efforts remain on track unless the performance metrics and accountability systems needed to monitor them are in place. SHORT-TERM IMPROVEMENT INITIATIVES The Department should take a number of steps over the next six months to signal a break with the past. A vision for how the Police Department does business that focuses attention on improving service to the Boynton Beach community should be articulated. One important way that the Department should break with its past is to establish a new vision for policing in Boynton Beach around which employees can rally. At present, internal issues consume a great deal of time and attention. While this is certainly understandable given high levels of frustration among many employees, nonetheless, the considerable attention that is focused on these issues prevents attention from being focused on other issues that need to be addressed. Community policing could be a focal point for establishing this new vision. The organizational structure should be modified to facilitate achieving this vision. A number of shortcomings with the current organizational structure will make it more difficult to address the problems facing the Department. it -3 ■ The current structure isolates the police chief from the day-to-day management of the Department ■ The current structure complicates direct communication from the chief ■ interest groups within the Department have become aligned with the two majors ■ Key functions lack visibility within the Police Department The recommended organizational structure (which is presented in Exhibit 11-1) will support change efforts in a number of ways: ■ The very act of changing the organizational structure signals the Department will embark on a new way of doing business ■ The police chief is not isolated from day-to-day operations — all key Department functions would report directly to the chief ■ The two major positions — around which factions within the Department grew — are suggested to be discontinued ■ Two patrol captain positions — who would be responsible for ensuring services are tailored to meet community needs in two areas of the City — would be established ■ Two functions — crime analysis and intelligence gathering — that support the Department's operating vision would have more organizational visibility and be better positioned to provide support ■ The public information officer — who would be responsible for building support for and understanding of Department changes in the community — would report directly to the chief ■ A civilian would oversee the communications and records functions Basic performance expectations should be established for key positions and staff should be held accountable for meeting those expectations. Setting basic performance expectations and holding staff accountable for achieving them will benefit the Department in a number of ways: ■ All officers and supervisors will have a clear understanding of how they should spend their time ■ All staff will achieve a basic minimum standard ■ The frustration of hard working staff who have had to work in close proximity to staff who are not working hard will be reduced ■ The suggested activities and expectations — which should be consistent with the Department's approach to community policing — will reinforce the vision for policing it is working to implement 11-4 T ( = E cc e $ � \\ \ CE G% o I J = 2 � G3 s�S= I _ 00 LLL F\ U G 3 C)L -0 k . 2//w/\w W cc � _0 U k . m a n = cr. _} k \ [ 2 \ (n \/ 70 m n g o \ m [\ : z \/M2 § /ƒ ƒ U � . . . . . . N Z _T ( � � m 0 k \ 0 e § / ILc =_& D N k E Z5 C) W z=<=£-_7 e t2/:/EE)ƒ% z •q O u a— o®EC) /\k\\�\/(Lm � � U 7 Er U) i/\£ 0 CL U • . . W . � . . _ 2 f 2 ƒ $ 2 V) cz \ �j 3 2 o R( $ R \ � E � - 2 § co Q a- co 0 . � . . . . . . Civilian staffing should be restored in selected areas. The Department should take a number of tangible steps to demonstrate its recognition of the value of the role civilians play in its success. First, civilian staff should be restored to the positions they previously held but that are now filled by sworn officers. In particular, civilians should replace sworn staff serving as crime scene investigators and evidence room staff. In addition, the Department should establish civilian supervisor positions to oversee functions predominantly staffed by civilians (e.g., communications, records, and crime scene/property and evidence/asset forfeiture). Doing so not only communicates the Department's confidence in the skills of civilian supervisors and managers but also creates a career path for the civilian staff assigned to these units. Finally, over time civilian staff should be assigned to functions the civilianization analysis (presented in Chapter VIII) suggests could be handled by civilians (e.g., the NIMS detective, the asset forfeiture detective, and the grants writer). Training should be provided in selected areas. Training should be used to reinforce Department expectations for employee performance and how officers are expected to implement its policing vision. This training should have two components. First, the training should ensure that expectations for performance have been clearly communicated. Second, the training should focus on areas — identified by Department managers — where implementing the Department's vision for policing will be most challenging. All employees should participate in these training sessions. In addition to this general training, first-line supervisors should receive additional training to reinforce expectations with regard to how they should fulfill their role and to provide initial guidance on how they should support efforts to implement the Department's vision. ONGOING IMPROVEMENT INITIATIVES The Department should develop management systems to support ongoing improvement efforts in several key areas. Systems to support the Department's vision for community policing should be established. As discussed, the Boynton Beach Police Department should establish a vision for community policing that provides a framework for supporting overall improvement efforts. This community policing framework should be built around three themes: ■ Establishing a personal relationship with community residents ■ Understanding community needs and tailoring services to address those needs ■ Projecting a friendly, customer -oriented demeanor to the public If this policing vision is to become a reality a management infrastructure with the following elements should be established to support implementation of this vision on an ongoing basis: performance monitoring; training; organizational roles and management capacity; planning; use of discretionary resources; social media; and information. A comprehensive approach to ensuring the quality and integrity of Department staff should be developed. No police department will ever be 100 percent effective at preventing officer misconduct; however, focused attention at each phase of an II -5 employee's career can help to minimize misconduct and its consequences. Discussed below are steps to strengthen efforts to identify and address problem employees. ■ Hiring phase. The process that the Boynton Beach Police Department takes to hire employees is sound and is consistent with the best practices identified as part of this study. No recommendations for modifying the hiring process are suggested. ■ Probationary period. During an officer's probationary period two steps should be taken to reduce the likelihood that they will become problem employees. First, the Department should strengthen field training by taking steps to ensure that only the most exemplary officers serve as field training officers (FTOs). Second, the Department should dismiss officers who do not meet expectations during their probationary period. Reportedly, at present, this rarely happens. ■ Ongoing career. In general the Department has established effective "early warning" processes for identifying problem employees and addressing their needs. Moreover, when incidents take place that require investigations the investigations are thorough. As discussed, being more strict and consistent in the application of discipline would be beneficial. In addition, steps should be taken to improve the consistency of first-line supervision. High expectations must be established for sergeants and performance against those expectations must be consistently monitored. Systems should be established to ensure consistency in the application of discipline. Concerns about disciplinary processes in the Boynton Beach Police Department are widespread. While in a study such as this it is difficult to determine which perceptions are real and which are not, a range of concerns were consistently voiced in interviews and supported by the results of the employee survey: ■ Discipline is widely viewed as being too lax ■ Disciplinary recommendations are frequently reduced ■ Discipline is not consistently applied throughout the Department While the former chief had reportedly been working to address some of these issues, more systematic and visible initiatives will need to be implemented by the new chief to address the widespread perceptions that discipline is both lax and inconsistently administered. The recommended steps the Department should take to ensure discipline is consistently applied are designed to address both reality and perceptions. Indeed, unless strategies to address perceptions are developed, the perception of problems will likely persist long after the underlying problem (if any) has been addressed. Recommended actions include the following: ■ Review disciplinary guidelines to ensure the progressive discipline process is sufficiently strict to dissuade employee misconduct W. ■ A roll -call training program should be developed to ensure all employees are familiar with disciplinary processes and guidelines (and to help to communicate to employees that a change in how the Department approaches discipline is underway) ■ Steps should be taken to ensure the disciplinary process is as transparent as possible In addition, the Police Department should seek the assistance of the City's Human Resources Department to provide ongoing counsel on how to address specific disciplinary issues. Indeed, the Police Department should explore whether some disciplinary matters might be handled by the Human Resources Department for the Police Department. B -- OTHER MANAGEMENT ISSUES This section presents recommendations to strengthen the Police Department's performance in areas not already discussed. The section is organized into seven subsections: issues affecting the entire department; patrol; traffic enforcement; code compliance; investigations; communications; and technical services. Issues Affecting The Entire Department The Department should negotiate to have more flexibility when making supervisory and management assignments. Existing labor agreements limit the Department's flexibility about where sergeants and lieutenants can be assigned. At present, sergeant assignments are selected through seniority. While the Department has the discretion to determine the number of persons assigned to each shift and division how these slots are filled is determined by seniority. For lieutenants the Department has the authority to determine the division to which lieutenants are assigned but not the specific slots they will fill. These constraints make it difficult to address problem employees. In particular, senior sergeants who are not meeting performance expectations in a current assignment cannot be easily moved to an assignment where they may be more successful. Unless this limitation is addressed, the Department's efforts to address the challenges it faces will be hampered. To address this issue the Department should therefore work to negotiate more flexibility to make supervisory and management assignments. The promotional process should be revised to include consideration of past performance. As discussed the quality of first-line supervisors is perceived to be inconsistent and a number of steps have already been suggested for strengthening the pool of sergeants including clarifying expectations, monitoring performance against expectations, and providing training. The most important step to improving the pool of sergeants and lieutenants is ensuring that high quality sergeants and lieutenants are selected for promotion. Yet, concerns about the promotional process were raised in interviews and were supported by the results of the employee survey. A review of the promotional process suggests that while the process is generally sound, including consideration of past performance when ranking promotional candidates would substantially improve the process. 11-7 The Department should re-establish the use of a "rule of five" when selecting sergeants and lieutenants for promotion. No promotional process is going to do a perfect job of evaluating promotional candidates. Some candidates who would make excellent managers and supervisors may not score well on tests. Other candidates who do perform well on tests, by contrast, may not be effective managers. In the past, the Boynton Beach Police Department, like many other organizations, addressed this problem by ranking the top candidates and allowing the police chief to select the candidate among the top five he or she feels will perform the best as a manager or supervisor. "Rule of five" language, however, is not included in existing labor agreements. To address this the Department should negotiate to re-establish a "rule of five" when selecting sergeants and lieutenants for promotion. Staff should be rotated out of specialty assignments on a regular basis. No set rotations out of specialty assignments have been established in the Boynton Beach Police Department. To address this issue the Department should set the expectation that staff rotate through all specialty assignments at least on a five-year basis with a shorter rotation (for example, three years) where the potential for corruption exists. In addition, the Department should negotiate to limit the number of detective first grades (DFGs) employed to one per investigative unit (e.g., special victims, white collar and property crimes, and major case). This will allow the Department to maintain the expertise of skilled detectives serving in the DFG position without unduly limiting opportunities for officers to serve as detectives. A Police Department space needs study should be conducted. Concerns about the Police Department's physical space are widespread and legitimate. While the consultants lack the expertise to systematically assess facility needs, interview findings, survey results, and the consultants' observations suggest that investing in a space needs study to determine how to cost-effectively address the Department's space needs is warranted. Immediate steps should be taken to improve facility maintenance. That the police headquarters is not a clean building and is not well maintained is supported by consultant observations, interview findings, and survey results. While addressing this issue will require resources, doing so will also provide a visible sign that the City is working to provide the Police Department with the support it needs. The Department should use the budget as a management and accountability tool. At present, the budget is not used to set priorities, control expenditures, or to establish accountability. Indeed, at present, the police chief is the only position in the Department with budget accountability. Moreover, the expenditure levels set in the Department's budget are not strictly adhered to, requests for expenditures that have not been budgeted (but could reasonably have been foreseen) are not uncommon, and the process for establishing the budget is not inclusive. To address these issues, several steps should be taken to use the budget as a management and accountability tool. The Department should consider disbanding its SWAT team, The number of incidents to which the SWAT team responds may not justify the cost of maintaining the team. The number of SWAT team call outs is not high while training and equipment costs are not insignificant. Since there is little that can be done to reduce SWAT team costs — if the City is to field a team that team must be well equipped and well trained — M the City should consider relying on the Palm Beach County Sheriff's Office to provide SWAT team support. Alternatively, a number of local police departments could work together to establish a SWAT team that would serve each of the participating jurisdictions. Patrol Issues The Department should take a number of steps to make more effective use of patrol resources and to improve response times. Response times achieved by the Boynton Beach Police Department are not fast. Average response times to emergency and non -emergency calfs -for -service are somewhat long — emergency calls are responded to within 7 minutes and 6 seconds on average and non -emergency calls are responded to within 15 minutes and 24 seconds on average. A better measure of the actual response achieved by the Police Department is the response time achieved by the Department 90 percent of the time. On this measure response times to emergency and non -emergency calls -for -service are much longer — emergency calls are responded to within 13 minutes and 4 seconds 90 percent of the time while non -emergency calls are responded to within 31 minutes and 49 seconds 90 percent of the time. Analysis suggests however that these response times do not result from a lack of patrol resources. On the contrary, the staffing analysis suggests that substantially improved response times can be achieved with somewhat fewer patrol staff. Instead, existing patrol practices appear to unnecessarily lengthen response times. In particular, response times appear to be longer than necessary for the following reasons: ■ Practices associated with assigning officers to districts prevent officers from responding to calls even when they are available to do so ■ More officers than are needed respond to some calls -for -service ■ Patrol officers are taken out of service to support proactive and administrative activities which results in their not being available to respond to calls ■ Officers do not consistently return to service quickly after responding to calls ■ Deploying dedicated prisoner transport vans reduces the number of officers available to serve as the primary responder on calls ■ Not enough vehicles are deployed to ensure one officer is always assigned per vehicle A number of steps should be taken to address these issues. First, procedures should be established to ensure that assigning officers to districts does not materially delay call response or hamper efforts for officers to work together collaboratively. Second, the number of officers responding to some calls should be reduced. Third, officers should not be taken out of service to support proactive initiatives or administrative activities when call volumes are expected to be high. Fourth, officers should be encouraged to return to service quickly when no longer needed on a call and to notify dispatch that they are available. Fifth, dedicated prisoner transportation should be provided on an "as needed" basis only. Lastly, the Department should reassess the terms of its take home l�7 car program to ensure priority is given to ensuring each patrol officer is assigned to an individual unit. Lights and sirens should be used to respond to calls only when timely response is needed. At present, patrol officers sometimes use lights and sirens to respond to calls even when a fast response is not needed — for example, to property crimes where the perpetrator is not at the scene. Using lights and sirens to respond to calls when it is not needed creates a safety risk for both officers and the community. In addition, the risk of damage to vehicles is increased. To address this issue, sergeants should work with officers to ensure that lights and sirens are used to respond to incidents only when warranted. The Department should consider installing automatic vehicle locators (AVLs) on patrol cars. AVLs automatically track the location of patrol vehicles. While these systems are a supervisory tool and can aid supervisor efforts to monitor the officers they oversee, even more importantly AVL systems enhance officer safety. If an officer is in need of assistance the AVL can immediately and accurately identify his or her location. Traffic Enforcement Issues Traffic enforcement officers should focus on activities that will reduce traffic accidents. While traffic officers are not given a quota of tickets they should write they are encouraged to be productive. This emphasis on writing tickets may, however, divert attention from what should be one of the unit's primary objectives — reducing the number of injury accidents in the City. This issue can be addressed by ensuring traffic officers' productivity is measured not just in terms of the total number of tickets written but by tickets written that will reduce behaviors associated with injury accidents. A weighting system should be established so that more credit is given for tickets written for violations that are correlated with injury accidents and in areas where the volume of injury accidents is high. Officer productivity should then be evaluated based on the weighted number of tickets written. The Department should establish expectations for how quickly traffic related complaints are addressed. One important function traffic officers currently perform is responding to traffic related complaints from citizens (for example, of speeding in a residential neighborhood). While traffic officers indicate that they try to respond to complaints quickly the range of response times reported — from within a day to within a couple of weeks — is broad. To address this issue, the Department should establish an expectation for how quickly traffic complaints should be responded to. Code Compliance Issues Code compliance should be integrated into the plans the Department develops to address community needs. One important benefit of having code compliance included as part of the Boynton Beach Police Department is that code compliance can be used to help address community policing needs. While law enforcement and code compliance resources are sometimes used together to address needs in Boynton Beach the Department does not appear to take full advantage of these opportunities. In the future, therefore, the Department should explicitly consider how code compliance could be used to support these efforts. 11-10 Dispatchers should receive additional training on the types of calls that can be handled by code compliance officers. Code compliance officers report that it is not uncommon for dispatchers to send them to a call — such as an overgrown hedge — that they have no authority to address. Sending code compliance officers to address non - code issues is not an effective use of officer time. Dispatchers should therefore receive additional training on the types of calls that can be handled by code compliance officers. Investigations Issues Sergeants should oversee the Department's investigative units. At present, each of the Department's five investigative units are led by officers -in -charge rather than by sergeants. While using officers -in -charge as a short-term expedient to lead units (if, for example, sufficient sergeants to lead units have not been promoted) is reasonable, using officers -in -charge in lieu of sergeants is not a good practice (even if the existing officers - in -charge seem to generally be performing well as supervisors). Sergeants therefore should be assigned to oversee the Department's investigative unit. The functions assigned to the major cases unit should be modified. A number of disparate functions currently report to the major cases unit: ■ Investigation of major crimes (e.g., robbery, home invasion, aggravated battery, aggravated assault, suspicious death, suicide, and homicide) ■ A NIMS detective who ensures the Department complies with requirements for access to the NIMS system, serves as a domestic prevention officer, and provides crime analysis support ■ A civilian crime analyst ■ A civilian animal cruelty officer When the recommended structure is implemented the animal cruelty officer will be assigned to the specialized enforcement unit and the analysis and intelligence functions currently performed by the NIMS detective and the crime analysts will report to the patrol captains. Since only four detective positions will remain with the unit the sergeant who leads the restructured unit should assume a small caseload. In addition, one of the four detectives should serve as the Department's domestic prevention officer and ensure compliance with NIMS requirements. Communications Issues The communications center should hire in advance of positions becoming vacant. At present, the communications center does not hire in advance of positions becoming vacant. The time required before a new communications center employee is fully functional, however, is lengthy. In addition to the time required to fill the vacancy nine months of training is provided before the employee is authorized to function independently. Consequently, the unit is short-staffed for up to 10 months after vacancies occur. To address this issue, conservative hiring in advance of need based on historical turnover levels should be authorized. Communications shift supervisors should report directly to the records and communications manager. At present, communications shift supervisors report to a sergeant who in turn reports to a lieutenant (who also oversees the records unit). Three supervisory positions — at present the two sergeants who oversee records and communications and the lieutenant they report to — are not needed to oversee these functions. A single civilian manager can directly oversee communications operations while also providing management support for the records supervisor. Technical Services Issues Contractor resources should replace one of the positions assigned to the technical services unit. A civilian technical services manager currently leads the technical services unit that is staffed with two civilians and an officer. Depending on the project work being undertaken this level of staffing seems appropriate. However, with such a small staff it is difficult to ensure the capabilities needed to handle the range of issues and projects necessary to address the Department's needs are resident in unit staff. If, however, one of the full-time positions was replaced with as needed contract resources the unit manager would have more flexibility in tapping specialized expertise and would be better able to adjust staffing when the volume of special projects makes it possible to do so. C — STAFFING AND SCHEDULING' This section presents staffing and scheduling recommendations for the following Police Department functions: patrol, communications, and professional standards. Please note that staffing levels were evaluated for other functions (most notably investigations) but no change in staffing for these functions is recommended. PATROL This subsection is divided into four parts. The first part presents an overview of the process used to evaluate patrol staffing. The second part presents staffing recommendations under two scheduling alternatives. The third part discusses supervisory needs and the final part compares the recommended number of patrol officers to the number that are currently deployed. Process For Determining Staffing Needs The process for evaluating patrol staffing needs is divided into 10 steps. ■ Step 1: Determine response expectations ■ Step 2: Determine the number of citizen -initiated calls -for -service responded to ■ Step 3: Change the categorization of some calls from "non -emergency" to "emergency" 2 Staffing results are based on the best data the Department was able to provide and the consultants' interpretation of this data. If -12 ■ Step 4: Adjust the number of calls to reflect the fact that some call types require more than a one -officer response ■ Step 5: Determine which calls should be handled by sworn officers and which calls should be handled by civilians ■ Step 6: Consider how traffic affects the time it takes patrol officers to respond to calls in some areas of the City at certain times of the day ■ Step 7: Use queuing analysis and travel time analysis to determine the number of officers that need to be deployed to meet response time expectations during each hour of the week ■ Step 8: Develop preliminary schedule ■ Step 9: Confirm that adequate time is available for officers to perform administrative duties and to support proactive initiatives ■ Step 10: Adjust staffing levels to account for expected absences Staffing Recommendations In addition to evaluating staffing needs under the current schedule, alternative schedules under which officers continue to work 11.5 hours per shift but start shifts at different times were also evaluated to determine whether these alternative schedules better matched staffing needs and workload. A range of scheduling alternatives was evaluated but two schedules were considered the most practical for the Boynton Beach Police Department. ■ The current schedule in which 11.5 -hour shifts begin at 4:30 a.m.; 9:00 a.m., 3:30 p.m., and 5:30 p.m. ■ The alternative schedule in which 11.5 -hour shifts begin at 6:00 a.m., 3:00 p.m., and 7:00 p.m. To meet service expectations under the current schedule, 42 sworn officers and 8 CSOs are needed. To meet service expectations under the alternative schedule, 40 sworn officers and 8 CSOs are needed.3 2 Only eight percent of calls -for -service in Boynton Beach are characterized as emergency calls while in other communities the consultants have studied this number ranges from 20 to 33 percent. To ensure the Boynton Beach Police Department has enough capacity to respond to a higher percentage of calls quickly (that is, within 6 minutes 90 percent of the time) 15,792 of the calls classified as non -emergency calls in Boynton Beach were reclassified as emergency calls. After reclassifying these calls 58 percent of the calls in Boynton Beach are considered emergency calls that need to be responded to within 6 minutes 90 percent of the time. 3 If CSOs are not used to respond to calls 50 sworn officers are needed under the current scheduling option and 48 sworn officers are needed under the alternative schedule. II -13 Supervisory Staffing Needs When determining the number of first-line supervisors (sergeants) needed for each scheduling alternative it was assumed that a span of control for one sergeant for every eight officers or CSOs assigned to a shift was appropriate. For each alternative three sergeants are needed per primary shift for a total of nine patrol sergeants. Implications Staffing recommendations under the current schedule suggests a net reduction of 13 positions. Police officer staffing can be reduced by 21 positions but the number of civilian CSOs should increase by 8 positions.4 Staffing recommendations under the alternative schedule suggests a net reduction of 15 positions. Police officer staffing can be reduced by 23 positions but the number of civilian CSOs should increase by 8 positions. Under each alternative the number of sergeants assigned to patrol will be reduced by nine positions. COMMUNICATIONS This subsection is divided into four parts. The first part presents an overview of the process used to evaluate communications staffing. The second part presents staffing recommendations and the third part presents supervisory staffing needs. The final part compares the recommended number of dispatchers to the numbers that are currently deployed. Process For Determining Staffing Needs The process for evaluating communications staffing needs (which are incorporated in the staffing model that accompanies this report) is divided into six steps. ■ Step 1: Establish service expectations' ■ Step 2: Determine the number of calls handled by hour of the day6 ■ Step 3: Use queuing analysis to determine the number of call takers needed by hour of the day ■ Step 4: Develop preliminary schedule 4 Please note that rather than reduce positions the City may choose to direct patrol officers to support proactive initiatives. 5 The analysis assumes that a dispatcher will be available to handle a 911 call 99 percent of the time. (This level of staffing ensures 911 calls will not be held.) In addition, the analysis assumes that non -emergency calls will be handled within 2 minutes 90 percent of the time. 6 Since information on communications center workload was not available, CAD data from the period from January 1, 2012 to December 31, 2012 was used as a starting point for determining the number of calls received by the communications center. This data was then adjusted based on the experience of other cities the consultants have studied. In particular, 911 calls were multiplied by a factor of 2.3 to reflect the fact that the communications center often receives multiple calls for an incident. 11-14 ■ Step 5: Determine the number of public safety dispatchers that are needed ■ Step & Adjust staffing levels to account for expected absences Staffing Recommendations In addition to evaluating staffing needs under the current schedule, alternative schedules under which dispatchers continue to work 12 hours per shift but start shifts at different times were also evaluated to determine whether these alternative schedules better matched staffing needs and workload. No schedule was identified, however, that would reduce the number of communications staff needed. To meet service expectations one dedicated call taker, one dedicated dispatcher, and two dispatchers who also handle calls are needed on each shift. A total of 20 dispatchers are needed after accounting for expected absences. Supervisory Staffing Needs One supervisor should be deployed on each shift. To cover all shifts a total of four supervisors are needed. In addition, one supervisor should continue to be assigned responsibility for quality assurance. Implications If the current schedule is maintained 20 public safety dispatcher positions will be needed or two more than the current number. No change in the number of communications supervisors is recommended. PROFESSIONAL STANDARDS The professional standards caseload is low. In 2012, 2.33 investigators' handled 19 cases or an average of 8.15 cases per year. The unit should be able to handle this caseload with one fewer investigator (which will bring the annual caseload up to 14.3 cases) even after considering that professional standards investigators also conduct background investigations.8 D — PERFORMANCE METRICS Performance metrics have been established for each of the major functions performed by the Boynton Beach Police Department. For each function, these metrics assess both the cost and the quality of services provided. Moreover, in addition to using information on results achieved to evaluate performance (that is response times, cases accepted for prosecution, and service wait times) surveys are used to assess perceptions of the One investigator divides his time between investigations, public records requests, and serving as the public records custodian. 8 Please note that contract staff should be used to support background investigations efforts as necessary. II -15 quality of service provided. These surveys include employee surveys, manager surveys, surveys of all residents, and surveys of residents who have received police services. E — OUTSOURCING ANALYSIS Analysis suggests that the potential benefits of outsourcing outweigh the costs and risks for six functions and services: ■ Provide specialized and/or tactical response and support — SWAT ■ Provide automated traffic enforcement ■ Provide human resources support to the Police Department (perhaps within the City government) ■ Provide financial support to the Police Department (perhaps within the City government) ■ Provide purchasing support to the Police Department (only if part of a larger City initiative to privatize purchasing) ■ Identify and respond to grant opportunities The Department should either put these services out to bid9 or explore ways that City departments can provide some of the support currently provided by Police Department staff. F — CIVILIANIZATION ANALYSIS An evaluation framework was used to assess the positions within the Boynton Beach Police Department that should be assigned to sworn and civilian staff. This analysis indicates that the Department should consider assigning civilians to perform the following functions: grants writer; technical services officer; asset forfeiture detective; crime scene detective; evidence detective, NIMS detective; and crime analyst. In addition, public records and records custodian responsibilities should be reassigned from the detective who currently performs these duties to a civilian who should also serve as the accreditation manager. Inspection responsibilities (a function currently performed by the sworn officer who has accreditation responsibilities) should be assigned to the detective who previously served as the records custodian and handled records requests. 9 Please note that this analysis does not suggest that these services should be definitively outsourced only that it is worthwhile for the City to take the time and expense to put them out to bid. i1-16 G — IMPLEMENTATION There are three key steps the City should take to implement the study recommendations: ■ Adopt the study recommendations ■ Establish an implementation task force ■ Clarify the personnel and labor implications of the study recommendations An implementation plan to guide the City in implementing the recommended improvements is presented in the body of the report. This plan proposes priorities for implementation, suggests who should assume responsibility for each implementation activity, and offers a timetable for executing the plan. In addition to serving as a guide, the implementation plan can be used as a "score card" for measuring implementation progress at periodic city commission reviews. Once the implementation task force has been assembled, one of its first tasks should be to develop action plans — in coordination with Police Department leaders — to flesh out implementation details. II -17 III - CORE CHALLENGES FACING THE DEPARTMENT I'll - CORE CHALLENGES FACING THE DEPARTMENT This chapter discusses the core challenges facing the Boynton Beach Police Department and details the steps that should be taken to address them in both the short term and the long term. The chapter is divided into four sections: current situation, short-term improvement initiatives, ongoing improvement initiatives implications. , and staffing CURRENT SITUATION This section is divided into two subsections, The first subsection describes the current situation and the second subsection outlines the overall approach the Department should take to address the challenges facing it, NN221M��� The Boynton Beach Police Department is a troubled organization and faces a number of significant problerns. It is by no rneans a dysfunctional organization, however, and continues to Provide competent service to Boynton Beach residents and businesses. In focus groups residents expressed generally high satisfaction with the Department's performance and some external stakeholders -most notably the State's Attorney - have an extremely positive view of the Department. In addition, the most recent round of lieutenant promotions have been well received by many employees and in a short period of time these lieutenants have had a Positive impact on Department operations. Nonetheless, the Police Department is beset by strife that saps morale and creates conflict within the organization. A number of factors contribute to this situation: • The Department lacks a clear sense of organizational identity and shared norms • A shared sense of organizational purpose has not been established • Employee misconduct has lowered morale and reduced employee pride in the Department (for at least some officers) • Many civilian employees do not feel valued by the Department A more detailed discussion of these issues follows, The Department Lacks A Clear Sense Of Organizational Identity And Shared Norms Within broad parameters individuals are allowed to establish their own norms for acceptable behavior which creates, consternation when the performance norms of different officers conflict. For example, in the past norms differed with regard to what is acceptable practice for earning: overtime, In addition, expectations with regard to how patrol officers are expected to use their duty time had not been consistently defined until recently, HE A Shared Sense of Organizational Purpose Has Not Been Established m While a range of factors including internal strife and a difficult contractual situation contributes to the low morale, interview results suggest the Publicity relating to these incidents have been the Primary cause. More than 73 percent (713 percent) of the survey respondents agree or strongly agree that morale in the Department is low, 1, addition, while most survey respondents (73,0 n percent) agree or strongly agree that they are proud to work for the Boynton Beach Police Department in interviews several officers indicated that they are ashamed to say they work for the Police Department when dealing with other agencies, Many Civilian Employees Do Not Feel Valued By The Department Interviews and the results of the employee survey suggest that many civilians do not feel valued by the organization. More than 57 percent (57,1 percent) of the civilians completing the employee survey disagree or strongly disagree that civilians are treated with as much respect as sworn employees. Moreover, in interviews a number of sworn and civilian employees expressed the opinion that civilians are viewed as second-class citizens. A number of factors seem to contribute to this situation. During recent budget cuts civilian Positions were reduced while sworn Positions were maintained. The Department may have had little choice in this matter as the terms of a grant that subsidized sworn officer staffing for three years precluded reducing sworn officer staffing in the fourth year (unless a waiver was granted). Nonetheless, many civilian employees viewed this action negatively. In addition, the manner in which the reductions were handled — the perception of many civilian employees is that civilian employees were summarily dismissed — contributed to civilian concerns,, OVERALL APPROACH TO ADDRESSING THESE ISSUES Efforts To Address The Daunting Challenges Facing The Department Must Proceed On Two Fronts While the challenges facing the Department are daunting, through forceful action the Department can address these challenges and, over time, become a strong organization that is better able to address Boynton Beach's needs, The Department must approach the challenges facing it from both a short-term and a long-term perspectl ve, In the short term the Department must, througih its actions, clearly signal a break ith the past. The types of issues the Department faces cannot be address'ed through in'cremental change, Instead, aggressive action must be taken to change the Department's focus and direction, Once the new direction has been charted, however, rn must e established to gauge progress and ensure the Department remains on course, Any changes will be short-lived unless the management systems and training needed to support them are developed, in addition, the city manager and Police Department managers will not be able to ensure improvement efforts remain on track unless the performance metrics and accountability systems needed to monitor them are in place, BE. B — SHORT-TERM IMPROVEMENT INITIATIVES The Department should take a number of steps over the next six months to signal a break with the past. ■ A vision for how the Police Department does business that focuses attention on improving service to the Boynton Beach community should be articulated ■ The organizational structure should be modified to facilitate achieving this vision ■ Basic performance expectations should be established for key positions and staff should be held accountable for meeting those expectations ■ Civilian staffing should be restored in selected areas ■ Training should be provided in selected areas A discussion of each of these initiatives follows. OPERATIONAL VISION The Department Should Work To Establish A Vision That Defines The Boynton Beach Police Department's Approach To Policing One important way that the Department should break with its past is to establish a new vision for policing in Boynton Beach around which employees can rally. At present, internal issues consume a great deal of time and attention. While this is certainly understandable given high levels of frustration among many employees, nonetheless, the considerable attention that is focused on these issues prevents attention from being focused on other issues that need to be addressed. The Department's focus should be redirected on improving service to the Boynton Beach community. Not only will the community reap benefits from this effort but the overall health of the Department should improve as well. Officers who are focused on establishing a new vision for policing will have less time to focus on internal issues. Community Policing Could Be A Focal Point For Establishing This New Vision Building the new policing vision around community policing has two advantages. First, the City Commission has already expressed some commitment to this concept. Indeed, when approving this study the Commission indicated that community policing is a priority. In addition, in interviews existing staff expressed a shared perspective about how community policing should be implemented. The themes relating to community policing that emerged from these discussions included establishing a personal relationship with community residents, understanding community needs and tailoring services to address those needs, and projecting a friendly, customer -oriented demeanor to the community. Department leaders should work with key staff on efforts to operationalize these themes and to make this vision for policing a reality in Boynton Beach. 111-5 ORGANIZATION The Current Organizational Structure Hampers Efforts To Address The Problems Facing The Department A number of shortcomings with the current organizational structure (presented in Exhibit 111-1) will make it more difficult to address the problems facing the Department. ■ The current structure isolates the chief from the day-to-day management of the Department. In the current structure, in which two majors directly oversee key functions -- uniform services and investigations/support services — the chain of command requires the police chief to delegate significant responsibility to these subordinates. Doing so, however, prevents the chief from being actively involved in day-to-day operations as will be required to address the challenges the Department faces. ■ The current structure complicates direct communication from the chief. In the current structure, the two majors must filter directives from the chief. This not only increases communication time but also creates the opportunity for the chiefs message to be modified. To address the challenges facing the Department, however, it will be important that Department leaders speak with one voice. ■ Interest groups within the Department have become aligned with the two majors. A key to improving the Department in the short term will be to disrupt interest groups and factions within the Department. No matter how committed the current majors are to eliminating favoritism, however, current patterns will be difficult to change as long as an organizational focus for faction (that is, the majors) remains. ■ Key functions lack visibility within the Police Department. Two functions that will be important to efforts to support the change initiative are somewhat buried in the current organizational structure. The public information officer (PIO) who would lead external communications efforts to support change is assigned to professional standards. in addition, the two positions responsible for gathering and analyzing information and intelligence on crime and community needs (the NIMS detective and the crime analyst) report to the major case squad. This lack of organizational visibility reduces the perceived importance of these positions and makes it harder for the incumbents to have a broad influence on Department operations. The Department's Organizational Structure Should Be Modified' The recommended organizational structure (which is presented in Exhibit 111-2) will support change efforts in a number of ways: ' Please note that additional changes to the organizational structure are recommended over the long term. In particular, as discussed in Section C, the lieutenant for specialized enforcement should be integrated into the overall patrol function and the functions reporting to this lieutenant should be divided among the other patrol lieutenants. Implementing this recommendation will take time however. \ 0 M 2 �_// ±m (n _ ca ®S� \ # E 4 $ 2 { cu /t3@ \n cz �pc U) /=E- c �= D © ƒƒ }\)\< 0� =3ee<== § 5 ) ® :#e -«»mm i\\ f 7 f f/ £=<oe<Oz \- / / G '� � . . . . . . . . . � � En ]TD)E k /W [§ � /\ /i §@ � @5# k/3 (n . 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[B O cz al .— m U _O '� c d�-u<co a.i ■ ■ ■ The very act of changing the organizational structure signals the Department will embark on a new way of doing business ■ The police chief is not isolated from day-to-day operations — all key Department functions would report directly to the chief ■ The two major positions — around which factions within the Department grew — are suggested to be discontinued ■ Two patrol captain positions — who would be responsible for ensuring services are tailored to meet community needs in two areas of the City — would be established ■ Two functions — crime analysis and intelligence gathering — that support the Department's operating vision would have more organizational visibility be better positioned to provide support ■ The P10 — who would be responsible for building support for and understanding of Department changes in the community — would report directly to the chief ■ A civilian would oversee the communications and records functions (the benefits of assigning this responsibility to a civilian are discussed later in this chapter) PERFORMANCE EXPECTATIONS Basic Performance Expectations Should Be Established For Key Positions And Staff Should Be Held Accountable For Meeting Those Expectations Because shared performance norms have not been established within the Department, at present, staff have significant discretion in determining how to make the best use of their time. The activities officers perform when not responding to calls vary significantly. In addition, some patrol sergeants — arguably the most important positions in the Police Department — spend the preponderance of their shifts on the street providing active supervision while other sergeants reportedly supervise from the station. By all reports, the recently promoted patrol lieutenants have made great strides in a short period of time reducing the variance in what is considered appropriate behavior. These efforts should be reinforced by a Department -wide initiative to set expectations for how officers and supervisors should spend their time. For example, for patrol sergeants the time that should be spent on the street and the number of calls observed should be established. Setting basic performance expectations and holding staff accountable for achieving them will benefit the Department in a number of ways: ■ All officers and supervisors will have a clear understanding of how they should spend their time III -7 ■ All staff will achieve a basic minimum standard ■ The frustration of hard working staff who have had to work in close proximity to staff who are not working hard will be reduced ■ The suggested activities and expectations — which should be consistent with the Department's approach to community policing — will reinforce the vision for policing it is working to implement Please note that this initiative need not be managed as a quota system. Staff who do not meet a target but can demonstrate that they spent their time on other productive activities (for example, they may have gotten tied up on a major call for a significant portion of their shift) will not be penalized. On the other hand, staff who do not meet specified expectations and cannot demonstrate that their time was well spent will be called to account. CIVILIAN STAFFING Civilian Staff Should Be Restored Or Established In Several Areas The Department should take a number of tangible steps to demonstrate its recognition of the value of the role civilians play in its success. First, civilian staff should be restored to the positions they previously held but that are now filled by sworn staff. In particular, civilians should replace sworn staff serving as crime scene investigators and evidence room staff. In addition, the Department should establish civilian supervisor positions to oversee functions predominantly staffed by civilians (e.g., communications, records, and crime scene/property and evidence/asset forfeiture). Doing so not only communicates the Department's confidence in the skills of civilian supervisors and managers but also creates a career path for the civilian staff assigned to these units. Finally, over time civilian staff should be assigned to functions the civilianization analysis (presented in Chapter VIII) suggests could be handled by civilians (e.g., the NIMS detective, the asset forfeiture detective, and the grants writer). TRAINING Focused Training Should Be Provided In Selected Areas To Ensure Performance Expectations Are Understood And Reinforced Training should be used to reinforce Department expectations for employee performance and how officers are expected to implement its policing vision. This training should have two components. First, the training should ensure that expectations for performance have been clearly communicated. Second, the training should focus on areas — identified by Department managers — where implementing the Department's vision for policing will be most challenging. All employees should participate in these training sessions. 2 While officers who have not been well motivated will likely be required to increase their Performance as a result of establishing these standards, other officers — who are already well motivated — will probably not be affected. HE In addition to this general training, first-line supervisors should receive additional training to reinforce expectations with regard to how they should fulfill their role and to provide initial guidance on how they should support efforts to implement the Department's vision. This training is needed because the quality of first-line supervisors is reportedly inconsistent — some sergeants are reportedly exemplary3 while others are not. Because first-line supervisors will play such an important role in supporting needed change within the Department, however, investing in supervisory training is warranted even for the Department's high performing supervisors. C — ONGOING IMPROVEMENT INITIATIVES The Department should develop management systems to support ongoing improvement efforts in several key areas: ■ Systems to support the Department's vision for community policing should be established ■ A comprehensive approach to ensuring the quality and integrity of Department staff should be developed ■ Systems should be established to ensure consistency in the application of discipline A discussion of each of these initiatives follows. COMMUNITY POLICING The Department Should Develop A Management Infrastructure That Supports Its Vision For Community Policing As discussed, the Boynton Beach Police Department should establish a vision for community policing that provides a framework for supporting overall improvement efforts. This community policing framework should be built around three themes: ■ Establishing a personal relationship with community residents ■ Understanding community needs and tailoring services to address those needs ■ Projecting a friendly, customer -oriented demeanor to the public If this policing vision is to become a reality a management infrastructure with the following elements should be established to support implementation of this vision on an ongoing basis: performance monitoring; training; organizational roles and management capacity; planning; use of discretionary resources; social media; and information. 3 Most employee survey respondents are generally positive about their own supervisor. Roughly three in five respondents agree or strongly agree that their first-line supervisor inspires confidence, eliminates barriers to achieving objectives, provides productive feedback, understands the operations they supervise, and has the competence needed to provide constructive feedback. Only about 15 percent of the survey respondents disagree or strongly disagree with these statements. Performance monitoring. In addition to establishing overall metrics for evaluating the Police Department's performance (as presented in Chapter VI) metrics should be established to gather information on specific activities officers perform and how they spend their time. As noted, some patrol lieutenants are already setting clear expectations for the number and types of activities expected of officers. These efforts should be supported by systems that track this information. initially officers could be required to self report how they spend their time (and sergeants could monitor the accuracy of these reports), Over time, the CAD system could be modified to gather more information on officer activities. In addition, as discussed in Chapter VI surveying a representative sample of individuals who have received police services will be helpful in assessing how friendly and customer focused police officers are in their dealings with residents. Please note that these efforts will need to be supported by management attention and training. At present, officers do not consistently report when they arrive on scene for calls -for -service much less when they perform other functions and activities. Developing the habit of reporting how time is spent will, therefore, require considerable Departmental effort. Training. Efforts to provide more customer friendly service should be supported by training. Likewise, training should be provided for managers, supervisors, and line officers in how to identify and understand community needs and how to develop strategies to address those needs. Organizational roles and management capacity. The Department's current approach to defining the roles of lieutenants — where each lieutenant is responsible for overseeing a policing district — is consistent with community policing. At present, however, patrol lieutenants indicate that most of their attention is focused on leading shifts which is understandable given that even if lieutenants plan to devote a portion of their shift to district level responsibilities the imperatives of managing the shift can divert their attention. Several steps should be taken to address this issue. First, two captain positions should be established that should be responsible for ensuring that tailored services are provided in each geographic area of the City. 4 The four lieutenants who oversee shifts and a fifth lieutenant who will oversee all specialized enforcement units (e.g., crime prevention, code compliance, CAT, traffic, canine, and animal cruelty) should report to these captains. The lieutenants will be responsible for overseeing their shifts or specialized enforcement functions but will also be accountable to the captains for ensuring time not spent responding to calls is used effectively to address community needs. In addition, the crime analysis and intelligence positions should report to the captains and provide them with the information needed to understand community needs and develop strategies to address them. 4 Instead of dividing the City into three districts the City should initially be divided into two districts. After the captain positions have been established subdividing each district into smaller areas with discrete needs should, as appropriate, be considered. III -10 Planning. One criticism repeatedly voiced about the current compstat process is that time and energy is spent reporting information on crime and other activities in various parts of the City but little that is actionable is done to use this information to reduce crime or address other community needs. To address this issue — and support efforts to tailor services to community needs — each captain should be charged with developing plans for addressing crime and other community priorities in the areas he/she oversees. The captains will then hold the lieutenants responsible for implementing the plan. Discretionary resources. Community focused policing plans will have little impact unless resources are available to support them. While patrol officers can support some aspects of a policing plan when not responding to calls other initiatives may need dedicated resources. On the surface few discretionary resources — the CAT team consisting of a sergeant and five officers — are available to support such initiatives. In fact other specialist functions could be drawn on to support initiatives including traffic officers, crime prevention officers, and canine officers. The captains should develop plans that will draw on all these resources as necessary. Social media. The Boynton Beach Police Department makes creative use of social media and the Internet to support its mission. The PIO who is responsible for social media outreach efforts should explore with the captains responsible for each area of the City how social media might be used to engage more effectively with community stakeholders and to understand community needs. Information. The planning needed to support efforts to understand community needs and develop strategies to address those needs must be supported by information. The Department's analytic resources — currently the crime analyst and the NIMS detective — should work with lieutenants to understand what types of information will be the most useful to them and should work to address those needs. STAFF QUALITY AND INTEGRITY Opportunities To Identify And Address Problem Employees Should Be In Place During All Phases Of An Employee's Career No police department will ever be 100 percent effective at preventing officer misconduct; however, focused attention at each phase of an employee's career can help to minimize misconduct and its consequences. Discussed below are steps to strengthen efforts to identify and address problem employees during the hiring phase, probationary period, and during an officer's ongoing career with the Department. Hiring phase. The process that the Boynton Beach Police Department takes to hire employees is sound and is consistent with the best practices identified as part of this study. No recommendations for modifying the hiring process are suggested. Probationary period. During an officer's probationary period two steps should be taken to reduce the likelihood that they will become problem employees. First, the Department should strengthen field training by taking steps to ensure that only the most exemplary officers serve as field training officers (FTOs). Reportedly, at present, the quality of existing FTOs is mixed. This is problematic because if probationary officers are not working with FTOs they should emulate, the likelihood that they will become outstanding officers will be reduced. To address this issue the Department should explore opportunities to create incentives for outstanding officers to serve as FTOs. For example, the Department might consider giving a preference to officers who have served as FTOs when making selections for specialty assignments. In addition, the performance of FTOs should be evaluated on a regular basis and FTOs who are not meeting expectations should no longer be allowed to perform this important function. The second step the Department should take to ensure probationary officers do not become problem officers is to dismiss officers who do not meet expectations during their probationary period. Reportedly, at present, this rarely happens. While it is, without question, expensive for officers to be dismissed after the Department has incurred training expenses these costs are sunk. The potential costs of retaining officers — who become extremely difficult to dismiss after their probationary period is over — far outweigh these expenditures. Ongoing career. In general the Department has established effective "early warning" processes for identifying problem employees and addressing their needs. Moreover, when incidents take place that require investigations the investigations are thorough. As discussed, being more strict and consistent in the application of discipline would be beneficial. In addition, steps should be taken to improve the consistency of first-line supervision. High expectations must be established for sergeants and performance against those expectations must be consistently monitored. MANAGEMENT OF THE DISCIPLINARY PROCESS Steps Should Be Taken To Ensure That Discipline Is Consistently Administered Concerns about disciplinary processes in the Boynton Beach Police Department are widespread. While in a study such as this it is difficult to determine which perceptions are real and which are not, a range of concerns was consistently voiced in interviews and supported by the results of the employee survey. ■ Discipline is widely viewed as being too lax. A widely held perception is that rules are not consistently enforced and as a result staff are more willing to test boundaries. Some interviewees cited examples of individuals being told to change their behaviors — for example, relating to overtime usage — and then being able to ignore these mandates without consequence. ■ Disciplinary recommendations are frequently reduced. There is a strong perception among managers and supervisors that Department leaders do not consistently support efforts to discipline employees. In particular, concerns were expressed that the former chief consistently reduced discipline recommended by sergeants and lieutenants.5 ■ Discipline is not consistently applied throughout the Department. There is widespread perception among Department employees that favoritism affects 5 Please note that the former chief may have had sound reasons for reducing the suggested level of discipline. The perception among many employees is, however, that reductions in discipline are not warranted. ill -12 disciplinary decisions and, according to the perceptions of some interviewees, in several instances employee misconduct is simply ignored. These concerns were supported by the results of the employee survey.' While the former chief had reportedly been working to address some of these issues, more systematic and visible initiatives will need to be implemented by the new chief to address the widespread perceptions that discipline is both lax and inconsistently administered. The recommended steps the Department should take to ensure discipline is consistently applied are designed to address both reality and perceptions. Indeed, unless strategies to address perceptions are developed, the perception of problems will likely persist long after the underlying problem (if any) has been addressed. ■ Review disciplinary guidelines. The Department should review disciplinary guidelines — in light of the highly publicized incidents of employee misconduct and perceptions of some employees that other instances of employee misconduct were not addressed — to ensure the progressive discipline process is sufficiently strict to dissuade employee misconduct. To ensure this effort is visible — and to provide needed input — task forces should be established to address these issues. ■ Provide roll -call training. A roll -call training program should be developed to ensure all employees are familiar with disciplinary processes and guidelines (and to help to communicate to employees that a change in how the Department approaches discipline is underway). ■ Track and monitor disciplinary decisions. The disciplinary process should be as transparent as possible. In particular, the discipline employees receive should be systematically tracked and publicized (while taking appropriate steps to protect employee rights). In particular, the percent of disciplinary incidents in which guidelines are adhered to should be tracked and the chief should report to the city manager whenever the discipline administered deviates from standards. To the extent possible, the reason for deviations should be reported to Department employees. In addition, the Police Department should seek the assistance of the City's Human Resources Department to provide ongoing counsel on how to address specific disciplinary issues. Indeed, the Police Department should explore whether some disciplinary matters might be handled by the Human Resources Department for the Police Department. D — STAFFING IMPLICATIONS 6 More than 45 percent (45.7 percent) of the survey respondents agree or strongly agree that discipline is lax. Forty percent of the survey respondents agree or strongly agree that disciplinary processes are fair. More than half of the survey respondents (53.6 percent) disagree or strongly disagree that disciplinary processes are not affected by favoritism. More than 56 percent (56,11) percent of the survey respondents disagree or strongly disagree that discipline is consistently applied across Police Department units. More than 50 percent (50.5 percent) of the survey respondents disagree or strongly disagree that decisions relating to discipline are timely. III -13 Implementing these recommendations will not increase the number of staff employed. Two major positions are discontinued and two captain positions are established. in addition, a civilian supervisor will replace the lieutenant who oversees the records and communications functions. 111-14 IV - OTHER MANAGEMENT ISSUES iv -1 IV — OTHER MANAGEMENT ISSUES This chapter presents recommendations to strengthen the Police Department's performance in areas not discussed in Chapter III. This chapter is organized into seven parts: issues affecting the entire department; patrol; traffic enforcement; code compliance; investigations; communications; and technical services. ISSUES AFFECTING THE ENTIRE DEPARTMENT The Department Should Negotiate To Have More Flexibility When Making Supervisory And Management Assignments Existing labor agreements limit the Department's flexibility about where sergeants and lieutenants can be assigned. At present, sergeant assignments are selected through seniority. While the Department has the discretion to determine the number of persons assigned to each shift and division how these slots are filled is determined by seniority. For lieutenants the Department has the authority to determine the division to which lieutenants are assigned but not the specific slots they will fill. These constraints make it difficult to address problem employees. In particular, senior sergeants who are not meeting performance expectations in a current assignment cannot be easily moved to an assignment where they may be more successful. Instead to encourage senior sergeants to accept positions in other units the Department must jerry-rig the organizational structure so that no sergeant positions exist in selected units. This appears to be one of the reasons that sergeants have been eliminated from the investigations unit. Moreover, in the past, it was reported that the vice unit was disbanded so a sergeant could be returned to patrol. Unless this limitation is addressed, the Department's efforts to address the challenges it faces will be hampered. Strengthening supervision requires matching the skills of sergeants to the duties and experience of the officers they supervise. Likewise, matching the skills and temperaments of lieutenants to the communities they serve (and the functions they perform) will facilitate efforts to implement the Department's vision for community policing.' To address this issue the Department should therefore work to negotiate more flexibility to make supervisory and management assignments. The Promotional Process Should Be Revised To Include Consideration Of Past Performance As discussed the quality of first-line supervisors is perceived to be inconsistent and a number of steps have already been suggested for strengthening the pool of sergeants including clarifying expectations, monitoring performance against expectations, and providing training. While concerns about the overall quality of lieutenants are less 1 Please note that restrictions on lieutenant assignments are not as limiting as those for sergeants. IV -2 significant than concerns about the quality of sergeants, there appears to be some inconsistency in the quality of lieutenants as well. The most important step to improving the pool of sergeants and lieutenants is ensuring that high quality sergeants and lieutenants are selected for promotion. Yet, concerns about the promotional process were raised in interviews and were supported by the results of the employee survey.z A review of the promotional process suggests that while the process is generally sound, including consideration of past performance when ranking promotional candidates would substantially improve the process. At present, officers who are generally regarded as substandard performers have the same chance as any other officers of being promoted (and have a greater chance if they have significant tenure with the Department). To address this issue the Department should work with the City's Human Resources Department to develop defensible approaches to considering officer performance when ranking promotional candidates. While linking promotional prospects with performance evaluation results (which are highly subjective and may not consistently distinguish high and low performers) may not be practical, other more objective standards (such as citizen complaints, scores on citizen surveys, and disciplinary actions) might be considered when evaluating promotional candidates.3 The Department Should Re -Establish The Use Of A "Rule Of Five" When Selecting Sergeants and Lieutenants For Promotion No promotional process is going to do a perfect job of evaluating promotional candidates. Some candidates who would make excellent managers and supervisors may not score well on tests. Other candidates who do perform well on tests, by contrast, may not be effective managers. In the past, the Boynton Beach Police Department, like many other organizations, addressed this problem by ranking the top candidates and allowing the chief to select the candidate among the top five he or she feels will perform the best as a manager or supervisor. "Rule of five" language, however, is not included in the existing labor agreements. While selecting candidates for promotion based solely on rankings from the promotional process worked well with the lieutenants who were the most recently promoted (all of whom are highly regarded) it did not work as well in the past. Both interview results and survey findings indicate a widely held view that the best candidates are not promoted. To address this issue the department should negotiate to re-establish the use of a "rule of five" when selecting sergeants and lieutenants for promotion. 2 Almost half of the survey respondents (48.4 percent) disagree or strongly disagree that the promotional process is fair and more than three out of five survey respondents (61.5 percent) disagree or strongly disagree that the best candidates for promotion are selected. 3 Please note that the department is reportedly already considering ways to include information on employee performance as part of the promotional process. IV -3 Staff Should Be Rotated Out Of Specialty Assignments On A Regular Basis There are a number of reasons why rotating staff out of specialty assignments on a regular basis is generally a good practice. ■ Rotating staff through units such as CAT (the Community Action Team) that focus on narcotics investigations reduces opportunities for corruption ■ Increasing opportunities for staff to participate in specialized functions gives them an opportunity to broaden their skills (in a relatively small department such as the Boynton Beach Police Department unless staff rotate through specialty positions opportunities for such assignments will be extremely limited) ■ Requiring rotation back to patrol reinforces the centrality of road patrol to the Department's success ■ Required rotations reduces opportunities for ill will and perceptions that staff assigned to specialized units are somehow favored These benefits are offset by the fact that a certain amount of learning is required before staff in a new assignment become fully effective. No set rotations out of specialty assignments have been established in the Boynton Beach Police Department. To address this issue the Department should therefore set the expectation that staff rotate through all specialty assignments at least on a five year basis with a shorter rotation (for example, three years) where the potential for corruption exists. In addition, the Department should negotiate to limit the number of detective first grades (DFGs) employed to one per investigative unit (e.g., special victims, white collar and property crimes, and major case).' This will allow the department to maintain the expertise of skilled detectives serving in the DFG position without unduly limiting opportunities for officers to serve as detectives. In addition, limiting the number of DFGs increases the department's flexibility in reassigning detectives who are not effective investigators. At present, a DFG who is not performing well and is assigned to another unit will continue to receive DFG pay. A Police Department Space Needs Study Should Be Conducted Concerns about the Police Department's physical space are widespread and include the following: ■ Department staff are not assigned to the same building which increases management and oversight challenges 4 Please note that this is an effective management practice. No allegations of corruption of narcotics investigators in Boynton Beach have been raised. 5 The current labor agreement specifies that nine detective first grade positions will be filled. IV -4 ■ The ceiling of the communications center has a hole that leaks when it rains ■ Holding facilities lack the ability to separate juveniles from adults and males from females ■ Work spaces are cramped ■ The evidence room lacks sufficient space These concerns are reflected in the results of the employee survey as well (although the survey suggests concerns are less pronounced than those voiced in interviews). Roughly two out of five survey respondents (38.5 percent) disagree or strongly disagree their work area is conductive to productive work activity. The consultants lack the expertise to systematically assess facility needs. Nonetheless, interview findings, survey results, and the consultants observations suggest that investing in a space needs study to determine how to cost-effectively address the Department's space needs is warranted. Immediate Steps Should Be Taken To Improve Facility Maintenance That the police headquarters is not a clean building and is not well maintained is supported by consultant observations, interview findings, and survey results. In interviews, officers suggest that minimal maintenance and custodial needs are not addressed. Moreover, close to two-thirds of the survey respondents (63.9 percent) disagree or strongly disagree that the Police Department buildings are clean and almost the same percentage (63.6 percent) disagree or strongly disagree that Police Department buildings are well maintained. The fact that the police facility is not clean and well maintained has an adverse affect on employee morale. Interview findings indicate having signs that say "clean up your own mess" have become symbolic for many officers. While addressing this issue will require resources, doing so will also provide a visible sign that the City is working to provide the Police Department with the support it needs. Whereas addressing the Department's overall space needs will take time, more immediate action can be taken to improve facility maintenance. The Department Should Use The Budget As A Management And Accountability Tool At present, the budget is not used to set priorities, to control expenditures, or to establish accountability. Indeed, at present, the police chief is the only position in the Department with budget accountability — neither the majors6 nor the lieutenants who lead units are responsible for managing their unit's budgets. Moreover, the expenditure levels set in the Department's budget are not strictly adhered to. Budget line items — especially for overtime — are often exceeded. In addition, requests for expenditures that have not 6 The major positions that existed while fact-finding for this engagement was being completed have subsequently been eliminated. IVA61 been budgeted (but could reasonably have been foreseen) are not uncommon. Furthermore, the process for establishing the budget is not inclusive and is not used to set and communicate Department priorities. Instead, the budget is set by reviewing spending in prior years and making adjustments deemed appropriate. To address these issues, steps should be taken to use the budget as a management and accountability tool. First, when developing the budget the police chief should discuss Department priorities with key subordinates and seek input on what resources are needed to realize those priorities. Even if such a process does not result in major reallocations of resources the process will provide a valuable tool for communicating priorities and confirming how resources will be used to address those priorities. Second, each manager who leads a unit should be held accountable for managing controllable expenditures within that budget and should be sanctioned if expenditures consistently exceed budgeted the amount. Third, expenditures that have not been budgeted should generally not be approved unless there is a compelling need for the expenditure and/or the need for the expenditure could not reasonably have been foreseen. The Department Should Consider Disbanding Its SWAT Team The number of incidents to which the SWAT team responds may not justify the cost of maintaining a SWAT team. The number of SWAT team call outs is not high. In 2011 there were 19 call outs (nine search warrants, four barricaded subjects and six high risk patrols). Activity more than doubled in 2012 when there were 40 call outs (14 search warrants, 5 barricaded subjects, and 21 high risk patrols). Training and equipment costs are not insignificant. At present, each of the 19 SWAT team members train eight to ten hours a month and each team member participates in one-week of training per year. Much of this training is paid for using overtime. In addition, the specialized equipment needed to outfit the SWAT team is not inexpensive. Over the past two years expenditures for SWAT related equipment has averaged more than $92,000. Since there is little that can be done to reduce SWAT team costs — if the City is to field a team that team must be well equipped and well trained — the City should consider relying on the Palm Beach County Sheriffs Office to provide SWAT team support. The City already relies on the Palm Beach County Sheriffs Office for assistance with explosive devices. Unlike SWAT team deployments — many of which can be scheduled — most "bomb squad" incidents require an immediate response. If it is not unreasonable to rely on the Palm Beach County Sheriffs Office for assistance with explosive devices it may therefore not be unreasonable to rely on the Sheriffs Office to provide SWAT support as well. Alternatively, a number of local police departments could work together to establish a SWAT team that would serve each of the participating jurisdictions.' 7 Multijurisdictional SWAT teams have been established in a number of areas. The Eau Claire County (Wisconsin) Regional SWAT team includes the University of Wisconsin, the Wisconsin State Police, the Dunn County Sherriff's Office, and the Menomonie Police Department. The Southwest Enforcement Bureau serves 18 entities in Ohio (including the Berea and North Royalton police departments). In addition, the Southwest Washington Regional SWAT team serves the Vancouver Police Department and the Clark County Sheriffs Office. IV -6 PATROLISSUES The Department Should Take A Number Of Steps To Make More Effective Use Of Patrol Resources And To Improve Response Times Response times achieved by the Boynton Beach Police Department are not fast. Average response times to emergency and non -emergency calls -for -service are somewhat long — emergency calls are responded to within 7 minutes and 6 seconds on average and non -emergency calls are responded to within 15 minutes and 24 seconds on average. A better measure of the actual response times achieved by the Police Department is the response time achieved by the department 90 percent of the time. On this measure response times to emergency and non -emergency calls for service are much longer — emergency calls are responded to within 13 minutes and 4 seconds 90 percent of the time while non -emergency calls are responded to within 31 minutes and 49 seconds 90 percent of the time. The analysis presented in Chapter V, however, suggests that the response times do not result from a lack of patrol resources. On the contrary, the staffing analysis presented in Chapter V suggests that substantially improved response times can be achieved with somewhat fewer patrol staff. Instead, existing patrol practices appear to unnecessarily lengthen response times. In particular, response times appear to be longer than necessary for the following reasons: ■ Practices associated with assigning officers to districts prevent officers from responding to calls even when they are available to do so ■ More officers than are needed respond to some calls -for -service w Patrol officers are taken out of service to support proactive and administrative activities which results in their not being available to respond to calls ■ Officers do not consistently return to service quickly after responding to calls ■ Deploying dedicated prisoner transport vans reduces the number of officers available to serve as the primary responder on calls ■ Not enough vehicles are deployed to ensure one officer is always assigned per vehicle Recommendations to address each of these issues follow. Procedures should be established to ensure that assigning officers to districts does not materially delay call response or hamper efforts for officers to work together collaboratively. Assigning patrol officers to individual patrol districts has a number of advantages: officers become familiar with the district to which they are assigned; residents in the district have a better chance to get to know the officers; and district needs can provide a focus for the proactive activities officers perform when they are not responding to calls. At present, however, assigning officers by district creates a geographic and supervisory focus that hinders efforts to ensure good service throughout the City. For example, some sergeants are reportedly reticent to discipline or counsel officers who are not assigned to their district. Similarly, some officers are reticent to IV -7 respond to calls outside their district. Indeed, whether or not officers are dispatched to calls outside their district appears to vary depending on the dispatcher and the sergeant working the shift. While high priority calls are always dispatched out of district, dispatchers may or may not hold other calls. Likewise, the sergeants who have the authority to override dispatcher decisions about whether a call should be held may or may not do so. The Department should clarify expectations with regard to how the district concept should be implemented. The primary focus of the districts should be to tailor proactive services to address the district's needs. Officers assigned to the district (and discretionary patrol resources as necessary) should be assigned responsibilities by the district's sergeant consistent with those plans. When it comes to responding to calls -for - service, however, officers should be expected to work together to meet response time expectations. While dispatchers should have the authority to hold calls to increase the probability that officers from the district can respond to calls in that district, calls should not be held if doing so will result in response expectations not being met. The number of officers responding to some calls should be reduced. There are two primary reasons that more officers than are needed to ensure officer safety respond to some calls. First, the Department dispatches two officers to some types of calls (e.g., graffiti, missing juvenile, traffic stop and unwanted guest) that other departments send one officer. Second, officers self -respond to some calls to which they are not dispatched. The following table shows a number of call types for which the number of officers currently responding exceeds the recommended response. Two steps should be taken to address this issue. First, dispatch policies should be modified so that one officer only is initially dispatched to calls that other departments dispatch one officer to. Second, patrol sergeants should monitor response to calls and discourage response to calls where officers are not needed. Officers should not be taken out of service to support proactive initiatives or administrative activities when call volumes are expected to be high. At present, call response times are lengthened because officers are removed from service to perform proactive or administrative activities during periods of high call volumes. In some cases, officers take themselves out of service to perform self -initiated activities.$ Indeed as the following exhibit shows the number of self -initiated activities (identified as Radio Calls) performed by officers increases during the hours from 4:00 p.m. to 11:00 p.m. when calls -for service are high. 8 Examples of self -initiated calls include traffic stop, suspicious person, and police assist. IV -8 Current Recommended Call Type Response Response Difference Domestic 2.2 2.0 0.2 Assault In Progress 2.7 2.0 0.7 Alarm 2.1 2.0 0.1 Suicide Threat 2.5 2.0 0.5 Two steps should be taken to address this issue. First, dispatch policies should be modified so that one officer only is initially dispatched to calls that other departments dispatch one officer to. Second, patrol sergeants should monitor response to calls and discourage response to calls where officers are not needed. Officers should not be taken out of service to support proactive initiatives or administrative activities when call volumes are expected to be high. At present, call response times are lengthened because officers are removed from service to perform proactive or administrative activities during periods of high call volumes. In some cases, officers take themselves out of service to perform self -initiated activities.$ Indeed as the following exhibit shows the number of self -initiated activities (identified as Radio Calls) performed by officers increases during the hours from 4:00 p.m. to 11:00 p.m. when calls -for service are high. 8 Examples of self -initiated calls include traffic stop, suspicious person, and police assist. IV -8 Citizen and Officer Initiated Calls 2500 ..... 2000 •. 1500 — � ..... -•••••• Radio Calls 1000 — –Citizen Responses 500 Y Q 1 3 5 7 9 11 13 15 17 19 21 23 Interview results also suggest that it is not uncommon for sergeants to take officers out of service to perform proactive or administrative activities during periods when call response is high. To address this issue sergeants should be provided information on call activity by time of day and should be held accountable for ensuring that the number of officers needed to ensure a fast response are available for response during these hours. Officers should be encouraged to return to service quickly when no longer needed on a call and to notify dispatch that they are available. While the time officers respond to calls is not long, anecdotal evidence suggests that officers do not consistently return to service quickly after calls and do not notify dispatch that they are available for calls. In particular, both internal and external interviewees noted that officers sometimes congregate in parking lots for relatively long periods of time. While some "water cooler" time is unavoidable (and may be productive) sergeants should ensure that officers are in-service when not busy on calls. Dedicated prisoner transportation should be provided on an "as needed" basis only. Transport vans are deployed on most shifts9 to transport prisoners to the Sheriff's Office. In addition to providing assistance in transporting prisoners the van operator will help "rough out" the arrest report and will prepare the prisoner's property receipt. Deploying transport vans is warranted under two circumstances. First, it is cost effective to deploy the transport van when multiple persons are being transported to the jail. Under such circumstance not only will less time be devoted to transporting prisoners, bui one officer will be tied up waiting to transfer custody of the prisoners to the jail (a process that reportedly can be quite lengthy). Deploying a transport van is also appropriate when the arresting officer is assigned a vehicle without a prisoner shield and cannot safely transport prisoners in their unit. (Currently slightly fewer than 40 percent of patrol units are equipped with prisoner shields.) 9 When operating at minimum staffing levels the transport van will not be deployed. IV -9 At other times, however, dedicating an officer to a transport van is not an effective use of resources. Indeed, deploying transport vans will likely increase response times because transport van officers are typically not dispatched as the primary responder to calls. (Transport van officers will provide back-up assistance on calls, however.) Three steps should be taken to address this issue. First, dedicated staff should not be assigned transport duty on a shift — instead a sergeant should assign an officer to transport prisoners when circumstances indicate doing so will be cost effective. Second, all patrol vehicles should be equipped with prisoner shields.10 Third, the Department (and other county police departments) should encourage the sheriff to re-engineer the prisoner transfer process so that the time officers are out of service delivering prisoners to the jail can be reduced. The department should reassess the terms of its take home car program. Take home car programs for uniformed police officers provide a number of benefits for the community: ■ Patrol visibility is increased ■ The ability to mobilize the force quickly for emergencies is enhanced ■ Utilization of patrol staff is increased ■ Maintenance costs are decreased ■ Morale is improved The Department, therefore, should be commended for having a take home car program. The terms of the current program, however, do not appear to adequately consider the number of vehicles available to support patrol operations and do not ensure that the vehicles that are available are used to maximum effect. Until recently not enough vehicles have been available to both support the take home car program and the deployment of officers on each shift. As a result, officers report having to "double up" from time to time" which reduces operational efficiency (two officers are assigned to calls where only one is needed) and increases response time (fewer units are available at a given time to respond to calls.) In addition, for officers who are eligible for take home cars 12 priority is based on seniority not on whether the officer lives in the City. The greatest benefit of the program to Boynton Beach residents is increased visibility. This benefit is significantly reduced when officers who do not live in the City take cars home while officers who do five in the City are not provided take home vehicles. 10 Reportedly, the Department is already working to install prisoner shields in all patrol vehicles. 11 These interview findings are supported by the results of the employee survey. Forty-four percent of survey respondents disagree or strongly disagree that they have sufficient access to vehicles to effectively perform their job responsibilities. 12 Patrol officers who live within 20 miles of the City are eligible for take home vehicles. IV -10 To address these issues terms of the Department's take home car program should be modified. First, officers should be provided take home cars only if sufficient vehicles are available to ensure all patrol officers are assigned a vehicle. Second, officers who live in the City should be given priority for take home vehicles over officers who do not live in the City regardless of rank and seniority. Lights And Sirens Should Be Used To Respond To Calls Only When Timely Response Is Needed At present, patrol officers sometimes use lights and sirens to respond to calls even when a fast response is not needed — for example, to property crimes where the perpetrator is not at the scene. Using lights and sirens to respond to calls when it is not needed creates a safety risk for both officers and citizens. In addition, the risk of damage to vehicles is increased. To address this issue, sergeants should work with officers to ensure that lights and sirens are used to respond to incidents only when warranted. The Department Should Consider Installing Automatic Vehicle Locators (AVLs) On Patrol Cars AVLs automatically track the location of patrol vehicles. While these systems are a supervisory tool and can aid supervisor efforts to monitor the officers they oversee, even more importantly AVL systems enhance officer safety. If an officer is in need of assistance the AVL can immediately and accurately identify his or her location. TRAFFIC ENFORCEMENT ISSUES Traffic Enforcement Officers Should Focus On Activities That Will Reduce Traffic Accidents While traffic officers are not given a quota of tickets they should write they are encouraged to be productive. This emphasis on writing tickets may, however, divert attention from what should be one of the unit's primary objectives — reducing the number of injury accidents in the City. This issue can be addressed by ensuring traffic officers' productivity is measured not just in terms of the total number of tickets written but by tickets written that will reduce behaviors associated with injury accidents. A weighting system should be established so that more credit is given for tickets written for violations that are correlated with injury accidents and in areas where the volume of injury accidents is high. Officer productivity should then be evaluated based on the weighted number of tickets written. The Department Should Establish Expectations For How Quickly Traffic Related Complaints Are Addressed One important function traffic officers currently perform is responding to traffic related complaints from citizens (for example, of speeding in a residential neighborhood). While traffic officers indicate that they try to respond to complaints quickly the range of IV -11 response times reported — from within one day to within a couple of weeks — is broad. As discussed in Chapter VI, the Department should establish an expectation for how quickly traffic complaints should be responded to. The Department should then monitor success in meeting this expectation and should strive to meet the expectation 90 percent of the time. CODE COMPLIANCE ISSUES Code Compliance Should Be Integrated Into The Plans Captains Develop To Address Community Needs One important benefit of having code compliance included as part of the Boynton Beach Police Department is that code compliance can be used to help address community policing needs. Many police departments use code compliance to address quality of life issues in their communities. In addition, in some cases, code compliance powers can be used to address problems where traditional policing power cannot. While law enforcement and code compliance resources are sometimes used together to address needs in Boynton Beach the Department does not appear to take full advantage of these opportunities. In the future, therefore, the captains charged with developing plans to address community needs should explicitly consider how code compliance could be used to support these efforts. Dispatchers Should Receive Additional Training On The Types Of Calls That Can Be Handled By Code Compliance Officers Code compliance officers report that it is not uncommon for dispatchers to send them to a call — such as an overgrown hedge — that they have no authority to address. Sending code compliance officers to address non -code issues is not an effective use of officer time. Dispatchers should therefore receive additional training on the types of calls that can be handled by code compliance officers. INVESTIGATIONS ISSUES Sergeants Should Oversee The Department's Investigative Units At present, each of the Department's five investigative units (major cases; special victims; white collar; property; and crime scene, asset forfeiture, and evidence) are led by officers -in -charge rather than by sergeants. While using officers -in -charge as a short- term expedient to lead units (if, for example, sufficient sergeants to lead units have not been promoted) is reasonable, using officers -in -charge in lieu of sergeants is not a good practice (even if the existing officers -in -charge seem to generally be performing well as supervisors). Officers -in -charge have not gone through a selection process to determine whether they have the skills and capabilities to function as supervisors. (Some sergeants who have been promoted resent the fact that officers -in -charge are granted supervisory responsibilities without having had to go through a selection process.) In addition, using officers -in -charge in lieu of sergeants reduces transfer opportunities for sergeants in other units who would like to broaden their experiences. IV -12 If sergeants are not performing effectively in their supervisory role management attention should be focused on helping them improve (and eventually demoting them if necessary). They should not be transferred to another unit unless there is a reason to believe they will be successful in their new assignment. Sergeants therefore should be assigned to oversee the Department's investigative unit. One sergeant should therefore assume responsibility for overseeing each of three primary investigative units — major cases, special victims, and white collar and property/evidence. (The white collar and property/evidence units that were previously together should be recombined when this recommendation is implemented.) As discussed in Chapter 111, a civilian supervisor should be charged with overseeing the crime scene, property/evidence, and asset forfeiture units. The Functions Assigned To The Major Cases Unit Should Be Modified A number of disparate functions currently report to the major cases unit: ■ Investigation of major crimes (e.g., robbery, home invasion, aggravated battery, aggravated assault, suspicious death, suicide, and homicide) ■ A NIMS detective who ensures the Department complies with requirements for access to the NIMS system, serves as a domestic prevention officer, and provides crime analysis support ■ A civilian crime analyst ■ A civilian animal cruelty officer As discussed in Chapter III, when the recommended structure is implement the animal cruelty officer will be assigned to the specialized enforcement unit13 and the analysis and intelligence functions currently performed by the NIMS detective 14 and the crime analyst will report to the patrol captains. Since only four detective positions will remain in the unit the sergeant who leads the revised unit should assume a small caseload. 15 In addition, one of the four detectives should serve as the Department's domestic prevention officer and ensure compliance with NIMS requirements. 13 As discussed in Chapter III, the animal cruelty officer will report to the specialized enforcement lieutenant initially. After an additional lieutenant is assigned to patrol and lieutenants begin sharing responsibility for overseeing specialized enforcement functions, the animal cruelty officer will report to one of these six lieutenants. 14 As discussed in Chapter VIII, the crime analysis and intelligence functions currently handled by the NIMS detective should be performed by a civilian. 15 While the sergeant who oversees this unit should have the capacity to handle a small caseload care should be taken in determining the number and type of cases assigned to ensure the sergeant's ability to perform his or her primary responsibilities — oversight and supervision — are not compromised. IV -13 COMMUNICATIONS ISSUES The Communications Center Should Hire In Advance Of Positions Becoming Vacant At present, the communications center does not hire in advance of positions becoming vacant. The time required before a new communications center employee is fully functional, however, is lengthy. In addition to the time required to fill the vacancy nine months of training is provided before the employee is authorized to function independently. Consequently, the unit is short-staffed for up to 10 months after vacancies occur. To address this issue, conservative hiring in advance of need based on historical turnover levels should be authorized. Communications Shift Supervisors Should Report Directly To The Records And Communications Manager At present, communications shift supervisors report to a sergeant who in turn reports to a lieutenant (who also oversees the records unit). Three supervisory positions — at present the two sergeants who oversee records and communications and the lieutenant they report to — are not needed to oversee these functions. A single civilian manager can directly oversee communications operations while also providing management support for the records supervisor. TECHNICAL SERVICES ISSUES Contractor Resources Should Replace One Of The Positions Assigned To The Technical Services Unit A civilian technical services manager currently leads the technical services unit which is staffed with two civilians and an officer. Depending on the project work being undertaken this level of staffing seems appropriate. However, with such a small staff it is difficult to ensure the capabilities needed to handle the range of issues and projects necessary to address the Department's needs are resident in unit staff. If, however, one of the full-time positions was replaced with as needed contract resources the unit manager would have more flexibility in tapping specialized expertise and would be better able to adjust staffing when the volume of special projects makes it possible to do so. IV -14 V -- STAFFING AND SCHEDULING V-1 V — STAFFING AND SCHEDULING' This chapter presents staffing and scheduling recommendations for the following Police Department functions: patrol, communications, and professional standards. Please note that staffing levels were evaluated for other functions (most notably investigations) but no change in staffing for these functions is recommended. A — PATROL STAFFING AND SCHEDULING This section is divided into four subsections. The first subsection presents an overview of the process used to evaluate patrol staffing. The second subsection presents staffing recommendations under two scheduling alternatives. The third subsection discusses supervisory needs and the final subsection compares the recommended number of patrol officers to the number that are currently deployed. PROCESS FOR DETERMINING STAFFING NEEDS The process for evaluating patrol staffing needs is divided into 10 steps. Step 1: Determine response expectations. As discussed in Chapter IV, response times to emergency2 and non -emergency calls3 in Boynton Beach are not fast. Emergency calls are responded to within 13 minutes and 4 seconds 90 percent of the time and non -emergency calls are responded to within 31 minutes and 49 seconds 90 percent of the time. Expectations for substantially improved response times are incorporated into this analysis. The analysis assumes that response times at the 90I percentile to emergency calls will be reduced to 6 minutes and response times to non- emergency calls will be reduced to 15 minutes. Staffing results are based on the best information the Department was able to provide and the consultants' interpretation of this data. Z Emergency calls include the following: ROB BANK IN PROG, BURG IN PROG, ABDUCTION, DROWNING, OFC NEEDS HELP, RIOT, THEFT IN PROG, ASSAULT IN PROG, SUICIDE ATTMPT, SHOOTING, STABBING, RAPE, FIGHT W/WPMS, FIGHT NO WPNS, FIGHT LINK WPNS, SUICIDE THREAT, ROBBERY ARMED, ROBBERY BANK, ROBBERY STRNG, AIRPLANE CRASH, PURSUIT, ACC/INJ, DEATH, EXPLOSION, ALS, RAPE JUST OCC, VEHICLE FIRE, CLS, STOLEN AUTO/PRO, SHOTS FIRED. 3 Non -emergency calls include the following: 911 HANGUP, 911 INFO, 911 NUISANCE, 911 OPEN LINE, ABAND VEH, ABUSE -ADULT, ACC W/O INJ, ALARM BANK, ALARM COMM, ALARM, DEVICE, ALARM RES, ALARM VEH, ASSAULT DELAYED, BFIRE, BLS, BURG DELAYED, CHILD ABUSE, CHILD ABUSE DCF, CHILD LOCKOUT, CHILD MOLEST, CITY ORD VIOL, CIVIL MATTER, DECEASED, DISTURB GEN, DISTURB NOISE, DOMESTIC, DUMPSTER FIRE, ELDERLY ABUSE, FINANCE RUN, FIRE, FIRE ALARM, FORGERY, FRAUD, GAMBLING, GRAFFITI, HIT & RUN, 195 ACCIDENT, JUV TRBL, LEWD LASC PROG, LOST/FOUND PROP, LOUD MUSIC, MET ILL PERSON, MISSING ADULT, MISSING JUV, NEIGHBOR TRBL, OBSCENE CALLS, PFI RE, RECKLESS DRVR, RUNAWAY JUV, SHOPLIFTER, STALKING, STOLEN TAG, SUSP INCIDENT, SUSP ITEM, SUSP PERSON, SUSP VEHICLE, THEFT DELAYED, TRASH DMP, TRESPASS, UNWANTED GUEST, VAND DELAYED, VAND IN PROG, VERBAL DISP, VERBAL THREATS, VICE, WARRANT ARREST, WELFARE CHECK. V-2 Step 2: Determine the number of citizen -initiated calls -for -service responded to. CAD data for the period from January 1, 2012 to December 31, 2012 was used to determine the number of citizen -initiated calls patrol officers respond to. A total of 33,754 citizen -initiated calls (an average of 92 per day) were received during this period. Step 3: Change the categorization of some calls from "non -emergency" to "emergency." Only eight percent of calls -for -service in Boynton Beach are characterized as emergency calls while in other communities the consultants have served this number ranges from 20 to 33 percent. To ensure the Boynton Beach Police Department has enough capacity to respond to higher percentage of calls quickly (that is, within 6 minutes 90 percent of the time) 15,792 of the calls classified as non- emergency calls in Boynton Beach were reclassified as emergency calls. After reclassifying these calls 58 percent of the calls in Boynton Beach are considered emergency calls that need to be responded to within 6 minutes 90 percent of the time. 4 Step 4: Adjust the number of calls to reflect the fact that some call types require more than a one -officer response. Some types of calls require two or more officers to respond. Using information provided by the Department calls -for -service received by hour of the day and day of the week were weighted to reflect the number of officers required to respond to calls. Step 5: Determine which calls should be handled by sworn officers and which calls should be handled by civilians. At present, all calls -far -service are handled by sworn officers. However, discussions with Department managers suggest that civilian community service officers can effectively handle a number of call types. Step 6: Consider how traffic affects the time it takes patrol officers to respond to calls in some areas of the City at certain times of the day. In Boynton Beach the time it takes for patrol officers to drive to calls can be significantly affected by traffic during some times of the day. Information from the City's traffic engineer was used to determine the hours of the day when traffic would affect response times as well as the areas of the City where traffic congestion is a problem. This information was then incorporated into the model used to estimate staffing needs. Step 7: Use queuing analysis and travel time analysis to determine the number of officers that need to be deployed to meet response time expectations during each hour of the week. Response times to calls include the time a call must be held waiting for an officer to become available and the time required for an officer to travel to the call location.5 Queuing analysis — which estimates the time a call will be held because no ° Please note that although the percentage of emergency calls in Boynton Beach after this reclassification exceeds the percentage in other jurisdictions the consultants have studied, no additional capacity is needed to respond to a higher percentage of calls quickly. Indeed, the number of patrol officers that are needed to respond to 58 percent of calls -for -service within six minutes 90 percent of the time is no fewer than the number needed to respond to a lower percentage of calls using this response standard. 5 In addition, the time to initially process the call, assumed to be one minute, is included in the response time. V-3 officer is available for response — incorporates information on the average number of officer responses needed by hour of the day and day of the week (calculated in Step 4) and the average time officers spend providing service on a call. The elapsed call times used in the queuing analysis was determined based on the average time officers currently spend handling calls for each call priority. Travel time analysis, which estimates the time required for officers to travel to the call location, is a function of the number of officers available for response (calculated by the queuing analysis) and the speed of response. Appropriately, response speeds vary by the call's priority and the need for a speedy response. In addition, response speeds were adjusted to reflect traffic congestion (based on the analysis conducted in Step 6). Step 8: Develop preliminary schedule. Based on the number of staff that meed to be deployed to meet response time expectations during each hour of the day (calculated in Step 7) the number needed during each patrol shift is calculated (based on the scheduling alternative being evaluated).6 Step 9: Confirm that adequate time is available for officers to perform administrative duties and to support proactive initiatives. In addition to responding to calls patrol officers need time to perform administrative duties on each shift and also need time to support proactive initiatives. To determine the amount of time that should be available to support administrative duties an activity analysis survey was performed in which patrol officers indicated the time they currently devote to administrative activities (the results of this analysis is presented in Appendix A). Based on the survey results, 40.1 percent of officer time is allocated to support administrative activities.' In addition, adequate time must be available for patrol officers to support proactive initiatives. At recommended staffing levels patrol officers will have a total of 800 adjusted hours available to support proactive initiatives or 2.2 times the number of hours officers currently spend responding to calls.e (Other jurisdictions the consultants have studied try to ensure that the time available for officers to be proactive at least equals the time spent responding to calls.) Step 10: Adjust staffing levels to account for expected absences. A relief factor was calculated for sworn officers based on information on actual absences from January 2012 to December 2012. The number of officers needed on each shift (for a given scheduling alternative) is multiplied by the relief factor to ensure sufficient officers will be deployed each day to meet response expectations. 6 As discussed in the next subsection, staffing needs under two scheduling options were developed. While the percentage of time officers devote to administrative activities is somewhat higher in Boynton Beach than in other jurisdictions the consultants have studied, no change in the administrative time allocation was incorporated into the analysis (as this relatively high proportion of time devoted to administrative activities does not affect staffing recommendations). 6 The time staff are available to support proactive initiatives is calculated by subtracting call response time and administrative time from the total time staff are available. This level of proactive capacity is then reduced by 25 percent to reflect the fact that the time patrol officers devote to proactive initiatives between calls is less productive than the time dedicated staff (such as the CAT team) are available to support proactive initiatives. V-4 STAFFING RECOMMENDATIONS In addition to evaluating staffing needs under the current schedule, alternative schedules under which officers continue to work 11.5 hours per shift but start shifts at different times were also evaluated to determine whether these alternative schedules better matched staffing needs and workload. A range of scheduling alternatives was evaluated but two schedules were considered the most practical for the Boynton Beach Police Department. ■ The current schedule in which 11.5 -hour shifts begin at 4:30 a.m.; 9:00 a.m., 3:30 p.m., and 5:30 p.m. ■ The alternative schedule in which 11.5 -hour shifts begin at 6:00 a.m., 3:00 p.m., and 7:00 p.m. To meet service expectations under the current schedule, 42 sworn officers and 8 CSOs are needed.' Detailed schedules showing the number of CSOs and officers needed per shift for this alternative are presented in Exhibit V-1 and Exhibit V-2. To meet service expectations under the alternative schedule, 40 sworn officers and 8 CSOs are needed.'' A detailed schedule showing the number of officers needed per shift for this alternative is presented in Exhibit V-3. (There is no change in the schedule for the CSOs.) SUPERVISORY STAFFING NEEDS When determining the number of first-line supervisors (sergeants) needed for each scheduling alternative it was assumed that a span of control for one sergeant for every eight officers or CSOs assigned to a shift was appropriate. For the current schedule 3 sergeants are needed on the 4:30 a.m. shift, 3 sergeants are needed on the 3:30 p.m. shift, and 3 sergeants are needed on the 5:30 p.m. shift for a total of 9 sergeants." 12 For the alternative schedule 3 sergeants are needed on the 6:00 a.m. shift, 3 sergeants are needed on the 3:00 p.m. shift, and 3 sergeants are needed on the 7:00 p.m. shift for a total of 9 sergeants. 9 Civilian officers are staffed from 7:00 a.m. to 11:00 p.m. only. (During other hours of the day, the number of sworn officers needed to handle calls requiring a sworn officer response also have the capacity to handle calls that can be handled by civilians.) If sworn officers continue to respond to all calls -for -service 50 officers are needed. 1° If sworn officers continue to respond to all calls -for -service 48 officers are needed. " Sergeants on the 4:30 a.m. and 3:30 p.m. shifts should supervise the officers reporting to work at 9:00 a.m. 12 Two sergeants should be working on each shift. To ensure two sergeants are working after adjusting for expected absences three sergeants should be employed per shift. V-5 Exhibit V-1 RECOMMENDED NUMBER OF OFFICERS NEEDED PER SHIFT - CURRENT SCHEDULE Squad A3: 4:30 a.m. to 4:00 p.m. 5 1.3 7 Squad A4-.9-.00 a.m. to 8:30 p.m. 1 1.3 1 Squad B3: 3:30 p. m. to 3:00 a.m. 6 1.3 8 Squad B4: 5:30 p.m. to 5:00 a.m. 4 1.3 5 TOTAL 32 42 Each squad works a two on, two off, three on, two off, two on, three off, three on shift schedule Number of Officers Working Relief Number of Each Shift Factor Officers Needed Squad Al'. 4;30 a.m. to 4:00 p.m. 5 1.3 7 Squad A2: 9:00 a.m. to 8:30 p.m. 1 1.3 1 Squad Bl: 3:30 p.m. to 3:00 a.m. 6 1.3 8 Squad B2: 5:30 p.m. to 5:00 a.m. 4 1.3 5 Squad A3: 4:30 a.m. to 4:00 p.m. 5 1.3 7 Squad A4-.9-.00 a.m. to 8:30 p.m. 1 1.3 1 Squad B3: 3:30 p. m. to 3:00 a.m. 6 1.3 8 Squad B4: 5:30 p.m. to 5:00 a.m. 4 1.3 5 TOTAL 32 42 Each squad works a two on, two off, three on, two off, two on, three off, three on shift schedule Exhibit V-2 RECOMMENDED NUMBER OF CSOs NEEDED PER SHIFT - CURRENT AND ALTERNATIVE SCHEDULE Staffing adjusted Number for expected Shift working absenses Schedule Sunday Monday Tuesday Wednesday Thursday Frlday Saturday Day 7:00 a.m. to 3:00 p.m. 0 0 0 0 0 0 off off 1 off 1 1 1 1 1 off 0 off off 0 0 0 0 0 1 1 off off 1 1 1 1 0 0 0 off off 0 0 0 0 0 0 0 off off 0 0 1 1 1 1 1 off off 1 Total 3 4 2 2 2 3 2 2 2 Evening 3:00 pm. to 11,00 p.m. 0 0 0 0 0 0 off off 1 off 1 1 1 1 1 off 0 off off 0 0 0 0 0 1 1 off Off 1 1 1 1 0 0 0 off off 0 0 0 0 0 0 0 off off 0 0 1 1 1 1 1 off off 1 Total 3 4 2 2 2 3 2 2 2 TOTAL B Exhibit V-3 RECOMMENDED NUMBER OF OFFICERS NEEDED PER SHIFT - CURRENT SCHEDULE Number of Number of Officers Relief Officers Working Each Shift Factor Needed Squad Al 6:00 a.m. to 5:30 p.m. 5 1.3 7 Squad B1 3:00 p.m. to 2:30 a.m. 6 1.3 8 Squad B2 7:00 p.m. to 6:30 a.m. 4 1.3 5 Squad A3 6:00 a.m. to 5:30 p.m. 5 1.3 7 Squad B3 3:00 p.m. to 2:30 a.m. 6 1.3 8 Squad B4 7:00 p.m. to 6:30 a.m. 4 1.3 5 TOTAL 30 40 Each squad works a two on, two off, three on, two off, two on, three off, three on shift schedule IMPLICATIONS Comparisons of current and recommended staffing focus only on the number of officers who currently handle calls -for -service. No change to the number of officers who perform other functions — such as traffic enforcement, marine enforcement, crime prevention, and the community action team — are recommended. These officers are therefore excluded from this analysis. Current Schedule Staffing recommendations under the current schedule suggests a net reduction of 13 positions. Police officer staffing can be reduced by 21 positions but the number of civilian CSOs should increase by 8 positions.13 Under this schedule the number of sergeants assigned to patrol will be reduced by 9 positions. Alternative Schedule Staffing recommendations under the alternative schedule suggests a net reduction of 15 positions. Police officer staffing can be reduced by 23 positions but the number of civilian CSOs should increase by 8 positions. Current Recommended Staffing Addition/ Position Staffing (Current Schedule) (Reduction) Police Officers 63 42 (21) CSOs 0 8 8 Total 63 50 (13) Under this schedule the number of sergeants assigned to patrol will be reduced by 9 positions. Alternative Schedule Staffing recommendations under the alternative schedule suggests a net reduction of 15 positions. Police officer staffing can be reduced by 23 positions but the number of civilian CSOs should increase by 8 positions. B — COMMUNICATIONS STAFFING AND SCHEDULING This section is divided into four subsections. The first subsection presents an overview of the process used to evaluate communications staffing. The second subsection presents staffing recommendations and the third subsection presents supervisory staffing needs. The final subsection compares the recommended number of dispatchers to the number that are currently deployed. 13 Please note that rather than reduce positions the City may choose to direct patrol officers to the support of proactive initiatives. V-6 Current Recommended Staffing Addition/ Position Staffing (Alternative Schedule) (Reduction)_ _ Police Officers 63 40 (23) CSOs 0 8 8 Total 63 48 (15) B — COMMUNICATIONS STAFFING AND SCHEDULING This section is divided into four subsections. The first subsection presents an overview of the process used to evaluate communications staffing. The second subsection presents staffing recommendations and the third subsection presents supervisory staffing needs. The final subsection compares the recommended number of dispatchers to the number that are currently deployed. 13 Please note that rather than reduce positions the City may choose to direct patrol officers to the support of proactive initiatives. V-6 PROCESS FOR DETERMINING STAFFING NEEDS The process for evaluating communications staffing needs (which are incorporated in the staffing model that accompanies this report) is divided into six steps. Step 1: Establish service expectations. The analysis assumes that a dispatcher will be available to handle a 911 call 99 percent of the time. (This level of staffing ensures 911 calls will not be held.) In addition, the analysis assumes that non -emergency calls will be handled within two minutes 90 percent of the time. Step 2: Determine the number of calls handled by hour of the day. Since information on communications center workload was not available, CAD data from the period from January 1, 2012 to December 31, 2012 was used as a starting point for determining the number of calls received by the communications center. This data was then adjusted based on the experience of other cities the consultants have studied. in particular, 911 calls were multiplied by a factor of 2.3 to reflect the fact that the communications center often receives multiple calls for each incident (especially when accidents occur on the highway. )14 Step 3: Use queuing analysis to determine the number of call takers needed by hour of the day. The two inputs into the queuing analysis are the number of calls handled by hour of the day and day of the week (determined in Step 2) and the average time required to handle each call. Call handling time was assumed to be 2.4 minutes. (No data was available, so the analysis was based on what the consultants have seen in other cities.) Step 4: Develop preliminary schedule. Based on the number of staff that need to be deployed to meet response time expectations during each hour of the day (calculated in Step 3) the number needed during each shift is calculated. Step 5: Determine the number of public safety dispatchers that are needed. The analysis assumes that one dedicated dispatcher who does not handle calls will be available to dispatch police officers. 15 14 Calls designated in the CAD system as 911 in the "How Received" field were included as 911 calls and those designated as "T" (telephone) were included as non -emergency calls. Calls with no "How Received" entry were not included (although some 911 calls made from cell phones have no entry in the "How Received" field). 15 A fire dispatcher and an information channel dispatcher will also handle calls. This level of dispatch capacity —one dedicated dispatcher and two dispatchers who also handle calls — should be adequate as the number of calls handled by each dispatcher is low. Indeed, on the day shift the one call taking position recommended will spend only 20 percent of his/her shift handling calls. On the night shift the one call taking position recommended will spend only 16 percent of his/her shift handling calls. (There are 64 hours (38 percent of the number of hours in a week) where two call takers are needed to provide the 99 percent assurance that someone is available to handle a call.) V-7 Step 6: Adjust staffing levels to account for expected absences. The relief factor for dispatchers was calculated based on information on actual absences from January 2012 to December 2012. The number of dispatchers needed on each shift (for a given scheduling alternative) is multiplied by the relief factor to ensure sufficient staff will be available each day to meet response expectations. STAFFING RECOMMENDATIONS In addition to evaluating staffing needs under the current schedule, alternative schedules under which dispatchers continue to work 12 hours per shift but start shifts at different times were also evaluated to determine whether these alternative schedules better matched staffing needs and workload. No schedule was identified, however, that would reduce the number of communications staff needed. To meet service expectations one dedicated call taker, one dedicated dispatcher, and two dispatchers who also handle calls are needed on each shift. As Exhibit V-4 shows, a total of 20 dispatchers are needed after accounting for expected absences. SUPERVISORY STAFFING NEEDS One supervisor should be deployed on each shift. To cover all shifts a total of four supervisors are needed. In addition, one supervisor should continue to be assigned responsibility for quality assurance. IMPLICATIONS If the current schedule is maintained 20 communications center positions will be needed or two more than the current number. No change in the number of communications supervisors is recommended. C — PROFESSIONAL STANDARDS STAFFING The professional standards caseload is low. In 2012, 2.33 investigators'6 handled 19 cases" or an average of 8.15 cases per year. The unit should be able to handle this caseload with one fewer investigator (which will bring the annual caseload up to 14.3 cases) even after considering that professional standards investigators also conduct background investigations. 18 16 One investigator divides his time between investigations, public records requests, and serving as the public records custodian. 17 The division investigated 21 additional cases. 18 Please note that contract staff should be used to support background investigation efforts as necessary. kTW % 7 t # # 0 t # \ $ t # # 0 # # LL � \ t # 0 # # 0 / � / § m a # a a # \ / \ # \ # 0 # / \ # t # # 0 t � \ / 7 f # t # # 0 # 3 0 / cn cu a- / / \ ƒ moa _0 e E 0 � & / % EJ � # # c # # m % ( k 2 \ F E Q- \ � $ � o 0 @ E E \ $ \ f k / 0 0 a a k k a « c/ �/ / t\ w w ƒ / 0 a z 6 VI - PERFORMANCE METRICS VI -1 VI — PERFORMANCE METRICS Performance metrics have been established for each of the major functions performed by the Boynton Beach Police Department (see Exhibit VI -1). For each function, these metrics assess both the cost and the quality of services provided. Moreover, in addition to using information on results achieved to evaluate performance (that is response times, cases accepted for prosecution, and service wait times) surveys are used to assess perceptions of the quality of service provided. These surveys include employee surveys, manager surveys, surveys of all residents, and surveys of residents who have received police services. 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L y U U a) f6 E N E C U — Y 3 us cn U R U .0 (a a) U c .� 'm '� N T O U T O U D N O C [p ; E O)p O N E O 2 p E 10 L U E O y U N OU (o N d 7 W a 0 O c O O O U w C N O� C �'� wD '5 w C pm C pm U `m Q C io O m U iv N U OW O- E E E E E E 2 a a E in — vii N 3 C 7 07 3 3 7 O cOii 0 N x O x C O a) C n a) C z z z z z U C� z U O C m ■ ■ ■ ■ ■ ■ ■ ■ ■ ■ ■ ■ ■ m C ! ate) N a) �2 EV aJ U E p a) ❑ L) fU4 U O 3 C 41 N U O O d U L) vOi 'p a.d E C C p Q C ca y C m 0 fn •—U(nQ W T p p M O m tC vi E O C [0 N CL .^_ -o a) O C 073— fp U R d Vj Q) Q) O m -O C 'a O N a) 7 f9 O t2 E N� p a (D ❑ in - a) 4 0 O 4 U C O W U 7 U a En N ■ ■ ■ 0 ■ VII - OUTSOURCING ANALYSIS vii -i VII — OUTSOURCING ANALYSIS The savings that might be achieved by outsourcing a service cannot be determined until the service is actually put out to bid. Since there is a significant cost associated with the bidding process care should be taken to only put services out to bid where there is a reasonable prospect that the savings (and other non -pecuniary benefits) will exceed the costs and risks. In reviewing Boynton Beach Police Department operations to identify the services, functions, and activities for which obtaining bids is warranted a systematic framework was used to weigh the potential benefits of outsourcing against the costs and risks. This framework had two parts. First, the potential benefits of outsourcing were evaluated for each function and service performed by the Department. Then, for the functions and services for which outsourcing has the potential to be beneficial, the costs and risks of outsourcing were weighed against those benefits. Functions and services for which the potential benefits of outsourcing may exceed the costs and risks, and therefore should be put out to bid, were then identified. Please note that for the purposes of this analysis it was assumed that functions might be "outsourced" to the sheriff's office as well as to private service providers. ASSESSING THE POTENTIAL BENEFITS OF OUTSOURCING If they are well managed governments have significant cost advantages over private - sector firms when delivering services — they have no marketing and sales costs, no profit needs to be paid to owners, capital can be obtained at advantageous rates, and they do not have to pay taxes. Despite these advantages there are a number of reasons outsourcing might be beneficial even for well managed governmental entities. These reasons include the following: ■ Contracting out non-core services allows managers to focus more attention on improving core service offerings ■ Private firms have structural advantages that allow them to out -perform even the best managed governments (for example, private firms may be able to take advantage of economies of scale not available to a government) ■ Outsourcing allows a government to manage random fluctuations in workload and seasonal workload peaks more effectively ■ Government managers can use private contractors to overcome barriers to change ■ Private firms have more flexibility in acquiring needed equipment and hiring needed staff in a timely manner than governments ■ Risks associated with technological change can be shifted to the contractor VII -2 Each of these potential benefits was evaluated for the full range of functions and services performed by Boynton Beach Police Department using the following scale. Symbol Description 1 Mostly Supports Outsourcing O Somewhat Supports Outsourcing -- Does Not Support Outsourcing The result of this analysis, which is presented in Exhibit VII -1, suggests that outsourcing has the potential to be beneficial for the following 12 functions: ■ Provide call taking and dispatch services that support the police and fire departments ■ Provide specialized andlor tactical response and support — SWAT ■ Provide specialized and/or tactical response and support — marine ■ Provide automated traffic enforcement ■ Provide animal control services ■ Provide IT support to the Police Department (perhaps within City government) ■ Provide human resources support to the Police Department (perhaps within the City government) ■ Provide financial support to the Police Department (perhaps within the City government) ■ Provide purchasing support to the Police Department (only if part of a larger City initiative to outsource purchasing) ■ Collect evidence at crime scenes ■ Take in, store, release, and destroy property and evidence ■ Identify and respond to grant opportunities WEIGHING BENEFITS AGAINST COSTS AND RISKS The potential benefits of outsourcing should be weighed against the costs and risks of outsourcing before a decision to put a service out to bid is made. The costs associated with using outside contractors may be grouped into a number of broad categories: ■ Transaction costs. These costs include the administrative and legal expenditures associated with searching for potential contractors, selecting and contracting with them, monitoring the contract, and re -contracting VII -3 = W O Z 0LL 0 W W Um LLJ � J NO LL = ON ZZ W U W0 CO cn ~ a� O C�. C � L O'O_ - O } O z O Z O O Z O0 Z Z to w+ C 3 (V OU m cs � C � C rU V p -C C Q 3U ",C O v QED°' ! ! I ! I I I O m , M C ro LL0Z) IL_ a� a� ` co U M p En70 CDC m C O O cro C a p (V U i i O O ! ! ! 7 LLcyC S� N L 3 m ! ° ! I 3� y ° o ! o Eny) �E3 U I ° ! O ? O N QO x LL LU U V p I I I y C CL 070 V1 Q f0 O O Q O Q LO Q O a O� a Q) m y U E cn ami C � U U U E G p C C 0 C C O C U j C N O C CL !� CD U fD "6 (0 'b cC io Q1 E _V Q E N E E .D N N 41 N N N t9 L N O [p ;' O Q � C N N m Q G 0 N D Ql 0 N O V O O U CO cv m � p m� n cn v,2 Q WCL � 0 V) 0a) � Q N N 67 0 w C a OL (D 2 N v U Ql V c m -vi 0 0 75 y -0 w m 7@ m y ._ Q y y. C N N `m C � u> co (D w v, 0, L d V) a- D Y a- V E c - O U N X uJ 0 ■ ■ ■ ■ ■ ■ ■ ■ U') 5; o N .5N 1E 0) X M W a Lp �M o-0 0 z 0 z 0 z 0 z 0 z 0 z 0 z 0 z cn } N c Ov is V 0 C i CU L O L U Q1 �0E _N 7(E UO w 2 w 0 a� O Z ! , O� �() c mo w w 7� J cot° o W� �° `°�0 ! ! I ! I I I o cn 0 w=��— ON 0 ZZ ��' ! ! ! ! g� `ro ! ! ! I O U)p `� Q wN U) N Q0 �Ea� I I I O W Q CL I I I I x U - OL o rn V 0 V a7 a) N L) a � p 6 N c o c n� Q E � c 5 D E Eo US E m aCU � oca o m 15 U n = 0 m E o o c o v o U c N ?moa' E 2 U �cn 0 E m sv <D �m� E0 - a) -0 mQ 0 mi E cnc3� L � u,•} O �oY i ca t vac ca a) U 0 ar w 0�Eo c w :3m Q> >'o m C a) U> U c 7 0 d] N '�E N m NN N C p a7 U :3C U Q a.� n IL ui.0 ❑ w 0--Q fav a as 2w N Oz U. O ULUm w -i U) LL_ ON Z Z wv (� No LU N 0� c� ao C � z z z z z z zz zO � } m c � m pU V •� N 0 C I OC L O O t U U 65 H O CD m (D I I I I I I I E oL cr I X E C CD _N 7 co O Z ci = a� cn i2 co I I I I m 0 cn-o rn C c� c 0 0 @ o I I I � LL V) I I p O 4= > Q CD 1 I p O CL O O x u - W _ c E N L7 3G O U (13U U O in p U E N fV C C cz C EE oCD o-�ca� O Ngo o �_� a mc0i ECL p a 2 m U O= (D ? O m Q in 0 ° d w N v -i 0 m U Q� a� m N ar = _ cL 'C -R E O Ui Y aci N O p L .a' O 0 U m C E m E"� E O V g c� .r a� Ott= m m E as c ro 0 v m 70 c c v c� .0 o' E n w-0 o p n m L Q) c a M 0 0 CL IL y r a) ro a } �' v, m U n '� (D 0 cm - O 0 Y n m o N O m c 0 o a o 2-5 O w w �' a Q.a 0- UJ 0 C a m �LO 4- 0 c 0 .0 — @ N W C Cl a) N O C O- 0 �w N O C a s a) O E T C6 w0 U C U a) L . C N N 7 rp cp E a) L C C N O E a) L C C N w a) L C E O 7 C O O M 0 6 O N a� ° 3 o a3 0} c-c`o c o Ov o cr CL i� V O c I 1 L L U U m H v a) c Q � — O � m 4) E x 2 c mem a� Z;@ E U W 2 2 2 w a= 2 W 0 a) FPO U) cn OZ mL i i i i i 1 Q co v LL U N Co a F- LU W U C m C: o 0 — m �6Ng U) 0 5 0 i o i o 0 U �� O ZZcn Wz 1 �� L)r_0 0 0 - 0 0 0 No wN i� F- rn OL - O O 0 0 0 0 x LU .O E0 m c) a) N ac) CL C N O O C— C :E N L_ En U O O d E p C p„ C N C co . V y N O) E C '� U O a N a) O y 7 (6 V OOL C a) C U V N V C m L2 C N CO CD E U C SO N L y 2 0 E O Y N p a) a) 4- O U H' O :S 7 L p C Q �= N a V [U6 L a 0 �(a �Q a �_ �� O2 U on C a) �zi �Q N N O Q) 0 OL C N 2-6 a s a) O O} C E QOI W N C O U �LO O �LO w X w� 2 cl C.} W R 2W Z OLL 0 N W W � U �O NOO L 2 ON ZZ W N �W� VO��1 U — N a� O a> j O O z z O y O z z O z O z 0 z O -y N C 7 � OU U W O N C L O L U U Q) C Q 7 C .� O O E E°' [If O X 4) C m a�Zm� �0Z� m cn E I E I U m 0 H �'0 me m C 0 0 m� 0 o O O LL C CIO _ m c i m O O O i U N a) U Q. 0 O O O O X LL W Q) U 7 U) 7 {J} C O Ip C N U O C W C O m� C N m �- z y O N m to Q) U Oin C LL m e O (u a CL O E O m �c N m O vl O m N C "o O L U -`n U N O m ' L Vi C 0- ❑ O m Q7 m C Q) O_ !� C 9 N ca U O Q) fa al d Q) O U C c 2 Q) N '�• 0t C m o (n 00 m cm 10) 75 LD 0 Dom N E0rn a�U CL CL m p C_ � -OO p �'� 05 N N U L m C Y {1)m y CL O i1 "' N U 7 C Q] L C U .O m-0 c E IL w m 2 0 �� 0 w: 3 y6 w V) CD ■ Costs associated with loss of synergy. Synergies exist where existing staff work together to provide services but might not work with outside contractors ■ Organizational costs. Organizational costs are the costs associated with disrupting the lives of employees The risks associated with using outside contractors may also be grouped into a number of categories: ■ Risks associated with loss of control. Clearly, when an outside contractor is used to perform a function or service a government becomes more vulnerable because it no longer directly controls operations ■ Non-performance risks. No matter how carefully a contract is structured, there is always a chance that a contractor will fail to adhere to the terms of the agreement ■ Lack of competition. Lack of competition can also prevent the potential benefits of using private contractors from being realized ■ Lack of information. For highly technical functions, a department may not have the "know how" to effectively evaluate contractor service offerings The potential benefits of outsourcing for the 11 functions and services for which outsourcing has the potential to be beneficial were weighed against the costs and risks using the following scale. Symbol _ Description 4 Mostly Supports Soliciting Bids O Somewhat Supports Soliciting Bids -- Does Not Support Soliciting Bids As the analysis presented in Exhibit VII -2 shows, the potential benefits of outsourcing outweigh the costs and risks for each of the six functions and services identified as outsourcing candidates: ■ Provide specialized and/or tactical response and support — SWAT ■ Provide automated traffic enforcement ■ Provide human resources support to the Police Department (perhaps within the City government) ■ Provide financial support to the Police Department (perhaps within the City government) ■ Provide purchasing support to the Police Department (only if part of a larger City initiative to privatize purchasing) ■ ldentify and respond to grant opportunities VII -4 N O TS N L Ol X [13 Ll.i 0. cl LW r (n J m N 2 W 2 I �m J 0 0 0m (/)N w Z 00 W Cl)Z "a o0 w z W W N 0 W �— O) Q N0 w LL L w y '' 0T Ips 7 C V) o o o gC�� 3C� o�c�LZ Z O r Z r Z Z cnZ a > ���> rnr mr o o CL a0 U �9 Q J � C O i CD UCLI i 1 i i m E J O N s U N_ () U C C CO Y � N O z�. O O 0 0 I a� IL 00 o o o o o ' J U m c 0 io w I o coU p O w 0 O N 0 J (/J C O U m (D 0U0 O O o O I O o 0 0 h N lr a) 0 0 o O O w O O O m N N a> a) C Q) E 'D N a) N U r C NL. U7 — @ Q) it O _ n T r CL N a) _ [U _ N 'OO O0 �O n -r-N cl)O n L �= h U N v N n C N CL O u w Q~ �i Q .� o c (D U O n p m c a) n N ur3i N N U U '`� N O a7 y a) ` O Cl n DUi N @ uCL U O) O .� C p) O N O n @ O N a. .`-. 'n O O "Cto O n D N U N c6 C N Q) p (n C CL N 7 N 7 U O = 'N N 0- m = N -v N m �q E m n SL a) �O E U L C N 0 c v c o E E tr, co a) -0 oo M o N N y N = h 3 Ll c� aCi n CZ m m n a� L) a� 0 a) a, 0 a) a a) E m E O c O 7 0 O N 7 0 O } O ? 7 O ? U 7y OCL o n C a) a IL a a n -,a, a iYO [ ■ ■ ■ 0 ■ ■ ■ ■ ■ ■ ■ ■ The Department should either put these services out to bid or explore ways that City departments can provide some of the support currently provided by Department staff. Please also note that when the Police Department's current IT manager retires (or leaves the City's employment) the City should consider having the City's IT department provide IT services for the Police Department. At present, the current manager's set of skills and the trust he has developed with the Police Department would likely result in a reduction in service level if the function was provided by a City department. Wm VIII - CIVILIANIZATION ►•Audi VIII - CIVILIANIZATION In general, civilians should fill police department positions unless an affirmative case can be made that sworn officers are needed. One of the primary reasons positions should be filled by civilians unless a sworn officer is needed to perform the job is that the cost of employing sworn officers is generally much higher than the cost of employing civilians. In addition, the recruit and in-service training sworn officers receive is much more extensive than the training civilian employees receive. By contrast, most civilian employees receive much more limited training prior to beginning police department employment. The framework used to assess which positions should be filled by sworn officers and which positions should be filled by civilian employees assumes that an affirmative case for assigning a position to a sworn officer can be made under three conditions: ■ The position requires the law enforcement powers of a sworn officer ■ The skills, training, and experience of a sworn officer are needed to effectively perform the job duties ■ The skills, training, and experience of a sworn officer are not required to effectively perform the job but assigning the position to a sworn officer is beneficial to the community and/or the department and the value of these benefits outweigh the costs The analysis of potential opportunities for civilianization should begin by identifying positions for which the case for assigning a sworn officer to fill the position is unambiguous. This will be the case when law enforcement powers are required to perform the functions assigned to the position; a broad range of the skills, training, and experience of a sworn officer are required; and the job functions that justify the assignment of a sworn officer comprise the preponderance of the position's job duties. When an unambiguous case for assigning a sworn officer to fill a position cannot be made it may nonetheless be beneficial' for the function to be assigned to a sworn officer. Three factors should be considered when making this determination. ■ Credibility. In some cases, assigning a sworn officer to fill a position provides the credibility needed to effectively perform the position's job responsibilities. For example, while civilians could conceivably recruit sworn officers they would likely not be effective because potential employees would want to discuss what police work is like with someone who has actually served as a police officer. ■ Operational knowledge and experience. For some functions, the operational knowledge and perspective of a sworn officer is helpful in performing job duties. However, the need for operational knowledge and expertise should only provide a rationale for assigning the function to a sworn officer if the need for this knowledge and perspective is consistent and frequent and if the negative consequences that may result from not having this knowledge and perspective is sufficiently severe that ' The estimated benefits associated with assigning a sworn officer to the position should outweigh the estimated costs. V111-2 the additional costs associated with assigning a sworn officer to the position are warranted. ■ Leadership development. In some instances, while a sworn officer is not needed to fill a position, assigning a sworn officer to the position is helpful in developing the skills of future leaders. This rationale for assigning sworn officers to a position should be used only if the level of technical skills and professional expertise needed to perform the function are not excessive (i.e., a sworn officer rotating through the assignment on a three-year cycle can quickly develop the skills and expertise needed to perform the job) and if the best way to become familiar with the function or activity is by managing or performing it on a day-to-day basis. This evaluation framework was used to assess the positions within the Boynton Beach Police Department that should be assigned to sworn and civilian staff. As the analysis presented in Exhibit VIII -1 indicates, the department should consider assigning sworn civilians to perform the following functions: ■ Grants writer ■ Technical services officer M Asset forfeiture detective ■ Crime scene detective ■ Evidence detective ■ NIMS detective ■ Crime analyst In addition, public records and records custodian responsibilities should be reassigned from the detective who currently performs these duties to a civilian who should also serve as the accreditation manager. Inspection responsibilities (a function currently performed by the sworn officer who has accreditation responsibilities) should be assigned to the detective who previously served as the records custodian and handled records requests. 2 If the primary reason for assigning the function or service to a sworn officer is leadership development, potential leaders should rotate through the position so that a number of potential future leaders can benefit from the experience of holding the position. VIII -3 30 cc -- m±/« // 22§Q&-=ez , , £o Enae��5E� §f22agg+gi2ki j/ /2ƒ///=20 U) ®°E» \�% E_=§\{0tf2 2019%zc (DCG - /InL }a6/^fo )�\$§=j z 0z / f ] 13—a) � ƒ 2 )/3) u/ aLL 2 J\§f\ / ® 00-0 kmsƒ 22)a55m52_ 00 000 0a 0000 )zz7zzzzzzzzz ) \/}\ƒ=jo 03 0_}f /e- E)2}�� � U) 000000 zzzzzz 22 ƒ0 0C:« m �/\w e� e \`»E\=j- 0_ , =a z **))/2 Z$ I}{\¥kƒo kzI}^00 ®J LU \ t<§E%z„ }/ \( § 7»afafkkJafkJ CL 0 0 d E~ƒ a k\fp U) `oma®00000000 §7zp7zzzzzzzz 76 £ §8k/ 0 \\\�Jk2222}))G2)2 so \ \ E ©g /\$)/\ 32(220 k r -5 _\ /ƒ\0 0 7% 22oco Z 000000ao00000 zzzzzzzzzZzzz // 000 f M6a {)) t§f\- 0000000000000 /j/ �a!$o zzzzzzzzzzzzz U --a)¥ 30 -If \$ \)\�{ o0 _ c o���; \\ oo/ )/ k'-ri—I �§7 4]E / c§b2�o2,«� mo in -- _ \\\/j#LL <00 ��El in ]222o9_00U)Q, .. /// f��$g8 $§6aoa#6j2o±± /\» IX - IMPLEMENTATION IX -1 IX W IMPLEMENTATION This chapter is divided into two sections. The first section highlights important implementation activities. The second section presents the recommended implementation plan. KEY IMPLEMENTATION ACTIVITIES This section discusses the key steps the City should take to implement the study recommendations. Adopt The Study Recommendations The City Commission must be committed to implementing the study recommendations if implementation is to be successful. Initially, the City Commission should review the report and adopt its recommendations in principle.' Establish Implementation Task Force The city manager and police chief should establish a task force to guide the implementation of study recommendations. This task force should be charged by the city manager with driving the implementation process. The task force, which should be chaired by the police chief, should develop an overall implementation plan (which should be submitted to the City Commission for approval) and should be held accountable by the city manager for ensuring that plan timelines are met. The task force should meet approximately every two weeks during the implementation process. In addition to guiding the implementation of the study recommendations, the task force should be specifically charged with identifying obstacles to change and creating strategies for overcoming them. Overcoming obstacles to change will be critical to the success of the implementation effort and therefore task force members should view one of their primary functions as identifying and eliminating these obstacles. The personal power, influence, and relationships of individual task force members should, as appropriate, be brought to bear on eliminating these obstacles. Clarify The Personnel And Labor Implications Of The Study Recommendations Uncertainty is associated with any change of the magnitude outlined in this report. Of primary concern to many employees will be how the change will affect them directly. Clarifying the status of employees who will be affected by the recommendations will remove much of the uncertainty associated with recommended organizational changes and will allow the Department to move forward with the implementation process. If employees are waiting for the "other shoe to drop" they will not be able to focus on supporting the recommended program for change. ' Please note that adopting recommendations "in principle" does not mean the City Commission commits to implementing each and every recommendation in detail. Instead, this means that the City Commission generally agrees with the recommendations in the report and will make a good faith effort to evaluate and implement the study recommendations. IX -2 The City's human resources director should work with the implementation task force to develop a list of all positions that may be affected by the study recommendations. The impact the study recommendations will have on these employees — and the timeframe in which expected change would be implemented — should be articulated and shared with them. IMPLEMENTATION PLAN An implementation plan to guide the City in implementing the improvements recommended in this report is presented in Exhibit IX -1. This plan proposes priorities for implementation, suggests who should assume responsibility for each implementation activity, and offers a timetable for executing the plan. In addition to serving as a guide, the implementation plan can be used as a "score card" for measuring implementation progress at periodic City Commission reviews. Once the implementation task force has been assembled, one of its first tasks should be to develop action plans — in coordination with Police Department leaders — to flesh out implementation details. 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A — ABOUT THE SURVEY The activity analysis survey was designed to understand how patrol officers devote their time to activities that are not reliably captured by the Police Department's computer- aided dispatch system. In particular, the survey provides information on how much time patrol officers devote to calls -for -service activities (e.g., responding to calls, processing crime scenes, and transporting and booking prisoners) and non -call related activities (e.g., administrative activities and proactive activities). The results of a focus group with patrol officers were used to develop the list of activity categories used in this survey. B —SURVEY RESULTS Completed surveys were received from 18 patrol officers (representing approximately 25 percent of the number of patrol officer positions currently filled). Number Of Shift Respondents Al or A3 8 A2 or A4 5 131 or B3 1 B2 or 84 4 Total 18 The results of the survey indicate that patrol officers devote approximately 25 percent of their time to responding to calls -for -service, 17 percent of their time to writing reports, 10 percent of their time to administrative paperwork, and 8 percent of their time to non - traffic proactive activities. Percent Of Category _ Activity Time Spent Calls -for -service Respond to calls; provide back up; process crime scenes; transport/book prisoners 25.2% Reports Write reports; revise reports 17.1% General patrol Provide general patrol; provide hospital activities transports; provide witness transports 14.5% Administrative Prepare felony folders; copy and scan reports paperwork and supplements; enter traffic ticket information 10.2% Non -traffic proactive Provide extra patrol; provide building checks; activities conduct field interviews; contact citizens 8.4% Traffic enforcement Promote traffic safety; make traffic stops; issue traffic citations 7.3% General Attend roll call; attend court; attend depositions; administrative attend disciplinary hearings; sign out and return activities equipment 7.1% Details Guard crime scenes; guard prisoners; provide traffic control at serious accidents; assist at fires; assist other agencies 3.3% FWAW Percent Of Category Activity Time Spent Training Participate in in-service, physical, and firearms training; attend special schools; take monthly tests 3.3% Other activities Take breaks; take meal breaks; drive to and from the station at the beginning and end of each shift 2.4% Call -outs Participate in specialized unit call -outs; participate in hurricane call -outs 9.2% FWAW APPENDIX B - EMPLOYEE SURVEY RESULTS B-1 APPENDIX B — EMPLOYEE SURVEY RESULTS As part of this study an online survey was made available to Police Department employees. The objectives of the survey were to give all employees the opportunity to provide input to the study and to help the department more fully understand employee needs and perceptions. The survey results can be used as a baseline against which the Police Department can reassess employee perceptions and satisfaction on an ongoing basis. This appendix presents information about the survey process and an overview of the survey respondents. Survey questions and answers broken out by sworn staff responses and civilian staff responses are shown in Exhibit B-1. Questions and answers for all employees are presented in Exhibit B-2. A — SURVEY PROCESS The consultants prepared a draft survey that was reviewed by the project work group. After the survey was finalized a link to the survey was distributed in a general memorandum from the police chief. Of the Department's 222 employees, 126 (57 percent) completed the survey. With this level of response it can be assumed that the survey results generally reflect the opinions of all employees. B — SURVEY RESPONDENTS This section presents information on the 126 Police Department employees who completed the survey. Information on their role in the Department, the unit to which they are assigned, their Department position, and the length of time they have worked in the Department, follows. Role. Approximately three out of ten of the survey responses (29.8 percent) were received from employees who identified themselves as managers or supervisors. Unit. More than half (52.4 percent) of survey respondents are assigned to uniform services, 28.2 percent are assigned to support services, 12.1 percent are assigned to the office of the chief, and 7.3 percent are assigned to professional standards. Position. Sworn employees completed 72.6 percent of the surveys and civilian employees completed 27.4 percent. Tenure. Almost six out of ten survey respondents (58.9 percent) have worked for the Police Department for more than 10 years and 86.3 percent have worked for the Department for more than 4 years. Percent of Tenure Respondents Less than 1 year 2.4% 1 to 4 years 11.3% 5 to 9 years 27.4% 10 to 19 years 46.8% 20 years or more 12.1% B-2 EXHIBIT 8-1 Page 1 of 8 BOYNTON BEACH POLICE DEPARTMENT EMPLOYEE SURVEY RESULTS - SWORN AND CIVILIAN STAFF Percent Agreeing/ Percent Disagreeing/ Survey Item Strongly Agreeing Strongly Disagreeing Sworn Civilian Sworn Civilian Staff Staff Staff Staff OVERALL I am proud to work for the Boynton Beach Police Department. 69.0% 82.411/o 16.1% 0.0% I enjoy coming to work. 71.311/a 82.4% 14.9% 2.9% Morale in the Department is high. 9.39/0 9.1% 77.90/0 60.60/c Morale in the Department is low. 77.90/o 60.6% 10.50/0 9.1% Morale in the Department is neither high nor low. 12.70/c 7.1% 58.2% 39.311/0 LEADERSHIP PRACTICES Communications The Chief of Police has established an overall vision for the Department. 45.7% 35.7°/% 30.9% 17.9% I understand the Department's overall vision. 35.4% 34.5% 37.811/o 20.7% The Chief of Police has established specific operational goals and priorities to support this vision. 36.3% 34.6% 40.0% 23.1D/o I understand the operational goals and priorities that have been established to support the Department's vision. 37.8% 29.6% 39.0% 18.5% I feel strong pressure to achieve selected performance targets. 20.70/0 28.0% 56.1% 40.0% Consequences if I do not meet performance targets are severe. 12.2% 29.2% 74.49/a 29.2% I feel strong pressure to make arrests. 8.3% 0.0% 76.4% 30.8% Consequences if I do not make arrests are severe. 5.5% 0.0% 82.2% 30.8% I feel strong pressure to solve cases. 14.7% 7.1% 61.3% 14.3% Consequences if I do not solve cases are severe. 5.49/o 0.0% 73.0% 28.6% Well-defined plans for achieving operational goals and 21.5% 33.3% 44.3% 20.8% I understand the role my unit plays in achieving Department goals and priorities. 57.3% 86.2% 22.09/o 3.49/% 1 understand how my job contributes to achieving Department goals and priorities. 64.2% 96.60/0 18.59/0 3.49/0 Expectations for performance are clearly communicated. 43.9% 62.5% 39.0% 15.6% Expectations for performance are consistently communicated. 34.6% 51.6% 42.0% 25.8% Inclusiveness The Chief of Police is willing to consider points of view that are different from his own. 50.69/0 46.2% 27.3% 26.9% Department majors are willing to consider points of view that are different from their own. 37.0010 40.0% 42.5% 28.0% Department lieutenants are wil€ing to consider points of view that are different from their own. 61.3% 57.7% 17.5% 11.5% Department sergeants and officers in charge are willing to consider points of view that are different from their own. 53.19/0 62.5% 17.3% 8.3% E feel free to express my opinions to my supervisor. 70.2% 64.5% 22.6% 22.6% I am encouraged to share my opinions about how to improve the Department. 39.0% 43.3% 36.6% 30.00/o Employees can voice constructive criticism about BBPD management without fear of retribution. 22.2% 17.29/0 58.0% 41.49/o Survey Item Executive Skills BBPD benefits from strong effective leadership from the Chief of Police that inspires confidence among Department employees. The Chief of Police works to eliminate barriers that stand in the way of the Department achieving its objectives. The Chief of Police provides productive feedback on performance. Goals and priorities do not change dramatically over the course of a year. The Chief of Police makes decisions in a timely manner. Skills Of Majors Department majors provide management that inspires confidence in the units they oversee. Department majors work to eliminate barriers that stand in the way of the units they manage achieving their objectives. Department majors provide productive feedback on the overall performance of the units they manage. Department majors have a strong understanding of day-to-day operations in the units they are responsible for managing. Department majors have the competence and experience to provide constructive feedback on the performance of the units reporting to them. Department majors make decisions in a timely manner. Department majors review the work of their subordinates on a timely basis. Skills Of Lieutenants BBPD lieutenants provide management that inspires confidence in the units they oversee. BBPD lieutenants work to eliminate barriers that stand in the way of the units they manage achieving their objectives. BBPD lieutenants provide productive feedback on the overall performance of the units they manage. BBPD lieutenants have a strong understanding of day- to-day operations in the units they are responsible for managing. BBPD lieutenants have the competence and experience to provide constructive feedback on the performance of the units reporting to them. BBPD lieutenants make decisions in a timely manner. BBPD lieutenants review the work of their subordinates on a timely basis. Supervisory Skills My first-line supervisor (sergeant or officer in charge) provides supervision that inspires confidence among the employees he/she oversees. My first-line supervisor (sergeant or officer in charge) works to eliminate barriers that stand in the way of the employees he/she supervises achieving desired objectives. Percent Agreeing/ Percent Disagreeing/ Strongly Agreeing Strongly Disagreeing Sworn Civilian Sworn Civilian Staff Staff Staff Staff 37.5% 21.4% 43.8% 35.7% 37.2% 30.8% 35.9% 34.611/o 44.3% 34.6% 31.6% 19.2% 48.1% 36.0% 21.5% 16.0% 38.2% 37.5% 30.3% 20.8% 26.7% 25.0% 53.3% 37.5% 26.7% 25.0% 46.711/a 37.5% 32.0% 17.4% 48.011/a 39.1% 31.1% 48.0% 44.6% 24.0% 39.7% 48.0% 46.2% 16.0% 29.6% 38.1% 47.9% 14.311/o 28.6% 35.00/a 34.9% 20.0% 65.0% 42.9% 18.8% 14.3% 61.3% 48.1% 18.80/0 14.80/c 63.30/c 61.5% 13.9% 19.2% 69.1% 48.3% 9.9% 13.8% 66.711/o 57.1% 16.011/0 28.6% 64.1% 50.0% 11.511/c 12.5% 65.8% 30.8% 7.9% 15.4% 60.3% 59.3% 16.4% 14.8% 63.0% 55.611/o 13.7% 11.10/0 EXHIBIT B-1 Page 2 of 8 EXHIBIT B-1 Page 3 of 8 Percent Agreeing/ Percent Disagreeing/ Survey Item Strongly Agreeing Strongly Disagreeing Sworn Civilian Sworn Civilian Staff Staff Staff Staff My first-line supervisor (sergeant or officer in charge) provides productive feedback on the overall performance of the employees he/she supervises. 64.4% 59.3% 15.1% 11.1% My first-line supervisor (sergeant or officer in charge) has a strong understanding of day-to-day operations in the units he/she supervises. 67.10/c 59.3% 15.1% 14.8% My first-line supervisor (sergeant or officer in charge) has the competence and experience to provide constructive feedback on the performance of the staff reporting to him/her. 67.6%6 70.4%0 17.6% 11.1% I receive the supervision I need to effectively perform my job. 70.9% 69.0% 123% 10.3% Supervisors (sergeants and officers in charge) review the work of their subordinates on a timely basis. 68.4% 64.0% 6.6% 20.00/a Leadership Development The Department has effective approaches to developing new majors. 13.8% 31.3% 67.7% 31,3% The Department does a good job of succession planning. 9.0% 30.0% 64.20/6 30.0% The Department has effective approaches to developing new lieutenants. 22.7076 31.3% 56.1% 18.8% The Department has effective approaches to developing new sergeants and officers in charge. 16.2% 29.4% 58.1% 17.6% The Department has effective approaches to developing new civilian supervisors. 12.0% 23.80/o 58.06/6 61,96/0 EMPLOYEE ENGAGEMENT Job Design The roles and responsibilities of the Chief of Police are clearly defined. 56.9% 54.5% 18.1% 9.1%6 The roles and responsibilities of the Chief of Police are appropriately defined. 55.1% 57.16/0 18.8% 9.56/6 The roles and responsibilities of BBPD majors are clearly defined. 49.36/0 50.0% 28.2% 9.1% The roles and responsibilities of BBPD majors are appropriately defined. 47.1% 47.6% 30.06/6 14.3% The roles and responsibilities of Department lieutenants are clearly defined. 59.5% 52.26/0 21.66/0 8.7% The roles and responsibilities of Department lieutenants are appropriately defined. 52.1% 50.0% 27.46/6 13.6% The roles and responsibilities of my first-line supervisor (sergeant or officer in charge) are clearly defined. 57.5% 52.2% 20.56/0 4.3% The roles and responsibilities of my first-line supervisor (sergeant or officer in charge) are appropriately defined. 56.8% 52.211/o 25.70/c 13.0% The roles and responsibilities of line staff within the Department are clearly defined. 52.66/0 48.1% 28.9% 11.16/0 The roles and responsibilities of line staff within the Department are appropriately defined. 51.3% 50.06/0 28.9% 11,5% The Chief of Police has the authority to make decisions to improve the Department's performance. 86.6% 93.1% 8.5% 0.0% Department majors have the authority to make decisions to improve the performance of the units they manage. 72.8%0 85.7% 14.8% 0.0% Department lieutenants have the authority to make decisions to improve the performance of the units they manage. 63.0% 74.16/6 18.5% 3.7% My first-line supervisor (sergeant or officer in charge) has the authority to make decisions to improve the performance of the employees he/she supervises. 64.1% 77.8% 19.2% 7.4%6 My job allows the Department to make good use of my skills and capabilities. 65.90/0 85.7% 22.0%6 7.1%6 The skills and competencies of employees are adequately considered when transferring employees from one unit to another. 25.0% 19.06/0 53.8% 28.6% Survey Item Commitment BBPD sworn jobs are secure. BBPD civilian jobs are secure. BBPD sworn employees have adequate opportunities for career advancement. Civilian employees have adequate opportunities for career advancement. Time Existing work schedules provide road patrol officers with the opportunity to achieve a good work/life balance. Existing work schedules provide Investigative Services employees with the opportunity to achieve a good work/life balance. Existing work schedules provide code enforcement employees with the opportunity to achieve a good work/life balance. Existing work schedules provide communications employees with the opportunity to achieve a good work/life balance. I have sufficient time during my workday to effectively perform my job responsibilities. KNOWLEDGE ACCESSIBILITY Availability The information I need to effectively perform my job responsibilities is readily available. The training I need to effectively perform my job responsibilities is readily available. Collaboration Employees from different units within the Department work together effectively on issues of common concern. Code enforcement and sworn officers work together effectively to address quality of life issues. The Chief of Police and majors work effectively together. Lieutenants work effectively together. Sergeants work effectively together. Information/Best Practice Sharing The Police Department does an excellent job of using research to improve operations. I have access to best practices employed by other agencies that is relevant to my work. I have access to best practices employed by the BBPD that is relevant to my work. Information Systems The communication of needed information within my unit is adequate. The communication of needed information across Department units is adequate. I receive the information I need to perform my job. Percent Agreeing/ Percent Disagreeing/ Strongly Agreeing Strongly Disagreeing Sworn Civilian Sworn Civilian Staff Staff Staff Staff 60.0% 59.1% 22.5% 4.5% 8.5% 7.4% 70.4% 74.1% 27.5a/o 55.0% 48.8% 15.0% 7.3% 11.5% 54.5% 76.9% 57.7% 37.5% 24.4% 6.3% 71.7% 50.0% 13.3% 0.0% 54.1% 33.3% 16.2% 22.2% 34.3% 17.6% 37.10/c 17.6% 73.2% 75.9% 13.40/a 10.3% 77.8% 93.1% 14.6% 6.9% 60.5% 82.8% 19.8% 17.2% 38.3% 70.8% 48.1% 8.3% 56.9% 59.1% 24.60/c 0.0% 30.2% 55.6% 50.8% 16.7% 44.10/c 44.4% 23.5% 11.1% 26.00/c 36.8% 53.4% 21.1% 17.811/c 40.0% 54.8% 10.0% 33.3% 54.2% 40.6% 8.3% 52.6% 55.6% 21.1% 3.7% 60.8% 72.4% 20.3% 6.9% 31.3% 61.5% 43A% 15.4% 54.3% 82.1% 19.8% 3.6% EXHIBIT B-1 Page 4 of 8 Survey Item WORKFORCE OPTIMIZATION Processes Work processes within the Boynton Beach Police Percent Agreeing/ Percent Disagreeing/ Strongly Agreeing Strongly Disagreeing Sworn Civilian Sworn Civilian Staff Staff Staff Staff Department are well defined. 39.0% Sworn officers spend considerable time performing 75.0% activities that could be delegated to well trained 15.0% civilians. 77.2% Road patrol officers receive adequate training on how 61.1% work is expected to be performed in the Boynton 5.6% Beach Police Department. 53.3% Investigative Services employees receive adequate 68.4% training on how work is expected to be performed in 0.0% the Boynton Beach Police Department. 58.3% Professional Standards employees receive adequate 42.9% training on how work is expected to be performed in 25.0%6 the Boynton Beach Police Department. 55.0% Code enforcement employees receive adequate 25.0% training on how work is expected to be performed in 57.1x/6 the Boynton Beach Police Department. 39.3% Civilian staff receive adequate training on how work is 52.0% expected to be performed in the Boynton Beach Police 20.0% Department. 38.7x/6 Conditions 43.5% The work environment within the BBPD is supportive. 26.3% Police Department employees treat each other with 29.0% respect. 25.3% Civilian employees are treated with as much respect 0.0% as sworn employees. 39.4% Accountability 61.5% High expectations for the performance of all 3.8% employees have been established. 27.8% The Chief of Police is held accountable for the 8.3% decisions he makes. 42.3% Department majors are held accountable for the 31.3x/6 decisions they make. 30.00/0 Department lieutenants are held accountable for the 34.80/6 decisions they make. 40.8% My first-line supervisor (sergeant or officer in charge) 34.6x/6 is held accountable for the decisions he/she makes. 53.611/6 Line employees are held accountable for their 52.60/o performance. 54.711/o I am held accountable for my performance. 82.3% Employees are encouraged to admit mistakes. 46.3% Consequences for making mistakes are appropriate. 36.3x/% Consequences for making mistakes are too severe. 12.5% Consequences for making mistakes are not severe enough. 32.50/a HUMAN RESOURCE PRACTICES The hiring process is fair. 51.4x/0 Persons who are hired to work for the Boynton Beach Police Department are competent. 39.7x/6 The hiring process is timely. 52.9%6 The promotional process is fair. 28.9% The best candidates for promotion are selected. 22.1x/0 The promotional process is timely. 49.3% 58.3% 35.1% 4.2% 75.0% 12.7% 15.0% 50.00/c 25.3% 0.0% 61.1% 16.7% 5.6% 50.0% 7.5% 6.3x/6 68.4% 10.7% 0.0% 65.4% 12.9% 15.40/a 42.9% 53.8% 25.0%6 42.3% 63.3% 34.6x/6 25.0% 36.4% 57.1x/6 50.0% 53.2% 10.7% 52.0% 35.2% 20.0% 41.7% 48.6% 25.0%6 43.5% 35.2% 17.4% 58.3% 29.0% 12.5% 59.1% 25.3x/6 0.0% 93.1% 11.4% 0.0x/6 61.5% 35.0% 3.8% 44.0% 43.8x/6 20.0% 8.3% 60.0% 33.3% 16.70/6 31.3x/6 29.2% 39.10/a 24.3% 34.80/6 42.30/6 32.1% 19.2% 34.6x/6 26.5% 30.8% 16.7% 52.60/o 27.8x/6 11.1% 67.511/o 33.3% 11.1x/6 30.70/o 22.2% EXHIBIT B-1 Page 5 of 8 Survey Item The factors that are considered when making promotional decisions are clearly articulated. Sworn employees have reasonable opportunities for promotion. Civilian employees have reasonable opportunities for promotion. Discipline is lax. Discipline is appropriate. Discipline is excessive. Disciplinary processes are fair. Disciplinary processes are not affected by favoritism. Discipline is consistently applied across Police Department units. When officer misconduct is identified, timely action is taken to address the issue. When officer misconduct is identified, appropriate action is taken to address the issue. Discipline is consistently applied across road patrol districts. Discipline is consistently applied across road patrol shifts. Decisions relating to discipline are timely. Decisions relating to the transfer of employees from one unit to another are fair. The factors that are considered when making transfer decisions are clearly articulated. Decisions relating to the selection of staff for special assignments are fair. The factors that are considered when selecting staff for special assignments are clearly articulated. The grievance process is fair. The grievance process is timely. The steps in the grievance process are well articulated. The process for granting limited duty status is fair. The process for granting limited duty status is timely. The process for allocating overtime opportunities is fair. The process for allocating extra duty work opportunities is fair. The process for reviewing compensatory time is effective. Performance Management Excellent performance is formally recognized. Excellent performance is informally recognized. The performance evaluation process is fair. Police Department employees who are not meeting performance expectations receive the support they need to improve their performance. Police Department employees who continually fail to meet performance expectations are encouraged to resign or are fired. Police Department employees who fail to meet performance expectations are reassigned. Percent Agreeing/ Strongly Agreeing Sworn Civilian Staff Staff 41.3% 22.2% 43.2% 50.0% 5.9% 7.4% 50.69/b 28.0% 26.6% 41.7% 10.1% 4.3% 30.89% 38.1% 22.7% 9.5% 15.80/0 23.8a/o 30.7% 41.2% 28.6% 33.30/a 22.2% 18.2% 23.6% 18.2% 20.5% 10.5% 26.7% 9.1% 32.4% 9.1% 32.9% 7.7% 37.8% 0.0% 46.9% 6.3% 37.1% 5.9% 55.7% 17.6% 40.3% 7.1 s/o 45.8O/c 14.3% 52.1% 30.0% 57.5% 11.8% 52.9% 14.3% 45.5% 48.1% 47.4% 48.1O/c 38.5% 51.90/0 39.70/c 42.1% 9.1% 21.4% 26.2% 16.7% Percent Disagreeing/ Strongly Disagreeing Sworn Civilian Staff Staff 41.3% 16.7% 39.2% 5.0% 50.0% 70.4% 27.8% 40.0% 46.80/a 29.20/a 63.3% 60.9% 43.6% 23.8% 53.3% 52.4% 60.5% 38.1% 42.70/a 29.4% 42.9% 27.8% 47.2% 45.5% 44.4% 45.5% 49.3% 52.6% 49.3% 36.4% 47.3% 27.3% 42.5% 30.8% 37.8% 23.1% 21.9% 31.3% 24.2% 29.4% 18.0% 29.4% 22.6% 21.4% 16.9% 7.1% 28.80/0 45.0% 23.3% 23.59/6 26.50/c 23.8% 37.7%n 22.2% 28.2% 18.5% 32.1% 22.2% 34.2% 26.3% 63.6% 64.3% 49.2% 66.7% EXHIBIT B-1 Page 6 of 8 EXHIBIT B-1 Page 7 of 8 Percent Agreeing/ Percent Disagreeing/ Survey Item Strongly Agreeing Strongly Disagreeing Sworn Civilian Sworn Civilian Staff Staff Staff Staff LEARNING CAPACITY Innovation The Department is open to new ways of doing business. 32.0% 40.9% 48.0% 36.4% Department employees are encouraged to find new and better ways to work. 24.40/o 45.8% 43.6% 25.0% Training New sworn officers receive the training they need to effectively perform their job duties. 58.4% 66.7% 19.5% 0.0% New code enforcement employees receive the training they need to effectively perform their job duties. 35.7% 68.8% 10.7% 0.00/0 New communications employees receive the training they need to effectively perform their job duties. 48.4% 64.7% 19.4% 5.9% Newly promoted lieutenants receive the training they need to effectively perform their new roles. 30.2% 40.0% 37.2% 13.30/D Newly promoted first-line supervisors (sergeants and officers in charge) receive the training they need to effectively perform their new roles. 29.10/a 35.3°/a 34.5% 23.511/o Road patrol officers receive the ongoing training they need to effectively perform their job duties. 47.3% 58.8% 29.7% 17.6% Investigative Services employees receive the ongoing training they need to effectively perform their job duties. 53.3% 68.49/o 15.6% 10.5% Code enforcement employees receive the ongoing training they need to effectively perform their job duties. 24.1x/0 65.0% 13.8% 10.0% Communications employees receive the ongoing training they need to effectively perform their job duties. 36.7% 58.80/c 13.3x/0 11,8x/0 Value And Support The Department values the importance of ongoing learning on the part of employees. 46.2% 46.2x/0 29.5% 7.7% My work is valued by the Department. 46.3% 51.9% 26.3x/0 14.8% VEHICLES, EQUIPMENT, BUILDINGS, TECHNOLOGY, COMMUNICATIONS, AND RADIOS Vehicles I have sufficient access to the vehicles I need to effectively perform my job responsibilities. 46.80/c 46.2% 48.1% 23.1% New vehicles are put into service in a timely manner. 15.8x/0 18.2% 72.4% 45.5% Vehicle repairs are timely and effective. 19.5% 33.3% 68.811/0 40.0% The Police Department vehicles I use are well maintained. 44.0% 63.6% 423% 0.0% Equipment (Other Than Computers) I have access to the equipment I need to effectively perform my job responsibilities. 56.4x/0 81.5% 19.2% 7.4% I have access to the equipment I need to safely perform my job responsibilities. 59.0% 88.90/0 19.2% 3.7% Repairs to the equipment I use are timely and effective. 45.5% 71.4% 29.9% 7.1% The equipment I use is well maintained. 51.90/0 78.6x/0 22.1% 10.7% Buildings My work area is conducive to productive work activity. 44.3% 55.2% 40.50/0 31.0% My work area is appropriately secure. 40.5% 86.2% 48.1% 6.90/c Police Department buildings are appropriately located. 28.2% 46.4% 52.6% 39.3% Police Department buildings are clean. 17.7% 17.9% 67.1% 53.6% Police Department buildings are well maintained. 7.7% 17.9% 69.2% 50.0% EXHIBIT B-1 Page 8 of 8 Communications Communications staff are professional in their interactions with officers. Percent Agreeing/ Percent Disagreeing/ Survey Item Strongly Agreeing Strongly Disagreeing 88.5% Sworn Civilian Sworn Civilian Staff Staff Staff Staff Emergency maintenance requests are handled communicate with each other when needed. 85.70/G promptly. 27.9% 60.0% 36.8% 8.0% Non -emergency maintenance requests are handled communicate with the communications center from all promptly. 20.6% 38.5% 45.6% 26.9% Technology 14.7% 9.511/0 I have sufficient access to portable radios to The Department makes effective use of technology to effectively perform my job responsibilities. 89.6% enhance performance. 44.9% 84.6% 30.8% 11.5% BBPD makes effective use of technology to reduce perform my job responsibilities. 90.90/0 paperwork requirements. 44.3% 74.1% 38.00/0 14.8% Needed technology is implemented in a timely manner. 34.6% 41.7% 33.3% 12.5% 1 have sufficient access to computers to effectively perform my job responsibilities. 75.6% 86.2% 7.7% 3.4% Records management and report writing systems are easy to use. 53.2% 70.8°/% 23.4% 8.3% Appropriate training is provided on how to make effective use of available technology. 52.6% 70.4% 25.6% 3.7% The Department's technology infrastructure is well maintained. 55.6% 84.00/a 18.1% 4.0% Communications Communications staff are professional in their interactions with officers. 50.7% 87.5% 18.7% 4.20/0 Communications staff provide effective services. 61.3% 88.5% 14.7% 3.80/0 Radios Police Department employees in the field are able to communicate with each other when needed. 85.70/G 95.5% 5.2% 0.0% Police Department employees in the field are able to communicate with the communications center from all areas of the City. 74.7% 81.0% 14.7% 9.511/0 I have sufficient access to portable radios to effectively perform my job responsibilities. 89.6% 85.0% 5.2% 0.0% I have sufficient access to portable radios to safely perform my job responsibilities. 90.90/0 85.0% 5.2% 0.0% y L 0 0 0 Y o a b o 0 Y 0 0 Y 0 p o b - L QI lf7 Lf7 M O f� M O L+'1 O) Lf'i V V M to OL A .-i M O M n M CT V M H k r, Ln N M M M Ln LiD 0 n Ln 0 � a o) o o o p o a a a o o o ai L i O LD N r'l r+ � tb Lr) Ln ,1 a) 0 OL M M N Ln m M n^ d Q4, Q n L\ M M M N 4- o O V U s In L O O L b @ y o 6) L o o 0 0 O 0 O 0 O O O o -.12 o Lq 47 L nN > p y Ln Ln V M N CO .--� w M L. 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E o � Q w N u Ls ' o+ _u u E fu S L 7 ° m c c °� E a E ro u m o m E �0 m in Ln o Ln O O y i 0 i' p '-' C ut ;n w N 9J ._ E E E m y.. u � DJ O N 6 C +' D w N ro e O w o cc i C, 'a+ O' O L E rD m m rn aJ ` u ,O " 7 y Q N v M ur o = v au 5 E E L n y w m fa n n a u L cn C ro n w S E E Lv ro u u o U Gi U u u m E 93 '� > !` Y QJ X N C? a a (u a 4J > ER ro N O i E Ln N n C V n C 7 C .� C aw w a o o 'm 6 u w o a E 3 u u u w E n E c Q as c u r a a o w° m t ou a '� o �° E m E E E E s ro t ro taw w Lu m z LTn a w 'E w U Lu n .� a m f � as ao a- Lu n z n F�- I= a a E .� n K v 4 a E U U N +i ry m � T 9 9 w F O Q v v fl Q av -o u o.0) o v— c N w 01 — .O' E �r,� a� a L C o 0 M 0 0 OI R Ra +L+ M V M d V ou�n �' o V E u Q N UJ N qu N 4 O O O 0 d C-6. o M 00 m ° tM aha co � o m a aid o 0 0 0 >. v o m O 'l L VY N M M M y .� cn a O O E T 9 9 w L Q v v fl Q av -o u o.0) o v— c 0 — .O' E �r,� a� y o 0 M a a a ao o h 6 z �' o V E u Q N UJ N qu N 4 O O O C7 h N N to a O h Ll1 Ln 06 6 Ln L, a aid o 0 0 0 C L o o L. Q C6 -1 4 N O O r+1 rl iz O O E T 9 9 w L R v v av -o u o.0) o v— c c O — .O' E �r,� a� H �.E t at E Q v Q_' u u >1 5,E o� o o o o .� o [A E'-'E� N �' o V E u Q N UJ N N E t9 I� 10 Ip Cl O CL O O Q 'u T T E 61 E N- J J No'oSo`">`"E ° v E v E uri Y Y M> L o o E E v : - v b - d- ° a° $ m m n APPENDIX C - BENCHMARK FINDINGS C-1 APPENDIX C — BENCHMARK FINDINGS This appendix is divided into three sections. The first section summarizes how Berkshire Advisors uses benchmarking data. The second section presents the approach that was used to select the agencies to which the Boynton Beach Police Department (BBPD) was compared. The third section presents the comparison data. A — USING BENCHMARKING DATA It is important to note that while "apples to apples" comparisons are difficult to make this comparison becomes less relevant when, as is the case for this study, the purpose of the benchmarking effort is to provide an overall context for review rather than as the basis for making specific recommendations or decisions. The ultimate decision with regard to the level of service the Boynton Beach Police Department will provide should be based on an assessment of community needs and the resources available to support services. In particular, using benchmarking as a diagnostic tool — to understand where efforts to improve should be focused — can be quite beneficial. B — APPROACH Two steps were used to select the benchmark agencies. First, a preliminary list of cities with similar demographics to the City of Boynton Beach was identified. The project's work group reviewed the list and 13 potential benchmark departments were identified. A benchmarking questionnaire was then developed and distributed and seven agencies completed and returned a questionnaire (Albany, Georgia; Delray Beach, Florida; Fort Myers, Florida; Fort Pierce, Florida; Melbourne, Florida; North Miami Beach, Florida; and Ocala, Florida). C — COMPARISON DATA The results of the benchmark findings are presented in 9 areas: demographics; financial information; staffing; call -taking and dispatch; calls -for -service and response times; crime statistics; vehicle accidents; information technology; and miscellaneous information. W DEMOGRAPHICS Of the eight agencies for which information will be presented the Boynton Beach Police Department serves the third largest population and the third smallest geographic area. Boynton Beach has the second highest median household income of the benchmark cities and the third lowest percentage of the population below the poverty level. Boynton Beach also has the second highest percentage of individuals who speak a language at home other than English. Land Area Percentage Of Population Served In city Served Square Miles Albany, GA 77,434 55.1 Melbourne, FL 76,068 33.8 Boynton Beach, FL 68,217 16.2 Fort Myers, FL 62,298 48.0 Delray Beach, FL 60,522 15.8 Ocala, FL 56,315 44.8 North Miami Beach, FL 42,504 4.8 Fort Pierce, FL 41,993 20.7 Average excluding Boynton Beach 59,591 31.8 Boynton Beach has the second highest median household income of the benchmark cities and the third lowest percentage of the population below the poverty level. Boynton Beach also has the second highest percentage of individuals who speak a language at home other than English. C-3 Percentage Of Percentage Of Individuals Who Median Family Individuals Speak A Language City Income Below Poverty At Home Other Level Than English Delray Beach, FL $49,823 13.9% 25.4% Boynton Beach, FL $45,156 15.1% 30.5% Melbourne, FL $42,089 14.4% 10.5% North Miami Beach, FL $41,489 19.3% 66.2% Fort Myers, FL $37,342 25.2% 25.4% Ocala, FL $36,706 21.5% 13.7% Albany, GA $33,155 32.3% 3.7% Fort Pierce, FL $30,869 30.2% 26.2% Average excluding $33,155 22.4% 24.4% Boynton Beach C-3 FINANCIAL INFORMATION Boynton Beach ranks second in terms of police department general fund budget as a percentage of the city's general fund. Police Department General Fund Police Department Budget As A Department General Fund Percentage Of Rank Budget City's General Fund North Miami Beach, FL $17,715,523 (a) 41.0% 1 Boynton Beach, FL $24,838,842 (a) 40.6% 2 Fort Pierce, FL $12,193,520 (b) 38.0% 3 Fort Myers, FL $31,237,460 37.1% 4 Melbourne, FL $22,957,736 33.0% 5 Delray Beach, FL $27,670,830 29.0% 6 Albany, GA $16,771,802 29.0% 6 Ocala, FL $21,222,460 26.5% 7 Average excluding BBPD $21,395,619 33.8% (a) Does not include code compliance budget amounts. (b) Police department does not provide communications operations. Boynton Beach allocates the third smallest budgeted overtime amount per police department employee. Average excluding BBPD $ 901,621 $4,995.89 C-4 Budgeted Overtime Police Department Amount Per Police Department Budgeted Overtime Department Rank Amount Employee North Miami Beach, FL $ 806,000 $6,661.15 1 Fort Myers, FL $1,327,900 $6,091.28 2 Fort Pierce, FL $ 836,235 $5,537.98 3 Delray Beach, FL $1,050,000 $4,585.15 4 Melbourne, FL $1,008,000 $4,289.36 5 Boynton Beach, FL $ 808,120 $3,690.04 6 Ocala, FL $ 677,315 $2,810.43 7 Albany, GA $ 605,900 $2,433.33 8 Average excluding BBPD $ 901,621 $4,995.89 C-4 STAFFING The size of the Boynton Beach Police Department (budgeted and sworn positions) is the fourth smallest. (a) Does not include 28 part-time positions (b) Includes 5 grant -funded positions. (c) Includes 6 grant -funded positions. (d) Includes 8 grant -funded positions. The Boynton Beach Police Department has the third highest ratio of budgeted sworn positions to budgeted civilian positions. Police Police Police Police Sworn Police Department Department Police Number Of Number Of Number Of Number Of Department Civilian Rank Positions Budgeted Budgeted Total Number 4 Department Sworn Civilian Of Budgeted Rank Fort Myers, FL Positions Positions Positions 6 Albany, GA 214 35 249 1 Ocala, FL 165 75 241 (a) (b) 2 Melbourne, FL 169 66 235 3 Delray Beach, FL 158 71 229 4 Boynton Beach, FL 164 55 219 5 Fort Myers, FL 175 72 218 (c) 6 Fort Pierce, FL 116 35 151 (d) 7 North Miami Beach, FL 87 34 121 (b) 8 Average excluding BBPD 155 55 206 (a) Does not include 28 part-time positions (b) Includes 5 grant -funded positions. (c) Includes 6 grant -funded positions. (d) Includes 8 grant -funded positions. The Boynton Beach Police Department has the third highest ratio of budgeted sworn positions to budgeted civilian positions. Albany, GA 214 Ratio Of Police Police Sworn Police Department Department Department Number Of Number Of Positions To Department Sworn Civilian Civilian Rank Positions Positions Positions Albany, GA 214 35 6.11 1 Fort Pierce, FL (a) 116 35 3.31 2 Boynton Beach, FL 164 55 2.98 3 Melbourne, FL 169 66 2.56 4 North Miami Beach, FL 87 34 2.55 5 Fort Myers, FL 175 72 2.43 6 Delray Beach, FL 158 71 2.22 7 Ocala, FL 165 75 2.20 8 Average excluding BBPD 155 55 3.19 (a) Police department does not provide communications operations. C-5 The number of total budgeted positions per 1,000 population is fewer in Boynton Beach than for all but two of the benchmark jurisdictions. Average excluding Boynton Beach 59,591 206 3.46 (a) Does not include 28 part-time positions. (b) Police department does not provide communications operations. Budgeted sworn positions per 1,000 population is fewer in Boynton Beach than for all but three of the benchmark jurisdictions and budgeted civilian positions per 1,000 population is fewer in Boynton Beach than for all but two of the benchmark jurisdictions. Budgeted Budgeted Sworn Police Total Police Department Department Positions Per Total Police Department 1,000 Rank Population Population Department Budgeted 0.80 6 2.34 Coverage Number Of Positions Per 7 City Population Budgeted 1,000 Rank Positions Population Ocala, FL 56,315 241 (a) 4.27 1 Delray Beach, FL 60,522 229 3.78 2 Fort Pierce, FL (b) 41,993 151 3.59 3 Fort Myers, FL 62,298 218 3.49 4 Albany, GA 77,434 249 3.21 5 Boynton Beach, FL 68,217 299 3.29 6 Melbourne, FL 76,068 235 3.08 7 North Miami Beach, FL 42,504 121 2.84 8 Average excluding Boynton Beach 59,591 206 3.46 (a) Does not include 28 part-time positions. (b) Police department does not provide communications operations. Budgeted sworn positions per 1,000 population is fewer in Boynton Beach than for all but three of the benchmark jurisdictions and budgeted civilian positions per 1,000 population is fewer in Boynton Beach than for all but two of the benchmark jurisdictions. Budgeted Budgeted Sworn Police Civilian Police Department Department Positions Per Positions Per City 1,000 Rank 1,000 Rank Population Population Ocala, FL Albany, GA Fort Pierce, FL (a) Delray Beach, FL Boynton Beach, FL Fort Myers, FL Melbourne, FL North Miami Beach, FL 2.92 1 1.33 1 2.76 2 0.45 8 2.76 3 0.83 5 2.61 4 1.17 2 2.40 5 0.80 6 2.34 6 1.15 3 2.22 7 0.86 4 2.04 8 0.79 7 Average excluding Boynton 2.52 0.94 Beach (a) Police department does not provide communications operations. C-6 The number of civilian personnel supporting records operations is lower in the BBPI than in all but one of the benchmark departments, Total Sworn Records Total Civilian Records Department Personnel Personnel - - - - - - - ---------------- Fort Myers, FL 0 11 Delray Beach, FL 0 10 Ocala, FL 0 8 Albany, GA 0 8 Melbourne, FL 0 6 Fort Pierce, FL 0 5 Boynton Beach, FL 1 4 North Miami Beach, FL 0 1 The Boynton Beach and Ocala police departments employ sworn staff to support property/evidence operations, Budgeted Total Civilian Staff I nvestig ato rIDetectIv e e artment Positions FL Assigned To Albany, GA 25 Ocala, FL 23 Fort Myers, FL 21 Fort Pierce, FL 19 Boynton Beach, FL 16 Delray Beach, FL 13 North Miami Beach, FL 11 The number of civilian personnel supporting records operations is lower in the BBPI than in all but one of the benchmark departments, Total Sworn Records Total Civilian Records Department Personnel Personnel - - - - - - - ---------------- Fort Myers, FL 0 11 Delray Beach, FL 0 10 Ocala, FL 0 8 Albany, GA 0 8 Melbourne, FL 0 6 Fort Pierce, FL 0 5 Boynton Beach, FL 1 4 North Miami Beach, FL 0 1 The Boynton Beach and Ocala police departments employ sworn staff to support property/evidence operations, M Total Sworn Staff Total Civilian Staff Total Staff Assigned To Assigned To Assigned To Department Property/Evidence Property/Evidence Property/Evidence Operations Operations Operations Boynton Beach, FL 2 0 2 Delray Beach, FL 0 2 2 Fort Myers, FL 0 2 2 Fort Pierce, FL 0 1 1 Melbourne, FL 0 3 3 North Miami 0 1 1 Beach.FL Ocala, FL 1 9 10 Albany, GA 0 2 2 (a) Does not include two part time positions, M Slightly more budgeted staff support training operations in the BBPD than in the benchmark departments. K9 and marine deployment is similar in the benchmark departments. Number Of Sworn Staff Full -Time Assigned Department Dedicated K9 To K9 Team? Operations Full -Time Dedicated Marine Team? Number Of Sworn Staff Assigned To Marine Operations Boynton Beach, FL Number Of Sworn 4 Positions Supporting Department Training Operations Boynton Beach, FL _ 4 T Albany, GA 1 Delray Beach, FL 3 Fort Myers, FL 2 Fort Pierce, FL 1 Melbourne, FL 3 North Miami Beach, FL 1 K9 and marine deployment is similar in the benchmark departments. Number Of Sworn Staff Full -Time Assigned Department Dedicated K9 To K9 Team? Operations Full -Time Dedicated Marine Team? Number Of Sworn Staff Assigned To Marine Operations Boynton Beach, FL Yes 4 Yes 2 Albany, GA Yes 1 No Delray Beach, FL Yes 3 No Fort Myers, FL Yes 6 Yes 1 Fort Pierce, FL Yes 3 No Melbourne, FL Yes 4 No North Miami Beach, FL No No Ocala, FL Yes 5 No Code compliance is part of police operations in Boynton Beach and North Miami Beach. Boynton Beach employs 11 budgeted civilian positions and North Miami Beach employs 8 budgeted civilian positions. C-8 CALL -TAKING AND DISPATCH Call -taking and dispatch operations are similar in the benchmark departments. (a) 911 calls handled by Miami -Dade County. Direct dial emergency calls handled by the city's police department. Fewer call -taker and dispatch positions support communications operations in the BBPD than in all but two of the benchmark departments. Police Department's Unit Call -Taking And Department Functions As Primary Or Dispatch Provided Department Secondary PSAP By The Police Ocala, FL For 911 Calls Department? Boynton Beach, FL Primary Yes Albany, GA No No Delray Beach, FL Primary Yes Fort Myers, FL No Yes Fort Pierce, FL No No Melbourne, FL Primary Yes North Miami Beach, FL (a) Yes Ocala, FL Primary Yes (a) 911 calls handled by Miami -Dade County. Direct dial emergency calls handled by the city's police department. Fewer call -taker and dispatch positions support communications operations in the BBPD than in all but two of the benchmark departments. a) Includes sworn positions. Includes lieutenant position also responsible for records operations. C-9 Call -Taker And Supervisor/Manager Department Dispatcher Positions Positions Melbourne, FL 33 4 Ocala, FL 26 1 Fort Myers, FL 22 1(a) Delray Beach, FL 19 5 Boynton Beach, FL 18 7(a) North Miami Beach, FL 12 1 Albany, GA N.A. N.A. Fort Pierce, FL N.A. N.A. a) Includes sworn positions. Includes lieutenant position also responsible for records operations. C-9 CALLS -FOR -SERVICE AND RESPONSE TIMES The Boynton Beach Police Department responded to the fewest number of calls -for - service per 1,000 population than the other benchmark jurisdictions that provided information. Number of Citizen -Initiated Number Of Calls -For -Service Department Citizen -Initiated Per 1,000 Rank Calls -For -Service Population Fort Myers, FL 191,548 3,074.7 1 Ocala, FL 126,981 2,254.83 2 Fort Pierce, FL 26,017 619.55 3 North Miami Beach, FL 25,683 604.24 4 Boynton Beach, FL 33,754 494.80 5 Delray Beach, FL (a) 3,089.48 1 Albany, GA (b) 1,627.96 2 Melbourne, FL (b) 456.13 3 Average excluding BBPD 86,687 1,519.53 4 (a) Data provided was not differentiated between citizen -initiated calls and non 26,017 citizen -initiated calls. 5 Delray Beach, FL (b) (b) Data not provided. Albany, GA (c) The Boynton Beach Police Department responded to the fourth fewest number of calls - for -service per officer* than the other benchmark jurisdictions that provided information. C-10 Number of Citizen -Initiated Number Of Calls -For -Service Department Citizen -Initiated Responded To Per Rank Calls -For -Service Officer (a) Fort Myers, FL 191,548 3,089.48 1 Ocala, FL 126,981 1,627.96 2 Boynton Beach, FL 33,754 456.13 3 North Miami Beach, FL 25,683 407.66 4 Fort Pierce, FL 26,017 346.89 5 Delray Beach, FL (b) Albany, GA (c) Melbourne, FL (c) Average excluding BBPD 86,687 1,305.08 (a) Only includes officers who primarily respond to calls. (b) Data provided was not differentiated between citizen -initiated calls and non citizen -initiated calls. (c) Data not provided. C-10 Various approaches are used to respond to calls in the benchmark police departments. In five of the departments civilian positions provide a response to calls -for -service. ■ Delray Beach, FL — 11 civilian positions ■ Fort Myers, FL — 7 civilian positions ■ Fort Pierce, FL — 3 civilian positions ■ Melbourne, FL — 5 civilian positions ■ North Miami Beach, FI — 2 civilian positions Five of the police departments handle some calls -for -service by telephone. ■ Albany, GA ■ Boynton Beach, FL (light duty officers when available) ■ Delray Beach, FL ■ Fort Pierce, FL ■ Ocala, FL (light duty officers when available) Two of the police departments (Fort Pierce and Melbourne) handle calls through on-line reporting. Neither department tracks the number of reports handled on-line. Presented below is response time information for emergency and non -emergency calls. It is important to note that there may be wide variations in how departments classify call types and, more importantly, in how departments calculate response times. Consequently, the data presented below has been provided as a point of reference only. Average Response Average Response Time To Time To Department Emergency Non -Emergency Calls -For -Service (a) Calls -For -Service (a) Boynton Beach, FL 7:06 (b) (c) 15:24 (c) (d) North Miami Beach, FL 3:07 (e) 6:08 Melbourne, FL 4:02 (f) 8:55 Fort Myers, FL 6:06 (g) N.A. Delray Beach, FL 6:13 (h) 9:36 (h) Albany, GA 6:40 (i) 8:00 Fort Pierce, FL 6-1520) 12:49 Ocala, FL 8:36 10;50 (a) Represents call receipt time to arrival at the scene time. (b) The response time calculated by the consultants is based on data provided by the BBPD for the time period January 1, 2012 to December 31, 2012. The time does not include calls where the first unit responding is a road patrol officer on special detail, a CAT officer, a crime prevention officer, a training officer, a K9 unit, or a traffic unit. (d) Includes bank robbery in progress; burglary in progress; abduction; drowning; officer needs help; riot; theft in progress; assault in progress; suicide attempt; shooting; stabbing; rape; fight wlweapons; fight no weapons; fight unknown weapons; suicide threat; robbery armed; robbery bank; robbery strong; airplane crash; pursuit, accidentlinjury; death; explosion; ALS; rape just occurred; vehicle fire; CLS; stolen auto; shots fired. (e) Includes 911 hang-up, 911 info; 911 nuisance; 911 open line; abandoned vehicle; abuse - adult; accident Wo injury; alarm bank; alarm commercial; alarm; device; alarm residence; alarm vehicle; assault delayed; bfire; BLS; burglary delayed; child abuse; child abuse DCF; child lockout; child molest; city ordinance violation; civil matter; deceased; disturbance general; disturbance noise; domestic; dumpster fire; elderly abuse; finance run; fire; fire alarm; forgery; fraud; gambling; graffiti; hit & run; 195 accident; juvenile trouble; lewd C-11 lascivious in progress; lost/found property; loud music; met ill person; missing adult; missing juvenile; neighbor trouble; obscene calls; pfire; reckless driver; runaway juvenile; shoplifter; stalking; stolen tag; suspicious incident; suspicious item; suspicious person; suspicious vehicle; theft delayed; trash dumpster; trespass; unwanted guest; vandalism delayed; vandalism in progress; verbal dispute; verbal threats; vice; warrant arrest; welfare check. (f) Includes drowning; severe bleeding; assault with severe injuries; rape in progress; serious traffic accidents with unknown injuries; violent domestic (physical assault occurring or weapons involved); burglary of occupied structure; robbery in progress; suspicious incident (person screaming for help); live wires down; hazardous chemical spills; toxic gas leaks; assault in progress (woman being beaten). (g) Includes armed; hit & run with injuries; accident with injuries; murder; residential burglary in progress; armed disturbance; robbery in progress; armed robbery in progress; home invasion; car jacking; fire visible; occupied vehicle fire; drowning in progress; rape in progress; kidnapping in progress; suicide in progress; overdose in progress; shots fired with victim; plane crash; hostage; CPR; foot pursuit; traffic pursuit; water rescue. (h) Includes murder; robbery; shots heard; alarm; WMD threat; 911 hang up; bar fight; large street fight; Baker Act; suicide; suspicious person; suspicious vehicle; escaped prisoner; kidnapping/missing person; burglary in progress; pursuit; airplane crash; railroad accident; hostage situation. (i) Data provided includes all calls received by the department. (j) Includes burglary in progress; armed robbery; murder; crime in progress; officer needs assistance/activation of radio emergency alarm; accident (fatality); chase in progress (if asked for assistance); hit & run (fatality); activated hold up alarm; person reported cut; person reported shot. (k) Includes A.D.A. assist other agency; alarm; armed robbery; assault; assault need rescue; boat/water accident; back pain; burglary in progress; burglary attempt; burglary B&E; burglary just occurred; burglary past; burglary possible; child abuse; child molestation; child locked in vehicle; civil matter; contact; disturbance; disturbance in process; domestic; domestic trouble in progress, domestic needs rescue; drowning; drunk driver; drunk pedestrian; fight; fight in progress; forgery; fraud embezzlement; hit & run; home invasion; information; juvenile trouble; kidnapping; larceny; larceny in progress; lewd acts; mental/emotional, obstruction in road; rape; reckless driver; shooting activity; shoplifter in custody; sick/injured person; stabbing; stabbing needs rescue; strong-armed holdup; suicide. CRIME STATISTICS Boynton Beach had the fewest number of Part I crimes per 1,000 population of the benchmark cities. Boynton North Beach, Albany, Delray Melbourne, Fort Fort Miami Ocala, Part 1 Crime FL GA Beach, FL FL Myers, FL Pierce, FL Beach, FL FL Homicide 5 4 6 6 24 3 3 6 Forcible Sex 11 27 25 481 24 57 27 40 Robbery 927 224 157 133 172 137 130 92 Aggravated Assault 255 559 269 431 497 275 120 215 Burglary 627 1,405 585 873 909 705 808 606 Larceny 2,210 3,382 2,205 2,607 1,639 1,528 1,163 2,431 Auto Theft 151 226 155 119 200 92 123 60 Part I Crimes Per 49.63 75.25 55.59 53.00 55.61 66.60 53.33 81.61 1,000 Population C-12 The BBPD had the lowest Part I crime average clearance rate among the benchmark departments. VEHICLE ACCIDENTS Boynton Beach had the fewest number of vehicle accidents per 1,000 population of the departments providing information. All of the departments respond to minor non -injury accidents. Boynton Number Of Department Number Of Vehicle Beach, Albany, Delray Melbourne, Fort Fort North Miami Ocala, Part 1 Grime FL GA Beach, FL FL Myers, FL Pierce, FL Beach, FL Accidents? Fort Myers, FL 4,453 71.47 1 FL Both Homicide 0.0% 75.0% 33.3% 33.0% 29.0% 33.0% 0.0% 53.14 100.0% Forcible Sex 55.0% 59.0% 52.0% 33.0% 61.0% 19.0% 52.0% 28.0% Robbery 33.0% 16.0% 32.5% 34.0% 40.0% 23.0% 32.0% 61,0% Aggravated Assault 38.0% 43.0% 63.9% 50.0% 70.0% 48.0% 87.0% 54.0% Burglary 7.0% 10.0% 16.1% 15.0% 14.0% 11.0% 36.0°/% 18.0% Larceny 28.0% 23.0% 15.5% 23.0% 33.0% 18.0% 19.0% 71.0% Auto Theft $.0% 18.0% 13.5% 20.0% 18.0% 29.0% 15.0% 35.0% Average Part 1 24.0% N.A. 24.9% 24.9% 36.0% 26.0% 30.0%. 59.0% Crimes Clearance Rate VEHICLE ACCIDENTS Boynton Beach had the fewest number of vehicle accidents per 1,000 population of the departments providing information. All of the departments respond to minor non -injury accidents. C-13 Number Of Department Number Of Vehicle Responds Response Vehicle Accidents Per To Minor Sworn Or City Accidents 1,000 Rank Non -Injury Civilian? Population Accidents? Fort Myers, FL 4,453 71.47 1 Yes Both Albany, GA 4,826 62.32 2 Yes Sworn North Miami Beach, FL 2,259 53.14 3 Yes Both Melbourne, FL 3,647 47.94 4 Yes Both Fort Pierce, FL 1,999 47.60 5 Yes Both Delray Beach, FL 2,740 45.27 6 Yes Both Boynton Beach, FL 2,485 36.42 7 Yes Sworn Ocala, FL N.A. Yes Both Average excluding 3,321 54.62 Boynton Beach C-13 INFORMATION TECHNOLOGY Four of the police departments receive some IT services from the city's IT department: Albany, GA; Delray Beach, FL; Fort Myers, FL; and Melbourne, FL. Four of the departments provide all IT services with police department staff: Boynton Beach, FL; Fort Pierce, FL; North Miami Beach, FL; and Ocala, FL. TAKE HOME VEHICLES Seven of the departments have a take home vehicle program: Albany, GA; Boynton Beach, FL; Delray Beach, FL; Fort Myers, FL; Fort Pierce, FL; Melbourne, FL; and Ocala, FL. North Miami Beach, FL eliminated it's program in October 2011. C-14 APPENDIX D - BEST PRACTICES FINDINGS D-1 APPENDIX D — BEST PRACTICES FINDINGS In addition to gathering comparative data from other jurisdictions,' the consultants also gathered information on best practices that may be used to provide a framework to address issues currently being faced in Boynton Beach. Relevant best practices were compiled from three sources: the expertise of members of the consulting team, Internet research, and selected interviews with staff from best practice jurisdictions. This appendix summarizes the results of the best practices research that was conducted as part of this project. Findings are presented relating to code compliance, hiring practices, performance evaluation and early warning systems, and customer relations officer training. CODE COMPLIANCE Several approaches have been implemented by best practice jurisdictions to use code compliance operations to address criminal activities in their communities. Findings from six jurisdictions follow. Dallas, Texas The Dallas police department's abatement forfeiture and enforcement team and staff in the narcotics division work closely with attorneys in the city's code compliance office and environmental litigation office. The police identify properties with habitual criminal activity (for instance prostitution and drug deals) and work with the property owners to remedy the problems. If the owners are unwilling to make reasonable attempts to abate the criminal activity, the city's code compliance office files suit. Cleveland, Ohio If the police document three or more criminal activities on the same property within 30 days, the property can be declared a nuisance and the city can take immediate action to board it up or demolish it. Kalamazoo, Michigan Neighborhood enforcement and assistance teams combine joint property inspections by police detectives, community members, representatives from the drug enforcement team, and housing inspectors. By visiting sites together, the teams address both criminal activity and quality of life issues at the same time. A prosecuting attorney coordinates the teams and further assists them by assembling hot spot information, following up on complaints, and aggressively prosecuting violations. Los Angeles, California A landlord is required to evict a tenant who has been arrested within 1,000 feet of the housing unit for violent or narcotics -related crimes. California law also provides that a ' The results of the benchmark comparisons are presented in Appendix C. D-2 city attorney can bring an eviction action against tenants who commit crimes on their property. Phoenix, Arizona By policy, at the time of the initial code inspection, the inspector will check the property for the reported violation as well as any of eight common blight violations on the reported property and properties in the immediate area. If violations are found, the city will provide the property owner/responsible party with notice of the violation(s), necessary corrective action(s), and the compliance deadline. Failure to abate serious nuisances can be considered a felony and the police will take action. Little Rock, Arkansas Teams of community oriented police, code enforcement officers, and neighborhood facilitators work out of neighborhood alert centers located throughout the city. To identify targeted areas and develop specific action plans police use crime statistics and requests for service (primarily concerning drug and property crimes); code enforcement uses condition of building stock, code violations, and public complaints; and neighborhood facilitators use community feedback and surveys. Alert center team members patrol the areas and respond to calls -for -service; have assisted residents in creating neighborhood crime watches and associations; have organized and participated in neighborhood clean-ups; and have responded to citizen complaints about housing code violations, abandoned automobiles, overgrown weed lots, and other environmental hazards. HIRING PRACTICES While there are no national standards that specify new hire police officer qualifications and characteristics, a federally funded study identified similar characteristics and traits among generation -X and generation -Y candidates that need to be taken into account as part of a police department's hiring evaluation process. in particular findings revealed that members of these two groups are independent -minded and averse to being micro - managed; are uncomfortable with a paramilitary hierarchy; prefer to be their own problem -solvers; prefer to be part of the decision-making process; and tend to be more aggressive than previous hires. The study also identified the need to shift from trying to eliminate the most problematic recruits to developing strategies to identify the most highly qualified applicants. One possible strategy is to use an assessment center approach that includes having the applicant join in a group discussion (to evaluate interpersonal and communication skills); analyzing a crime scene (to demonstrate problem solving skills); and participating in leader and leaderless group exercises. Findings from four jurisdictions follow. 2 U.S. Department of Justice, Identifying Strategies for Dealing with the Recruiting and Hiring Crisis in Law Enforcement, April 2006. D-3 Oklahoma City, Oklahoma An employment assessment board is responsible for assessing the police applicant's qualities, personal characteristics, and ability to perform as a police officer. Two primary analytic tools are used: ■ The California Psychology Inventory (CPI) exam that measures and evaluates a candidate's interpersonal behavior and social interaction. The exam is intended to forecast what a person will say and do under defined conditions and to identify individuals who will be described in characteristic ways by others who know them well or who observe their behavior in particular contexts (indicator measurements include socialization, flexibility, empathy, achievement via independence, and responsibility). ■ The Minnesota Multiphastic Personality Inventory (MMPI) exam assesses a candidate's personality and psychopathology traits including emotions, perceptions, addiction potential, and ego strength. The exam is administered by a psychiatrist and given after conditional offer of employment. Los Angeles, California The police department (LAPD) applicant test includes a background standards section designed to evaluate desired behaviors and weed out problem applicants (each standard represents an area that is essential for success in the LAPD). Standards include: ■ Interpersonal skills and sensitivity: Potentially disqualifying evidence include using verbal or physical abuse or violence toward others; inability to get along with others; failure to listen effectively; use of derogatory stereotypes in jokes or daily language; making rude and/or condescending remarks to or about others; use of physical force to resolve disputes; demonstrated overreaction to criticism; and challenging authority. ■ Decision-making and judgment: Potentially disqualifying evidence include making poor choices given known circumstances; indecision when options are not clear-cut; failure to take action when appropriate or demonstrating insecurity about making a decision; behavior indicating poor judgment or failure to consider appropriate options; failure to learn from past mistakes; inability or unwillingness to modify a position; rigid adherence to rules without consideration of alternative information; failure to see or consider all options; and succumbing to peer pressure. ■ Maturity and discipline: Potentially disqualifying evidence include use of illegal drugs; abuse of alcohol or prescription medications; failure to follow all laws and common rules of conduct; associating with individuals who break the law; being argumentative, defensive, or blaming others (or circumstances) for mistakes; past behavior which indicates a tendency to resort to use of force to gain objectives; overbearing in approach to resolving problems; unnecessarily confrontational taking unnecessary personal risks; placing others at risk through one's own actions; and reacting childishly or with anger to criticism or disappointment. D-4 ■ Honesty, integrity, and personal ethics: Potentially disqualifying evidence include making false and/or misleading statements or intentionally omitting relevant information; minimizing past mistakes or errors; blaming others/making excuses for mistakes; attempting to induce others to give false information; bending the rules or using a position of authority for personal gain; condoning the unethical behavior of others through silence; and engaging in theft or fraud. San Antonio, Texas The police department applicant test includes a behavioral orientation section to detect potential problems. A "candidness scale" is imbedded in the test to help detect if applicants are attempting to provide answers based on "looking good" rather than being truthful. The closer the answers are "in -match" to previously identified successful San Antonio officers, the higher the applicant's score. Sacramento, California As part of the U.S. Department of Justice Hiring in the Spirit of Service initiative -- and based on the work conducted by a steering group that included police department employees, union representatives, community members, city HR representatives, and consultants — the Sacramento police department revised its recruitment and hiring program to include three components: ■ Community outreach — candidate qualifications include service orientation, volunteerism, and a history of giving back to the community ■ Occupational screening — includes an assessment based on behavioral dimensions (communication skills, problem -solving ability, integrity, and interest in people) ■ Psychological testing — developed a manual in use by all consulting psychologists to help ensure uniformity of evaluations; includes social competence and stress tolerance indicators Community leaders are being trained on these components to identify and help recruit candidates from faith -based communities, neighborhood and business associations, and educational institutions. In addition a mentoring program is in place through the selection, training, and probationary periods. PERFORMANCE EVALUATION AND EARLY WARNING SYSTEMS According to a National Institute of Justice study,' law enforcement agencies should develop and implement early warning information management systems as a way to provide supervisors and managers with information relating to potential patterns of at - risk conduct. Systems should monitor information relating to the actions of individual officers, supervisors, and specific units or divisions. In deciding what information to include, agencies should balance the need for sufficient information for the system to be comprehensive with the need for the system to not be too cumbersome to be utilized effectively. Information should include shootings and other uses of force; searches and 3 National Institute of Justice, Responding to the Problem Police Officer, A National Study of Early Warning Systems, September 2000. D-5 seizures; citizen complaints; citizen commendations; criminal charges against officers; civil suits alleging officer misconduct; other misconduct allegations; disciplinary actions; non -disciplinary remedial actions; training history; and civilian arrests. Additional information may include on -duty preventable traffic accidents; traffic violations; traffic stops; and use of sick leave. The fact that an officer has a particular number of items entered in the system should not, by itself, result in a determination that the officer is engaging in at -risk conduct. Consequently, agencies can establish numerical warning flags involving particular categories of information so that in certain circumstances a supervisor is required to review the performance of a particular officer (e.g., where the officer has a specified number of misconduct investigations or a specified number of uses of force in a designated time period). The performance of that officer is then evaluated in light of the officer's assignments and the performance of his or her peers. As a result of a periodic review or a review prompted by a warning flag a supervisor can require that appropriate remedial action be taken. Early warning systems should also incorporate appropriate safeguards to ensure the accuracy of data entry including procedures for officers to periodically review their own records for accuracy. Agencies should also develop protocols to ensure limited access to the information contained in these systems. Findings from four jurisdictions follow. San Diego, California After 10 cases of impropriety and/or criminal behavior over a recent 3 -month period, the San Diego police department revised its evaluation process to include a more rigorous early warning system, ethics training, and psychological wellness assessments. The department is also reviewing its disciplinary procedures. San Jose, California The city council voted in favor of commissioning a study to use the performance evaluation/early warning process as a criterion for employee layoffs and for promotions. Charlotte, North Carolina An employee task force refocused the police department's performance evaluation system from a procedures orientation to an outcome orientation (with a particular emphasis on customer service). The system attempts to eliminate the inconsistency in ratings that came from varying personalities of supervisors. Officers are evaluated on actions that are more relevant to their jobs - knowledge of their district, communications skills, and whether the response they provided was appropriate to the nature of the call. In addition, sick days are now only counted in the performance evaluation if there is a problem. The process for developing the new system is deemed successful for several reasons: employees developed the criteria; the system better reflects the actual work performed; task force team members regularly shared information and consulted constantly with the rank -and -file, visiting all facilities and shifts, testing ideas and obtaining input; task force M^ members conducted the majority of the training, increasing the credibility and acceptance of the new processes; and some team members were members or officers of local employee associations and made use of their leadership skills, relationships, and credibility to gain input and acceptance. Seattle, Washington The police department performance evaluation system has been revised to capture information in several categories: early intervention activity; record of sustained complaints; number of vehicle collisions; discipline history; and exemplary behavior. CUSTOMER RELATIONS OFFICER TRAINING Two police departments have modified their police officer training to include a customer relations component. Sacramento, Callifornia Since 2008, the police department has partnered with several private sector companies to enhance patrol officer customer service/communications skills. Once a year private sector representatives conduct customer service and communications workshops. The companies include Target and Sutter Health (both known for exemplary customer service). The police department feels that this training is important because of the penchant for communications to now be conducted primarily through e-mail and voice mail. Waterloo, Iowa In 2011, police department staff attended customer service classes in an attempt to make encounters go better for officers and citizens. A survey has been developed to garner feedback from both groups. D-7 APPENDIX E SUMMARY OF COMMUNITY FOCUS GROUP DISCUSSIONS E-1 APPENDIX E — SUMMARY OF COMMUNITY FOCUS GROUP DISCUSSIONS This appendix describes the findings from two focus group meetings with community representatives. The first section presents an overview of the meeting; the second section presents general accolades voiced by the participants; and the third section presents participants' concerns. A — OVERVIEW Two focus group meetings were conducted with community stakeholders. Participants included residents, business employees and owners, property managers, representatives from neighborhood organizations, former law enforcement employees, and former teaching professionals. Meetings lasted 75 minutes with 12 to 15 participants in each session. Community input was also received via a g -mail account specifically set up for this project. B — GENERAL ACCOLADES Participants expressed general satisfaction with the performance of Police Department staff and response to calls -for -service. STAFF ACCESSIBILITY, PROFESSIONALISM, AND EFFICIENCY Specific points noted in the focus group meetings include the following: ■ In some areas of the City patrol officers are quite visible and are seen riding through the communities several times a day, helping to deter criminal activity ■ Although community interaction for the most part is reactive, patrol officers were noted for taking time to stop and talk to residents ■ If problems are frequently reported the department seems to patrol the area more frequently, adding to the neighborhood's feeling of safety ■ Most communications staff were viewed as being professional ■ The records staff were also acknowledged as being professional RESPONSIVENESS Comments relating to the Department's response to calls -for -service included: ■ Perceptions of calls -for -service response times was viewed as fast for emergency calls ■ In response to specific incidents staff were lauded for "going above and beyond," "being supportive and comforting," and "doing a fantastic job" E-2 C — GENERAL CONCERNS Although community stakeholders are generally satisfied with selected aspects of the department's performance, a range of concerns was expressed. COMMUNITY POLICING Community policing was viewed as being inconsistent at best, and non-existent at worst. Participants felt that community policing was more responsive and effective when the zone concept was in place; that the department is lax in getting the community actually involved; that specific programs (such as the citizen's academy and speaker's bureau) are not well publicized; that the department should consider opening one or two satellite offices, and that foot and bike patrols are needed in selected communities. Concerns were also expressed about the need for short- and long-term strategies to address issues related to the mix of cultures and languages in the City (the Department was praised for ensuring the availability of translation services in the communications center) and strategies to address quality of life issues (in particular prostitution, homelessness, property code violations, and mental illness). Additional issues were raised related to efforts to build community relationships and trust that get started and then seem to fall away; the big show of support for the community for major incidents that then disappears; and months -old promises of extra neighborhood patrols that have not happened. RESPONSIVENESS Concerns were raised regarding lengthy response times for many types of non- emergency calls. Wait times of more than 30 minutes to "never showed up" were reported. The officers who take the time to explain why they are slow to respond to a specific call were commended while other officers were criticized for refusing to explain. In addition, some officers were singled out for being unnecessarily rude when questioned and for exhibiting unnecessary aggression, leading to suspicions of steroid use and anti -social behavioral problems. Several participants reported that numerous calls related to after school activity were never responded to (forcing neighbors to provide their own response) and for more than one incident communications staff reported no record of an original call and then became "combative" when questioned. Over response to calls was also noted -- "If four officers show up and only two are needed the others should return to road patrol." PERSONNEL The personnel issues that were raised related to the general workforce, staffing levels, performance evaluations, budgetary problems, the complaint process, and driving habits. Workforce. Some satisfaction was expressed that when something goes wrong the Department is good at policing itself, however this is after the fact. Of primary concern is how to ensure that the community has the Police Department workforce it deserves, that E-3 is staff who have been thoroughly investigated before being hired,' who are trained properly, and who are weeded out during the probationary period. Staffing levels. Participants voiced a perception that the Department is top-heavy with too few officers and too many managers, especially managers who rarely get in a patrol car and ride the streets. In addition participants expressed concern that the number of staff who are participating in the DROP program will, in time, increase vacancies and increase the costs to replace positions. Performance evaluations. A recommendation was made to improve the Department's performance evaluation process, specifically to include periodic drug testing for steroids2 Budgets. Participants expressed concern that budgetary problems have contributed to low morale, and will continue to do so; in particular the condition of the headquarters facility, the lack and condition of patrol vehicles, and the lack of pay raises. Complaints. Participants wondered if community members are able to voice their concerns about officer misconduct without fearing retribution. Likewise, participants wondered if Department staff were able to voice their own complaints about fellow employees, supervisors, or specific Department issues. Driving habits. Particular criticism was leveled at patrol officers who drive at high rates of speed without using sirens or lights, not stopping at stop signs, and not using turn signals, adding to dangerous situations on the road. ADDITIONAL CONCERNS Additional concerns related to the inconsistent follow-through by investigative detectives the duplication of services with the sheriff's office, and the need for an improved website that includes real time information. Of particular concern was the issue of the headquarters lobby being open to the public only one day a week and the danger this poses if someone needs emergency help but has to wait out in the open for an officer to show up and the lengthy wait times to pick up a copy of a report. ' Going forward the Department will use internal affairs detectives to conduct background investigations rather than recruiters. 2 Department staff indicates this recommendation would need to be collectively bargained and would double the current testing costs. E-4