A MANAGEMENT REVIEW OF THE

Transcription

1 A MANAGEMENT REVIEW OF THE BRANDYWINE REGIONAL POLICE DEPARTMENT CHESTER COUNTY, PENNSYLVANIA A POLICE PEER PROJECT JANUARY 2008 COMPLETED BY: POLICE PEER-TO-PEER CONSULTANT PAUL T. (TIM) DICKINSON DEPARTMENT OF COMMUNITY AND ECONOMIC DEVELOPMENT DENNIS YABLONSKY, SECRETARY GOVERNOR S CENTER FOR LOCAL GOVERNMENT SERVICES FRED A. REDDIG, EXECUTIVE DIRECTOR

2 TABLE OF CONTENTS Topic Page I. INTRODUCTION 2 II. ACKNOWLEDGEMENTS 4 III. EXECUTIVE SUMMARY 5 IV. CRIME AND POLICE WORKLOAD 8 V. POLICE STAFFING NEEDS 16 VI. BUDGET AND FISCAL POLICIES 29 VII. CONCLUSION 50

3 I. INTRODUCTION The current study of the Brandywine Regional Police Department was initiated at the request of the Brandywine Regional Police Commission via the submission of an official Letter of Intent to representatives of the Governor s Center for Local Government Services (GCLGS), located in the Pennsylvania Department of Community and Economic Development. The letter of intent officially requested that a study be conducted by the Center and, furthermore, recognized that the Brandywine Regional Police Commission was not obligated, or bound, by the results of the study This document contains a review of the current sworn police officer staffing and the budget of the Brandywine Regional Police Department. Information and statistical data received from the Federal Bureau of Investigation, the Commonwealth of Pennsylvania, the Pennsylvania State Police, police department and municipal sources, as well as other public sources of data were used to examine the current status of the department and to gauge organizational needs. Meetings and discussions with the Chief of Police were conducted to gather additional data. Several other Pennsylvania regional police agencies were contacted to provide a somewhat relevant comparison. The scope of this study was limited and of a more narrow focus than a complete organization and management study would normally be. While some information is included in this report to provide background information, conclusions cannot be drawn regarding the overall effectiveness of the police department or the level of police service provided to the community. A more complex and broader focused study would be required. It is extremely important to remember that the level of police service provided to a community is an individual community decision. The level of service is based upon individual community needs, the wants and desires of the citizens, and the desire and ability to fund the police department. Of course, these issues are communicated and implemented through the elected officials. Realistic decision makers understand that what is effective and efficient for one community may not be as effective and efficient for another. 2

4 Statistical data was combined with professionally accepted standards and formulas to determine recommended staffing levels. The department s budget and financial practices were reviewed and compared to professionally accepted standards. Of course, it must be noted that it is difficult to draw a specific conclusion directly from comparative analysis of police agency budgets and municipal expenditures for police service. Every community has its own unique factors and communities do not provide the same types and levels of service to their citizens. For example, the two regional police agencies selected for comparison, and that responded to the requests for information, were selected based upon their similar demographic make-up, location in the southeastern area of the Commonwealth, overall size, and population. Despite these similarities, variables affecting the conclusions that can be drawn from the comparisons still exist. These variables include the different funding formulas utilized to determine cost contributions, regional cost of living and salary rates, crime/incident rates, and coverage types and police service levels. Two of the municipalities participating in the Northern Berks Regional Police Department do not receive 24-hour police patrol service, and the funding formula used and budget totals reflect that fact. Therefore, all these factors must be considered when attempting to draw conclusions from comparative analysis alone. Comparing police agencies and municipal expenditures only seeks to provide a reference point from which to consider current factors and acceptable practices. The same can hold true for crime statistics. In many cases, police agencies do not report uniformly and even slight deviations can result in what appears to be dramatic differences. Again, by comparing several agencies of similar size and demographics a reference point can be established. When examining policing in individual communities, a set standard of absolute certainty does not exist. 3

5 II. ACKNOWLEDGEMENTS I thank the Brandywine Regional Police Department, the Brandywine Regional Police Commission and the staff of the other area regional police departments for their support and cooperation during this review. The nature of this type of review tends to reveal the strengths and weaknesses of the organization from a staffing and budgetary standpoint. Improvement can only take place when problems and issues are identified and solutions recommended. It is hoped that this document will be used in a constructive manner, and that decision-makers and interested community members carefully read and consider the information and any recommendations contained within to help raise police service to a higher level. 4

6 III. EXECUTIVE SUMMARY This section of the report intends to provide a quick reference to the major highlights or major points identified as a result of the overall review of the police department staffing, budget, and fiscal practices. CRIME AND POLICE WORKLOAD A review of the reported crimes within the Brandywine Regional Police Jurisdiction reveals that generally the community is overall a safe place to reside, conduct business, and to visit. Despite the problems with drawing too specific a conclusion from comparing crime rates with other jurisdictions, the data shows that Brandywine Regional has a lower rate of crime than the other two comparable regional police agencies. The Brandywine Regional Police Department is below the average of the comparable regional police agencies in total reported crime, as well as crimes handled per officer. The Brandywine Regional is slightly below the average in crimes per capita (per citizen). The Brandywine Regional Police Department is slightly above average in total work units and below average in work units per officer. This, however, cannot be used to draw an immediate conclusion that the police department is overstaffed and under-worked. In fact, the inference that the work is better distributed among available personnel can also be considered. This data does indicate, however, that staffing within the Brandywine Regional Police Department is not grossly deficient when compared to the workload. The community must answer the question of whether or not they want a totally reactionary police force, in other words a police force that only has the daily resources to primarily respond to crime and serious activity. Conversely, does the community wish to fund a police force that is proactive and able to respond to issues proactively to provide better prevention, problem solving, and community service related activities. POLICE STAFFING NEEDS The number of police officers currently employed by the Brandywine Regional Police Department is well below the population ratio in the Southeast CHSR of Pennsylvania that includes the Brandywine Regional Police Jurisdiction. The number of officers per 1000 population is also below national and state ratios. 5

7 A staffing level of 17.5 sworn officers including patrol officers, criminal investigators, supervisors, and command staff as currently maintained is justified. A sworn staffing level of 19 is indicated by the average of the formulas. BUDGET AND FISCAL POLICIES Overall, annual percentage increases in police costs per municipality appear to be within normal ranges when growth and personnel cost increases are considered. Over the period the percentage of the municipal general fund budgets for the municipalities participating in the Brandywine Regional Police Department are within the average to upper range for communities providing full-time police service to their citizens. The average cost of providing 24 hour police service to East Brandywine Township over the period was $ per citizen. The average cost over the same period per citizen in Wallace Township was $ The average annual percentage increase per municipality was within one percent of each other for the period. The average cost per officer for East Brandywine Township over the period was $68, The average cost over the same period per officer for Wallace Township was $33, The average annual percentage increase per municipality was within one percent of each other for the period. When comparing total costs per officer for the three regional police agencies Brandywine Regional was below the average by 2%. The average cost per hour for East Brandywine Township over the period was $ The average cost over the same period per hour for Wallace Township was $ The average annual percentage increase per municipality was within one percent of each other for the period. When comparing total costs per work unit for the three regional police agencies Brandywine Regional was the lowest per work unit, below the average by 19 %. The line item budget is managed on a cash basis, as is common in municipal policing in Pennsylvania. The line item categories are appropriately titled and arranged in a manner common to most police budgets. The line item breakdown of expenses by categories is sufficient in number to provide an accounting of the expenses commonly incurred in providing police service to the community. 6

8 Other than the minor overages referenced, I found the Brandywine Regional Police Expense Budget to be in-line with commonly accepted standards and practices for municipal police departments in Pennsylvania. Audits of the Brandywine Regional Police Department conducted by Holmes, Simmons, and Oswald P.C. of Plymouth Meeting, PA were provided for the years 2003 through The audit reports confirmed the cash basis fiscal management practice and reported no major disparities or problems with the overall financial practices of the police department. It appears the distribution of cost is equitably assessed within plus or minus one percent, and therefore as accurate as practical in determining costs for police service. The Brandywine Regional Police Department, based upon the information and documentation provided, appears to be within commonly accepted practices and standards relating to staffing, budgeting, and fiscal issues. 7

9 IV. CRIME AND POLICE WORKLOAD Crime is a concern in most communities. There are several methods of measuring and evaluating crime. The most common and universal is participation in the FBI Uniform Crime Reporting System. The UCR s establish a standardized method of collecting and categorizing crime information. The primary objectives of the Pennsylvania Uniform Crime Report (UCR) Program are to inform the Governor, Legislature, other government officials, and the public concerning crime problems in Pennsylvania and to provide law enforcement administrators with crime statistics for administrative and operational purposes. Although not designed to be used to compare one agency against another, many police departments use the UCR as a benchmarking process and compare their crime rate with that of other similar cities. A high or low crime rate in itself is not a valid tool to measure the effectiveness of a police department, although it may be used as one method to help determine the number of police officers needed in a community. The FBI cites a number of factors that affect the crime rate in a city. These factors include: Population density Composition of population, including number of youth and elderly Economic conditions including median income and job availability Cultural conditions including educational, religious, and recreational issues Family conditions Citizen attitudes toward crime Law enforcement strength The Federal Bureau of Investigation s Uniform Crime Reporting (UCR) system, which in Pennsylvania is administered by the Pennsylvania State Police, establishes various types of crime, defines their characteristics, and divides them into Part I and Part II crime categories. Part I crimes include Murder, Rape, Robbery, Burglary, Larceny, Vehicle Theft, and Arson. These crimes are well defined and consistent throughout the United States and serve as a good measure of the overall crime picture in a community, a 8

10 state, and the nation. They are sometimes referred to as serious crimes, although this is a misnomer since petty thefts are also included in this classification. Part II crimes include many different varieties of criminal activities, including minor assaults, vandalism, forgery, prostitution, drug sales and possession, alcohol violations, disorderly conduct, and local ordinances. Many Part II crimes are actually only discovered when police take enforcement action. Some examples of this are situations where police interrupt a drug deal, stop a vehicle whose driver is under the influence of alcohol, or write a citation for possessing an open container of alcohol on a public street, which in many communities is a violation of a local ordinance. Although the Brandywine Regional Police Jurisdiction does not have a serious crime problem, it is useful to display the types of crime the community is experiencing, and the success of the police in discovering and solving them. It is also interesting to compare these indicators with municipalities that are somewhat similar in size and demographics. The tables that follow compare crime reported to Brandywine Regional Police with two other similar regional police jurisdictions, the Northern Berks Regional Police Department (Berks County) and the Pennridge Regional Police Department (Bucks County). A review of the reported crimes within the Brandywine Regional Police Jurisdiction reveals that generally the community is overall a safe place to reside, conduct business, and to visit figures, the most current complete year, were used for this review. The violent crime rate is especially low, and murders, rapes, robberies, and crimes committed with firearms rarely occur. Despite the problems discussed previously with drawing too specific a conclusion from comparing crime rates with other jurisdictions due to reporting inaccuracies, the data shows that Brandywine Regional has a lower rate of crime than the other two comparable regional police agencies. There are differences in the efficiency and effectiveness of police departments. Some police agencies take more enforcement actions than others. Some are proactive in discovering crimes such as DUI, underage drinking, and the possession of drugs. Some communities desire their police officers to enforce local ordinances such as noise levels, 9

11 drinking in public spaces, and dogs running at large. Reasons such as these can explain why some categories of the UCR reports are relatively high in some communities. The types of housing, businesses and other entities within a town can also be a factor in the type and number of crimes that occur. A town with a shopping mall within its boundaries is likely to have more retail thefts, and a town containing a college will probably have more violations of drinking and disorderly conduct laws. Communities with a higher population density usually have more disturbances, such as assaults, harassment, and disorderly conduct than more sprawling suburban areas. One of the regional police agencies used for comparison, Northern Berks, provides police service to a borough. Boroughs generally are higher in population density and rental units than townships. REGIONAL POLICE TOTAL REPORTED CRIMES 550 Pennridge Regional Northern Berks Regional Pennridge Regional Northern Berks Regional Brandyw ine Regional Brandywine Regional

12 BRANDYWINE REGIONAL POLICE REPORTED CRIME BY TYPE 67% 33% Part I Crimes Part II Crimes UNIFORM CRIME REPORTS (2006) - PART I CRIME UCR PART 1 CRIME 2006 Murder Rape Robbery Ag Asslt Burglary Larceny MV Theft Arson Total Brandywine Regional Northern Berks Regional Pennridge Regional UNIFORM CRIME REPORT (2006) - SELECT PART II CRIMES UCR PART 2 CRIME 2006 S.Asslt Vand Sex Off Drugs DUI Drunk Disorder Other Total Brandywine Regional Northern Berks Regional Pennridge Regional

13 REGIONAL POLICE CRIMES PER OFFICER COMPARISON Pennridge Regional Northern Berks Regional Pennridge Regional Northern Berks Regional Brandyw ine Regional Brandywine Regional REGIONAL POLICE CRIMES PER CAPITA COMPARISON Pennridge Regional Northern Berks Regional Pennridge Regional Northern Berks Regional Brandyw ine Regional Brandywine Regional The Brandywine Regional Police Department is below the average of the comparable regional police agencies in total reported crime, as well as crimes handled per officer. The Brandywine Regional is slightly below the average in crimes per capita (per citizen). Of course, criminal acts and the investigation of crime do not reflect the majority of the work of most police agencies. Citizen and domestic disputes, nuisance type incidents, local ordinance issues, the regulation of non-criminal behavior, the identification and mitigation of hazardous conditions, and the regulation and control of traffic comprise the 12

14 bulk of police workload. Therefore, it is advantageous to look at police workload from a context of both criminal and non-criminal incidents and activities. By including all situations where an officer must initiate some form of action, a better overall picture of a police agency s workload can be determined. By adding all these activities into a factor termed Work Units a better comparison can be made. While some communities will primarily employ and staff their police agency to address crime issues, others will deploy and staff to also provide a level of service that is higher in the other non-criminal aspects of policing as well. The Brandywine Regional Police Department tracks activity in terms of work units and also incorporates it into their municipal funding formulas. Work units include criminal offenses investigated, criminal arrests, all calls for service dispatched, traffic citations and traffic warnings, and non-traffic (minor) incidents and arrests. The tracking of activity by work units and inclusion of work units in the funding formulas is a valid method to view police workload and funding percentages, and therefore it should be continued. REGIONAL POLICE WORK UNITS 2006 POLICE DEPARTMENT Brandywine Regional Northern Berks Regional Pennridge Regional Population Full-Time Sworn Officers Total Work Units 9, , , , , , , , Total Work Units per Officer 13

15 REGIONAL POLICE WORK UNITS COMPARISON 11,222 Pennridge Regional Northern Berks Regional 10,123 12,237 Pennridge Regional Northern Berks Regional Brandywine Regional Brandywine Regional 11, ,000 10,000 15,000 REGIONAL POLICE WORK UNITS PER OFFICER Pennridge Regional Northern Berks Regional ,020 Pennridge Regional Northern Berks Regional Brandywine Regional Brandywine Regional ,000 1,500 The Brandywine Regional Police Department is slightly above average in total work units and below average in work units per officer. This, however, cannot be used to draw an immediate conclusion that the police department is overstaffed and under-worked. In fact, the inference that the work is better distributed among available personnel can also be considered. The unusually high workload of Northern Berks from the data provided may, in fact, indicate that the Northern Berks Regional Police Department may be understaffed for the workload. A complete management and operational study would need to be conducted. This data does indicate, however, that staffing within the Brandywine Regional Police Department is not grossly deficient when compared to the 14

16 workload. Other factors must be considered when determining staffing as addressed in the next section of this report. This workload data, both criminal and non-criminal, is important to consider in the overall picture of the police department and the service level desired and affordable to the community. The community must answer the question of whether or not they want a totally reactionary police force, one that only has the daily resources to primarily respond to crime and serious activity. Or does the community wish to fund a police force that is proactive, able to respond to issues proactively to provide better prevention, problem solving, and community service related activities. 15

17 V. POLICE STAFFING NEEDS One of the best ways to determine police staffing needs is to calculate obligated and un-obligated time. Generally, it is desirable for a police officer to have at least 30 minutes of each hour worked available for proactive police functions. An analysis of current workload, including administrative tasks, can determine the number of police officers needed to allow 30 minutes of un-obligated time. Unfortunately, specific records of obligated time must be kept and tracked by the police department s records management system in order to complete such an analysis. The required data was not readily available for the Brandywine Regional Police Department at the time of this review and an in depth analysis of data and individual officer record keeping over a period of time would be required. To collect adequate data would be beyond the scope and time constraints of this study. There are, however, several other methods that can be utilized to gauge police staffing needs. Police staffing needs can generally be estimated by workload. The workload of a police department is determined by the number of incidents reported to or discovered by police with adequate time allowed for preventative patrol and handling the other administrative tasks associated with municipal policing. Standard formulas and municipal statistics will be used to determine the approximate workload of the Brandywine Regional Police Department and the number of officers it will require to properly staff the department. This will provide an estimate of the number of officers needed to provide minimum patrol services. In most formulas, personnel for detailed investigations, supervision, and management and administration need to be added for proper police agency staffing. Many factors must be considered when deciding how many police officers are required to properly staff a police department. Factors such as population, population density, traffic, calls for service, crime rates, effects of factors in neighboring municipalities, and budgetary limitations are all valid considerations. Also, the service level desired by the community is a major factor that must be considered when determining staffing levels. Many formulas are available for recommending police 16

18 department staffing levels. Some are as simple as the population to officer ratio, while others are more complicated and require data often not available from normal record keeping functions. The first formula demonstrated includes all sworn police officers, regardless of rank or assignment, in its comparisons. FBI UCR Comparison The first and simplest method to estimate how many police officers a municipality needs is to compare the ratios of population to police officers in other cities and towns. It does not consider workload, so it is the least accurate of all methods. However, this calculation and comparison is done each year as part of the FBI Uniform Crime Reports and the Pennsylvania State Police Crime Reports and is readily available. It includes all sworn officers, including detectives, supervisors, and managers. To determine the ratio per thousand people, the number of full-time sworn police officers is divided by the population of the municipality. The remainder is then multiplied by one thousand. The result is the police officer to population ratio. POLICE OFFICER TO POPULATION RATIO Total all cities Populations 10,000-24,999 Populations under 10,000 UNITED STATES NORTHEAST REGION MIDDLE ATLANTIC STATES PENNSYLVANIA* SOUTHEAST PENNSYLVANIA CHSR* BRANDYWINE REGIONAL * Pennsylvania figures are not broken down by population ranges. 17

19 The number of police officers currently employed by the Brandywine Regional Police Department is well below the population ratio in the Southeast CHSR of Pennsylvania that includes the Brandywine Regional Police Jurisdiction. The number of officers per 1000 population is also below national and state ratios. It should be noted that the Southeast CHSR includes the City of Philadelphia and several other larger urban areas. Since the population of Brandywine Regional is just below the 10,000 person level, figures for cities under 10,000 and between 10,000 to 24,999 are provided for comparison. As can be seen, there is a major difference between the ratios for total cities, cities under 10,000 populations, and cities with populations between 10,000 and 24,999. Therefore, as referenced later in this report, an average of ratios for the Middle Atlantic States, which includes Pennsylvania, was utilized as a better representation. There are other methods that rely on estimated workload to more accurately determine staffing. These formulas use varying combinations of calls for service, road mileage, population density, and crime to predict staffing needs. International Association of Chiefs of Police Formula The formula most often used to determine police personnel needs was developed by the International Association of Chiefs of Police (IACP). This formula is no longer considered on its own a reliable gauge of police staffing needs, as community needs create many variables. The formula has, however, been used and applied extensively throughout the Commonwealth by the Governor s Center and found to be, when considered with other methods, fairly reliable and relevant. However, like most situations where an overall standard is applied to a unique and specific set of circumstances, it is subject to error and should not be considered infallible. The IACP formula is applied on the assumption that 45 minutes is the average time necessary to handle the average police incident. While serious crimes, especially those involving an arrest or prolonged investigation, take considerably longer and minor incidents may take much less time to resolve, 45 minutes has been found to be a reliable average. It is 18

20 recommended that only one third of an officer s duty time be taken up with the response to incidents. An officer needs time to handle equipment service, court appearances, and administrative duties as well as to conduct his preventative patrol to help ensure the safety and well-being of the community. The formula adds a buffer factor to account for these needs. It should be noted that an officer in a small department needs more administrative time since they are usually responsible for more record-keeping tasks than their counterparts in a larger department who have more support staff. When applied, the calculations derived from the IACP formula only determines the number of officers "on the street" needed to handle calls and incidents and does not include administrators, supervisors, investigators or other specialists. When forming a full service professional agency, it is wise to consider this fact when deciding on staffing levels. Including extra manpower for supervisory and investigative duties is recommended, even when officers assigned to these duties must also work the street. It is important that when using this formula, the number of incidents used for the calculations is accurate. If accuracy cannot be assured, then an estimate of the incident level can be determined by applying the standard that approximately 550 incidents occur for every 1,000 residents in the community or.55 per person. In this study I have used the incident data contained in the law enforcement data submitted by the Brandywine Regional Police Department, as well as the estimated rate for comparison purposes. STEP 1 Determine the number of complaints and incidents received and responded to by the police department. Complaints and incidents include all forms of police activity where an officer responded and/or took official action. Incidents do not include situations where advice was given over the telephone, delivering messages, handling internal police matters, and such self directed activity as traffic stops etc. In most cases a report will be written by the officer after an incident is handled. 19

21 STEP 2 Multiply the total number of incidents by.75 (45 minutes). It is generally conceded that 45 minutes is the average time required to handle an incident. STEP 3 Multiply by 3 to add a buffer factor and time for preventive patrol. General experience has shown that about one third of an officer's time should be spent on handling requests for service. Other requirements include servicing police vehicles and equipment, personal relief, eating, and administrative duties must be taken into consideration. Time must also be allotted for preventative patrol. STEP 4 Divide the product by 2,920 which is the total number of hours necessary to staff one basic single officer patrol unit for one year (365 X 8 hours = 2,920). The result of applying the IACP formula establishes the number of patrol units necessary to police the community (not the number of officers, but the number of units). To determine the number of officers required to staff each patrol unit, the assignment/availability factor must be determined. This is accomplished by determining how many hours the average patrol officer is not available for duty on the street and subtracting that time from the patrol unit hours of 2,920. Summarized on the next page is that estimated calculation based upon averages relating to contractual liabilities and scheduling history in the Brandywine Regional Police Department, as well as rates for typical police agencies. 20

22 FACTOR ANNUAL HOURS Regular Time Off 832 Vacation (average per year) 224 Holidays (ten 10 hour days per year) 100 Court (five 8 hour days per year typical) 40 Training (five 8 hour days per year typical) 40 Sick/Injury leave (five 8 hour days per year typical) 40 Personal Time 36 TOTAL 1,312 (2,920 Hours minus 1,312 Non Available Hours = 1,608 Available Hours) Once the total available hours of the average patrol officer is established, the assignment/availability factor is determined by dividing the available hours into the yearly patrol unit requirement of 2,920 hours. (2,920 Hours / 1,608 Non Available Hours = 1.8) This results in a factor of 1.8. In other words, it takes 1.8 police officers to staff each patrol unit required to police the community. This does not include administrators, supervisors, investigators, or other specialists - only patrol personnel. Manpower requirements can also be estimated by using formulas based on population and on crime statistics. In order to create a full service and professional department, the manpower analysis typically includes recommendations for a chief of police, a command staff (captains/lieutenants), a supervisory component (sergeants), and an investigative function (full-time investigators). In a small agency, there is a minimum of specialized positions. Two estimates were completed, one using the known number of calls for service, and one using the IACP estimate for projected calls for service based on population. 21

23 BRANDYWINE REGIONAL POLICE STAFFING REVIEW Estimated Police Manpower Needs (Based on calls for service data provided for 2006) Population 9,862 Number of Incidents Time Spent Multiply by.75 Buffer Multiply by 3 Staffing Divide by 2920 Available Multiply by 1.8 6,879 5,159 15, Total Patrol Officers 10 Detectives 2 Supervisors 4 Lieutenant 1 Chief 1 Total 18 According to the number of incidents Brandywine Regional documented during 2006, it would require 18 officers plus detectives/investigators, supervisors, and a chief of police to handle this volume. However, as is known in smaller agencies, there are a number of administrative and maintenance duties that do not get recorded but still take an officer s time away from street patrol. This formula primarily considers time to handle dispatched and discovered incidents or calls for service. Traffic enforcement, selective enforcement, and directed patrol 22

24 activity time are not always adequately reflected into the IACP Formula. There are also scheduling difficulties in staffing 24/7 police patrols, and typically more officers are needed than is recommended solely by the calls-for-service workload measure. Brandywine Regional makes use of a part-time officer, which is difficult to quantify in the IACP Formula. BRANDYWINE REGIONAL POLICE STAFFING REVIEW Estimated Police Manpower Needs (Based on IACP Formula: 550 incidents per 1,000 population) Population 9,862 Number of estimated Incidents Time Spent Multiply by.75 Buffer Multiply by 3 Staffing Divide by 2920 Available Multiply by 1.8 Total Patrol Officers 5,424 4,068 12, Detectives 2 Supervisors 4 Lieutenant 1 Chief 1 Total 16 23

25 In this model, only eight (8) patrol officers, two (2) detectives/investigators, four (4) patrol supervisors, a lieutenant and a chief of police are needed to handle the estimated calls for service. It must be noted however, that this model is based upon a general estimate and response to citizen s calls for service only. Such an estimate by population may not account for countable self initiated activity and crimes discovered by police officers while performing their duties. Core Service Hour Method This formula has been used to estimate police department staffing levels by specifically factoring calls for service, road miles (patrol time), and follow-up criminal investigations. The data used is similar to that used in the previous method but is calculated to ascertain an amount of weekly Total Core Service Hours. These are then factored in with the Assignment Availability Factor (1.8) to determine the number of personnel needed to fulfill those hours of police service to the community. Calls for Service Hours First, the total calls for service that are handled annually by the police department are ascertained and calculated into calls per week and calls for service hours. This study will use the 2006 reported calls for service data supplied by the police department. Annual Calls Calls per Week Time per Call Call Service Hours 6879/ 52 weeks = X.75 = 99.2 Patrol Factor (P Factor) The patrol factor refers to the number of patrols on each road per shift. It is a method of determining the optimal number of times a municipality would care to have a police patrol drive on their street. This is usually determined by the road mileage and the type of community patrolled. A city or borough usually requires more patrols than a sparsely populated rural area. 24

26 The number of patrols desired per police shift are typically determined as follows: City 4 or 5 patrols per shift Borough 4 or 5 patrols per shift Suburb 3 or 4 patrols per shift Rural Area 1 to 2 patrols per shift For purposes of the formula there are 21 eight-hour shifts necessary to provide twenty-four hour coverage each week. Using an eight hour shift configuration allows for differences in patrol needs by time of day. Since Brandywine Regional s jurisdiction is uniquely similar to both a suburban and a rural township situation 14 shifts at 4 patrols and 7 shifts at 2 patrols will be used for the formula. The speeds of patrol vehicles as they cover the roads are also considered in this formula. A patrol speed of 25 miles per hour is generally used for boroughs and more suburban areas and a speed of 35 miles per hour is considered for rural townships. Since Brandywine Regional is uniquely similar to both, a speed of 30 miles per hour will be used. Therefore, the Core Services Hour Formula as it relates to patrol time is as follows: 7 shifts per week at two patrols (2 P-Factor) = 14 patrols 14 shifts per week at four patrols (4P-Factor) = 56 patrols Total = 70 patrols P-Factor Road Miles Patrol Speed Patrol Time # of Patrols Patrol Hours / 30 = 3 hrs. X 70 = Criminal Investigation Hours The annual crimes reported to the Uniform Crime Report (UCR) are used to calculate hours needed for investigation and to address criminal activity in the 25

27 community. As estimated by the IACP, Part I offenses require on the average about 10 hours to investigate, and Part II crimes average two hours to investigate. Therefore, in the study we use these weights to estimate the amount of time officers or detectives spend investigating criminal activity. The figures used for Brandywine Regional s crime data were supplied by the 2006 Pennsylvania State Police UCR program. The Brandywine Regional Police Department reported 115 Part I crimes and 236 Part II crimes in The formula proceeds as follows: Part I X 10 Part II X 2 Subtotal /52 Weeks Criminal Inv. Hours 115 X 10 = X 2 = / 52 = 31.2 Total Core Service Hours Calls for service, patrol, and investigative hours are added together to provide the total service hours per week figure. This is the weekly personnel time necessary to provide police service to the community. Calls for Service Hours Patrol Hours Investigation Hours Total Hours = Recommended Operations (patrol and investigations) Staffing Level The total number of service hours are then calculated into a 40 hour work week and multiplied by the Assignment Availability Factor (1.8) to determine the number of patrol officers and detectives necessary to provide full service to the community. This calculation does not provide for additional supervisory (sergeants) and administrative (chief) positions. ESTIMATED POLICE MANPOWER NEEDS CORE SERVICE HOURS Core Service Hours Divided by 40 Hour Week Multiply by AAF Officers Supvr/Mgt Total /40 = 8.5 X

28 Using the Core Service Hour Formula, 15 full-time operational police officers are recommended. 15 officers are needed to answer calls for service, investigate crimes, and provide proactive patrol operations. Besides answering calls for service, the police officers need time to be a visible, proactive, problem-solving police force. The unique features of Brandywine Regional require an increased amount of time due to the road miles. When supervisory and command/management personnel are added a sworn staffing level of 21 officers is recommended by the Core Service Hour Method. METHOD AVERAGE OF ALL METHODS Sworn Officer to 1000 Population Ratio (utilizing the Middle Atlantic States average of 2.2 officers per 1000 population) TOTAL SWORN 21 IACP Reported Calls for Service 18 IACP.55 Calls for Service per 1000 Population 16 Core Service Hours 21 of All Methods 19 Since no one formula or method is completely accurate in determining police staffing levels in all communities, it is helpful to look at several methods and compare them and consider an average. Utilizing the four methods described within this report and calculating an average for them, a recommended staffing level of 19 sworn police officers including supervisors and command staff is indicated. Also as part of this review of the Brandywine Regional Police Department staffing needs I was provided with a copy of a Manpower Assessment Study prepared by Chief of Police Mark D. Kocsi in April of In that document Chief Kosci referenced both a population to officer ratio based upon the 2004 FBI UCR data, as well as a formula based upon hours needed to maintain three patrol units on duty on every shift. Chief 27

29 Kosci s staffing recommendation also indicated a sworn staffing level of 19 positions. The overall department staffing level and functional assignments of supervisory personnel and specialist positions is to a certain extent unique to each jurisdiction. While the formulas used within this report are based upon commonly accepted guidelines and professional standards, none represent an absolute certain number. The recommendations made in this report are also made in consideration of those unique factors present in the Brandywine Regional Police jurisdiction including geographical location, crime rate, demographics, expected growth level, and expectations of a level of police service. Therefore, a staffing level of 17.5 sworn officers including patrol officers, criminal investigators, supervisors, and command staff as currently maintained is justified. A sworn staffing level of 19 is indicated by the average of the formulas. 28

30 VI. BUDGET AND FISCAL POLICIES Budget revenues and expenses for police services in the Brandywine Regional Police Jurisdiction were reviewed for the years 2002 through Examining budgets and determining the exact cost a community pays for its police service is very difficult. In many communities, administrators define the traditional costs of police service, such as police officer salaries, uniform and equipment costs, training expenses, and patrol cars within the police line item budget document. However, many other expenses that should be attributed to the price of maintaining a police department are not directly contained in the police section of the municipal budget document. Expenses such as medical insurance, worker s compensation, liability insurance, and building and utility costs are often lumped into the administrative section of the municipal general fund budget. Thus, the true cost for police service can easily be underestimated. In addition, by failing to accurately track police expenses, increases in categories such as liability insurance, additional headquarters expenses or fuel costs might not be realized. Therefore, the comparison of the budget and financial practices of a regional police agency with most individual municipal police agencies is not valid, unless the individual budgets are scrutinized line item by line item and all expenses and costs are assured to be captured. Regional police agencies are stand alone public organizations responsible for all their own costs within the organization s budget. Therefore, for purposes of this report any comparisons are between other regional police agencies with similar demographics and of similar size. Comparing the budgets of individual communities is also a challenge. Among Pennsylvania municipalities, there is no absolute standard manner of determining or displaying line item budget categories. Therefore, any comparison must be viewed carefully, taking into account differences in line item descriptions, accounting methods, and expenses assimilated into general fund categories other than police. Still, even with these differences, decision-makers can get a better idea of their own costs for police services when such examinations are carefully conducted. 29

31 General Statistical Comparison Regional Police Departments Police Department Population Square Miles Road Miles Population Density Brandywine Regional Chester County 9, Northern Berks Regional Berks County 11, Pennridge Regional Bucks County 10, Police Department Sworn Officers Officers per 1000 Funding Formula Municipality Types Brandywine Regional Chester Co 17.5 (17 ft 1 pt) 1.8 Work Units 40% Population 30% Road Miles 15% Assessed Valuation 15% 2 Townships Northern Berks Regional Berks Co Police Protection Units 2 Townships 1 Borough Pennridge Regional Bucks Co % each Township 2 Townships Regional Police Costs BRANDYWINE REGIONAL PARTICIPAING MUNICIPALITIES GENERAL FUND BUDGETS E. Brandywine 2,378, ,561, ,877, ,546, ,184, ,725, Wallace 1,443, ,251, ,189, ,206, ,347, ,374,

32 BRANDYWINE REGIONAL PARTICIPAING MUNICIPALITIES POLICE COSTS E. Brandywine Police Cost 805, ,640 1,098,452 1,241,916 1,225,758 1,414,384 Wallace Police Cost 379, , , , , ,793 REGIONAL POLICE COSTS ,600,000 1,400,000 1,200,000 1,000, , , , ,000 0 E. Brandywine Police Cost Wallace Twp Police Cost Regional Police Budget Percentage of Personnel Costs % Total Personnel Expense Other Police Expense 83% 31

33 Overall, annual percentage increases per municipality appear to be within normal ranges when growth and personnel cost increases are considered. The average percentage increase for East Brandywine Township for the period equaled 12%. The average percentage increase for the same period in Wallace Township was 13%. Law enforcement personnel costs such as salary and wages, insurance, taxes, overtime, and other fringe benefits account for the largest expenditure in police budgets. In most cases these costs amount to between 75% and 95% of the police expense. In the Brandywine Regional Police Department personnel costs consume 83% of the total police budget for Police personnel costs increase and decrease in cycles. As individual police tenure increases, so do costs. As retirements occur and entry level replacements are hired, personnel costs generally decrease or flatten, at least until a majority of personnel reach top pay and tenure. Then the cycle will begin again. REGIONAL POLICE COSTS PERCENTAGE INCREASE E. Brandywine Percent Increase Wallace Percent Increase Avg BRANDYWINE REGIONAL PARTICIPAING MUNICIPALITIES POLICE COSTS PERCENTAGE INCREASES Avg E. Brandywine Percent Increase (0.01) Wallace Percent Increase

34 General Fund Percentage One method used to examine police costs is to compare police budget expenditures to overall municipal general fund expenditures. This provides an idea of how much of the total municipal budget is expended on police services. Of course, this percentage can be misleading. Several other factors make accurate comparisons of budgets difficult. Municipalities that provide limited services to their citizens, such as having minimal park and recreation expenses, will have a much smaller general fund budget. In these cases the police department will command a much higher portion of municipal operational spending. Another factor is the difference in how individual municipalities assign expenditures between the various municipal accounts. Some fund transfers and payments assigned to a general fund account in one municipality may be assigned to a capital or utility service fund in another municipality. Therefore, the percentage of general fund expenditures attributed to police costs can be viewed out of context if these factors are not taken into consideration. For the purposes of this report, large debt service expenses, major capital programs, and public building costs were removed from the General Fund Expense Budgets of the individual municipalities. Please note that differences in municipal budget practices can still cause inaccuracies in these comparisons. 33

35 Percentage of General Fund Expenses E. Brandywine Twp Wallace Twp BRANDYWINE REGIONAL PARTICIPAING MUNICIPALITIES PERCENTAGE OF GENERAL FUND E. Brandywine Wallace Percent Increase - General Fund Percentage E. Brandywine Twp 0.1 Wallace Twp

36 BRANDYWINE REGIONAL PARTICIPAING MUNICIPALITIES INCREASE OF PERCENTAGE OF GENERAL FUND E. Brandywine (0.08) 0.10 (0.01) 0.03 Wallace (0.01) Over the period the percentage of the municipal general fund budgets for the municipalities participating in the Brandywine Regional Police Department are within the average to upper range for communities providing full-time police service to their citizens. The six year average for East Brandywine Township is 37% and for Wallace Township 42%. In 2003 a dramatic increase in the percentage of the general fund expenditures going to police costs for Wallace Township, a 40% increase, was due to a major decrease in municipal general fund expenditures in 2003 rather than a dramatic increase in police costs Wallace Township budget costs for police service increased by 22% over 2002 figures. REGIONAL POLICE MUNICIPALITIES - PERCENT GENERAL FUND E. Brandywine Twp Wallace Twp Maidencreek Twp Ontelaunee Twp Leesport Borough East Rockhill Twp West Rockhill Twp AVERAGE 2007 municipal percentage figures show Wallace Township in the upper range. Again, caution must be exercised when drawing a conclusion from these figures alone as municipal budgets vary in structure and services provided to the community. Also, the 35

37 influence of other variables dramatically impacts the figures. For example, in this instance alone it must be considered that Leesport Borough only receives 13 hours per day of patrol time from Northern Berks Regional Police Department, yet police expenses consume approximately 30% of the municipal budget. Ontelaunee Township only receives 17 hours per day of patrol time from Northern Berks Regional Police Department, yet police expenses consume approximately 36% of the municipal budget. Breakdown of Police Service Costs A better method to assess and compare police costs is to look at costs broken down into smaller units. This minimizes the effects of accounting and reporting practices, and it better illustrates true costs. Taking smaller unit costs and comparing them with what other municipalities spend for similar service is useful, especially when comparing municipal expenses within a regional police agency since many of the variables are constant. The unit costs have been calculated from the data provided. Those unit costs will be compared between the two municipalities participating in the Brandywine Regional Police Department and also between Brandywine Regional and two other comparable regional police agencies, the Northern Berks Regional Police and the Pennridge Regional Police. Cost per Capita (per citizen) This figure represents police budget expenditures divided by the total number of residents in the jurisdiction. 36