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Chapter 5 Handouts

Chapter Five

POLICE MANAGEMENT

Key Terms

Broken-windows theory Organization commitment

Centralization Organizational design

Chain of command Organizing

Classical principles Paramilitary model

Compstat Public Information Officer (PIO)

Contingency theory Planning

Controlling Police legitimacy

Decentralization Police paramilitary units (PPU)

Disorder index Procedural justice

Generalists Specialization

Goals Systems theory

Leading Total quality management (TQM)

Management Zero-tolerance policing

National Incident-Based

Reporting System (NIBRS)

Chapter Outline

I. The Managerial Process

II. The Development of Police Management

a. Classical Police Management

b. Behavioral Police Management

c. Contemporary Police Management

III. Organizational Design

a. Criticisms of the Paramilitary Design

b. Increasing Influence of Police Paramilitary Units

c. Broken-windows and Zero-Tolerance Policing

d. Compstat Process

e. Police Legitimacy and Procedural Justice

IV. Police Goals and Organizational Performance

a. Supervisory Styles, Officer Behavior, and Use of Time

b. Measuring Police Performance

c. Changing Performance Measures

V. Managing Group Behavior

a. Police Subcultures

b. Employee Organizations

c. Police Unions

VI. Media Relations

VII. Summary

VIII. Critical Thinking Questions

IX. References

Lecture Outline

I. The Managerial Process

a. Management

i. Directing individuals to achieve organizational goals in an efficient and effective manner

b. Supervision

i. Focuses primarily on leading and controlling

c. Organizing

i. The process of arranging personnel and physical resources to carry out plans and accomplish goals and objectives

d. Leading

i. Motivating others to perform various tasks that will contribute to the accomplishment of goals and objectives

e. Planning

i. The process of preparing for the future by setting goals and objectives and developing courses of action for accomplishing them

f. Controlling

i. The process by which managers determine how the quality and the quantity of departmental systems and services can be improved, if goals and objectives are being accomplished

1. efficiency

2. effectiveness

g. Chain of command

i. The higher the position, the greater the power, authority, and influence

1. top managers

1. conduct overall goal formulation and make policy decisions regarding allocation of resources

2. middle managers

1. formulate objectives and plans for implementing decisions from above and coordinate activities from below

3. lower managers

1. implement decisions made at higher levels and coordinate and direct the work of employees at the lowest level of the organization

4. rank-and-file

1. carry out specific tasks

II. The Development of Police Management

a. Classical police management

i. Bureaucracy

1. characteristics that organizations need to operate on a rational basis

ii. Classical principles of organization

1. specialization

1. division of work

2. authority and responsibility

1. right to command and require obedience

3. discipline

1. necessary for effectiveness

4. unity of command

1. employees are to receive orders from only one supervisor

5. scalar chain

1. hierarchy of authority

6. centralization

1. the extent to which decision making is retained by top organizational levels

7. paramilitary model

1. emphasizes a legalistic approach and authoritarian managerial practices intended to control officers’ behavior

b. Behavioral police management

i. Classical approach attacked by police management theorists in the early 1970s

ii. Need for a more flexible and democratic organizational model

iii. Research indicated that police work was not directly related to law enforcement, but rather to maintaining order and providing social service

iv. The findings from the behavioral science research led to the development of systems theory and contingency theory and the movement toward private sector influences

1. developed an understanding of the importance of community relationships to the police

c. Contemporary police management

i. Systems theory

1. systems theory means that all parts of a system are interrelated and dependent on one another

2. open system

1. interacts with and adapts to its environment

3. closed system

1. does not interact and adapt to its environment

ii. Contingency theory

1. based on open systems theory and recognizes that there are many internal and external factors that influence organizational behavior

2. contingency management

1. it all depends on the particular situation

iii. Private sector influences

1. total quality management (TQM)

1. quality-control techniques and the process of continuous improvement

2. Madison Police Department

III. Organizational Design

a. Organizational design

i. Concerned with the formal patterns of arrangements and relationships developed by police management to link people together in order to accomplish organizational goals

b. Tall structure

i. Characterized by many hierarchical levels and narrow spans of control

ii. Attempt to coordinate their activities through centralization

c. Flat structure

i. Characterized by few hierarchical levels and wide spans of control

ii. Decentralization

1. authority and decision-making are delegated to lower organizational levels

d. Criticisms of the paramilitary design

i. As departments moved toward community policing, the paramilitary design was being questioned

1. strict rules cannot be applied to policing because of the nature of the work

2. orders are rarely required

3. a great amount of initiative and discretion are required

4. managerial philosophy is characterized by an attitude of distrust, control, and punishment

e. Increasing influence of police paramilitary units

i. Generic term for traditional SWAT

ii. Becoming a normal part of routine patrol work

f. Broken Windows, Crime, and Zero-tolerance Policing

i. Broken windows

1. based on a hypothesis that when low levels of disorder and deviance are not held in check, then more serious types of crimes are likely to follow

ii. Zero-tolerance policing

1. target minor crimes to send a signal that such behavior will not be tolerated in the community

g. Compstat Process

i. Compstat

1. Acronym for compare statistics

2. Utilizes current crime data to analyze crime patterns and to respond quickly with appropriate resources and crime strategies

h. Police Legitimacy and Procedural Justice

i. Police legitimacy

1. defined as the public’s confidence in the police as fair and equitable

ii. Procedural justice

1. being treated fairly by the police when acting under authority of the criminal law

2. helps to foster legitimacy

3. Gau and Brunson (2010)

1. establish internal guidelines

2. reward professional behavior

3. only promote those who behave professionally

4. disciplinary actions for unprofessional behavior

i. Police goals and organization performance

i. General statements of long-term purpose

ii. Three major influences affect the development of police goals

1. community

1. consists of the legal framework in which police function and the community’s input into departmental priorities

2. organizational

1. those powerful members who seek certain goals primarily for the efficiency and perpetuation of the department but also to satisfy its members

3. individual

1. generally benefit members

j. Supervisory Styles, Officer Behavior, and Use of Time

i. Traditional, innovative, supportive, active

k. Organizational commitment

i. The strength of an individual’s identification with and involvement in a particular organization, characterized by a belief in an organization’s goals and values, a willingness to exert effort on the organization’s behalf, and a desire to remain with the organization

l. Measuring police performance

i. external and internal goals should be assessed

1. need to know the extent to which the police department is satisfying the community it serves

2. need to know whether its goals are compatible with those of its employees

ii. A number of measures can be used to evaluate

1. crime and disorder measures

2. community measures

3. individual and team measures

iii. NIBRS—National Incident Based Reporting System

1. Improve quantity, quality, and accuracy of statistics

1. distinguishes against attempted and completed crimes

2. provides additional information on victim-offender relationship

3. includes the location of crimes

m. Changing performance measures

i. Disorder index

ii. Police production and police costs

iii. Effective use of financial resources

iv. Effective use of force and authority

IV. Managing Group Behavior

a. Police subcultures

i. Socialization

1. recruits learn the values and behavioral patterns of experienced officers

ii. Manager’s culture

iii. Street cop’s culture

iv. Ends-means dilemma

v. Public world of policing

1. presented to the public as the essence of police work

vi. Private world of policing

1. characterized as politically conservative, closed, or secretive, with a high degree of cynicism and an emphasis on loyalty, solidarity, and respect for authority

b. Employee organizations

i. Fraternal organizations

c. Police unions

i. Issues negotiated between police unions and management

1. salaries and benefits

2. conditions of work

3. grievance procedures

V. Media Relations

a. Public Information Officer

b. Police handling of crisis events and cases of police misconduct

VI. Chapter Summary

VII.

VIII. Chapter Five focuses on police management. Managers’ functions may vary by their level within the organization. For instance, top management may spend a lot of their time on organizing and planning, whereas lower level management may be more involved in supervision.

IX. The police organization will have a chain of command. The higher positions in the chain of command have more power, authority, and influence. Those at the top of the hierarchy formulate goals and policy. Those lower in the chain formulate the objectives and plans for those goals and policies. Those members at the bottom of the hierarchy carry out the specific tasks.

X. Police management has evolved through three major developmental perspectives. The first was the classical police management. Under the classical principles of organization, specialization, authority and responsibility, unity of command, discipline, and centralization were reflected in this approach. The classical police management perspective resembled a bureaucracy, a term coined by Max Weber at the end of the 19th century.

XI. The paramilitary model was part of the classical perspective. It emphasized a legalistic approach and authoritarian managerial practices intended to control officers’ behavior.

XII. By the early 1970s, the classical perspective was falling out of favor with management theorists. The behavioral police management perspective was there to replace the classical perspective. There was a considerable amount of behavioral research conducted in the 1960s regarding police and what they actually do on the job. Policing was viewed as more complex than originally thought. Effective policing required qualified personnel who could handle a broad range of situations and problems. It was thought that a more collegial model of policing was necessary. Although it was seen as necessary, it was not well received by all police.

XIII. This movement toward sophistication led to the contemporary police management perspective. This would include systems theory and contingency theory. This perspective recognized the importance of community relationships to the police.

XIV. Under systems theory, policing should operate as an open system. An open system interacts with its environment. This would allow the police agency to be responsive to the needs of the community. Contingency theory is based on open-systems theory and suggests that management depends on the particular situations. This would include taking into consideration the internal and external factors that influence organizational behavior.

XV. Roberg applied contingency theory to policing in the late 1970s. He concluded that it was necessary for policing to be less bureaucratic and less centralized to be effective.

XVI. Total quality management (TQM) may also be used in policing. TQM places an emphasis on customer service and continuous improvement. Agencies making the transition to community policing may find TQM useful.

XVII. Organizational designs are concerned with the patterns of arrangements and relationships developed by management to link people together in order to accomplish goals. Under a tall structure, there are many hierarchical levels with a narrow span of control. This allows for close supervision of employees. A flat structure has few hierarchical levels with a wide span of control. This allows for greater employee autonomy. The flat structures utilize decentralization in decision-making. This structure is seen as more conducive to community policing. However, even when making the transition to community policing, many agencies hold onto the tall structure design. The organizational chart illustrates the functions and relationships among the different groups in the police agency.

XVIII. Police paramilitary units (PPUs), traditionally known as SWAT, are finding increased involvement in the daily patrol functions of policing. This is a move away from the traditional emergency response function. However, the appearance of the PPUs lends itself to more of a military style rather than community service style approach.

XIX. Perhaps in line with the increased use of the PPUs, the police are increasing the use of other aggressive strategies. One such strategy is broken-windows. Under this strategy, the police aggressively enforce low-level crimes in order to prevent serious crimes from occurring.

XX. In support of the broke-windows hypothesis, zero-tolerance policing targets minor crime in the hope of sending a message that this type of behavior will not be tolerated in the community. Early studies of broken-windows and zero-tolerance have discovered mixed results. It was discovered that, as police issued more citations, serious crime decreased. However, critics cite methodological and theoretical flaws in the strategies.

XXI. Compstat was developed to utilize crime data to analyze crime trends. Developed in New York City, Compstat would help to determine the appropriate response to crime patterns. This may include partnerships and connections with the community or other agencies.

XXII. Management is responsible for establishing the goals of the agency. The goals identify the role and expectation of the police. Three major influences affect the development of police goals. Community influences consist of the legal framework in which the police function and the community’s input into policing. Organizational influences are usually top-level managers who seek certain goals for the efficiency of the department. Individual influences generally benefit members of the department.

XXIII. In measuring police performance, one could include crime and disorder measures. This would include the criminal statistics such as the NIBRS. Community measures may include surveys regarding community problems as they relate to crime. Individual and team measures would include evaluations conducted by department supervisors.

XXIV. In the managing of group behavior, one must be concerned with the ends-means dilemma. Administration must be concerned with both the ends or results and the means or the way in which the ends are achieved. The patrol officer may only be concerned with the ends, making an arrest. This could result in an adversarial relationship between the administration and the rank-and-file.

XXV. In relating to the expectations of the communities, there are both the public and private worlds of policing. The public world of policing is presented to the public as the essence of police work. The private world of policing is closed or secretive side of policing with an emphasis on loyalty and respect for authority.

XXVI. Police officers may belong to fraternal organizations and also police unions. Union have been successful in policing for a number of reasons. Lagging salaries and poor management are a few of the reasons. A new legal climate and the law-and-order mood among a new generation of officers are other reasons for the success of police unions.

XXVII. There may be issues negotiated between the police union and management. These issues may involve salary and benefits, conditions of work, and grievance procedures.

XXVIII. The police management must be concerned with the way that they interact with the media. They must find ways to communicate in open and honest ways with the media in order to project their desired departmental image to the public. It is important to establish a good working relationship with the media. Many departments now utilize at least one full-time Public Information Officer (PIO). The PIO handles the media in terms of disseminating information and managing the agency’s public image. This may include times of crisis or police misconduct.