A COMPARATIVE :srum' QF muse. MUNICIPAL POLICE omnwams‘ STAFF INSPECTION PROGRAM AND A PROPOSED. MODEL PROGRAM Thesis for flu Dayna 9f -M. 5, , MICHIGAN STATE UNIVERSITY. James F. Haydon 196.2 {J LIBRARY ;' Michigan State 3 University we? A COMPARATIVE STUDY OF THREE MUNICIPAL POLICE DEPARTMENTS' STAFF INSPECTION PROGRAM AND A PROPOSED MODEL PROGRAM by James F. Haydon AN ABSTRACT Submitted to the College of Business and Public Service Michigan State University of Agriculture and Applied Science in partial fulfillment of the requirements for the degree of MASTER OF SCIENCE School of Police Administration and Public Safety 1962 APPROVED ivy“ / an“ (Chairman) :{IAW (Memfigr) 2 JAMES F. HAYDON ABSTRACT The complexity of modern police departments and the growing responsibilities of the chief of police seriously restrict his personal observation and inspection of the department's operation, therefore the chief requires assistance in exercising control over the policies and procedures of the department. Staff inspection, as a tool of control, is well suited to assist the police administrator in carrying out his responsibilities. The study covered the purposes, concepts, and objectives necessary for an efficient inspection program. Several aspects of preparing check lists and reporting requirements necessary to insure adequate coverage of the inspection are discussed. Recommendations for improvement of policies and procedures are the essence of the staff inspection process. Stressing coordina- tion, constructive assistance, and recognition of outstanding perform_ ance, the idea of inspection becomes more useful and acceptable in municipal police agencies. The study consists of: (l) definitions of general organiza- tional procedures used in establishing an effective staff inspection program; (2) a study and comparison of three municipal police depart- ments' staff inspection programs, Philadelphia, Cincinnati, and Chicago; and (3) a proposed model staff inspection program suitable for adaptation by municipal police departments. The discussion of the principles, policies, and concepts aid in the establishment of valid standards and goals. Unbiased attitudes and logical analysis enable accurate reporting of inspection results. 3 JAMES F. HAYDON ABSTRACT Thus a soUnd determination of the level of departmental efficiency and economy is obtained. Follow-up actions insure that improvements recommended are implemented, resulting in improved police service to the community. This study compares the three departments mentioned. Each uses a different organization for inspection. Their principles and goals are similar, therefore they accomplish basically the same objective; administrative assistance to the police chief in control- ling the department. The conclusions of this study resulted in forming a model inspection program. This program can be easily integrated into most modern municipal police departments. The program develops policies and guides providing consistency and compatibility of the inspection services with other sections of the department. A COMPARATIVE STUDY OF THREE MUNICIPAL POLICE DEPARTMENTS' STAFF INSPECTION PROGRAM AND A PROPOSED MODEL PROGRAM by ‘..‘ l. ! ‘VJ James F. Haydon A THESIS Submitted to the College of Business and Public Service Michigan State University of Agriculture and Applied Science in partial fulfillment of the requirements for the degree of MASTER OF SCIENCE School of Police Administration and Public Safety l962 PREFACE The field of municipal police administration and management which is becoming highly competitive, places a premium on vision, foresight, and executive competence. The rapidly changing world of today challenges business, industry, and government to either keep abreast of rising professionalism or settle back into the dust of confusion and obscurity. It was this foresight and encouragement, given by a profes- sional police administrator, which enabled me in this attempt to further the professionalization of the police service through the results expressed in this study. I should like to express my thanks to the Provost Marshal General of the Military Police Corps and the United States Army, for making this period of advanced study possible at a time when I am serving on active duty as a Captain in the Military Police Corps. My sincere appreciation to Professor George D. Eastman, my advisor, for his time, effort, and many worth-while thoughts and suggestions made during the writing of this paper. My thanks to Samuel G. Chapman and Glen M. Schultz, of the School of Police Admin- istration, Michigan State University, who read, commented, and assisted in the preparation of this work. My special thanks to Jacob H. Schott, Cincinnati Police Department, James J. Gilbride, Chicago Police Department, and Joseph J. McGurk, Philadelphia Police Department, who so graciously gave their assistance and information in the gathering of data neces- sary for this study. No list of acknowledgements would be complete without tribute to my wife Bobbie, who ranks first among those to whom the author is indebted. She has, by her unceasing devotion and tireless self- sacrifice, consistently inspired the writer and contributed an im- measurable part to the success that has been achieved. TABLE OF CONTENTS CHAPTER PAGE I. INTRODUCTION . . . ..... . . . . . . . . . . . . . l The Problem ........ . . . . . . . . . . . . . 2 Statement of the problem ...... . . ..... 2 Importance of the study ........ . . . . . . 2 Limitations of the study 3 Definition of Terms .............. A Inspection . . . . . . . . . . .......... A Line or authoritative inspection ........ 5 Staff inspections . . . . . . ........... 6 Brief History of Staff In5pections . . . ...... 7 Review of Literature . . . . . . . . . . . . . . . . 9 Police administration literature . . . . ..... 9 Public administration and management ...... . ll Government publications . ............ l2 Organization of the Remainder of the Thesis ..... 13 II. GENERAL ORGANIZATION FOR INSPECTION .......... 15 Purpose and Scope of Staff Inspection . . . . . . . . l6 Principles . . . . . . . .............. l8 Goals and operational performance . . . . . . . . . l8 Unbiased attitudes . . . . . . .......... l9 Logical analysis . . . . . . . . . . . . . . . . . 20 Reporting of results ............... 2i Recommendations .......... . . . . . . . 23 Follow-up inspections ............... 23 CHAPTER PAGE Concepts . . ........ . . . . . . . . . . . . 23 Inspection assistance for the chief . . . . . . . . 2h Reliance on inspection programs . . . . . . . . . . 25 Responsibility and support of inspection program. . 25 Departmental Policy Decisions . . . . . . . . . . . . 26 Responsibilities for line inspection. . . . . . . . 26 Appointment and responsibility of staff inspectors. 26 Rank of the chief inspector . . . . . . . . . . . . 26 Qualification of inspection personnel . . . . . . . 27 Forwarding of reports . . . . . . . . . . . . . . . 28 Support of the inspection program . . . . . . . . . 28 Organizational Practices ....... . . . . . . . 29 General . . . . . . ..... . . . . . . . . . . . 29 Control of inspection program . . . . . . . . . . . 29 Organizing the staff inspection program . . . . . . 30 Combining inspection and planning division . . . . 33 Procedures to be Utilized . . . . . . . . . . . . . . 3h Preparation . . ..... . . . . . . . . . . . . . 3A Planning . . . . . . ......... . . . . . . 3A Notification of the unit to be inspected . . . . . 35 Check list and inspection guides . . . . . . . . . 36 Assignment of areas of responsibilities . . . . . . 36 The inspection . . . . . . . . . . . . . . . . . . 36 Accuracy of reports . . . . . . . . . . . . . . . . 38 Summary . ...... . . . . ...... . . . . . 39 CHAPTER IV. V. TYPES OF INSPECTIONS . . . . General Staff inspections ........ Continuing staff Inspection ........ Non-continuing staff inspectiOn ..... Special Inspections ............ Surveys . . . ................. Summary ............ . ........ REPORTS . . . . . .................. Objectives ........... . . . ...... Quality . . . . .................. Methods of Reporting ............... Writing the Report . . . . . . . . ........ General . . . . ................. Summary of observations . . . ......... Recommendations ............. Review and Follow-up to Reports . . . ...... General ..................... Type of Check List ................ Summary . . . . ................. PAGE CHAPTER VI. GENERAL ANALYSIS OF DEPARTMENTS . . Philadelphia . . . ....... Organization for inspection . . . . Policies and procedures . . . . . . . . . . . . Inspection guide . . . . . Reports . Summary . . Cincinnati ............... Organization for inspection . . Policies and procedures . . . . Check list . . . . . . . . . . . . . . . . . . . Reports . . . . . ..... Summary Chicago . . . ......... Organization for inspection . . Policies and procedures . . . Check IISts . . . ...... . . . . . . . . . . Reports . .............. . . . . . Summary ....... Summary of Departments Organization for inspection . . Policies and procedures Summary . . . . . . . . . . . . . . . . . . . . vi i PAGE 60 6o 60 61 6h 65 65 66 66 68 69 7O 72 72 73 75 76 76 77 78 78 78 79 CHAPTER VII. CONCLUSIONS, FUTURE QUESTIONS TO BE ANSWERED, AND THE MODEL PROGRAM Introduction Table of Contents . . . . . . . . General . . . . . . . . . . . ....... Organization . . . . . . . . . . . . . ..... Preparatory procedures . . . . Conduct of the inspection . . . . . . ...... Inspection reports . . . ..... . . . . . . . After-action procedures . . . . Tab A Request for Specialist Personnel . . ..... Tab B Field Inspection Notification . . . ..... Tab C General Check List and Guide ......... Tab D Guide for Inspection Reporting and Follow* up Action . . . . . . ............ Tab E Format for Formal Recommendations . . BIBLIOGRAPHY . . ............... . . ..... OTHER SOURCES . . . . . . . . . . . . . ........... viii PAGE 80 83 85 86 87 88 89 90 9I 93 95 FIGURE l. LIST OF FIGURES Organization Chart, Philadelphia Police Department . District Assignment of Staff Inspectors . . . . Organization Chart, Cincinnati Police Department . . . Table of Contents, Crime Bureau Inspection . . Organization Chart, Chicao Police Department . PAGE 62 63 67 7] 7h CHAPTER I INTRODUCTION The dynamic and intricately involved world of today has created for itself many complex problems. In the past, simple societies relied upon local citizens for enforcement and maintenance of social mores and customs. The growth in population has made large cities. Knowledge, education, and mechanization have complicated the social order of living. With more people, larger industries, new means of transportation, and ever-changing social conditions, formalized rules of conduct had to evolve. Bodies of government were formed to legislate social customs into law; The duties of enforcing these laws were delegated to that part of the government known as law enforcement agencies, or police departments. The evolution of modern society has shown, and Is still indi- cating, growing pains. Particular aspects of society indicate these pains to various degrees. Expanding law enforcement agencies have not kept pace in the field of public and personnel administration. Utilization of modern equipment and forensic sciences have improved areas of police operation. The police service, especially municipal organizations, however, is being seriously handicapped. This Ts partially due to inefficient personnel and operational procedures and practices. I. THE PROBLEM Statement 21 the problem. It was the purpose of this study (I) to define general organizational procedures in establishing an inspection program; (2) to compare three major police departments' utilization of staff inspections; and (3) to attempt the formulation of a model staff inspection programiwhich could be adopted with little modification by municipal law enforcement agencies. _Importance gf the gtggy. Efficiency is being stressed at all levels of administration and management. Public and private organizations have seen the need for streamlining their operations. In the police service, the most expensive item on the yearly budget is money paid in wages to police officers. The police administrator must insure that the services rendered by his department are the optimum obtainable from appropriated funds. Inspection, an aspect of control, would assist the adminis- trator by: making him aware of problem areas; Indicating heretofore unknown deficiencies in personnel, facilities, and equipment; and eliminating confusion caused by awkward organizational structures. The rapidly moving society of today insists that greater efficiency be achieved in all fields. Police agencies normally receive a sub- stantial portion of the annual municipal budget; therefore, it is of the utmost importance that efficiency of operation be recognized and achieved. The need for inspection in police agencies is great. Since police service is almost entirely a personal service, every condition in a police organization and its environment is traceable in a large measure to the acts of individual policemen and to the success or failure of their operations. If every member of the force were a paragon of virtue, industry, and judgment, and omniscient in his knowledge of department procedures and regulations, there would be no errors in judgment, no neglect of duty, and procedures would be followed to the letter. Under these conditions control of personnel would be unnecessary; orders would be carried out exactly as planned, and there would be no need for inspections. Police officers are subject to the usual frailties of mankind, and consequently important advantages are gained by periodic Inspections. Limitationsfigf'thg study. The scope of this study has been limited to three large municipal police departments: (l) Philadel- phia, (2) Cincinnati, and (3) Chicago. The latter two were person- ally visited to obtain the necessary information. The information from Philadelphia was obtained by mail. The author feels that there may be some areas In which information pertaining to this department's operation will be sketchy. It is believed that an attempt to compare more cities than this might result in an unwieldy study and would not achieve the desired goals as stated in the problem paragraph. Federal agencies and state law'enforcement agencies will be mentioned In passing, only In substantiation of particular points. They were not included nor considered because of their different organizational structures, operations, and dissimilarity of problems. Small municipal law enforcement agencies today rarely have any program of staff Inspection.. They were not included because, If a model pro- gram can be devised, it would be easier to reduce it in scope to fit smaller departments than to expand It and lose some of the important features. IO. H. Wilson, Police Administration (New York: McGraw-Hill Book Company, I950), p. GO. II. DEFINITION OF TERMS Semantics, or the relation between signs, symbols, or words and what they signify or denote is a major aspect of the confusion arising within the police service. Law enforcement agencies through- out the country may use identical terms but in many instances with entirely different meanings. Magazine articles and other media by which there is communication between agencies, create confusion in the minds of many police officials. To avoid, or at least reduce confusion to a minimum, the following definitions of terms used in this study will assist In understanding the various thoughts and ideas. Inspection. This is a personal study, observation, examination, or Inquiry to ascertain and evaluate the efficiency of management; the effectiveness and economy of operations; readiness of personnel and sections to perform their assigned duties; the adequacy of facilities; and compliance with rules, regulations, directives, and policies.2 Inspection may be a brief checking to insure policies and procedures are being followed, or a detailed examination of duties, records, and results. "Inspection is a critical review or examination involving careful scrutiny and analysis,” states 0. N. Nilson, ”in some cases, it may be accomplished through simple observation; in other instances, it may involve inquiry or the analysis of records and statistics.”3 2Department of the Air Force, Air Force Manual l23-l, Manual jg; United States Air Force Inspectors (Washington: Government Print- ing Office, January 3i, I957). p. l. 3WIlson,‘gp. cit., p. 59. As a part of control, inspection embodies the negative aspect of control which is to prevent, restrain, and minimize carelessness and mistakes in the performance of work. To be recognized and accepted by modern police administrators as a technique of management, inspec- tion must encompass something more significant than individual criticism of subordinates and their work. Instead of creating embar- rassment and ill feelings, It should be helpful and stimulating, stressing Its main objective, namely, effectiveness and efficiency of the entire organization.’+ As a function of control, Inspection, If used in this light, should be acceptable by both police administrators and operating police personnel. £133.25 authoritative inspection. The line Inspection is accomplished by the superior inspecting subordinate personnel and equipment. ”Authoritative inspection, made by superior officers charged with responsibility for the accomplishment of an operation, is the more or less continuous inspection of the process of accom~ pllshing the task. It Is an essential part of the doing process, if the superior Is to assure satisfactory accomplishment by holding subordinates to account.”5 The patrol sergeant should be held responsible for the actions of his subordinate police officers on duty. He should supervise and InSpect them to Insure adequate accomplishment for that portion of the police operation for which IIElmore Peterson and E. Grosvenor Plowman, Business Organi- zation'ggg Management (Homewood, Illinois: Richard D. Irwin, Inc., 1953) O p0 I“570 SHIlson,.gg.gj£., p. 62. he Is responsible. The sergeant in turn, is inSpected and supervised by the lieutenant commanding that particular tour of duty. The lieutenant is inspected by the captain who commands the precinct. Line inspections, therefore, are performed continuously through observation, examination, review, and analysis within the lines of responsibility and authority, each senior level Inspecting the work of its immediate subordinate level.6 Staff inspections. Staff inspections are those inspections of personnel, facilities, equipment, and operating procedures and results made by an Individual who has no control over or responsi- bility for them. The important point, pertinent to staff inspections, is that they operate independently of the other sections of the department which from time to time are inspected. Each section of the department cannot be depended upon to report its own ailment, because the ailment itself might prevent the notification.7 George D. Eastman comprehensively states that, "a staff inspection is an inSpectIon which is conducted outside of the normal line of authority and responsibility; which makes a detailed observation and analisis of one operating unit; and which is intended to inform the highest level of administration of the general performance of the unit."8 6George D. Eastman, ”The Development and Use of Inspection in Modern Police Administration" (University of Louisville: Southern Police Institute, n.d.), p. 2. (Mimeographed.) 7Ibid. 8Ibid. 7 Location of the staff inspection function within the departmenfs organizational structure is of prime importance. The unit should be so located as to be subordinate only to the chief, or in very large departments, a highly responsible subordinate of the chief. III. BRIEF HISTORY OF STAFF INSPECTION The medieval English town authorities used inspection in the public market, supervising the quality, price, and weight of produce, so that the town might preserve Its good name. Early nineteenth- century American records show the same use of the Inspectional device.9 ”Massachusetts and other states maintained an extensive system of inspection of products, chiefly with reference to the export trade, during the eighteenth and early part of the nineteenth century.”‘0 The origin of staff inspection programs began in l856 on a large scale. England established the Inspectors of Constabulary. Operating from a central office, the Inspectors traveled throughout the country, inspecting police units in England. To raise the standards of competence of the police agencies, the British national government instituted a grants-in-aid program. This provided to the Inspected departments additional funds for pay and clothing of the police officers, provided they passed the 9Leonard D. White, Introduction tg‘thg Stud '2: Public Administration (New York: MacMillIan Company, I 9 . p. 507. I0Ibid., p. 508. Inspector's standards of excellence. ”The Inspectors through their day to day activities supply the positive and dynamic elements In the system of eternal control."" The Federal Bureau of Investigation formulated an outstanding program of self-inspection utilizing staff inspection as the major controlling factor. The inspection program of the FBI is cited as one of the three basic reasons for Its success in law enforcement. It has used systematic Inspection as an integral part of its opera- tion for more than thirty-five years.‘2 The United States Federal Civil Service Commission felt, in l9h6, that some system was needed to adequately control Its expand- ing organization. It formulated a staff inspection program which has been constantly revised to keep pace with ever changing problems.l3 From examples given, it is apparent that these governmental organizations recognized the need for internal control. Utilization of staff Inspections was their decision in assisting them to promote economy and Increase efficiency within their organizations. Most private firms have adopted various types of inspection programs. Due to increasing governmental Inspection of various products, private business had to achieve successful operations. It turned to inSpection llJohn S. Harris, "Central Inspection of Local Police Services in Britain," Journal'gf Criminal Law, h5:95, May-June, l95h. ‘2"In5pections--An Executive Tool for Improvement,” Egl'ng Enforcement Bulletin, 26:l7, May, I957. I3F. W. Luikart, "An Inspection Program to Improve Personnel Administration," Public Personnel Review, lO:7A, April, l9h9. to assure product quality control. Law enforcement agencies should be equally concerned about their product, public service. Inspection, staff and line, used together would assist in providing better police service to the com- munity. IV. REVIEW OF LITERATURE The author has been unsuccessful in his quest for pertinent studies of staff Inspection within organizations such as municipal police departments. The sc0pe of this section will encompass selected major sources upon which much of this study was based. The connotation of Inspection, found in many published works, range from the extreme of external controls such as fire, food, and labor Inspection to internal inspection of records and organizational Operations. I This review is subdivided Into three major source areas: police administration literature, public administration and manage- ment, and_government publications. Many published works cited mention internal inspection superficially and little time will be devoted to them. Police administration literature. 0. W. Wilson's book, Police Administration, published In I950, was the only book which devoted more than a page or two for the subject of internal staff Inspection as an administrative Implement of control for the police chief. Chapter A, "Organization for Planning and Control,” is devoted to the subject of inspection as It applies in various situations. IO Those basic principles and concepts which are stated in Chapter A, are still valid today. Wilson discusses the two types of inspection, line and staff, and subdivides the staff inspection into several parts; functional, interdepartmental, and the organic inspection division. The latter type is not fully developed. Subjects, such as relationships required within the department for successful implementation of staff inspection, are adequately covered. It is difficult to understand why Wilson brought the subject of internal investigation into the discussion of in5pection. He does not clearly differentiate between them, but goes from one to the other without clearly dividing the areas. Another topic which he discusses is the Inspector. Wilson recommends that in departments having two or more inspectors, their responsibilities should be divided territorially, rather than by time or function. Some of the present experts In "the field" disagree with this. Wilson may have changed his philosophy on this point as revealed in the present organization of the Chicago Police Department's Inspection Division. Wilson neglects to mention the report prepared by the staff Inspector upon completion of his inspection. He also fails to state anything about the use of a check list or guide for conducting staff inspections. The ”Purpose and Nature of Inspection," section of the chapter is an outline which, if enlarged and clarified, could make a suitable guide for inspections. Chapter A, in Wilson's book, is by far the most extensive and independent writing on the subject of internal staff Inspections. ll Police Management Planning, I959, by John P. Kenney, devotes Chapter ID to ”Control and Inspection." The discussion of Inspection covers three pages. Short paragraphs under the headings of depart- mental inspections, non-departmental inspection, Spot audit, inspec- tors, internal audit, and undercover inspections are briefly explained in general terms. Kenney uses Wilson's Police Administration and The International City Managers' Association's Municipal Police Adminis- tration as his basic references for this chapter. The two brief paragraphs devoted to inspections in V. A. Laonard's £21155 Qgggpizatlon and Management, l95l, discuss it in very general terms. Municipai‘figljgg Administration, l96l, devotes a section to control and Inspection. 0. W. Wilson was the primary contributor for this section of the book, therefore, the principles and concepts are essentially the same as those In Police Administration. The remainder of the books within the police administration ' field were not considered as original sources. References from these indicated that their material was obtained from'fgllgg Administration or Municipal'ggljgg Administration. Public administration and management. John D. Millet's Management i he Public Service, l95h, discusses the problems involved in organizing and establishing an inspection system. Millet believes that the Inspection activity is an essential part of the supervision process. InSpectIon must be used In organizations where there is specialization. Millet believes that Internal investigations should be separated from any type of internal Inspection. Inspection helps to build mutual acquaintance and confidence. Internal l2 investigation has the opposite affect. Leonard D. White's Introduction £3 EDS Study 2f Public Administration, l9h9, presents the general thoughts and ideas found In other books on the same subject, public administration. That is, that inspection is normally concerned with external regulatory checks such as fire, food, and boiler inspection. Government publications. TWo major works provided the basic sources upon which much of this study is based. Both cover the same basic material but with slightly different approaches to it. Department of the Air Force's Manual for Air Force Inspectors, I957, though not dealing specifically with police operations, covers the inspection principles In detail. Many of these are also stated or discussed in Wilson's book. The Air Force Manual outlines procedures and principles necessary for an effective staff Inspection program to include the process of accomplishing the inspections. The Technical Bulletin, InSpector General, numbers one, two and four, Department of the Army, discuss and present the principles, concepts, procedures for Implementation and report writing, and includes general guide lines for Inspection of various activities with- in the Army. These principles and concepts apply to staff Inspection ‘services of municipal police agencies as well as military activities. Summary. The major sources used for this study, Wilson's Police Administration, The Manual for Air Force Inspectors, and Technical Bulletins, Inspector General discuss in detail all the principles, procedures, concepts, and processes of staff Inspection. These references are still valid and should be for some time to come. Some of the minor Ideas may change, but principles of supervision, l3 control, and management are based on the well grounded theories used throughout business and government today. V. ORGANIZATION OF THE REMAINDER OF THE THESIS The review of literature contains all the Information available for research in the field of staff inspections. It is essential that the principles, concepts, policies and procedures be fully explained and understood in Chapter II, prior to progressing further into comparison of the several departments' programs. Important aspects of an inspection program'will be covered in Chapters III, IV, and V. These deal with the types of inspection programs to be utilized. There will be some repetition in each of these chapters with terms already defined. Preparation of reports, an important phase of the Inspectional process, will touch on those points peculiar to inspection reports. The books dealing with police reports provide basic information on the organization of central records sections and standardization of reports. Basic essentials of reports will be covered lightly in passing. The use of check lists, an important part of any inspection, will assist organizations to suc- ceed In their inspection objectives, or the lack of them may cause the InSpectIon program to fail. At this point, we have a firm basis from‘which to proceed. Chapter VI compares the staff Inspection functions of the Phila- delphia, Cincinnati, and Chicago police departments. The line or authoritative inspection aspect will be mentioned briefly and only insofar as It develops the analysis of the staff Inspection process. IA Chapter VII, conclusions, will develop a model staff inspec- tion program. Questions to be resolved which require additional research will also be cited. CHAPTER II GENERAL ORGANIZATION FOR INSPECTION Sound business principles and effective organizational practices are equally applicable to thriving business enterprises and successful law enforcement agencies. Law enforcement agencies which have made the greatest strides in improving their operations usually enjoy good reputations. Good reputations make the public want to help the department in attaining future accomplishments. The point here is that the police department must render high caliber service before it can enjoy full public support.I Adept police administrators should use those tools of execu- tive management and administration needed to adequately guide and control their police organizations. Internal checks, surveys and Inspections are justified because of the Inadequacies and short- comings of human behavior. Inspection programs, in addition to assisting the administrator In controlling his agency, provide a system for communications and information. Beneficial aspects of the control processes are summed up by John M. Pfiffner, as those: directed towards maintaining honesty, accuracy, safety, steady production, morale, public relations, upkeep of premises, and equipment. All have in common the human objective of checking on people and their work, often by means that would be resented if the reasons back of them were not fully understood. I"Inspections for Law Enforcement Agencies,” (Washington: Federal Bureau of Investigation, n.d.), p. l. (Mimeographed.) 2John M. Pfiffner, The Supervision 2: Personnel (New York: Prentice-Hall Inc., l95l), p. 92. l6 Of all the controlling devices utilized today by executive administrators, we are specifically interested In the municipal police staff in5pection programs. In forthcoming sections, the phases of purpose, principles, concepts, policies, type of organi- zational structure, and procedures to be utilized will be discussed. This shall enable the reader to graSp easily those areas pertinent to the police inspection program. I. PURPOSE AND SCOPE OF STAFF INSPECTION The basic purpose for initiating and maintaining a staff inspection program is to obtain the beneficial results of efficiency and economy of operation. The general objectives of the staff inspection program provide the chief administrator with an independent appraisal of standards of performance of the entire police operation; determine the status of discipline, efficiency, and economy of the department; report observed deficiencies and irregularities and recommend solutions for correction; and receive and Inquire Into complaints of individual members of the force.3 The objectives overlap in scope, but generally can be divided into five categories. The five areas encompass these questions: I. Are the established policies, procedures, and regula- tions being carried out to the letter and in the spirit for which they were laid out? 3Department of the Army, Inspector General Technical Bulletin, Number 2, (Washington: Government Printing Office, JuTy l6, I958I, p. l7 2. Are these policies, procedures, and regulations adequate to attain the desired results? 3. Are the resources at the disposal of the department, both personnel and equipment, being utilized to their fullest extent? A. Are these physical resources adequate to carry out the job of the department? 5. Does there, or could there exist any deficiency in personnel integrity, training, morale, supervision, or policy which should be corrected or Improved? Determination of any defective condition is the initial step in inspection evaluation. Evaluation and analysis of needs should reveal basic or elementary discrepancies. The scope of interest of the staff inspection program cuts across all activities, encompassing the entire department. 0. W. Wilson states that: Everything relating to the police department must be subject to control and consequently inspection must be made of everything that comprises the police organization and Its manifold opera- tions. Conditions, situations, and actions that contribute to the success or failure of police operations are exposed by the inspection of persons, things, procedures, and results.5 The forthcoming section discusses the most prominent feature of any inspection program, the elementary principles upon which it is based. These tenets enable the inspector and chief of police to grasp the genuine advances and problems of the department. Through these conceptions, just and valuable recommendations evolve which will benefit the entire organization. ”George D. Eastman, "The Development and Use of Inspection In Modern Police Administration” (University of Louisville: Southern Police Institute, n.d.), p. 2. (Mimeographed) 5O. H. Wilson, Police Administration (New York: McGraw-Hill Book Company, I950), p. 60. l8 ll. PRINCIPLES Six elementary principles when properly applied should guide inspectors In preparing, conducting, and concluding their evaluation of that section of the department checked. Goals must be established. Unbiased attitudes should not influence evaluation, conclusions, or recommended changes. Timely reporting of results and follow-up checks would insure proper Implementation of proposed changes. Goals and operational performance. Without the tool of inspection, the knowledgeable administrator would have no yardstick to use In evaluating the performance of his police operation. The effectual, well adapted, and economical inspection plan will vary from section to section within the department when establishing goals and standards. Rating the general and individual performances throughout the organization Is of the utmost importance. Undue emphasis upon the reduction of expenditures as one measure of efficiency is fallacious. It is often assumed that efficiency merely denotes a reduc- tion in costs. Such an Interpretation is too limited. Efficiency Is the quality of effectiveness, competence, and capability In productivity. A business is operating at its highest efficiency when it can produce goods or services of a desired quality in a required quantity within permissible limits of time at the low st costs consistent with Its financial situation and obligations. A widely held concept that increased operational efficiency and effectiveness result in savings is true. These savings may be 6Elmore Peterson and E. Grosvenor Plowman, Business Organ'- zation and Management (Homewood: Richard D. Irwin, Inc., I953), p.A33. l9 realized in time, manpower, equipment, and related areas.A Petersen and Plowman classify savings into three groups: (I) the direct savings, one which may be traced to its source and then identified, measured, and expressed In definite monetary values, ie., new ideas, processes, and procedures. (2) The direct type which may be economy of time that results in savings at a later date. This group, though less tangible than the first, is also easily appraised and expressed in terms of money. (3) The third type of savings that results in increased efficiency Is very vague and cannot be estimated In advance for the financier. For our evaluation of this latter type, it can best be illustrated by the savings seen in more effective administrative time; better public and community relationships; and improvement in personnel morale and attitudes throughout the organization.7 All inspections conducted must be directed towards the mission and goals of the department. These examinations should strive to improve and streamline police operation, which will result eventually in higher efficiency and effectiveness. Unbiased attitudes. The mature and experienced chief must fully understand the goals of inspection and Implement those recom- mendations needed with caution and understanding. The evaluation of any section or function of the department must be impartial. Since the administrative tool of inspection is an extension of the chief's capability to observe and analyze his own operation, it is essential 7Ibid, p. 181+. 20 that the in5pection be conducted as if ”through the chief's eyes!” The inspection must not be influenced by individual prejudices, pre- conceived opinions, and conclusions or snap judgments. Accurate reporting of deficiencies found during inspections must be objective 8 and unhampered by personal emotions. ngical analysis. To judge the quanity or quality of an operation, certain standards must be established. Standards are based upon the current departmental regulations, policies, and pro- cedures and the inspector's interpretation of them. Both the in5pected and the in5pector must have a thorough understanding of what the standards are and what is acceptable by the chief, for whom the inspection is being conducted.9 To eliminate ambiguous terminology, It is imperative that all policies and procedures are understood. InSpection has other objectives than the controlling of activities to ensure compliance. It is a preventive measure, seeking to detect and remedy conditions which, If allowed to continue, may deteriorate into a serious situation. Thorough analysis of observed facts and situations will assist in determining the underlying deficiencies causing 8Department of the Air Force, Air Force Manual 123-1, Mgpual for United States Air Force Inspectors (Washington: Govern- ment Printing Office, January 3i, I957), p. 2. 9Milon Brown, Effective Work Management (New York: The MacMillian Company, I950), p. ISA:T65. 2l irregularities. Examination of the inspector's observations can lead to the discovery of economical and effective practices which might merit adoption by other sections within the department.'0 Any inspection may involve the checking of individual items. In large bureaus, this method becomes time consuming. A general rule to be followed is, if the Item to be evaluated is conducive to statistical techniques, then they should be carefully used. Statis- tical techniques are sometimes used to predict and control the range of variability that will result from a given process. Sampling procedures should be applied only when the volume of items involved lend themSelves to establishment of standard distributions.H Whenever scientific sampling shows deviation from pre—determined standards, corrective action is taken.‘2 G. Douglas Gourley's compact statement is an excellent summary. ”Inspection may be simple observation or it may involve the study and analysis of records and statistics. In order to maintain proper control, in a police department, persons, things, procedures, and l3 results must be under constant inspection and evaluation." Reporting 2: results. Among the basic principles of the loAir Force, gp'gi£., p. 2 HStandard distribution means statistical distribution where~ by statistical sampling procedures can be effectively used. IzHenry H. Albers, 0r anized Executive Action (New York: John Wiley and Sons, Inc., l96l , p. '36. Douglas Gourley, "What is Police Management?” Police A5:6l, July-August, I959. 22 inspection program is the accurate reporting of results or findings. Chapter IV is devoted to reports, their organization, usage, and role in the inspection process. Here, the general sc0pe of the reporting system will suffice. Basically, there are two types of inspection reports which should be utilized. In Police Administration, 0. W. Wilson, covers reports submitted by operating personnel. This area expands to include those persons, things, and conditions over which the report has infiuence.‘h The second form of the Inspection report is that which is compiled by the staff inspector upon completion of his inquiry. This report Includes the general condition of the depart— ment surveyed and an analysis of the resulting data. The primary intent of an accounting of any operational pro- cedure Is to render a more effective working body. An adequately prepared summary of an inspection should present the reader with sufficient information to take constructive or punitive action. Thus we have seen that the basic reasons for reporting results of an inspection are: I. to insure that proper action to be taken to amend any deficiencies; 2. to stimulate commendations and praise given for out- standing deportment and performance; 3. to afford the Inspected unit a chance for rebuttal, if desired; IhWilson, op cit., p. 7l~72. 23 A. to provide a permanent record of activity in a specific section. This is invaluable when planning future examinations or as a basis for follow—up inspections; and 5. to establish the foundations upon which recommendations for alterations and improvements within the Inspected sections as well as the entire department, are based.‘5 Recommendations. While the major emphasis of inspection is still on a regulatory and control level; inspection is more than disciplinary correction. Inspection should be of a constructive nature. Recommendations for corrective action resulting from inspections, should be clear, complete, Specific, and based upon I6 sound conclusions. Follow-up inspections. The follow-up inspection is the means by which the police chief keeps abreast of the progress and quality of corrective action being taken. This follow-up may consist of only a review of the conclusions and recommendations in the initial report; or It may be a detailed re-inspection of the activity. ”It Is in this area where the greatest value can be achieved from the Inspection service.”l7 III. CONCEPTS Control is a fundamental executive function. It becomes a ISAIr Force, 22 515., p. l-2. I6Army, IGTB, op cit., p. 6. I7Eastman,_op gj£., p. 5. 2A necessity whenever humans associate together for given ends. No amount of electronic or automatic machinery will replace the executive's responsibility concerning how that machinery is used. The executive has many control tools at his disposal, but he must use judgment In their development and application. Control is an executive function, not in the sense of dominating one's subordinates as in a slave system, but rather guiding and directing the efforts of subordinates to achieve intended results. 8 Inspection assistance for the Chief. The primary mission of any police department is to provide service to its community. The variety of duties are as distinct as the individuals It serves. The Chief of Police is held responsible for all actions taken by his subordinates, be they valor beyond the call of duty or laxity in performance. He and the men of the force are also indirectly accountable to the citizen. To effectively guide and direct the various phases of police work, the chief must rely upon the tool of inspection. It Is only through a well planned supervisional and staff inspection program that the individual police officer can be observed, corrected, or praised, whichever is necessary. Obviously, this cannot be done entirely by one individual. Thus the staff Inspection program is conceived to assist the chief In carrying out his responsibilities. Since the best results are obtained from continuous inspec- tion of the department, provision must be made for assistance to the chief in the form of an Inspector. This individual should enjoy the confidence of the chief, respect of the department's members, I8Dalton E. McFarland, Managgment Principles and Practices (New York: The MacMillian Company, I958), p. 302. and fully understand the chief's operating philosophy.‘9 Reliance pg inspection progpams. The police chief is funda- mentally an administrator and executive of the department. To be proficient in his duties, he must affiliate himself effectively with control through Inspection. ”Granted that administration may be viewed as an art insofar as it reflects the personality of the practitioner....The administrator must delegate and decentralize while perfecting his tools of control and supervision."20 The size and complexity of medium and large police departments and the diverse requirements placed upon the chief drastically limit and restrict his capability to make personal inspections. Responsibility and support pf inspection prpgrams. The staff inspection program, if staffed with the proper personnel, still requires several Items to enable it to function effectively. First, the chief must be responsible for knowing that the inspection services are fulfilling the purposes for which they were established. Secondly, inspection, and the results to be obtained there- from, can be no better than the chief's support which the program receives. It is essential that the chief give his continuous sup- port and personal guidance. The Inspection program, once established, I9Wilson,.gp.g1£., p. 68-69, and Eastman, pp 515., p. 3. 20William 0. Corey, ”Control and Supervision of Field Offices, ”Public Administrative Review, Vl:20, I9A6 . 26 must be maintained and supported to reap the desired benefits inherent in a good program.2' IV. DEPARTMENTAL POLICY DECISIONS Responsibilities for line inspection. Inspection is a function and responsibility of command. "It Is performed through the lines of authority and responsibility, senior inspects subord— inate. It is performed continuously through observation, examina- tion, and review.“22 Supervisors, from the sergeant up through the chief, are responsible to Insure that line Inspections are properly accomplished. Appointment and responsibility‘gf staff inspectors. Staff inspectors are appointed by and are responsible to their chief. They do not have any command authority during the in5pection process.23 The reasoning behind the appointment by the chief, and not through civil service examination, is that the chief must not be made to retain a specific individual in a high command or staff job. If the particular individual does not have the capability for properly performing the Inspection mission, he should not be retained in the job. Rank p: the chief inspector. The rank of the inspector 2IAir Force, pp 515., p. 2. 22Eastman, pp gl£., p. 2 23Air Force, pp cit., p. 3. 27 should be commensurate with the rank of the key command officers within the department. George D. Eastman supports this view in stat- ing, "he should carry a rank equal to or greater than the rank of the individual whose unit he will inspect.”2h anlification.gf inspection personnel. The personnel of the in5pectlon section should be qualified and possess the necessary experience to effectively discharge their responsibilities. The chief Inspector should have the type of personality which will permit him to suggest, advise, and persuade rather than command. Qualifications possessed by all inspectors should consist of the following to such degree as is possible: I. He should be thoroughly experienced and well versed concerning the operations to be Inspected. 2. He must have the ability to assume a completely objective and constructive attitude towards the unit being inspected. 3. He must be zealous in probing for facts, in obtaining both sides of the "story”, and In presenting an accurate, brief, and clear summary. A. He should have earned the respect of the men in the unit to be inspected. 5. He must be capable of using his experience, and be impar- tial and constructive in his approach of analyzing and offering recommendations for Improvement. 2“Eastman, 2253., p. 3. 28 6. He must have a high degree of personal, intellectual, and moral integrity.25 Forwarding.g£ results. The results of an inspection, includ- ing those recommendations for corrective action, must be handled with diplomacy. During the Inspection, information of an embarrass- ing nature might be uncovered. Therefore, reports on Inspections should be kept confidential between the Inspector, the inspector's supervisor, and the officer-in-charge of the inspected unit.26 Upon completion of the inspection, a copy of the report should be given to the supervisor of the surveyed unit. This allows not only for rebuttal of discrepancies noted, but endorsed answers on action initiated to correct deficiencies noted. Changes which might affect more than the inspected unit must be “staffed"27 and coordinated prior to implementation. Support 2f the inspection program. In any Inspection program, it is essential that the supervisory officers give impartial and unreserved support. Supervisory and staff inspectors must mutually support each other for the program to be successful. It Is of utmost importance that all personnel understand the policies, concepts, 25”Inspections for Law Enforcement Agencies,” (Washington: Federal Bureau of Investigation, n.d.), p. 2-3 and Eastman,_2p_git., P. 3. 26Eastman, Ibid., p. A. 27”staffed“ implies the coordination and notification of any interested or affected activity of the department for their comments on the proposed change. This should be accomplished prior to forward- ing the recommendation to the chief for action. 29 and procedures of the inspection system. Without this knowledge and understanding, the fundamental concept of in5pection, that is to assist the police chief as a tool of control, is worthless. V. ORGANIZATIONAL PRACTICES Organization is needed to provide a structural framework for communication, command, and coordination. There must be a clear allocation of functions and responsibilities to the various depart- mental units. For effectiveness, maximum delegation of authority is consistent with the competence and responsibility of subordinates. General. The responsibility for controlling, consolidating, and coordinating inspections should be assigned to one unit. A system of Inspection control should be established by directive and provide for coordination of frequency, scope, and duration of inspections. This will insure that they are held to a minimum, consistent with the requirements of the units to be inspected.28 Control 2: inspection program. Unless there Is centralized control, the inspection program is doomed for failure, states the Federal Bureau of Investigation. We have found that the only feasible control of inspections is through the Director: consequently, Inspectors are not subordinate to the persons being inspected.2 Staff inspections should be performed by mature, unbiased, and respected Individuals, not part of the inspected unit. 28Department of the Army, Inspector General Technical Bulletin, Number I (Washington: GdVEFHfiEfif'PFTfiTTfig'UffTEET”JuIy l2, 9 Po . 29Federal Bureau of Investigation, gp gj£., p. 3. 30 These personnel should report accurate information on problems being experienced by the Inspected unit. Supervisory Inspection reports should be required. Normally these will not include deficiencies within their own unit. This system is effectively used in the mili- tary services. The InSpector General of an Army installation has access to commander's reports on the status of discipline, morale, and training within the units. The Inspector General forwards his reports through the Commander of the Installation to the inspected unit for comment and action taken on deficiencies found. The state- ment of corrective action initiated is then received by the commander who reviews it to insure that any action taken was adequate. The staff inspection section, located within the organiza- tional framework of the department, reports directly to the chief of police, or some other highly responsible subordinate of the chief, in extremely large departments. The inspection personnel should not have direct authority or responsibility over the units being inspected during the in5pection.30 'Qgggnizing the staff in5pection section. To effectively organize a staff inspection section, the size of the department must be considered. Thought must be given to staffing this section with some of the best personnel available in the department. Adequate clerical and analytical personnel must be provided to prevent the inspectors from getting bogged down in their own administrative paperwork, unable to effectively accomplish their functions. Three 3OEastman, pp gj£., p. 2-3. 3i possible methods of organizing the section are obvious. Variations in these may enable the section to operate more effectively or inef- fectively, depending upon the individual police department. Three inspection team organizations will now be examined: (I) an inspector assisted by specialists; (2) an inspector assisted by supervisory personnel; and (3) the department's organic inspection personnel.3I l. The inspector assisted by specialists would prove more feasible In the medium sized department. When conducting inspections, the inspector would be accompanied by technical personnel, ie., motor vehicle maintenance man, records specialist, and a communication specialist. These technical personnel, after a briefing by the inspector, would check those Items within their Specific fields, and render reports to the inspector. The inspector, when his part of the Inspection was concluded, would analyze and evaluate all data and compile the final report with recommendations. The major fault in this type of organizational setup, is that the Individual specialist does not possess sufficient rank. This lack may be considered immaterial by some as their functions during the in5pection Is of a technical nature. Using this system, the Inspector has the bulk of the Inspection to complete himself. 2. When the size of the department is such that one or two 3'Wilson,.gp'gj£., pp. 6A-65, and Opinion expressed by George D. Eastman during a lecture, Michigan State University, January 3i, I962. 32 men cannot adequately inspect it, then the inspection team must be enlarged. One possible solution is to give the inspector assistance through the use.of supervisory personnel. An example could be: a department organized with a patrol, detective, juvenile, traffic, and administrative divisions, schedules an inspection of the patrol division. In this case, the Inspector would be assisted In the inspection by the commander or deputy commander of the detective, juvenile, traffic, and administrative divisions. The inspected unit would furnish a high command officer for coordination and liaison with the Inspecting personnel. This process results in a minimum of biased inspection results. It also benefits the members of the Inspection team by enhancing their insight into possible solutions to improve their own divisions. 3. The third and final type of inspection organization under discussion, Is the department's organic inspection section personnel. This is used where the police department has an adequate number of personnel in the Inspection section. This type is normally found in large cities where there can easily be a division of functions within the Inspection section. When an inspection is scheduled, the number of personnel required are designated from the section. To adequately accomplish the inspectional purpose, this type of team can be efficiently utilized In those departments large enough to support semi-specialists within the inspection section. Greater efficiency is derived by utilizing the last mentioned type of in5pection team. TWo principal concepts aId this 33 method of operation. Personnel involved with in5pection services are more familiar with the departmental procedures and gain experience in the in5pectional process. This gives them the capability of better performing their basic functions. Combination Inspection and planning division. Many police departments would not be able to justify the utilization of one man, full time, on Inspection services. 0. W. Wilson, in figligg Planning, states that, ”staff inspections must be made if suitable controls are to be effective.“32 Ascertaining needs is the first step in planning; it is also the purpose of inspection. There are some advantages to combining both planning and in5pection functions into one unit. "It permits smaller departments to obtain greater specialization in planning and inspection by employ- ing one highly qualified person to perform both functions."33 Research and analysis are common to both planning and inspec- tion functions. The individual that develops a course of action, sees his plan implemented, Is more Interested In confirming its adequacy and suitability, than the person who has played no part in its development. The section besides being more efficient, would be more coordinated.3h 32O. W. Wilson, Police Planning (Springfield: Charles C. Thomas, I952), p. 62. 330. W. Wilson, Police Administration (New York: McGrawFHill Book Company, I950), p. 79. 3Aibid. VI. PROCEDURES TO BE UTILIZED Preparation. The first step in preparation for an inspec- tion is to gather all available information relating to the activity subject to be inspected. This data should include, but Is not limited to, organization, personnel strength, areas of responsibility, pro- grams and policies In force, equipment status, and previous inspection reports.35 When assembled, the information is then analyzed and evaluated. The chief inspector is then able to assign responsibilities to the various team members. Planning. In any inspection, a course of action must be developed. In this initial draft, the three inquiries of what, when, and who, relevant to the inspection, must be indicated. This plan is specific and detailed, only to the extent of the subject areas to be covered.36 The plan to be effective must provide for the efficient use of time and personnel. Little value is obtained when the inspection is not organized and is carried out on a hit-or-miss basis. Ample time must be allocated for representative sampling.37 35Past inspection reports referred to, Include both staff and supervisory Inspection reports. Chapter IV has further discussion on reports. 36Department of the Army, Inspector General Technical Bulletin, Number 2 (Washington: Government Printing Office, July I6, 1953). P. 7. ' 37Representative sampling refers to persons contacted outside the police department for the purpose of sampling public opinion. Additional information can be found In, Herbert rean's article, "A Really Good Police Force,” Life, A3:7l-7A, September l6, I957. 35 Sufficient thought must be given to provide for sufficient flexi- bility and possible future adjustment.38 Notification 2: Egg ggig'gg.gg inspected. There are two viewpoints expressed on notification. The first stated by the Federal Bureau of Investigation is, “the surprise inspection has the benefit of making It possible for the inspector to see actual operations as they exist on any given workday without being adjusted by spit and polish preparation.”39 The second viewpoint expressed by George D. Eastman, during his tenure at the New York Port Authority, and supported by the Army Inspector General's publications, is that advance notice will be given to the incumbent unit. The points in favor of prior notification are: I. Staff inspection should be more constructive than punitive and its success depends upon the respect and cooperation of each individual in the unit being Inspected. 2. Surprise Inspections only uncover those few superficial Items which should be maintained in top condition with adequate line Inspection and supervision. 3. Staff inspections, by their very nature, are concerned 33Air Force, 92915., p. 1+. 39Federal Bureau of Investigation, pp gL£., p. A. 36 with items that are, for the most part, a matter of record. Contents of records cannot be easily altered.“O “I When a check list is Check list and Inspection ggides. available and applicable to the unit being Inspected, it must be reviewed regularly to conform with the current policies, orders and procedures. This checking is of utmost Importance. The inclusion of inaccurate references may negate the inspection by destroying A2 confidence in the inspector. Assignment 2: 2533s 2: responsibilities. Prior to the inspection, a briefing of the Inspecting personnel is conducted. The chief's guidelines and policies established in the InSpection procedure must be thoroughly understood by the personnel comprising the team, prior to conducting the inspection. Purposes of this meeting are to assign specific areas of inspection reSponsibility to each of the team members and to Inject special subjects for in5pec- tion. This delegation of re5ponsibility will enhance the coordinated effort by the team during the inspection."3 The Inspection. The plan for inspection Is now in operation. The inspection party meets with the command officers of the hoGeorge D. Eastman, "The Development and Use of Inspection in Modern Police Administration” (University of Louisville: Southern Police Institute, n.d.), p. 3. (Mimeographed.) “IFor additional information, see Chapter V. “zAir Force, pp cit., p. A. 43Eastman, pp cit., p. A. 37 inspected unit. The Itinerary of the times and places during which each item will be checked Is reviewed. This review of the inspection schedule minimizes interference and confusion of the inspected unit's day-to-day operation.hh During the Inspection, observations must be impartial, factual, pertinent, and accurate. The inspector has a check list, but any inspection involves using the eyes and ears should not be handled in the same manner as a "garage parts" Inventory. A mere affirmative or negative response to questions on a check list is inadequate. When the inspector finds a deficiency or irregularity, he should determine why it exists. His observations and inquiries must be pointed towards the cause, as well as exist- ing conditions.“5 it is an exceedingly rare individual who can remember, or recall with clarity, all items observed during an Inspection well enough taiwrite a complete and factual report. Notes taken in a tactful manner by the inspector produce accuracy and completeness. Items noted comprise reflected conditions, good or bad, and related facts which will eventually aid In formulating recommendations. To render satisfactory comments, these notes must be complete as well as astute in content.‘+6 The value of any inspection depends primarily on the Inspector's ability to think clearly. Thorough analysis of observations will lead the inspector to a determination of the causes for the conditions he finds. hhArmy,lgp,git., p. 8 h5Air Force, gp‘§l£., p. h. 46Air Force, 92 cit., p. 5. '*7Ibid. 38 Experience and understanding are essential personal traits of the inspector. He must be able to recognize good or bad manage- ment practices, and he must know what constitutes economy. Adverse situations must be anticipated, and preventive action initiated before serious difficulties arise. The most valuable work that the Inspector can do for the chief Is to prevent trouble by anticipating obstacles which, if allowed to develop, would evolve into an undesir- able situation.l+8 Upon’completion of the inspection, the inspecting team should review thoroughly all notes made during the inspection to ensure completeness of material and information. A brief discussion of the general findings, together with those recommendations requiring immediate corrective action should be discussed with the commander of the inspected unit at the con- ‘49 clusion of the inspection. 50 Reporting trivial and inconsequential Accuracy of report . errors should be avoided. Possible correction should be made on the spot. Data should be presented simply and clearly, maintaining a balance between clarity and brevity. Emotionally loaded words and inflamatory language must always be avoided. General phrases such as "good” or "very good“, "several“ or "many“ should be eliminated. Reporting must be concise and specific.51 “albid. “9mm, 22531., p. 9. 50See Chapter lV Reports. 5'Federal Bureau of investigation, gplglt., p. 3 and Air Force, 29513., p. 6 39 When the inspector's report becomes voluminous, brief summaries should be attached to the recommendations. This will facilitate review by the chief, and indicate those conditions need- ing immediate attention. Follow-up activity, directed by the chief, will assure that appropriate corrective action has been taken. This follow—up also serves to report on the progress of implementation of recommended improvements.52 VI. SUMMARY Organization of an inspection involves various items. Thorough comprehension of the fundamentals of Inspection is of the utmost importance for a successful inspection program. inspection is an elemental tool of executive and administrative control. Henri Fayol, in the "Administrative Theory in the State," concludes that, Control is the examination of results. To control Is to make sure that all operations at all times are carried out in accordance with the plans adopted - with the order given and with the principles laid down. Control compares, discusses, and criticizes; it tends to stimulate planning, to simplify and strengthen organization, to incrgase the efficiency of command and to facilitate coordination.5 Many individuals today are skeptical about inspection systems. This resistance to managerial change is difficult to understand in the light of the eagerness with which police departments seek tech- nological innovations. New equipment such as radar, lie detectors, 52Eastman,lgplgit., p. 5. 53Henri Fayol, "Administrative Theory in the State," Papers on the Science of Administration (New York: Institute of Public Administration, Columbia University, l937), p. l03. no and radios are accepted without bias. Seldom are there any ties with the old items because, in technology, advantages of the new ones can be easily measured and observed. . Changes in management and administrative philosophy are not so easily weighed. Advantages of a new system will not normally be noticed immediately. The principles and concepts discussed must be implemented by foresighted police administrators. In this way, law enforcement agencies will continue to advance. in the forthcoming chapter, several types of inspection systems will be discussed. These modern concepts and procedures when utilized in law enforcement agencies, should lead to stream- lining and efficiency of operation. CHAPTER III TYPES OF lNSPECTIONS During any staff Inspection, the goal is not for the cir- cumvention of supervisors but the creating of constructive relation- ships. Several types of staff inspections will be discussed in this chapter. The fundamental precepts covered in the previous chapter apply to the degree necessary for an effective inspection program. The inspection process is a vital relationship which must exist between executives and subordinates. It should be, in addition to constant checking and rechecking, an unbroken chain of counseling, helpfulness, and communication. I. GENERAL STAFF lNSPECTlONS The general staff inspection's scope should be limited to a particular function, system, or facility within the police depart- ment. it should embrace all matters vital to the bureau, section, or division being Inspected. General inspections may be classified as continuing or non-continuing types. The responsibility of the police administrator Is to select that type of inspection which best suits the department's objectives and capabilities.‘ IDepartment of the Air Force, Air Force Manual 123-], Manual .fgr United States Air Force Inspectorsfliwashington: Government Printing Office, January 3i, l9577, p. 7. #2 Continuing staff inspection. Continuing type staff inspec- tions can best be described as an interrupted series of general inspections of a specific activity or section. The need for using the continuing staff in5pection would be in a situation in which there is an extremely large bureau or section. When the division or section is large and the responsibilities of the inspect- or are many, it would be impossible to conduct the Inspection during a specific period of time. In this situation, the Inspector would have additional duties requiring his attention. For example, a patrol bureau which is not broken down into districts but operating out of a centralized headquarters, would require a continual inspection. When activities are centralized, this type of inspection has several beneficial aspects. The inspection should not cause undue interruption of the operation. Activities which might enjoy slack periods could be inspected during these periods. The continuing inspection has the additional feature that a large organization or activity can be inspected by a few people spread over a long period of time. This type of inspection should not be considered complete until all the reports have been completed. Duration of this Inspec- tion could extend from one month to a year. Normally this would depend upon the Inspector's time available for inspection and the operational commitments of the inspected unit.2 Non-continuing staff inspection. The second type of general 1.3 staff in5pection is the non-continuing inspection. This is easily recognized by the characteristic that the inspection is completed without interruption of the inspection process. inspectors stay on the job until the InSpection is completed, usually a definite and relatively short period of time. This is seen in an inspection of a precinct station lasting one week. At the end of the week, the process Is completed and the in5pectors leave.3 The two types of general inspection, continuing and non- continuing, have been discussed. One may require a long time to complete, as the inspected activity is large and the team is small; the other embodies an adequate size inspection team, able to accom- plish the entire in5pection within a specified, limited period of time. Both inspections, however, evaluate and analyze the entire activity completely and comprehensively. The non-continuing general Inspection should be adopted If possible within the capabilities of the inspectors. it would then provide the chief with current recommendations on deficiencies now in existence. The report of a continuing type general in5pection might recommend correction of deficiencies no longer In existence and therefore be outdated before the completion of the report. II. SPECIAL INSPECTIONS Special inspections must be develOped to satisfy specific needs within the police department. When conditions Indicate a 3lbid. Ah decline in the efficiency or economy of a particular section, Special inspections should be made to ascertain the causes so that the chief of police may take corrective action.h Increased specialization of functions within the modern police agency and the development of highly technical aspects of many of the departmental activities has complicated the inspection program. Overall evaluation is becoming more difficult to perform without the assistance of Specialist assisting the inspection team. Special inspections are usually directed by the chief to cover special situations, special fields of activity, or to ascer- tain the reasons for a marked decline in operating efficiency. The scope of any special inspection should not restrict the inspector from reporting any observation of deficiencies noted, even if outside the scope of the particular inspection.5 Subjects considered for special in5pections could be any mat- ter which might adversely affect the efficiency and economy of an operating unit. Inspections could be limited to one specific policy or regulation applicable on a department-wide basis. This inspection would be temporary in nature and require the inspectors to rapidly ascertain existing conditions relative to the subject of the inspection and, if deficiencies exist, determine the causes. An illustration of this is found in a large midwestern city which had a policy prohibiting parking of privately owned automobiles in city owned parking lots designated for police vehicles. The size “Ibid., p. 8. Slbid. 1+5 of the lots was such that they would hold only those police vehicles assigned to it. During snow and inclement weather, it was observed that numerous police vehicles were parked on the streets. Further observation revealed that the lots designated for the police vehicles, were full of civilian cars. A Special in5pection was ordered to determine the degree of non-compliance to the departmental policy. The inspection consumed one day and the total personnel strength of the in5pection division. Results revealed that the non-compliance was extensive. Police personnel dId not want to leave their cars parked on icy and slippery streets where they might be liable to accidents. However, they felt little compunction about parking city vehicles In the same position. On the surface, it appeared that the non-compliance was purposely done. Underlying causes indicated there were insufficient parking facilities available for privately owned cars near the police stations. Results of this inspection initiated several things. First, an education prOgram directed at the individual officer on his responsibilities for city property; secondly, directives to supervisors indicating the status of the situation and recommended corrective action be taken; and thirdly, a combined planning program aimed at locating and obtaining use of adequate parking facilities near each police station for privately owned automobiles. Special inspections can answer many questions but the process should be used with care. General in5pections should encompass most of the aims of in5pection; the special inspection used only when necessary for efficiency, economy, and morale purposes. us Ill. SURVEYS O. W. Wilson states that completed staff work adequately documented, supported, and compiled, is a survey report.6 Surveys can be conducted by the inspection division personnel to facilitate Operations within the department. Any staff agency can conduct sur- veys, as they are critical examinations or studies of given areas with respect to certain conditions or situations. These studies have the implied or specific purpose of ascertaining facts and providing exact information. Surveys in police departments are normally Special inquiries encompassing a number of sections or divisions. The special distinction of a survey lies not in the way it is conducted, but in the manner in which the facts are analyzed and reported. If several special inspections of a similar nature were consolidated and analyzed, the reporting of results would constitute a survey.7 ”A survey may be broad and undetailed, viewing conditions as a whole and considering or studying an overall situation comprehensively."8 For example, it might become necessary within the department to ascertain the condition, storage, handling, and utilization of emergency medical equipment carried in patrol cars. This would entail not only a physical Inventory of items in storage 6O. W. Wilson, Police Planning (Springfield: Charles C. Thomas, 1952), pp. lh—lS. 7Department of the Air Force, gplgl£., p. 8. 8mm. 47 and use, but also administrative records' check on purchasing and disposition to determine all facets, giving an overall view of the numbers on hand, expenditure rate, utilization factors, and general condition of the items throughout the department. IV. SUMMARY With adequate personnel, inspections covered in this chapter can be effectively utilized. It must be kept in mind that Inspec- tions of the various types discussed are each suited for particular purposes and objectives. When properly used, these inspections and surveys can actually be the "eyes and ears” of the police adminis- trator. When the inspections and surveys are completed, they must be reported to the chief in such a form that he can easily grasp the pertinent points and act upon them intelligently. The follow- ing chapter will discuss the various aspects of preparing and presenting reports. CHAPTER IV REPORTS This chapter deals primarily with the objectives, quality, methods of reporting, writing, review, and follow-up procedures involved in good reporting process. Reports can be either verbose and voluminous or clear and concise. The latter can better accom- plish the purpose of accurate reporting of inspection results. I. OBJECTIVES inspection reports are prepared essentially to advise the police administrator of the general and specific performance of police duties and the state of discipline, efficiency, and economy within the various sections of the department. The report should indicate Specific conditions revealed by the inspection which might require remedial action. The report is prepared to provide the chief with: l. An appraisal of the performance of duties and the state of efficiency and economy of the section inspected. 2. Information upon which to establish policies and to determine any action to be taken. 3. A record of facts on which specific conclusions and recommended actions were based.1 'Department of the Army, inspector General Technical Bulletin, Number 2 (Washington: Government Printing Office, July lg, ‘953): PP. 9'10. ~ #9 ll. QUALITY ”To be effective, a report must be accurate, clear, and concise, and cite the positive action required to improve existing conditions."2 The in5pector's comments in a report must be accurate because they are the basis for recommendations of remedial action and, if this action Is taken on erroneous information, it may adversely affect morale and operations of the department. The inspector's report provides the chief, without person- ally scrutinizing each activity, a running account of the results of his management. It brings to his attention those conditions which require his personal direction. This, then is the reason for insuring accuracy of Information upon'which the recommendations are based and including only these in the report. "All paperwork of the InSpection must be accurate, brief, clear, and portray the situation and remedy in factual language, devoid of extraneous matter."3 Aspects of good reporting are: l. Accuracy is achieved by confirming data with additional sources, avoiding hearsay, using words in their correct meaning, and avoiding slang and colloquialisms. 2. Clarity of the text of an inspection report should be such that the content of the report will not be misunderstood. Clarity is obtained by the Simple and direct presentation of the subject matter in accepted ... terminology. 3. Conciseness is essential to the effectiveness of the report and will be limited only by the necessity for clarity. Brevity is obtained by the elimination of unnecessary and 2|bid., p. 9. 3"lnSpection for Law Enforcement Agencies" (Washington: Federal Bureau of investigation, n.d.), p. 3. 50 insignificant information, by the use of inclosures in letter sequence for the presentation of explanatory and statistical data,hand by avoiding repetition and elaborate forms of expres- sion. Ill. METHOD OF REPORTING As each Inspection culminates in a report, a system or means of reporting the information to the individual who can take appropriate action must be devised. To the inspector, his report is the principal medium through which he discharges his duty and reSponsibilities of observing and making known to his superiors the situations, trends, irregularities, deficiencies, and conditions which measure the efficiency and economy of the department's opera- . tion. "Although the report can be rendered orally, only in written form can a permanent record of events and observations be recorded to be of future value. in both the oral and written reports, the inspector must base his evaluations on a sound analysis of facts."5 For this reason, the reports should always be made a matter of record because of their potential future value in guidance and reference. IV. WRITING THE REPORT The form of the report to be prepared is normally prescribed “Army lGTB, 2253., p. 9. 5Department of the Air Force, Air Force Manual l23-l, Manual for United States Air Force Inspectors (Washington: Government Printing Office, January 3i, l957), p. lh. Si by the chief. This form should follow the general outline described below. The report should be written so that it can be clearly under- stood by all who*will read it and facilitate the desired corrective action. The report would be signed by the inspection team leader as he should be held reSponsibIe for the proper preparation and contents of the report. As stated, the form of the report is a matter of the chief's prerogative. it is necessary to keep in mind the types of reports corresponding to the types of in5pections performed and the general principles of good writing. The inspector's report is a reflection of his personal qualification and ability. If any aSpect of his work or conduct is subject to adverse criticism, his Erestige is impaired, and with it the value of his inspections. General. The general section of a report should indicate various introductory items for the Intended reader. These should be as brief and specific as possible, but still include those items necessary for full understanding. Items which should be included could be divided into two areas, the inspection and the unit to be Inspected.7 Information included in the in5pection section would consist of the names of inspectors; dates of inspection period; certain data pertaining to the latest prior inspection, such as the names of inspectors, dates of inspection period, and a statement indi- cating whether action had been taken regarding the previous recom- mendations; and scope of the Inspection as to functional activities 6ibid. 7Army IGTB, gp_c_I_t_., p. IO. 52 inspected. Data or general information pertinent to the unit or activity inspected should follow. The name of the present supervisor; briefly the assigned responsibilities, functions, and duties; the organiza- tional structure; and the status of personnel, equipment, and facil- ities Indicated by a tabulation of the authorized amount and what Is actually on hand. Overages or shortages Should be explained in 8 the summary of observations. Summary 2f observations. The summary should provide a digest of essential conditions existing within the unit inspected. Any special subjects requested by the chief should be included in this section. Any elaboration of points made in this section should be properly referenced to inclosures or appendixes. ”The organization of the subject matter of this section should be presented in a logical sequence and on a functional basis.”9 The text must be held to an absolute minimum so that the intended reader need not concern himself with details while viewing the general nature of the report. The details must be attached for ready reference and support for recommendations made. To assure proper organization for this section, the check list‘0 could be made in a similar format so that compilation of the report would be facilitated. Any form which suits the individual 8ibid. 9Ibid. IoTo be discussed in Chapter V. 53 department would suffice as long as it follows an orderly process and is arranged in a logical sequence. Recommendations. The purpose and principles of recommendations have been previously stated in Chapter II. Briefly, the recommenda- tions of the report should be comprised of simple, clear, and direct statements of what should be done or corrected by the officer-in- charge of the inspected activity or higher authority to overcome unsatisfactory conditions disclosed by the inspection. The important feature of all recommendations is that they must be constructive and result in correcting bad situations, improvement of efficiency, or . . . ll Increase economy and serVIce of the section concerned. V. REVIEW AND FOLLOW-UP TO REPORTS 531133. Where a report is voluminous, the action items or deficiencies may be grouped according to functional area. Upon completion of a field inspection of a district or precinct, these might include: personnel activities, records, detective operations, motor vehicle maintenance and equipment, and policy files. The grOUping of these items functionally would facilitate review by each staff section or responsible functional division, enabling rapid checking-of those items pertaining to their responsibilities. Should some items have application for more than one staff section, they could be included in the general section of the basic report. Follow-up. As discussed previously, the follow-up action "Army iGTB, 93 cit., p. ll. 51+ may consist of a review of the conclusions and recommendations; or it may be a detailed re-inspection of the activity. The detailed re-inspection should cover those items listed in the report; however, in some cases these might require a full inspection to ascertain the status of implemented recommendations. Specific intervals should be set for follow-up action to be taken. George D. Eastman recommends thirty, sixty, and ninety-day intervals!2 The purpose is to insure that recommendations are implemented and discrepancies have been corrected. These checks or follow-ups must be made to keep the police chief abreast of the progress and quality of corrective action being taken. VI. SUMMARY The important things to be borne in mind when writing an inspection report based upon observation, evaluation and analysis are to: l. Present facts simply and clearly, maintain a balance between clarity and brevity, do not sacrifice one for the other. 2. Make sure ... facts and ... references are accurate. 3. Avoid personal reference, “emotionally loaded” words, and statements‘of a directive nature. The police InSpector must realize that, whether he reports orally or in writing, his comments are received by the inspected personnel and it is therefore essential that his report be impartial, IzGeorge D. Eastman, ”The Development and Use of InSpection in Modern Police Administration" (University of Louisville: South- ern Police Institute, n.d.), p. S. (Mimeographed.) '3Department of the Air Force, 22 £13., p. l5. SS authentic, clear, and honest. The tone of his criticism must be courteous, respectful, and supported by sufficient evidence of obser- vation.‘h The detection of important facts, the screening of observations to be reported, and ability to expressthese observations in the proper words comprise the entire foundation of inspection. Polite- ness and courtesy must at all times be reflected by Inspectors even when writing reports. As was mentioned previously, there are no hard and fast rules governing what should be reported or how the report is prepared and processed. This will depend on the policy of the individual depart- ment and the personalities of the inspector and the chief. The next chapter covers various aspects of guides and check lists which are necessary to insure sufficient and adequate coverage of the inspected activity. ”‘Ibid. Isibid. CHAPTER V GUIDES AND CHECK LISTS Necessary information and observed facts must be available to the inspector so that he can complete his report. Some method is necessary to guide and direct the inspector as to what items and conditions Should be checked. I. USE OF CHECK LISTS No matter how large or small the inspection team is or how complex or simple the unit to be inspected is, a check list of items to be covered must be used. it IS held that while a good check list will not insure a thorough inspectign, one carried on without it will surely fall short of its goal. One person cannot remember everything which must be checked during an inspection, especially when It is to be conducted within a limited period of time. When hurried, some items may be forgotten. if a comprehensive check list Is used, it will not insure that every aSpect will be observed but it should decrease the likelihood of overlooking minor details. These details could be of significant importance in understanding why certain procedures are not proving successful and preparing recommendations for correction. The check list should be used only as a guide by the inspector. it should not be THE inspection, for then too much importance will be attached to it. Too much effort would be devoted to following the IGeorge D. Eastman, ”The Development and Use of Inspection in Modern Police Administration" (University of Louisville: Southern Police institute, n.d.), p. h. (Mimeographed.) 57 guide item by item and result in missing some important points of the inspection. When used properly, each item can be marked as checked but need not be covered in the listed order. This process will allow the experienced inspector to follow methods best suited to his own individual personality and still insure that all items listed will be examined. II. GENERAL Check lists must be made sufficiently in advance of an inspec- tion so that proper coordination, revision, and approval can be obtained. Routing the proposed check lists through the various staff members and senior line officers will assist in formulating an all— inclusive check list. The contents of check lists may well vary, depending on the section or operation to be inspected. Certain areas of inspection will be part of all check lists, as they are present in each activity within the police department. These general areas should encompass: .l. Physical condition of the entire activity, its operation, and necessary level of maintenance to include; physical conditions of offices, working areas, and storage points, ie., heat, lighting, ventilation, sanitary facilities, security, availability of refer- ence material, and equipment necessary for the operation. 2. Operations in which the inspected activity is involved such as patrol, traffic control, responses to emergencies, calls for service, and adequacy of personnel and equipment to accomplish these functions. 58 3. Administrative operations might encompass areas such as controls over property, communication costs, organizational chain of command and responsibility, follow-up systems on investigations, assignment of employees, operation of files and records, and audits of special funds of the activity. A. Personnel matters are possibly one of the most important phases of the inspection. ”All achievements are made through personnel. Unless there is good personnel management, the agency cannot accomplish its objectives."2 Check list items should include adequate work assignment; authorized complement of personnel; delegation of responsibility and authority; general attitude of the personnel of the unit covering morale, esprit de corps, teamwork, discipline, enthusiasm, integrity, interest, and training of the personnel of the inspected unit.3 These are the general areas which should be covered in each inspection check list. The detail necessary for adequate coverage will depend on many factors. The main thought here is that each point considered ”picks up each thread of police work at the beginning and follows it through to the end, analyzing both the thread itself and the relationship which it bears to the whole fabric of police operations."h 2”Inspection for Law Enforcement Agencies" (Washington: Federal Bureau of Investigation, n.d.), p. IO. 3Ibid., pp. S-II. h”inspections - An Executive Tool for Improvement” f§l,L§g Enforcement Bulletin, 26:20, May l957. 59 III. TYPE OF CHECK LIST Police inspectors may select from two types of check lists. One can be considered as the check-off or short answer, the other requires a narrative response. Both have some merit. The check-off is limited in Its application but could be of value in those areas where short answers are desired. if this type iS used throughout the organization, short answer remarks will not fully explain con- ditions, situations, thoughts, and other means of expressing the results of the inspection. The narrative response check list can be more advantageous for the experienced police inspector. Guided by an outline of what to check, he makes notes of his observations and prepares the report upon completion of the inspection. This type, using narrative comments requires the inspector to look more deeply into situations and conditions which will in turn assist in getting at the underlying causes which need correction. iV. SUMMARY The type of check list used will depend on the section or activity to be inspected. Preference of various departments5 is the utilization of the narrative type which the author feels results in more complete inspection. The check list must be properly pre“ pared and used to facilitate any inspection. If “staffed” and approved by the chief, staff, and command officers, it will assist in formulating a basis of standardization for comparison of results. 55ee the discussion in Chapter Vi on check lists. CHAPTER VI GENERAL ANALYSIS OF DEPARTMENTS This chapter covers the organization, policies and procedures, check lists, and report utilized by the inspection units of three large municipal police departments, Philadelphia, Cincinnati, and Chicago. The Operation of each inspection section will be sum- marized in the latter portion of this chapter. I. PHILADELPHIA The population of Philadelphia in l96l, of the city proper, was 2,002,5I2.I The Philadelphia Police Department during the same period had a strength of 5,h53 police officers and 552 civilian employees.2 The Philadelphia Police Department was the second largest department of those selected. Organization for inspection. In the general organization chart of the Philadelphia Police Department (Figure l), the rela- tionship of the Staff Inspection function can be readily seen. The seven Staff Inspectors, directly responsible to the Commissioner, are assigned to seven geographic police districts (Figure 2). All inspectors are appointed by civil service examination IW'orld Almanac (New York: New York World-Telegram, I962),p.253. 2Municipal Year Book (Chicago: International City Managers' Association, l96l), p. hOl. 6! but can be moved, by the Commissioner, to fulfill whatever responsi- bility he designates.3 This policy enables the Commissioner to change assignments within the top command positions which allows flexibility in personnel management. The districts inspected by the Staff Inspector are commanded by a Captain, one grade level below the Staff Inspector. The Commissioner assigns additional duties as he deems appro- priate. This could include confidential investigations on internal problems.h Policies and procedures. During the course of the inspection program, the Staff Inspectors are required to accomplish the follow- ing.objectives: The Staff Inspector shall do Special staff inspection work under direct assignment of the Commissioner. The Staff Inspector shall survey and analyze Department oper- ations and make specific recommendations with a view towards increasing efficiency, economy, and service. Through staff inspections, the Staff Inspector shall determine whether the policies of the Commissioner are being carried out and whether regulations and orders are being obeyed.5 The Staff Inspectors conduct unannounced inspections within their districts, beginning any time during any day. Upon initiation of the inspection, an orientation interview is held with the Com- mander of the unit to be inspected. During this interview, the 3Personal Correspondence of the Author, letter from Staff Inspector Joseph J. McGurk, February 20, I962. “Personal Correspondence of the Author, letter from Commis- sioner Albert N Brown, January 29, l962. 5Duty Manual (Philadelphia: Police Department, I955), Item 30. kzmxh¢<¢mo mu_40m <.:m4mo<4_:¢ .hm<:u zo_k.a zo_m_>_a Ase mohumemz_ >¢_=oz_ m>_»uu»mo mzo_m_>_o a_< o_ee<¢» mzo_m.>.o ee.eumemo ua_zm>=a - I - - . , _ _ I r 2 6 mzo_hzwoxmm onh_huwhmo wu.40m w>_kh2mmo muzo_mm_zzcu >hamwo mwzo_mm_zzou wu_40m 63 FIGURE 2 DISTRICT ASSIGNMENT OF PHILADELPHIA'S ST"F INSPECTORS l9 Districts Located Within Geoggaphic Divisions Northeast Division Districts 2, 7, l5 Northwest Division Districts 5, lh, 35, 39 East Division I SOUTH DIVISION Districts 2h, 25, 26 . West Division Districts l2, l6, l8, I9 I l h North-central Division , Districts 22, 23 ‘2 \ Central Division Districts 6, 9 WEST DIVISION l8 South Division Districts I, 3, h, l7 6h constructive aspect of the in5pection is discussed and stressed.6 The inspection can be so devised as to permit phase inspec- tion of particular subject areas, or can be combined as a general inspection of the entire activity and operation. Philadelphia's Commissioner feels that significant importance can be attached to the value received from realistically evaluating the State of morale and discipline within the ranks. The Staff Inspector objectively listens, evaluates, and relays pertinent information to the Commis- sioner indicating these areas of concern.7 Correction of deficiencies is accomplished on—the-spot, if at all possible. When this is impossible or not feasible, the matter is then referred to the CommisSioner who decides which course of action should be taken to correct the situation. In order to facilitate the in5pection, the general outline of the check list followed by the Staff Inspectors will now be discussed. Inspection guide. The Philadelphia Police Staff Inspector's guide or check list is an outline in general form, relying upon the maturity and experience of the inspectors to adequately cover the necessary areas in sufficient detail. The scope of this outline encompasses: l. The appearance, maintenance, adequacy, and requests for repairs of the physical installation or building. 6"Field Inspections by Staff Inspectors” (Philadelphia: Police Department, n.d.), p. l. (Typewritten.) 7Commissioner Albert N. Brown, 22 gig. 65 2. Command and administration: a. Determining whether the command and staff officers assigned to the inspected unit have an adequate knowledge of the vice conditions, crime and traffic enforcement, utilization of personnel and equipment, and general conditions within their sc0pe of jurisdiction. b. The general and specific administration of records, reports, personnel files, and other procedures and policies of the department. These would include but not be limited to the handling and processing of evidence, operation of the cell block, and the community relations program. 3. Field operations would encompass patrol deployment, adequacy of supervision, condition of mobile equipment, and the morale and attitudes of various personnel. A. Training and education is subdivided into two areas, that necessary for the plaénclothesmen and those aspects pointed toward the patrolmen. Upon completion, conclusions are drawn and recommendations are formulated and forwarded to the Commissioner for any action he deems necessary. Reports. The report is the outline cited above, completed in detail, drawing conclusions from observations and inquiry, and recommending corrective action. The final section of the report is devoted to recommendations for both correcting present procedures and improvements which could be made in operational procedures and policies. Improvements which result in increased efficiency, economy, and service, are prime objectives of the inspection report. Summagy. Geographical distribution of inspectors, in the Philadelphia Police Department, appears to provide the fundamental information needed to apprise the Commissioner of the Status and level of departmental operations. The location of the inspectors' position within the organizational structure appears to rely upon 8"Field Inspections by Staff Inspectors”, pp gig. 66 their experience and competence for the effective evaluation of the conditions, situations, and operations of the department. Their recommendations enable the Commissioner to Initiate such corrective action and implement improvements necessary, providing batter police service to the community. II. CINCINNATI The population of Cincinnati, Ohio, in l96l, was 502,550.9 The Cincinnati Division of Police during the same period employed 900 police officers and 86 civilians.‘0 Some of the problems created within the city, stem from Its geographical location in southern Ohio across the river from Kentucky.n Cincinnati's Division of Police was the smallest department of those compared. ‘nggnization for inspection. The Inspection Bureau, within the departmental organization, is located at the level of the major command and staff divisions (Table 3). The Inspection Bureau has two officers assigned, the Police Inspector and the Deputy Police inspector. Appointments are made by competitive civil service exam- ination. The Patrol Bureau, Detective Headquarters, Traffic Bureau, Personnel Bureau, Services Bureau, and Inspection Bureau are directed by Assistant Chiefs and can be rotated in these positions by the 9World Almanac (New York: New York World—Telegram, l962),p.253. ”Municipal Year Book, 9515., p. hm. llStatement by Inspector Jacob W. Schott, January 26, I962. hZuzh¢z_ >2- u_4m:m zo_h.o >hme