A OESCREMINMIVE STUBY OF “FUNCTION INDEX"
AS AN OBJECTIVE RATENG TOOL FOR

EVALUATION OF POLICE PATROLMEN

EHESIS FOR THE DEGREE OF M. S. [N POLKCE
ADMINISTRATION

MICHEGAN STATE UNEVERSITY
JOHN EDWARD MEANS
1965

ROOM USE 03‘3”

 

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A DISCRIMINATIVE STUDY OF THE "FUNCTION INDEX”
AS AN OBJECTIVE RATING TOOL FOR EVALUATION

OF POLICE PATROLMEN

 

An Abstract of a Thesis
Presented to

the Faculty of the School

of Police Administration

Michigan State University

 

In Partial Fulfillment of
the Requirements for the Degree

Master of Science in Police Administration

 

by
John Edward Means

June 1965

 

     

APPROVED:

 

 

Chairman

 

‘Member

 

‘Member

Perso
and supervis
tion of emp]
be quite lac

industrial ;

ABSTRACT

Personal evaluation is an important administrative
and supervisory function. The standard subjective evalua—
tion of employees by superiors very often has been found to
be quite lacking in depth and insight. Leaders in business,
industrial and educational fields have, for a period of
several years, been emphasizing the use of objective measures
to be utilized in conjunction with the more standard use of
subjective processes. The police field has not experimented
on any great scale with objective measures concerning personal
evaluation. A scattered few police administrators have been
bold enough to attempt to reorientate their evaluation pro—
grams with an eye to objective measures.

It was the purpose of this study (1) to examine in
detail the eXperiment by Oak Park, Michigan's Department of
Public Safety's use of production total figures as an objec-
tive rating tool for police patrolman evaluation; and (2)
attempt to determine the feasibility of using the number of
police tasks performed as an objective evaluation tool by
police administrators.

The procedural methodology entailed a comprehensive
review and study of all publications on the specific subject
in not only the police field, but also in the fields of

education, business and industry. The records of the Oak Park

Department 0
searched and
from road of
and quarterl
reports.

The E
With 8 h1g1
Public Safet
areas of ad‘.
It has been
to dEtemim
the USe Of 1
teal by D01:

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Department of Public Safety for the past eight years were
searched and the data utilized in this study was compiled
from road officers' daily car logs, shift commanders' daily
and quarterly reports and departmental quarterly and annual
reports.

The Function Index System has apparently been used
with a high degree of success by the Oak Park Department of
Public Safety as a supplementary evaluation tool in the
areas of advancement, placement and salary of patrol officers.
It has been utilized as a diagnostic man-analysis tool and
to determine departmental training needs. It appears that
the use of production figures as an objective evaluation
tool by police administrators is feasible. This assumption,
though, requires validity and reliability studies and more
additional research and experimentation before its wide-
spread use is advocated. The use of such a system appears
to be a step forward in the area of more effective police

patrolman evaluation.

A DISCRIMINATIVE STUDY OF THE ”FUNCTION INDEX"
AS AN OBJECTIVE RATING TOOL FOR EVALUATION
OF POLICE PATROLMEN

 

A Thesis
Presented to
the Faculty of the School of Police Administration
Michigan State University

 

In Partial Fulfillment
of the Requirements for the Degree

Master of Science in Police Administration

 

by
John Edward Means

June 1965

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TABLE OF CONTENTS

CHAPTER

I. THE PROBLEM AND DEFINITIONS OF TERMS

The Problem . . . . . . . . . .
Statement of the problem . .
Importance of the study . . .

Definitions of Terms Used . . .
Public Safety Officer . . . .
Patrol . . . . . . . . . . .
Units of measured work . . .

II. REVIEW OF THE LITERATURE . . . .

USED .

III. A SPECIFIC VIEN OF PERSONNEL EVALUATION . .

'IV. OAK PARK DEPARTMENT OF PUBLIC SAFETY AND

ITS EVALUATION SYSTEM . . . . . . . . . . .

Oak Park, Michigan . . . . . .

The Oak Park Department of Public

Operations Division . . . . .
Fire Marshal's Division . . .
The Special SerVices Division
The Investigative Division .
A shOrt selected history . .
Patrol duties . . . . . . . .

Response to fire alarms . . .

Apparatus, equipment and buildings . .

PAGE

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l--'
[.4

16
17
18
19
2O
21
21
23
24
24

25

C

0" C"
:"LL i

CHAPTER

Personnel . . . . . . . . . . . . . . . .

Personnel organizations . . . . . . . . .

The Measured Units of Work . . . . . . . .

Felony arrests on sight . . . . . . . . .
Misdemeanor arrests on sight . . . . . .
Warrant arrests . . . . . . . . . . . . .
Driving under the influence of liquor
arrests . . . . . . . . . . . . . . . .
Reckless driving arrests . . . . . . . .
Other hazardous moving traffic violation
citations . . . . . . . . . . . . . . .
Non—hazardous moving traffic violation
citations . . . . . . . . . . . . . . .
Parking violation citations . . . . . . .
Other ordinance violation citations . . .
Open doors and windows . . . . . . . . .
Autos recovered . . . . . . . . . . . . .
Bicycles recovered . . . . . . . . . . .
Found breaking and enterings . . . . . .
Juvenile safety violation notices . . . .
Field interrogation reports . . . . . . .

Fire inspections . . . . . . . . . . . .

The Records 0 O O O O O O O O O O O O O O 0

iv

PAGE
26
29
3O
31
31
32

32
33

33

34
34
34
35
35
36
36
37
37
38
38

CHAPTER

V}

VI.

Road officer's daily log . . . . . .

Shift performance report . . . . . .

Quarterly shift performance
Annual departmental
The Individuals Used

Patrol time factor

Personal factors

A SURVEY OF WORK LOAD .

Method of Procedure .

Patrol time factor

Officer index . .

Function index .

Code system . . .

Quarterly

Position
Position
Position
Position
Position
Position
Position

of
of
of
of
of
of
of

Statistical

reports . . . . .

standings . . . . . . . . .

Officers
Officers
Officers
Officers
Officers
Officers
Officers

Summary

The Function Index

for First Quarter
for Second Quarter
for Third Quarter
for Fourth Quarter
for Fifth Quarter
for Sixth Quarter

for Seventh Quarter

0 O O O O O O O 0

AN ANALYSIS OF WORK LOAD . . . . . . . . .

PAGE
38
4O
40
42
42
42
43
45
46
46
46
47
48
48
48
5O
54
55
57
61
62
65
69
69

(1'; "mm;
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vi

CHAPTER PAGE
Use of Production Totals . . . . . . . . . . 75
Felony arrests on sight . . . . . . . . . . 75
Misdemeanor arrests on sight . . . . . . . 8O
Warrant arrests . . . . . . . . . . . . . . 80
Driving under the influence of liquor
arrests . . . . . . . . . . . . . . . . . 80
Reckless driving arrests . -,- . .g. . . . 81
Other hazardous moving traffic violation
citations . . . . . . . . . . ._. . . . . 81
Non-hazardous moving and parking violation
citations . . . . . . . . . .1. . . . . . 81
Other ordinance violation citations . . . . 82
Open doors and windows. . . . . . . . . . . 82
Stolen autos recovered . . . . . . ._. . . 82
Bicycles recovered . . . . . . . . . . . . 82
Found breaking and enterings . . . . . . . 83
Juvenile safety violation notices . . . . . 83
Field interrogation cards issued . . . . . 83
Fire inspections . . . . . . . . . . . . . 83
Control . . . . . . . . . . . . . . . . . . 83
Summary . . . . . . . . . . . . . . . . . . . 84
A standard of comparison . . . . . . . . . 88

VII. SUMMARY AND CONCLUSIONS . . . . . . . . . . . . 92

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CHAPTER PAGE
Summary . . . . . . . . . . . . . . . . . . . 92

Purposes of the study . . . . . . . . . . . 92
Significant findings . . . . . . . . . . . 93
Limitations . . . . . . . . . . . . . . . . 93
Conclusions . . . . . . . . . . . . . . . . . 9”
Additional research required . . . . . . . 97

BIBLIOGRAQPI—IY O O O O O O O O O O O 0 O O O O O O O O O 101

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TABLE

II.

III.

IV.

VI.

VII.

VIII.

Position of
Index for
1962 . .

Position of
Index for
1962 . .

Position of
Index for
1962 . .

Position of

Index for

LIST OF TABLES

PAGE
Officers As Determined by Function

Quarter 1 January 1962—-3l March

. . . . . . . . . . . . . . . . . . 49

Officers As Determined by Function

Quarter 1 April l962--22 June

0 O O O O O O O O O O O I O D O O O 51

Officers As Determined by Function
Quarter 23 June l962--l3 September

0 O O O 0 I O O O O O I O 0 O O O O 53
Officers As Determined by Function
Quarter 14 September l962--5

January 1963 . . . . . . . . . . . . . . . . 56

Position of

Index for
i963 . .
Position of
Index for
1963 . .
Position of
Index for
1963 . .
Position of
Index for

September

Officers As Determined by Function

Quarter 6 January 1963--29 March

. . . . . . . . . . . . . . . . . . 58
Officers As Determined by Function
Quarter 30 March l963--22 June

. . . . . . . . . . . . . . . . . . 6O
Officers As Determined by Function
Quarter 23 June 19634-22 September

. . . . . . . . . . . . . . . . . . 63
Officers As Determined by Function
Period 1 January l962--22

1963 . . . . . . . . . . . . . . . 66

ix
TABLE PAGE
IX. Individual Totals for Measured Work Units of
Oak Park, Michigan Department of Public
Safety During Period 1 January 1962--22
September 1963 . . . . . . . . . . . . . . . 75
X. Transposition of Function Index to Whole
Numbers . . . . . . . . . . . . . . . . . . . 87
XI. Comparison of Function Index for Periods 1
April 1960-431 December 1962 and 1 January
1962--22 September 1963 . . . . . . . . . . . 9O

Oat-

Frc

0a?

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FIGURE
1.

LIST OF FIGURES
PAGE

Oak Park Department of Public Safety Table

of Organization . . . . . . . . . . . . . . . 22
Front and Rear of Road Officer's Patrol Log . . 39
Oak Park Department of Public Safety Shift

Performance Form . . . . . . . . . . . . . . 41
Oak Park Department of Public Safety Function

Index Numbers (Measured work units and

weights assigned) . . . . . . . . . . . . . . 47
Oak Park Public Safety Departmental Evaluation

Formé-Front . . . . . . . . . . . . . . . . . 70
Oak Park Public Safety Departmental Evaluation

Form-”Rear o o o o o o o a o o o o o o o o o 7]-

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CHAPTER I
THE PROBLEM AND DEFINITION OF TERMS USED

In recent years the technological advances made in
business, educational, industrial and public service fields
have given rise to a unique problem. This problem is one of
personal evaluation. Writers, administrators, personnel
experts and educators have begun to realize that the stand-
ard subjective evaluation of employees by superiors, more
often than not, is lacking in depth and insight. They
have begun to place greater emphasis on objective methods
of evaluating personnel to supplement standard subjective
methods. In this area, police administrators have also
been searching for a more improved method of evaluation.
The use of these objective methods, however, has been more
prevalent in the business and industrial fields. The
method of utilizing the number of tasks and duties per-
formed by an individual as a tool of evaluation has, in

the business and industrial fields, become widely accepted.
I. THE PROBLEM

Statement of the problem. It is the purpose of this

 

 

study (1) to examine in detail, the experiment by Oak Park,

Michigan's Department of Public Safety's use of production

2
total figures as an objective rating tool for police patrol-
man evaluation; and (2) attempt to determine the feasibility
of using the number of police tasks performed as an objective
evaluation tool by police administrators.

Importance of the study. In this day and age with the

 

 

hue and cry being raised from all sections of our country
concerning the professionalization of the police field, the
conscientious police administrator has begun to feel the need
for a more improved method of personnel rating. The police
administrator knows that he has a responsibility to his field,
his public and his personnel to continually improve and upgrade
his department. Prime concern in this area of responsibility
is the evolution of an improved procedure of personnel eval-
uation. O. W. Wilson has stated, ”The need for personnel
evaluation is so great as to justify continued effort and
experiment by police personnel officers to evolve an improved
procedure."1 In his second edition, Wilson elaborates further
by stating, "The importance to a large department of rating its
personnel is apparent, and there is every justification for
urging the police personnel officer to develop new and improved

2
procedures or to encourage their development by other agencies."

 

1O. W. Wilson, Police Administration (New York:
McGraw-Hill Book Compa“—'I"ny, nc., 1950), p. 354.

2

O. W. Wilson, Police Administration (second edition;
New York: McGraw-Hill BOOR Company, Inc., 1963), p. 152.

 

 

3
This study is an examination of an experiment such
as suggested by Wilson. This experiment was conducted by
Mr. Glenford S. Leonard, Director of the Oak Park, Michigan
Department of Public Safety. Director Leonard has for many
years felt that there was something lacking in the area of
personnel evaluation. This writing will study the method
forwarded by Director Leonard in his effort to insure the
objectivity of police patrolman personnel evaluation within

his department.
II. DEFINITIONS OF TERMS USED

Public Safety Officer. The line employees of the

 

Oak Park Public Safety Department who perform the duties of
uniformed police patrolmen and fire service privates are
titled Public Safety Officers. Since Oak Park has an inte-
grated police-fire department, the Public Safety Officers
have a greater variety of tasks to perform than police
officers in cities and towns having separate departments.

Patrol. For the purpose of the study, this can be
defined as the execution of police duty by Oak Park's Public
Safety Officers when working independently away from head-
quarters.

Units of measured work. Out of the innumerable tasks

 

 

confronting all patrol officers, seventeen different tasks

performed by Public Safety Officers on patrol duty have been

4

selected for inclusion in this experiment. The selected
tasks include: felony, misdemeanor and warrant arrests,
driving under the influence of liquor and reckless driving
arrests, issuance of hazardous and non—hazardous moving
violation citations, parking violation citations, other
ordinance violation citations, discovery of open doors

and windows, bicycles and autos recovered, juvenile safe-
ty violation notices issued, field interrogation reports
conducted, discovery of burglaries committed in patrol
districts, and fire inspections completed. These are
tasks that can be tallied individually with a high de—
gree of accurracy as they are performed. These tasks are
credited to the individual records of the Officers per-
forming them. Single tasks that are performed jointly

by two officers are credited one-half (.5) to the individ-
ual record totals of the officers involved in the common
activity. There are some tasks, however, that are never
considered as being performed by two officers. These are
traffic violation citations, juvenile safety violation

notices, field interrogation cards and fire inspections.

The VE
by most p011c
Quinn Tamm, 6
rating syste-
anan is an i
me:t.l Gouri
Nation reit:
thoroughly 0'
aid in polio
police write

value of a s

Other

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CHAPTER II
REVIEW OF THE LITERATURE

The value of some form of rating system is not denied
by most police administration exponents. V. A. Leonard and
Quinn Tamm, each in separate writings, hold the View that a
rating system which periodically appraises the qualities of
a man is an indispensable tool of modern personnel manage-
ment.1 Gourley and Bristow in their book on patrol adminis-
tration reiterate this feeling when they state, ”. . . a
thoroughly objective rating of all personnel can be a vital
aid in police department administration . . ."2 Many more
police writers including Gocke and Wilson have indicated the
value of a sound method of objective evaluation.

Others not in the field of police administration have

 

V.A. Leonard, Police Organization and management
(second edition; Brooklyn,‘N.YT: The'FOundétion Press, inc.,
1964), p. 108; Quinn Tamm, "Discipline and Performance
Appraisal", Police Management for Supervisory and Administra-
tive PersonneI (Reportby the'SOUthwestern‘Law*EnfOrcement
'IHSfitute. IApringfield, Ill.: Charles C. Thomas, Publisher,

1963), p. 30.

2Allen P. Bristow and G. Douglas Gourley, Patrol Admin-

istration (Springfield, 111.: Charles C. Thomas, PuBIIsfier,
19617, p. 131.

 

 

 

 

 

38. W. Gocke, Police Sergeants Manual (Los Angeles:
0. W. Smith, Publisher, 1955), pp. 145-503‘O. W. Wilson,
Police Records, Their Installation and Use (Chicago: Public
IdmInIstratIve SerVIce, 1948), p. IBUT'——’

 

 

 

also statt
industria‘
service h
text on m
Hillett 3
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tration h
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6
also stated this view. Writers in the fields of business,
industrial management, education, and other areas of public
service have written extensively on the subject. In his
text on management from a public service viewpoint, John
Millett states, "The basic problem in efficiency rating,
however, is that of trying to achieve 'objective' evaluation
of an employee's work.“l Others discussing public adminis-
tration have taken a different tack, but still followed in
the same vein. Stahl and Graves suggest efficiency records
should be based on facts and work records, rather than on
judgments to eliminate the variable human factor.5

In the wide field of personnel management, many authors
hold the above views. W. B. Wolf feels that objective rating
plans in their systematic approach to evaluation of subordin-
ates eliminate rater bias and "halo" effect, thus yielding
better results than intuitive, rule of thumb or ad hoc

6
methods. Scott, Clothier and Spriegel, in discussing the

 

4John E. Millett, Mana ement in the Public Service
(New York: McGraw-Hill BooE go., Inc., 1955), p. 323.

5Glenn Stahl, Public Personnel Administration (New
York: Harper and Row, Publishers, 1962), p. Elf—'W. Brooke
Graves, Public Administration igha Democratic Society (Boston:
D. C. Heafh and COmpany, 1950), p. 212.

 

6William B. Wolf, The Management 25 Personnel (San
Francisco: Wadsworth PublIshing Company, 155., 196I), p. 229
and 233.

 

 

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objectivity of rating state, "An effective employee rating

system should rate the employee in terms of his actual per-

formance 22 the present job."7 (emphasis added). A diligent

 

 

search of the subject matter of rating devices and systems
has revealed much material similar to the thoughts held by
the above mentioned authors.

In the industrial and public service fields, (other
than police) there has been much evidence found indicating
that the use of objective rating systems has been very
successful. In only a few instances has there been found
any mention of the use of objective personnel evaluation in
police field. In the late 1950's, on a State Police level,
the States of Washington and Ohio introduced programs where
radical changes occurred in rating systems then in operation.
Both programs came about because of a lack of a definite
guide to inform their respective men what was expected of a
good officer. The need for guidelines in police work, as in
other fields, is evident from the importance that writers in
the field of personnel management attach to the subject.

G. D. Halsey states, "Most employees want to do a good job

and most employees can do a good job if they have standards

 

7W. D. Scott, R. C. Clothier and W. R. Spriegel, Per-
sonnel Mans ement (sixth edition; New York: McGraw-Hill Book
CO., Inc., 19 , p. 166.

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8

by which to measure their performance . . . .”

The rating system developed by the Ohio State Highway
Patrol can not in any sense be termed objective.9 This
system, although, deserves mention because it illustrates the
serious thought police administrators have given personnel
evaluation. The rating system developed by the Highway
Patrol incorporates the fundamentals of "forced choice.” In
this rating system, the rater is supposed to choose among
several alternatives the two best describing the subject of
his rating. All of the alternatives appear to be equally
desirable or undesirable. The rater is theoretically unaware
of the previously determined weight assigned to each of the
possible responses; therefore he is unaware of how he rated
his subordinate. The main objective of such a rating system
is to eliminate the influence of any rater bias. One short-
coming of the system is that since the rater does not know
how he is rating an individual, he can not discuss his eval-
uation of the person being rated. Therefore, the rating
system could not be used as a tool to improve the patrolman

being rated. Another shortcoming is that the technique

 

8George D. Halsey, Handbook of Personnel Management
(New York: Harper and Brothers,PuBIishers, 1953), p. 241.

9Ohio State Hi hway Patrol, Diagnostic Forced-Choice
Personnel Evaluation. Columbus, Ohio: ‘F. J. Heer PrintIng
COmpany, 1960), pp. 4-13.

 

 

 

 

requires tn
nitiate at
mg‘nt be a

The
police fie'
Hashington

rating sca

requires the services of a professional psychologist to
initiate and revise. This, because of financial reasons,
might be a drawback for smaller departments.

The use of a purely objective rating system in the
police field appears to have been first recorded by the
Washington State Police.10 This was a system where an index
rating scale was used as a standard measuring device to guide
the road patrol officers. The program came about due to an
investigation of a serious motor vehicle accident rate exper-
ienced by the citizens of the State of Washington. This
investigation illustrated that there was inconsistency in
traffic law enforcement on the part of the State Police road
patrol officers. The "Minimum Work Load System" was estab-
lished to combat this inconsistency and provide a definite
guide to inform the road patrol officers what was expected of
a good officer. This index system was only based on traffic
offenses and arrests.

Many examples of the use of objective rating indexes
can be found in areas other than the police field. The use
of work load figures by police departments as a rating tool

occurs in only one recorded instance. The Washington State

 

10Roy A. Betlach, "Minimum Work Load System in Wash-
ington", The Police Year Book (Washington, D.C.: The Inter-
national AssocIatIon of CHIEfs of Police, Inc., 1960),
p. 203.

police wh
only exce;
experilen
an exhaus

ezmume an

10
police who used only partial work load figures being the
only exception. Perhaps other police departments are
experimenting with work load figures as rating tools, but
an exhaustive search of police rating systems has failed to

exhume any recorded data.

CHAPTER III
A SPECIFIC VIEW OF PERSONNEL EVALUATION

The evaluation of personnel has been an integral part
of management in all fields. Its history parallels that of
management. M. J. Jucius in his text on personnel management
states, "Rating Of employees is one of the oldest and most
universal practices of management."1 Rating is not only con-
fined to management. One View is that it is a continuous,
on-going function whenever human beings come into contact.2

Personnel evaluation is an appraisal, usually, of one
person by another. It can be defined as the assessing of
personal and work traits by a superior. Many industries and
agencies Of the government have long and involved forms
devoted entirely to evaluating personnel that they have been
using for several years. The preceding chapter told of a
part of the wealth of literature concerning the subject. This
study will be concerned Specifically with one part of the
whole of personnel evaluation-~that of rating systems.

There are almost as many different names for rating

 

1Michael J. Jucius, Personnel Mana ement (fifth edition;
Homewood, 111.: Richard D._Irwin, Inc., 1 , p. 242.

2 .

Arthur M. Whitehill, Jr., Personnel Relations-~The
HUman Aspects of Administration (New—York: McGrawaHill Book
CD}, Ihc., 19557, p. 167.

 

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systems as there are devices. They are sometimes called
efficiency, merit, service or performance rating systems.
Although different titles are used, all rating systems are
based on the premise that sound evaluation is vital to wise
decisions by administrators. Some authors also feel that
included in this premise is the fact that the evaluation of
the employee's performance must be in terms of the require-
ments of the Job.3

It is believed by most writers dealing with evaluation
that no perfect rating system has yet been devised, yet even
an imperfect rating system is better than none at all. Graves
had this to say, "Existing rating systems are far from per-
fect, but when conscientiously used, they are infinitely
preferable to no formal ratings at all."4 0. W. Wilson stated
in his text on police records, “Although no very satisfactory
rating system has yet been devised, there is general agree?
ment that evaluations produced by some rating schemes serve
a useful purpose."5

There are four main objectives of any rating system in

any field. The first is to develop standards of satisfactory

performance. This should clarify what quantity and quality

 

3Scott, Clothier, and Spriegel, 22. cit., p. 160.

“Graves, fig. cit., p. 211

5Wilson, Police Records, 22, cit., p. 162.

 

 

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13
of work of a given type is acceptable and adequate for the
interests of the service, business or industry. Secondly,
they should attempt to improve employee performance. This
is accomplished by identifying and measuring strong and weak
points of individual performance, recording the evaluations
in objective terms, and giving constructive counsel to em-
ployees concerning their shortcomings. Third, a rating
system should refine and validate personnel techniques by
acting as a check on qualification requirements, examinations,
placement techniques, training needs or instances of mal-
adjustments. Finally, a rating system should make the appli-
cation of personnel policies more objective. This could be
used to remove much of the subjectivity from such areas as
selecting candidates for placement and promotion, in adminis-
tering salary advancements, determining the order of separa—
tion under necessary reductions and in otherwise recognizing
superior or inferior service. These are the main objectives
of service ratings in any field.

Service ratings in the police field must relate to the
actual work load expected of the officer. The supervisor
must have accurate information upon which to base his decis-
ions. Writing on this theme, Gourley and Bristow state, "The
supervisors must have information relating to the actual work

load in the job to which the officer is assigned and recorded

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14
information as to how the officer is performing his work."
In the field of police supervision, according to an-

other writer in the area, service ratings:

(1) Teach the sergeant how to supervise patrolmen.
(2) Serve as an incentive to better performance. (3)
Serve as a check on the value of the selection methods.
(4) Provide a basis for determining which patrolmen
should receive promotion and consequent salary advances.
5 Aid in the administration of separation procedures.

6 Enable the sergeant to be more scientific in his use
of human resources. (7) Afford assurance that a patrol—
man will be judged on the basis of his entire performance
record rather than isolated samples of behavior.

Furnish a basis for an in—service training program. (9)
Furnish a means by which a sergeant can measure the
efficiency of his supervisory techniques. (10) Furnish

an approach for a periodic interview between the ser~ 7
geant and each of his subordinates.

This view by Gocke is also expressed by Kenny in his work on
management planning from a police standpoint.8 Therefore,

in the police field, the periodic evaluation of the perform»
ance of each officer can aid considerably in the function of

all personnel management techniques.

As mentioned earlier, there has been a definite turn
from the use of subjective rating systems to objective ones.
The major distinction between an objective and subjective
measure is its source. Any measure can be classed as ob-
jective if it is derived from overt behavior and does not

require the expression of a belief, opinion or judgment.

 

6* 7
Gourley and Bristow, op. cit., p. 132. Gocke, loc. cit.,

 

8
John P. Kenny, Police Management Planning Springfield,
111.: Charles C. Tho'mT—‘Ps, um”, 8 er, 1959—), _""p. 6 .

 

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The use of statistics and records are an important
phase of any rating system in the police field. An adequate
records system is a must. Daily and monthly tabulations of
the accomplishments of individual patrol officers must be
made available through the function of the records system.
More and more the able administrator is realizing that his
decisions must come from careful analysis of records and
statistics. One writer in the police statistics field has this
to say, "Statistics as management tool in business and govern-
ment service provides the necessary information on the basis
of which executives and administrators can make decisions."9

The system with which this study will concern itself
is a point-index rating system, or sometimes called the point

rating system. This system rests upon the proposition that
jobs can be subdivided into definable units to which appropriate

numerical values can be assigned, and for which relative weights
can be determined. The theory is therefore similar to that
which underlies position classification on the basis of duties
and responsibilities. The difference lies in the assignment

of points and weights. The results of this study will give

rise to the assumption that this system, or one of a similar
nature, could be used by other police departments as an

objective tool of evaluation.

 

9John I. Griffin, Statistics Essentiai for Police
Efficiency (Springfield, 111.: Charles C. Thomas, Publisher,
195—8): Po 3-

 

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CHAPTER IV

OAK PARK DEPARTMENT OF PUBLIC SAFETY
AND ITS EVALUATION SYSTEM

The daily log reports of all road officers contain
necessary information as to the amount of work performed.
This information includes hourly and production figures.
These figures are transferred daily to the shift commander's
daily report and then transferred to a separate shift per-
formance report kept solely by the shift commander for
preparation of his quarterly shift performance report. When
the quarter ends, this information is submitted to the
Director's office by the shift commanders in a quarterly
shift performance report which is then combined into a
department quarterly report. All daily and quarterly reports
are filed in the office of the City Public Safety Director,
located at 13600 Oak Park Boulevard, Oak Park, Michigan.
All reports prepared during the period used for this study
which covers the period 1 January 1962-~22 September 1963,
were made available to this author for this investigation
by the Director, Mr. Glenford S. Leonard. The individuals
whose records of performance were appraised were all employed
as Public Safety Officers during the same period by the Oak
Park Department of Public Safety.

17
I. OAK PARK, MICHIGAN

The city of Oak Park is a dormitory suburb located
on Detroit's northern border. Its 1960 population, according
to the United States Census, was 36,601, although at the
present time estimates set the total closer to 38,000 per-
sons. The city encompasses five and four-tenths square
miles in area and is primarily residential in nature. There
is some light industrial development along both the southern
and northern edges of the city. The city has numerous
office buildings scattered within its boundaries. There are
no bars, junk yards or hospitals in Oak Park. There are
small shopping centers located on major streets through-
out the city.

The population of Oak Park represents all religious
faiths. The largest single group are the proponents of
Judaism. The city, at the time of this writing, has only
two known Negro families residing in it, but has a large
transient group of Negroes who are day workers. Citizens of
Oak Park enjoy a favorable economic status; they are in the
top one-third in the Detroit Metropolitan area income-wise.

According to the Municipal Year Book 3: 1964, six per cent

 

of the families living in Oak Park have incomes under three

thousand dollars while thirty-eight per cent have incomes

 

 

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18

over ten thousand dollars.1

II. THE OAK PARK DEPARTMENT OF PUBLIC SAFETY

The Oak Park Department of Public Safety is entering
its tenth year as an integrated one.2 The officers have a
dual function acting as both police officers and firemen.
The Department of Public Safety is headed by a civilian
director, assisted by a civilian secretary; a uniformed staff
aide whose duties include the planning and administration of
department training programs, providing assistance to the
director in personnel work and administration, the responsi-
bility for the communications of the department and acting
as liason between shift and division commanders; and a uniform
civil defense coordinator whose duties encompass the training
of civil defense personnel, the planning and execution of
civil defense functions and overall responsibility for the
entire city civil defense program. The functions of the
Department of Public Safety are allocated to two Deputy
Directors. The first is a Captain of Police who is the first

ADeputy Director in chain of command and is in charge of all

 

——

1International City Managers Association, The Municipal
‘Year Book (Chicago: International City Managers Association,
'I964), p. 128.

2The department integrated August 29, 1954.

 

19

police services. The second is a Fire Marshal who, in the
chain of command, is the second Deputy Director and is in
charge of all fire-ground operations and fire prevention.

The department has four divisions: operations, investigative,
fire marshal and special service. The heads of these divi-
sions are directly responsible to the Director.

Operations Division. This division is headed by the

 

police captain. It is divided into four platoons which

rotate shifts every seven days with one platoon serving as

the relief platoon. The working hours are: day shift, 8:00
AM to 4:00 PM; afternoon shift, 4:00 PM to 12:00 midnight; and
night shift, 12:00 midnight to 8:00 AM. Each platoon consists
of a lieutenant, field sergeant, communications officer,

three fire engineers and three to six uniform patrol officers.
This last, of course, is dependent upon the strength of the
department; the average is approximately four patrol officers.
The basic platoon strength, therefore, is ten men. The platoons
are commanded by lieutenants who are responsible to the
captain for police services and all lieutenants are deputy
fire marshals. Five days a week, on day and afternooh shifts,
a cadet is assigned to assist in handling communications and

reports. Four cadets rotate assignments to these two shifts,
the job of dog warden and clerking in the records bureau. The
division commander is also responsible for the function of

the juvenile bureau which handles all cases related to or

 

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concerning juveniles. This bureau is headed by a sergeant
and is assigned one rotating uniform patrol officer from
one of the four platoons.

Fire Marshal's Division. This division is headed by

 

the fire marshal and is concerned with, and responsible for,
all fire—ground operations, fire prevention and inspection
programs, fire training and the supervision of all apparatus
maintainence. This division also works closely with the
Engineering, Water and Building Departments in controlling

and supervising the location of fire hydrants throughout the
city, checking building plans for conformance to fire laws

and the post—fire care of buildings. In addition, the divi-
stion is responsible for the drawing of fire attack plans for
commercial, public and industrial buildings and for super-
vising the platoon commanders in the training of personnel in
these plans. This division has a Fire Inspector who assists
the fire marshal. The number of fire inspections accomplished
by this division of the 430 industrial and commercial estab-
lishments in the city is well over 2,000 inspections a year.
This program is made effective by the assignment of regular
district patrol officers to complete at least one industrial
and/or commercial fire inspection daily. The fire marshal's
officer handles target hazard inspections and an reninspections

at the recommendation of the patrol officers. The goal has

_ ..-.._.,

.
.
i

 

 

21
been set for an inspection of each industrial and commercial
occupancy at least once every two months. This process
enables the department to forward crime prevention recommen-
dations at the same time fire prevention checks are made.

Special Services Division. This division is under

 

the command of a lieutenant and handles the administration of
the records and license bureaus. Four civilian clerks and
one cadet are assigned to this division. The McBee Key
Sorter system is used to record incident data and to provide
an instant means of determining areas for selective crime

and traffic enforcement efforts. There are plans in the near
future to utilize IBM equipment to compile incident data.

For incident reporting, the department uses a form system on
which the investigating officer enters all information on a
detailed check sheet. If the case of the incident requires
duplication for control or follow-up purposes, it is duplicated
by the communications officer and routed accordingly.

Investigative Division. This division is headed by a

 

lieutenant who was detached from the operations division for
this special assignment. This division follows up all cases
of a nature requiring more detailed investigation over and
above the original incident report. Two detectives and a
warrant officer are assigned to this division and whenever

manpower allows, a uniform patrol officer is rotated to the

FIGURE 1

22

TABLE OF ORGANIZATION

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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193

23
division for training purposes. A Table of Organization
illustrating all of the foregoing can be seen in Figure l.

‘A short selected history. Prior to integration of

 

 

the services, the policemen worked forty-eight hours a week
while the firemen were employed under the traditional
seventyntwo hour week schedule. After the initial training
of the police in fire services and the firemen in the police
service, the distinction between policemen and firemen was
abolished. All firemen were sworn in as peace officers, all
personnel were uniformed and weapons issued and the former
firemen were assigned to one of the three operating platoons
on a forty-eight hour week basis. In 1955, the work week was
reduced to forty-four hours and the three platoon system main—
tained. TOp pay for Public Safety Officer I was than $5200
per annum. The three platoon system was kept until January
1956, when the present four platoon system was inaugurated.
Using this system, on a forty-four hour week basis, and
overlapping relief platoon was assigned to the day shift

on Friday of each week, and the department was able to pro-
vide an eight hour training program weekly for this extra
platoon. The present four platoon work schedule, encompass-
ing a forty-two hour week, was adopted in 1956, along with

a salary ceiling raise for Public Safety Officer I to $5486.
In July 1957, the City Council initiated the forty hour week

24
week for all city departments, but the Public Safety Depart-
ment maintained the four platoon system on a forty-two hour
schedule. In each four week schedule, every officer assigned
to a platoon is credited with an extra day worked and per-
mitted this time off whenever he desires as long as platoon
minimum strength is maintained. In 1957, the Public Safety
Officer I top pay was increased to $5616; in 1958, to $5902;
in 1960, to $6058; in 1963, to $6526; and in 1964, the present
salary limit of $6814 was established. From date of hiring
and at a starting salary of $5644, the Public Safety Officer I
receives an increment every six months (if his work so warrants
it) for a period of three and one-half years until he reaches
top pay. The command positions maintain a span of a ten
percent pay differential between each position.

Patrol duties. The patrolling Public Safety Officer
is responsible for the traditional police duties. The city
is divided into three or four patrol districts, to which
either one or two-man cars are assigned as personnel and
vehicles are available. The sergeant is also assigned to
patrol and is responsible for appearing at all major incidents
and alarms unless otherwise directed. All beats are patrolled
by auto. There are no walking beats. The patrol officers are
rotated weekly to different districts. Therefore, no officer
will be in the same district from week to week.

Response to fire alarms. These are regulated by

 

25
general orders. Grass, vehicle and rubbish fires rate one
engine and two men from the station, met at the scene by
district men as necessary. On all single dwelling or miscel-
laneous building fires, a response of two engines, all three
engineers and a lieutenant from the station is required.
They are met at the scene by the sergeant, a district car
and one or two additional district cars. One car is always
left for patrol to respond to other incidents. Multiple
dwelling, commercial and industrial fires indicate the same
response as for single dwelling fires, the exception being
that all district cars respond. Patrols are then redeployed
from the scene by the lieutenant as soon as possible. The
fire marshal is in command of all fire-ground operations and
the captain is responsible for furnishing men and apparatus
to the fire marshal. The captain's responsibility also in-
cludes the providing for routine police emergencies at the
time of a major conflagration. The department has mutual
aid pacts for fire and police services with surrounding
suburban communities.

Apparatus, equipment and buildings. All police and

 

 

 

fire vehicles and equipment are based and maintained at one
central station. This station forms a part of a municipal
complex near the center of the city. The Public Safety
Building is a new one finished in November, 1961, and contains

26
space for equipment, administrative functions, indoor pistol
range, squad room, detention cells, classrooms, an emergency
operations room in event of a disaster and permanent lockers
for personnel. All patrol vehicles carry identical equipment
which relates to either the fire or police duties the public
safety officer performs. The department maintains a station
wagon for ambulance service in certain emergencies, equipped
with resuscitator, other oxygen equipment, first aid supplies
and stretcher. A panel truck has a dual purpose of picking
up animals and as an emergency equipment carrier. This is
accomplished by having a removable one-dog cage attached to
an extension of the rear chassis. In the truck is carried
numerous emergency equipment including hydraulic rescue
tools, smoke ejector and emergency lighting equipment. Fire
equipment consists of two 1,000 gallon per minute pumpers,

a 750 gallon per minute pumper and a 500 gallon per minute
pumper.

Personnel. The Department of Public Safety roster is,

 

at the time of this writing, at seventy persons. This in-
cludes four civilian clerks, a secretary and four cadets.
The selection of public safety officers is regulated by a
Combination of written and oral examinations, background
and crimminal fingerprint checks, polygraph and physical

examinations, departmental interviews, psychological evalua-

27
tions and driving record checks. During the selection, a
candidate is eliminated from consideration if he fails any
single process. This procedure is very expensive, but the
Oak Park Department of Public Safety believes rigid selec—
tion standards must be maintained if the police and fire
service is to be elevated to the professional level it
should occupy. The department has no problem in obtaining
applicants. Whenever openings are advertised, four to five
hundred applications are obtained. Of these, only one-third
pass the written examination. Of this number, approximately
one-fourth survive the other checks. Promotions are based
on examinations and merit. Outside personnel, with the ex—
ception of the Director, have never been hired above the
Public Safety Officer level. The training of the personnel
is divided into three areas: basic, in-service and advanced.
The department is a participating member of the Metropolitan
Police Academy of Michigan. At this academy, recruits receive
six weeks of basic police training. The recruits are then
sent for one week to the State of Michigan Fire School, con-
ducted by the University of Michigan at Ann Arbor, Michigan,
where they are trained in the functions of the fire service.
The recruits then receive six weeks of departmental train-
ing by individual department instructors over and above

the other basic training courses. Also, the patrol-coach

method of recruit assignment is utilized when the recruits

28
are placed on duty status.

The fire in-service training consists of two hours a
month for each platoon. At this time any one of five written
fire evolutions are performed. Other in-service training
consists of complete equipment check-list examinations
monthly, the use of pre-attack fire planning on the platoon
level and regularly scheduled movies and classes on special
fire and police problems. All platoon commanders, sergeants
and at least one public safety officer from each of the
platoons have been trained in fire scene command at the
University of Michigan Fire School. At least two men from
each of the platoons have completed advanced training in
traffic courses at Michigan State University's Police School
and photo schools in the Royal Oak, Michigan Adult Education
Program. A lieutenant has completedthe Kodak Law Enforce-
ment Photography School and has instructed at least eight
men in special techniques so that each platoon has at least
two officers available for photographic accident and crime
scene assignments. Two officers from each platoon have
completed the federal government's state level radiological
monitoring course. It is expected that within the next year,
all officers will have completed this course. At the end of
1964, at least one officer on each platoon will have completed

the Red Cross Instructor's course and be assigned platoon in-

struction duties involving his specialty. The facilities of

29
the Purdue University Arson Seminar, the Federal Bureau of
Investigation, Michigan State Police, Northwestern Univer-
sity Traffic School and the International City Managers
Association have been used for special training for selected
officers. The department has completed its second course in
instructor techniques under the auspices of the Oak Park
Schools Adult Education program and now has a total of eighteen
officers trained in methods of instructing. The near future
holds plans for approximately twelve more men to attend this
school. Also, certain selected officers are members of the
tactical unit whose principal function is forming a highly
trained cadre of experienced personnel for reducing disorders
caused by strikes, civil incidents or handling seige situa-
tions. These men have been given specialized training in
riot weapons, military formations designed for riot control,
riot control law and advanced field first aid training.

Personnel organizations. The former firemen of the

 

department were members of the International Association of
Fire Fighters (AF of L), but failed to maintain their status
after integration. Even after being approached by represent-
atives of the International Association of Fire Fighters, none
of the men indicated any interest in the organization. No
officers are members of any union, nor are there any officers

that are members of any of the quasi-police organizations.

30
Personnel problems have been solved through individual con-
tacts. Department personnel are briefed on budget problems
and changes in policy through platoon meetings with the
director. Regular staff meetings assist the administrators
and supervisors in communicating policy to the operating
members of the department and in ironing out personnel and
operating problems before they arise. This department reflects
an unusual situation. Most cities are uncomfortably aware of
interference by the international organizations when a grievance
or additional benefit request arises. This has not happened

in Oak Park since integration.
III. THE MEASURED UNITS OF WORK

Seventeen specific police patrol tasks were selected
by the Director of the Oak Park Department of Public Safety
to be used for this experiment. These tasks were ones that
could be tabulated on the rear of the patrol officers road
log. The tasks will be considered entirely at face value and
no concern will be taken with the performing of post—arrest
duties that necessarily follow the performed task, and the
subsequent disposition of the arrested person by the courts.
This decision to eliminate court disposition was based upon
the limitations of time and space and not upon any theory of

lesser degree of importance. The author firmly believes the

31
quality of an arrest is Just as important as quantity-~even
more so. On the Oak Park Department the question of control
of quality lies in the hands of the shift commanders who,
as a customary procedure, review every arrest before booking.

Felony arrests on sight. These arrests, along with
being the most important a patrol officer can make, are
potentially the most dangerous to the personal safety of the
patrol officer. Under the statutes of the State of Michigan,
these are arrests made when the officer arrests a person:

. (a) For the commission of any felony . . .
committed in his presence; (b) When such person has
committed a felony although not in the presence of the
officer; (c) When a felony has been committed and he
has reasonable cause to believe that such person has
committed it; (d) When he has reasonable cause to be-
lieve that a felony has been committed and reasonable
cause that such person has committed it; . . . (f) When
he has received such positive information broadcast
from any recognized police or other governmental radio
station, or teletype, as may afford him reasonable cause
to believe that a felony has been committed and reason-

able cause to believe that such person has committed 3
it;oooo

Such arrests are for the most serious crimes; namely, murder,
manslaughter, arson, robbery, rape, burglary and other
felonies of Michigan Statutory Law.

Misdemeanor arrests on sight. These are arrests of

 

those who violate state statutes and city ordinances. They

 

3Michigan Association of Chiefs of Police, Michigan
Police Law Manual (revised edition; East Lansing, Mic H.
MIC Hi gan Association of Chiefs of Police, 1954), pp. 66:67.

 

 

 

 

32
differ from felonies in a few basic issues. Misdemeanors
are crimes limited by law to penalties less than are imposed
for felonies and differ from felonies in that they must be
witnessed by the arresting officer. This category would
include arrests for minor assaults and sex offenses, prowling,
larcenies of the petit variety, public drunkenness and other
disturbances of the public peace. These arrests require
diligent and observant patrol tactics on the part of the
officer and instant decision-making attributes.

Warrant arrests. These are arrests made upon issuance

 

of a warrant by the courts. They can be for either misde-
meanors or felonies. However, in Oak Park, this category is
made up mostly of misdemeanor traffic warrant arrests, but
also includes all other arrests with warrant for misdemeanors
and felonies. Warrant arrests often require the officer to
exhibit investigative qualities and the expenditure of a
little more effort than usual. This is due to the fact that
in Oak Park a specific officer is regularly assigned to serve
warrants. Therefore, the patrol officer who makes a warrant
arrest does so as a result of his own personal knowledge of

a warrant being on file or his investigation and/or in-
terrogation of the subject whom he has stopped.

Driving under the influence of liquor arrests. This

 

 

 

arrest is a misdemeanor arrest, but it is separated from that

33
category in this paper because of the traffic nature. It is

one of the most important tasks a patrol officer can perform.
The arrest involves the observing, identifying, stopping,

and arresting of motorists operating motor vehicles on the
public highways while under the influence of alcohol to the
extent that their driving abilities are impaired to the de-
gree that they constitute a danger to life or property. This
arrest calls on the officer for keen observation, certain
select patrol tactics, decision-making qualities and driving
skill. There is a potential danger in this arrest because of
the fact that the person to be arrested is under the influence
of alcohol and operating a lethal weapon, the auto, when his
reactions and responses are dulled by the alcohol he has
consumed.

Reckless driving arrests. These are arrests of persons

 

Operating motor vehicles in such a manner as to endanger the
lives, safety or prOperty of others. Fundamentally, these
arrests require the same skills and abilities of the patrol
officer and carry the same inherent dangers as do arrests for
driving under the influence of liquor.

Other hazardous moving traffic violation citations.

 

 

 

This category includes all hazardous moving violations other
than driving under the influence and reckless driving arrests.

These citations involve the observing, stopping and issuing

34
of citations to drivers who commit moving violations, such
as; disobeying traffic signals and signs, following too
closely, excessive speed and illegal turns. This section
also includes citations issued on all traffic collisions
where a violation can be determined by the patrol officer.

Non-Hazardous moving traffic violation citations.

 

These citations concern the operation of motor vehicles in
violation of law other than hazardous moving violations.

These would include driver and auto license violations,
operating a motor vehicle without mandatory equipment or
defective equipment, and operating unregistered motor vehicles.

Parking violation citations. Parking violation cita-

 

tions include all citations issued by patrol officers to
owners or Operators of motor vehicles who park their vehicles
in such a manner as to obstruct the roads and highways, en-
danger public safety or in violation of posted parking regu-
lations. These citations require constant attention to de-
tail and observation on the part of the patrol officer.

Other ordinance violation citations. Citations issued

 

 

to violators of the ordinances intended to regulate non-
criminal behavior of people in the interests of public health,
welfare and safety fall into this classification. Prime
examples of the offenses for which these citations would

be issued are burning without permits, unlawful dumping,

35

violations of ordinances governing businesses and other
ordinances regulating the keeping of pets.

Open doors and windows. These are two separate

 

 

 

units of work performed by the Oak Park Public Safety
Officer, but for obvious reasons, they are being considered
together because of their similar nature. These are
primarily crime prevention functions on the part of the
patrol officer. The open door or window in a business
establishment after closing hours or in a residence temp-
orarily unoccupied offers easy access to the premises

to one of a criminal bent. Included in this category

are all open or unlocked doors and windows discovered

and reported by patrol officers during their tour of

duty. These are police tasks that are time consuming

and require the patrol officer to adjust his patrol tactics
accordingly.

Autos recovered. Descriptions of autos stolen in

 

 

Oak Park are immediately broadcast to the road patrol upon
receipt of a complaint. Through the medium of teletype, the
Department of Public Safety is notified of autos stolen in
Detroit and surrounding communities. Many times, the depart-
ment is warned by radio when there are indications that a
freshly stolen auto is being driven toward the Oak Park area.

Stolen autos recovered after being abandoned in Oak Park and

36
those recovered by the patrol officers contingent to felony
arrests are tallied in this measured work category. This,
indeed, is one important area that reflects an officer's
powers of observation, since in order to recover a stolen
auto, he first must see it.

Bicycles recovered. Since Oak Park is basically an

 

upper-middle class community, most children have bicycles.

Any bicycle stolen or lost is reported to the Department of
Public Safety and a description of the missing bike furnished
patrol officers. Each bicycle that is recovered by the patrol
officer is noted on the patrol logs and added to the officer's
individual record. This is somewhat a measure of an officer's
devotion to duty since the paper work and trouble involved

in a bicycle recovery appears to far outweigh the not too
apparent benefit to the community.

Found B & E's. This category covers the finding, by

 

patrol officers, of residences or business establishments

that were unlawfully entered by force before a report is made
by the owners or occupants. This has a dual purpose. Primar-
ily it provides an early knowledge of the crime which is

quite helpful for a more rapid solution, and secondly, it
reassures the victims of the alertness of the patrol force.

In some instances, the discovery of a breaking and entering
by an alert patrolman has lead to the apprehension of the

culprit still at the scene. Each breaking and entering dis-

37
covered by a patrol officer is included in his individual

record.

Juvenile safety violation notices. The issuing of

 

these notices by patrol officers is considered by the com-
mand of the Oak Park Department of Public Safety to be so
important that they are put on a par with hazardous moving
traffic violations issued to adults. The Juvenile safety
violation covers all violations, observed by patrol officers,
of laws and ordinances relative to personal and public safety
by offenders under the age of seventeen years. These vio-
lations are subject to the same types of accountability
systems as the citations issued to adults. This category
includes such offenses as riding double on bicycles, riding
at night without lights and riding bicycles on prohibited
streets. Pedestrian violations include Jaywalking, throw-
ing missles at buildings or moving vehicles and playing in
the street. Each time an officer issues a safety violation
notice, it is recorded on his individual record.

Field interrogation reports. Police activities by

 

 

road patrol officers also include the stopping and question-
ing of persons abroad during the times of darkness, those
found in or near crime scenes and others whose behavior or
general appearance is suspicious, unusual or strange. The
officer is provided field interrogation report forms for

convenient reporting of all interviews of this type. The

38
"FI card", as it is commonly called by the Oak Park Public
Safety Officer, is an important tool provided the investi-
gative division in their program of crime solution and pre-
vention. All field interrogation cards are logged and
included in the individual record of the road officer.
Fire inspections. Since Oak Park's public safety

 

 

officers perform the duties of firemen as well as those of
police officers, fire inSpections are also included as

measured units of work performed. These inspections are
conducted by road patrol officers at business places,
public buildings and other locales where potential fire

hazards exists. Fire inspections are assigned by shift
commanders to individual patrolmen and are included among
the tasks selected for measurement because those officers
assigned these tasks have less time available for the per-

formance of other tasks considered. Fire inspections are
always conducted by patrolmen on the day shift and require
up to thirty minutes for completion.

IV. THE RECORDS

Road officer's daily log. The road officer's daily
log represents the record kept by the officer of his daily

 

 

activities. An idea of the method used can be seen from

Figure 2, which is a reproduction of the front and rear
portions of the daily log. The top half represents the front

part of the log and involves pertinent information regarding

date, platoon, district, car number, speedometer readings and

.FIGURE 2 39

FRONT AND REAR OF ROAD OFFICER'S PATROL LOG

Oak Putt Department 0! Public Sate!)-

ACTIVITY LOG

Secdon 1

Signature 01 Inspecting Officer:

ACTIVITY AND DISPOSITION

Section II

 

Rear side one—half of activity log

RECAPITULATION OF ACTIVITIES

 

TOT” 1"

*Only headings of log used because of space requirements.

Llo
details relating to the officer involved. Also on this part
is information regarding activities in which the officer may
become involved through routine patrol or by being dispatch-
ed. The bottom half represents the rear portion of the log
and has to do with the recapitulation of the officer's time
and activities. The daily log is turned in at the end of
each daily shift to the shift commander by all road officers.

Shift performance report. On this form, which is.

 

 

listed as Figure 3, is listed a running daily tabulation
of the information gleaned from the road officer's daily
log. This report is used by the shift commander to tabu-
late each road officer's records and assemble later into
the quarterly shift performance report.

Quarterly shift performance report. The shift com-

 

mander of each of the four platoons compiles consolidated
quarterly reports from their running daily tabulation of
the road officer's daily reports. The same shift perforé
mance report form as seen in Figure 3 is used. As can

be observed, the reports contain data relating to the
number of hours during the three month period devoted to
different types of duty. Complaint and accident investi-
gation, fireéfighting and patrol are a few of the kinds
of duty covered. All of the seventeen selected measured

units of work are listed on this form. As can be point—

ed out, there are other spaces on the shift performance
report that deal with officer's individual totals, platoon

 

 

SHIFT PIIIOIRANCI IIPOIT

SHIFT PERFORMANCE REPORT

Hows Per Inc

:34 reps] name

Department Avcl'ugc

Platoon A\ cmge
Platoon A

Homo

WIND ’13

 

8 buns annufi

 

um; :pomoany

g Gamma

momma“ "mo

sumo M

rum:

uwv 8009.01 spam

"no“
um”
um”
zuepgaav am”

no and; one”

 

 

m CW:

Pinon. Hex Avenge
Dem Index Aveuge

M2
and departmental totals and averages. The individual per-
formance totals are added together to produce the quarter-
ly totals for the four platoons. All entries on the quart-
erly performance reports were checked by this writer
through examination of daily reports. All reports were
found to be accurate compilations of the individual officers
daily reports. For the purpose of this study, the twenty;
eight quarterly shift performance reports for the period
1 January 1962 -- 22 September 1963 were used as the prié
mary data source. The hours worked totals were found to
be accurate to the quarterehour and individual measured
units of work were found to be accurate to the .5 unit.

Annual departmental reports. Annual and semi-annual

 

departmental reports forwarding statistical data to the
Federal Bureau of Investigation and the Michigan State Police
were also examined by this writer. Inasmuch as the cate;
gories of data required for these two agencies are not the
same categories listed in the quarterly performance reports,
no reconciliation of the quarterly report totals could be

‘made with the department annual and semi-annual report totals.

V. THE INDIVIDUALS USED

Patrol time factor. Examination of the quarterly

 

performance reports of the four platoons revealed that

43
forty-five individual Public Safety Officers had performed
patrol duty during the period encompassed by the study.

Of these, six officers whose intermittent assignments to
patrol duty because of different assignments or resigna-
tions amounted to less than fifty hours each were eliminated.
This elimination by the writer was arbitrary because it was
felt that the inclusion of these figures would confuse
rather than enlighten the report. Also, since these elimi-
nated officers performance records were not used, the totals
for patrol hours and measured units of work departmental;
wise will not balance out if checked against the data source
forms. It might be mentioned that one officer in the thirty;
nine used was a part-time employee who only worked during

the summer months. These thirty-nine officers were not

all on patrol during each quarter because periodically
throughout the period used for the study, certain officers
were regularly assigned duties other than patrol; therefore
they may suddenly drop out of the totals for a certain
quarter. Likewise, during the period covered, new men were
hired and certain officers resigned, which accounts for

some men appearing in the totals and the elimination of

some men.

Personal factors. Due to the limitations of this

 

study, the individual factors of officer's age, education,

141+
experience, motivation, ambition, professional interest,
size of family, prior police experience and other factors
were omitted. Although this writer believes that these
factors exerted considerable influence upon the work habits
of the men involved, time and space limitations made the

evaluation of these factors beyond the scope of this study.

CHAPTER V

A SURVEY OF N RKLOAD

The records system of the Oak Park Department of
Public Safety is very complete. All contacts made by the
officers of the department are recorded on microfilm. De-
tailed reports of all incidents are written and recorded.
The department has had records of shift and personnel per-
formance since 1955. Before the function index system was
instituted, a system was used that made data available re-
lating to shift performance in all areas. This system
showed departmental and shift averages and noted significant
high and low areas. Using this system, the shift commanders
were to take appropriate action in any area of production
that showed a significant drop from previous totals or in
any area of continuous low performance. This was not being
done. The director knew which platoons were down in pro-
duction, but without a more complete breakdown of tabulations,
it was impossible to know which Public Safety Officers were
low and in what areas. Too, the director found that in
some cases there were discrepancies between the shift com-
manders subjective evaluation of the Public Safety Officer
and the actual production of the officer. Some officers
were getting excellent evaluations, but were exhibiting poor

production records. The opposite was also true. Some

46
officers were receiving poor evaluations in areas of work
accomplished, but showing high production totals. All of
the above problems prompted the initiation of the Function
Index System on January 1, 1962, at the Oak Park Depart?
ment of Public Safety.

I. METHOD OF PROCEDURE

Patrol time factor. The quarterly shift performance

 

reports from January 1, 1962, to September 22, 1963, were
utilized for the preparation of this investigation. This
period encompassed seven quarterly reports. Only officers
with more than fifty hours on patrol were used. As can be
seen by Figure 3 on page forty-one, the hours on patrol are
those hours left to the officer after other time consuming
activities are subtracted from the total hours worked. When
an officer works an eight hour shift, the time that he spends
on report writing, special assignment, fire fighting, train-
ing, complaint and accident investigation, desk and standby
duty, and lunch are deducted from the eight hours. The time

that remains is patrol time.

Officer index. The measured work units performed by

 

each Public Safety Officer are listed on the quarterly

report. Each work unit was assigned, arbitrarily, a certain
weight by the Director of Public Safety. This weight took

into account such elements as the degree of skill needed by

1U

47
the officer in performing the task, dangers involved, and
special investigative knowledge required of the officer.

Figure 4 shows the weights assigned.
FIGURE 4

FUNCTION INDEX NUMBERS

 

Measure§:Work URIt Weight Assigned

 

 

Felony arrest on sight

Misdemeanor arrest on sight

‘Warrant arrest

DUIL arrest

Reckless driving arrest

Other hazardous moving violation citations
Non-Hazardous moving violation citations
Parking violation citations

Other ordinance violation citations

Open doors

Open windows

Stolen autos recovered

Bicycles recovered

Found breaking and enterings

Juvenile safety violation notices issued
Field interrogation cards issued

Fire inspections

H MOUUT I'D O\l—-’ l-JUOH FOWU‘I 4:00 FN
O
U"!

 

Each measured work unit total was multiplied by the weight
assigned it and the resultant sum is the officer index.

Function index. The function index is found by

 

dividing the officer index by the number of patrol hours
and carrying to the second decimal. All figures in the

function index were rounded to the nearest hundredth.
Code system. The Director of Public Safety re-

 

48
that the four platoons and individual officers by unident-
ified in this study. Therefore, each platoon was given
a random number, and each individual officer identified
by letters of the alphabet, A through AM. Four platoons,
consisting of a total of thirty-nine officers, were used.

Quarterly standings. The numerical standings deter-

 

mined by the function index for each officer for each
quarter during the period under study will be illustrated
through tables. Each table will be divided into quartiles.
The quartiles were determined by adding the total number
of men used that particular quarter and dividing by four,
with ties in function index numbers counting as one man.
An attempt will be made to point out changes in status

and other details from one quarter to another.
II. POSITION OF OFFICERS FOR FIRST QUARTER

The numerical standings based on function index
numbers for twentyeeight Public Safety Officers is
illustrated by Table I for the quarter 1 January 1962--

31 March 1962. I

The range for the number of patrol hours is from a
low of seventy;six hours to a high of 263 hours. The range
for the officer index is from 26.0 to 294.0 officer index

points. The function index ranges from a high of 2.09 points

downward to .33 of a function index point. As can be seen,

TABLE I

POSITION OF OFFICERS AS DETERMINED BY FUNCTION INDEX

FOR QUARTER 1 JANUARY 1962--31 MARCH 1962

 

 

NUMERICAL
POSITION

INDIVIDUAL

OFFICER

 

 

£23C4tflfi><<

OFFICER
INDEX

207.5
286.0
177.0
288.0
2 4.0
2 2.5
188.0

NUMBER OF
PATROL HRS

 

g%
182
118%
19413/4

FUNCTION

INDEX

 

2.09
1.57
1.u9
1.48
1.41
1.37
1.29

méméix

 

Line indicated by dash (_

__ ___) shows quartile divisions.

50
there is a definite separation between the first and second

quartiles, but very little separation between the other three.

One man, Officer "S", was .27 below the second lowest man in
the function index.’ The highest man, Officer "V", was .52
above the second highest man on the function index.

The relationship between the number of hours on patrol
and work performed (as shown by officer index) can readily be
seen. The leading officer with only 99% hours devoted to
patrol collected a total of 207.5 officer index points, while
Officer "C”, in eighth place, with 96% hours on patrol, com-
piled only 113 officer index points. By the same token,
again compare the leading officer with, this time, the lowest
officer, "S", who only collected 26.0 officer index points.
The lower, or fourth quartile, indicates the area of concern.
These men have been shown to be the lowest producers for the
quarter studied. As was mentioned earlier, each officer works
in different patrol areas weekly, therefore, the officer's
exposure is equalized and no question of choice patrol area

can be raised.
III. POSITION OF OFFICERS FOR SECOND QUARTER

Thirty-one Public Safety Officers participated in this

quarter's computation. Table II shows their relative stand-
ings. The function index range shortened somewhat to a
difference of 1.40 points as compared to the first quarter's
1.76 function index points. There is still a distinct separ-

ation between the first and second quartiles and no appreciable

TABLE II

51

POSITION OF OFFICERS AS DETERMINED BY FUNCTION INDEX

FOR QUARTER 1 APRIL 1962--22 JUNE 1962

 

 

NUMERICAL
POSITION

DWDHMML

OFFICER

 

 

Nmmkme

HZFJOE<HIJ

OFFICER

IMEX

249.0

167.0
286.5
217.5

MM$BOF
PATROL HRS

FUNCTION

IMEX

 

 

133
91-;-
163:
138
223%

1.87
1.84
1.76
1.58
1.54

HH
0 0
km
ww

-———--_—--——--*----—-~~---—__—_

HHHHHHH
O O O O O O O
OOHHHHM
O\\OOI-‘DJCI>l—'

HH
0 0
pm

0
\OKOOO
U'IKO

Nam
CDKOl-J

.78

---—---—-_--------_------—-—---

Line indicated by (_._

>3>

NME‘ENO‘JUMG

149i
95-3-

__) shows quartile divisions.

52
difference between the other three. The range for officer
index was from a low of 45.0 to a high of 343.0 officer
index points. The number of hours on patrol ranged from
62% to 240% hours.

The high officer, "R", who was in the second quartile
in the previous quarter, was only .03 above the second place
officer, while the lowest officer, "K", was .12 below the
second lowest officer. It is interesting to note that
Officer "R" had 133 hours devoted to patrol and collected
249.0 officer index points, while Officer "H", who was third
from the bottom, had 124 3/4 hours on patrol and amassed only
75.5 officer index points.

It is also found that there is some drastic position
changes both numerically and quartileewise. Officer "AC"
has risen this period from the lower quartile to the second
quartile. Officer "U" has made the same change, only in
reverse, from second to last quartile. Officer "N" has
broken into the first quartile from a position within the
third quartile last period.

Three officers, "B", "K" and "AD" remained in the
last quartile for the second quarter in a row. Officers
"E", "L", "V" and "W" have remained in the first quartile

for this second quarter in succession.

 

TABLE III

53

POSITION OF OFFICERS AS DETERMINED BY FUNCTION INDEX

FOR QUARTER 23 JUNE 1962-~13 SEPTEMBER 1962

 

NUMERICAL INDIVIDUAL

 

OFFICER

INDEX

535.5
286.5
200.5
212.5
246e5
318.5
152.0
280. 5

NUMBER OF
PATROL HRS

FUNCTION

INDEX

 

 

'177:

124
95?

104?

1292

3.02
2.31
2.11
2.04

55
531.5
231.0

97.5
200.5
186.0
172.0

POSITION OFFICER
1 AK
2 L
3 Q
4 M
5 R
6 E
7 v
8 W
9 N

10 AC
11 AG
12 AA
13 AJ
14 J
15 A
16 D
17 AD
18 I
19 G
20 P
21 AB
22 AI
23 F
24 P
25 H
26 z
27 T
28 AH
29 x
30 K
31 B
32 U
33 AF
34 s
35 Y

Line indicated by dash (_ _ __

98. 5
114. 5
132.5
162.0
104.0

70.5
141.5
152.5
193.0

219 3/4
180

) shows quartile divisions.

54

IV. POSITION OF OFFICERS FOR THIRD QUARTER

Table III shows the numerical standings of thirty-
five Public Safety Officers for the third quarter used.
The top officer in the function index is separated from
the lowest by 2.49 function index points. Interestingly
enough, Officer "AK" is separated from the second highest
officer by .71 of a point.

There is still a definite separation between the
first and second quartiles with the other three remaining
approximately the same. Although, it can be noticed that
the difference between the low officer and the top officer
in the fourth quartile has lessened considerably.

The range of the officer index shows quite a change
from the previous two quarters. The index ranges from a
high of 535.5 to a low of 55.5 officer index points. While
at the same time, the number of hours devoted to patrol
ranges from 242% hours to a low of 50% hours. It is noted
that the leader, Officer "AK", while on patrol 177% hours
amassed 535.5 officer index points while during the same
quarter, the lowest officer, "Y", with almost the same patrol
hours (180), compiled only 96.5 officer index points.

In the first quartile, four officers, "E", "V", "L",

and "W" have remained for the three quarters studied.

Officers "M" and "R" have been in the first division two

55
out of three quarters. In the same respect, Officers "K"
and "B” still remain in the fourth quartile for the third
quarter in a row, and Officers "S", "U", "Y" and "Z" have
placed in the lowest division two out of the three quarters
studied. Note that Officer "X" has dropped from a top
quartile ranking in the first quarter to the low quartile for

this quarter.

V. POSITION OF OFFICERS FOR FOURTH QUARTER

Thirty-one officers were involved in the tabulation
for thisquarter. Their numerical standings are shown in
Table IV. There are a few significant changes this period
from the previous periods studied. This is the first
quarter studied where there is no appreciable separation
between each quartile. There is only 1.39 function index
points separating the first officer and the thirty-first
officer. Also, the figures for the last quartile again
reflect a tightening of the extremes. The lowest and high-
est officers in the fourth quartile in this period are only
separated by .18 function index point. The highest officer
is separated from the second by .13 function index point
while the lowest officer is separated from the second lowest
by only .04 of a point.

The trend indicates that the leaders in the high and

56
TABLE IV

POSITION OF OFFICERS AS DETERMINED BY FUNCTION INDEX
FOR QUARTER 14 SEPTEMBER 1962--5 JANUARY 1962

 

 

 

 

 

 

NUMERICAL INDIVIDUAL OFFICER NUMBER OF FUNCTION
POSITION OFFICER INDEX PATROL HRS INDEX
1 X 129.0 64% 2.00
2 Q 405.0 216 3/4 1.87
3 AK 214.75 122 1.77
4 w 370.0 210% 1.16
5 E 358.5 246 1. 6
6 L 225.5 158 3/4 1.42
7 R 274.5 219 1.25
8 N 187.5 151% 1.24
9 0 337.5 2 7% 1.22
10 C 286.5 2 8% 1.11
11 I 264.0 24 % 1.06
12 AE 240.0 233 3/4 1.03
13 AJ 156.5 157% 1.00
14 H 248.5 254 3/4 .97
15 AB 130.5 135% .95
16 P 141.5 157 3/4 .90
1 AA 198.75 223 3/4 . 9
1 F 1 5.5 220% .89
19 z 2 8.5 282% .88
20 AF 175.0 201% .87
21 A 209.0 242% .87
22 AC 200.0 229-3/4 .87
23 AD 204.75 239% .86
24 AI 19 .5 235. .82
25 K 211.0 257% .82
26 T 141.0 178 .79
27 U 188.0 240% .7
28 B 176.5 238 3/4 .77
29 S 163.0 217 .75
30 Y 145.5 222 3/4 .65
31 AH 120.5 195 3/4 .61

 

Line indicated by dash (_._ _) shows quartile divisions.

57
low quartiles remain the same. The low quartile is again
represented by Officer "B" who has remained there for the
four periods studied. Officers "S", "U" and "Y" are in the
last quartiles for three out of four periods. At the same
time it is found that Officers "E", "L" and "W" have remained
in the top quartile for all four periods. Officer "R" has
been in the first quartile for three out of four times and
Officers "Q", "X" and "AK" for two of the four quarters
studied. It 15 significant to note that Officer "x" is
back in the first quartile this fourth period, in fact lead;
ing it, after being in the last quartile for the third

quarter.
VI. POSITION OF OFFICERS FOR FIFTH QUARTER

Table V lists the numerical position of the thirty-
two Public Safety Officers utilized this fifth quarter.
Again there is seen no significant differences between the.
four quartiles, function indexewise; each quartile being
separated from its neighboring quartile by at the most .06
of a function index point. The highest officer is separated
from the officer at the bottom of the scale by 1.49 function
index points. The top officer is .42 function index point
above the second highest officer. The range of the fourth

quartile is again lengthening, the Separation this quarter
between the top man in the last quartile and the low man

58
TABLE V

POSITION OF OFFICERS AS DETERMINED BY FUNCTION INDEX
FOR QUARTER 6 JANUARY.1963--29 MARCH 1963

 

 

 

 

 

 

NUMERICAL INDIVIDUAL OFFICER NUMBER OF FUNCTION

POSITION OFFICER ._Igggx_ PATROL HRS INDEX
1-. AK 273.0 1108% 2.50
2 w 410.0 197 2.08
3 T 292.0 142 3/4 2.05
4 R 317.75 157 3/4 2.02
5 N 266.0 133% 1.99
6 AJ 324.5 164 1.98
7 Q 339.0 174 1.95
'8 2 351.0 186 1.89
9 U 405.0 214 3 4 1.84
10 K 322.5 177% 1.82
11 E 129.5 80% 1.61
12 v 202.0 125% 1.61
13 C 323.0 220% 1.46
14 P 289.0 199 1.45
15 AD 225.75 157 3/4 1.43
16 s 230.5 163 3/4 1.41
17 Y 308.0 218% 1.41
18 B 275.75 201 3/4 1.36
19 AB 234.5 176% 1.33
20 AE 142.0 106 3/4 1.33
21 AC 265.5 200% 1.32
22 D 95.0 73 1.30
23 0 212.0 167% 1.27
24 AI 233.5 188. 1.24
25 I 132.5 108% 1.23
26 AM 162.0 142 1.14
27 AH 227.0 202 3/4 1.12
28 H 181.0 173% 1.05
29 AL 133.0 126— 1.01
30 F 210.0 208% 1.01
31 AF 216.5 22 ~ .91
32 A 190.0 20 % .91

 

Line indicated by dash (_ _ _) shows quartile divisions.

59
being .32 of a function index point.

The officer index points range from a high of 410.0
to a low of 95.0 officer index points. The number of hours
devoted to patrol range from a low of seventyethree hours
to a high of 223 hours.

Officer "W" is again in the top quartile for the fifth
time. Officer "R" is in the first quartile for the fourth
time out of five quarters. Officers found to be in the first
quartile three out of five quarters are Officers "Q" and "AK".
Officer "N" finds his way back to the first quartile for the
second time out of five quarters. Noteworthy is the fact
that Officer "T" has placed in the first quartile this period
after spending the last two periods in the fourth quartile.

The trends have changed slightly this quarter with
other officers appearing in the high and low quartiles.
Officer "B" has moved out of the last quartile for the first
time in five quarters. Although at the same instance, note
that Officer "AH" has placed in the low quartile three out
of five quarters and Officers "H" and "AF" two out of five
quarters. Interestingly, it is found that Officers "H"
and "I" have dropped from the second quartile the 1ast
periOd studied to the fourth quartile this period.

The officers in the middle two quartiles have basic-
ally remained within these two quartiles with slight shift-

flBHIVI

POSITION OF OFFICERS AS DETERMINED BY FUNCTION INDEX

, FOR QUARTER 30 MARCH 1963—22 JUNE 1963

60

 

 

 

 

OFFICER
1%

347.5
287.5
332.0

223.25

361.0
257.5

NUMBER OF
MEWLEB

 

144%
122%
166 3/4
119 3/4
134
181-
1K5
68%

FUNCTION
IMEX

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Ol-'

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momma

NUMERICAL INDIVIDUAL
POSITION OFFICER
1 AK
2 W
3 AJ
4 R
. 5 U
6 T
g X

Q
9 D
10 AC
11 C
12 AI
13 B
14 S
15 Z
16 AA
17 AB
18 O
19 AD
20 P
21 Y
22 AF
23 K
24 AH
25 AM
26 H
2 AL
2 N
29 A
30 F

165%
162
175%
an
144
128%
’2'

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mommmmmm

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Line indicated by dash (_____

) shows quartile divisions.

61
ing back and forth with the exception of the officers discussed

in more detail because of their drastic movements numerically.
VII. POSITION OF OFFICERS FOR SIXTH QUARTER

Thirty Public Safety Officers in relation to numerical
standings are shown in Table VI for this sixth quarter.
Again there is very little difference in the divisions be-
tween separate quartiles. The top officer is again separ-
ated from the lowest by 1.49 function index points. Note,
also, that the highest producing officer and the lowest pro-
ducing officer had again almost the same exposure (number
of hours on patrol), but the high man accumulated 347.5
officer index points while the low man was amassing only
132.0 officer index points. The high officer was only .08
function index point above the second highest, and .76
function index point above the lowest man in the top quartile.
This indicates a shortening of the difference between the
two positions. The trend remains the same for the low
quartile with the lowest officer being separated from the
highest officer in the last quartile by only .20 of a
function index point.

The range for patrol hours is from a high of 248%

hours to a low of 68% hours. The officer index points list
from a low of 93.0 to a high of 361.0 officer index points.

62

The trend indicating that the same men are remaining
in the top quartile still stands. Officer "W" is still re-
maining in the first division; placing there six times out
of six quarters. Officer "R" has placed in the first
quartile five out of six quarters and Officers "Q" and "AK"
four out of six quarters. Officer "X" has been in the top
division three out of six times and Officers "T" and "AJ"
two out of six quarters. Note the drastic change of Officer
"U". This officer for the two previous quarters has been
in the last quartile, but this quarter is standing in fifth
place numerically.

Noteworthy is the fact that Officers "B" and "S".
along with Officer "Y" are still remaining out of the last
quartile. At the same time, Officer "AH" has spent four
out of six periods in the last quartile and Officer "H"
three out of six quarters. Officers "A", "F", "AL" and "AM"
are spending their second out of six quarters in the fourth
quartile. Officer "N" has exhibited a drastic change by
appearing this time in the fourth quartile after appearing

in the first quartile previously for two quarters.
VIII. POSITION OF OFFICERS FOR SEVENTH QUARTER

Table VII illustrates the figures for this last

quarter studied. Twenty-seven Public Safety Officers were

‘MMEVH

63

POSITION OF OFFICERS AS DETERMINED BY FUNCTION INDEX

FOR QUARTER 23 JUNE 1963--22 SEPTEMBER 1963

 

NUMERICAL INDIVIDUAL

 

OFFICER
mum

341.5
304.5
328.5
299.5
114.5
274.0
187.5
176.5

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FUNCTION

NEH

 

 

100%
124%
165%
163%

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POSITION OFFICER
1 - AK
2 E
3 AG
4 C
5 A
6 AI
7 D
8 P
9 AC

10 AM
11 z
12 AB
13 w
14 AF
15 N
16 K
17 U
18 F
19 AJ
20 AH
21 AE
22 O
23 H
24 T
25 B
26 S
2 Y
2 AD
29 AA

l—'
O

I-4
O

 

Line indicated by dash (_

‘_ _) shows quartile division.

64
involved. This quarter shows the greatest range between
the highest officer, function index-wise, and the lowest
officer; 2.58 function index points. There is a difference,
too, between the highest officer and the one holding second
highest position of .54 of a function index point. In the
lower quartile, there is a conspicious difference between
the lowest man and the highest man in that quartile. This
difference amounts to .28 of a function index point. This
reflects the trend that there is no great difference from
the low of one quartile downward to that of the highest of
the next.

The officer index points range from a low of 66.0 to
a high of 341.5 officer index points. The range of patrol
hours reaches from a high of 212% to a low of 51% hours.
Again notice that the leading officer has piled up 341.5
officer index points as he devoted 100% hours to patrol
while the lowest Officer with nearly the same amount of
patrol hours (92%) has only produced 75.0 officer index
points.

Officer "AK" has remained in the first quartile again
for a total of five quarters out of the seven studied. In
the same instance, Officer "W" has dropped out of the first
division to the second this period after remaining in the

first quartile six out of seven quarters. Officer "E" has

65
returned to the top quartile after an absence of two periods
to make it five quarters out of seven. Of the rest, only
Officer "C" has previously been in the first quartile and
then for only one other instance.

On the other hand, however, observe the regression
on the part of Officers "B", "S" and "Y" who have returned
to the lower quartile again after an absence of two quarters.
Officer "B" has been in the last division for five out of
seven periods, while Officers "S" and "Y" have been in the
last division four out of seven periods. Officers "AD"
and "AA" both have previously been in the last quartile

twice and once respectively.
IX. STATISTICAL SUMMARY

This summary was obtained by adding for each officer

the total number of officer index points for all seven
quarters and then dividing by the total sum of the patrol
hours for all seven quarters. The resultant figures indi-
cate the average function index. Table VIII indicates this
average function index for all seven quarters.

There was a difference between the highest man for
the period and the lowest of 1.32 function index points.
The highest officer was .82 function index point above the

second highest. The lowest officer was .19 function index
point below the second lowest man. With the exceptions

66
TABLE VIII

POSITION OF OFFICERS AS DETERMINED BY FUNCTION INDEX
FOR PERIOD 1 JANUARY 1962--22 SEPTEMBER 1963

 

 

 

 

 

 

NUMERICAL INDIVIDUAL OFFICER NUMBER OF FUNCTION

POSITION OFFICER INDEX PATROL HRS INDEX
1 AK 1712.25 652% 2.62
2 w 2044.50 1137 3/4 1.80
3 V 728.50 407% 1.79
4 Q 1232.50 709% 1.74
5 E 1631.00 62 3/4 1.69
6 AG 670.00 07% 1.65
7 R 1539.00 959 3/4 1.61
8 L 1029.00 637% 1.61
9 AJ 1097.00 711 1.54
10 M 555.50 366% 1.52
11 X 757.50 525% 1134
12 J 59.50 5332 1.42
13 D 1040.50 785 3/4 1.32
14 N 1215.00 922% 1.32
15 C 1520.00 1183 1.28
16 AI 1045.00 859% 1.22
17 AC 1343.50 1107 3/4 1.21
18 T 1331.00 1168% 1.14
19 0 1237.50 1104 1.12
20 AB 963.50 869% 1.11
21 AM 498.00 451 3/4 1.10
22 I 911.00 832% 1.09
23 U 1431.00 1349.3/4 1.06
24 AE 749.00 721% 1.04
25 AF 858.00 826% 1.04
26 AL 263.00 257 3/4 1.02
2 K 1163.50 1170 3/4 .99
2 AH 842.00 853 3/4 .99
29 AD 1156.00 1167 3/4 .99
30 A 1155.00 1184 3/4 .98
31 G 332.50 337 3/4 .98
32 F 1168.50 1204% .97
33 H 1099.00 1138% .96
34 2 1480.50 1592. .93
35 B 1252.75 1380 .91
36 P 1078.50 1200% .90
37 Y 981.25 1078% .90
38 S 955.00 1072 3/4 .89
39 AA 700.25 996% .70

 

Line indicated by dash (_

‘_ _) shows quartile divisions.

67
already noted, there was no appreciable difference from one
position to the next neighboring one.

In examining the top quartile of the summary and
reviewing the quarter's individual totals, it can be seen
that Officer "W" held the lead for the number of times
placed in top quartile at six out of seven. Officers "AK",
"E" and "R" had placed five times in the top division.
Officers ”Q" and "L" held top quartile positions four times.
Holding the first division place three times were Officers
"V" and "X". Although Officer "X" did not place in the top
quartile on the summary, he was used to illustrate an un-
usual occurrance. Officer "X" along with placing in the
top quartile three times, placed once in the bottom quartile,
but still amassed enough officer index points to almost make
the top division in the summary.

As the lower quartile of the summary is examined and
related to the quarterlies, it can be observed that Officer
"B" spent five of the seven quarters in the bottom quartile.
Placing in the last division four out of seven times are
Officers ”Y" and "S". Officer "H" was in the lower quartile
three times, while Officers "F", "Z", "AA" and "T" were in
two out of the seven quarters studied. Officer "P" is a

study in contrast. While never spending one quarter in the

lower division and at the same time placing in the top

 

 

‘0

68

quartile once out of seven periods, his totals and averages
placed him in the bottom quartile function index-wise for
the summary.

Most of the officers in the middle quartiles remained
there with some shifting slightly back and forth between the
two divisions. However, Officers "N" and "C" did place twice
in the top quartile. Also, it is found that Officer "AH",
while in the middle quartiles for the summary, placed in
the last division four out of seven quarters. Officer "AD"
spent three quarters and Officers "AM", "U", "AL", "K" and
"A" two out of seven quarterlies in last division.

With the few exceptions so noted, the summary quite
accurately represents the positions of the officers in re-
gard to the quarterly reports. The top man for the summary
is separated from the second man by a great margin, as is
the lowest man from the second lowest. This, too, was
generally the case in the individual quarters.

Only the statistical ramifications have been noted
and discussed in this chapter. No attempt has been made
to show how the function index is utilized. The following

chapter will investigate this phase.

1!.4Mu

rm

 

CHAPTER VI
AN ANALYSIS OF WORK LOAD

The Oak Park Department of Public Safety has utilized
not only the function index, but also the production totals
and hourly figures in evaluation and diagnostic techniques.
In this utilization of work load totals many factors are
eminent. This chapter will discuss these points and attempt

to evaluate the use of the program by the department.
I. THE FUNCTION INDEX

The Oak Park Public Safety Officer is evaluated sub-
jectively bi-annually by both his lieutenant and sergeant.
This evaluation is accomplished through a form called the
Officer Progress Report which is shown as Figures 5 and 6.

The front and rear portions are shown. The officer is graded
through the use of a check mark in one of four columns:

namely, unsatisfactory, good, very good and superior. The
areas covered in the progress report are marksmanship, in;
terest, production, standby duty, fire scene and resuscitator,
emotional stability, desk duty and report writing, proficiency,
personal appearance and conduct, loyalty and supervisory
ability. Each of these areas are further divided into sub-

areas pertaining to the particular trait or duty under scrutiny.

On the rear portion of the progress report, a space is provided

FIGURE 5 ' , 70
DEPARTMENTAL EVALUATION FORM~-FRONT

OFFICER FROG RE 55 REPORT

IRVING OFFICER: DATE DUE:

RTANT; The preparation of a progress report :5 a sencus reSponsibiIity. Each individual will take the same painstaking care in the
IIOD of the progress report for his subordinates that he would eXpect his mating officer to take in the preparation of his own progrel

I will 1 w

1. last Name - First Name - Middle Initial 2. Badge 0 4. Period
‘ of

RKSMANSHIP; Unsatufncton'

 

R

Conduct ,_._..

 

71

FIGURE 6

DEPARTMENTAL EVALUATION FORM--REAR

OFFICER PROGRESS REPORT Page 2.

No Opportunity Unsatmucton Very Good Superior

 

FINAL OVERALL RATING:
What rating do you believe best describes the employee't work?

 

(Racing Officer‘s Signature)
no
I have reviewed this report and wish to take exception to some points, which I have listed in the remark: eection:

 

(Officer's Signature)

I HAVE REVIEWED THIS REPORT AND UNDERSTAND IT:

 

(Officer's Sigmture)
no
I have reviewed this report and I respectfully request an interview with the Director, to go over come of the points, as listed in the remarks
section:

 

(Officer's Signature)
m

I hereby certify that this progreu report has been revrewed by the above officer, and I recommend that it be accepted {or filing.

 

(Revrewer's Signature)

REMARKS:

72
for an over-all rating of the officer by the supervisor.
Also, there are places provided for the officer's signature;
he can Sign it in any one of three spots. One signature spot
signifies that the officer has read the report, understands
and accepts it. Another place for signature indicates that
the officer has read the report and wishes to take exception
to some points with the rating supervisor. The last spot for
the signature of the officer being rated denotes that he has
read the report and wishes an interview with the director.
The final signature is for the reviewing command officer prior
to filing.

A11 officer progress reports are reviewed by the
captain of police prior to inclusion in the officer's per?
manent personnel records. Regular officers, as was mentioned
earlier, are rated semi-annually, while probationary officers

are rated every two months.

The function index along with the progress report is
utilized by the director in determining advancement, place-
ment and salary of officers. An officer could be, and has
been, held back from a salary increase because of a poor
_ progress report combined with a poor function index standing.
The director has indicated that if an officer has had a poor

progress report and has placed in the lower quartile three

out of four quarters in the period prior to a proposed salary

increment, then that officer's pay increment would be held up

73

until his performance improves. Accordingly, if an officer
loses his pay increment, he cannot acquire it until his
progress reports improve, and he places in one of the three
upper quartiles.

Since the installation of the function index, only
three men have lost their pay increases, and then for only
one quarter. In each case, upon being interviewed person-
ally by the director and captain, the officer's work improved
considerably. It was observed during these personal inter-
views that all three men held somewhat the same views con-
cerning the quality and quantity of their own work. The
general consensus of the three officers was that they thought
they were doing well in their work, but the function index
showed them that they were not. Too, they felt that had
they been notified by their shift commanders that their work
was down, they would have voluntarily improved.

Another way the function index has been used in cone
Junction with the progress reports is in the area of pay
raises again. An officer in order to reach top pay receives
a pay increment every six months for a total of forty-two
months. The director has declared that if a man receives
good progress reports and has placed in the top quartile three
out of four quarters, he should receive a double increment.

This enables the man to reach top pay six months sooner.

There is to be only one double increment per man. If the

74
man's progress reports and production records drop by any
great degree after this double increment, then an increment
is held back and the man reverts to the fortyetwo month

schedule.

The function index combined with officer progress
reports have still another use. As was mentioned previously,
officers are rotated to the Juvenile and detective bureaus
periodically for training purposes. This is held by both
command and operating personnel to be a reward. The dir-
ector and captain have utilized the function index and pro?
gress reports in choosing the officers from the patrol divi-

sion to be rotated into these bureaus.

The function index has been used as a diagnostic tool
to determine training needs and man analysis. Primarily the
function index is a diagnostic man analysis tool. It is
used to show standings of officers and spot significant de-
viations from established modes of production behavior. In
this case, emphasis is placed in two areas. The low quartile
is an area of concern and also any drastic shift downward
quartileewise indicates further study. Training needs are
developed through the use of the function index by showing
areas where an officer's training has been faulty or neglect-
ed. If an officer is low, function indexewise, one assump-

tion that can be made is that the officer is lacking an under-
standing of the function expected of him. This would indicate

75

further training of the in-service variety or re-training.
II. USE OF PRODUCTION TOTALS

Not only is the function index utilized for diag-
nostic analysis, but the figures from which the index is de-
rived also have their uses. From the records kept of the
measured work units and times devoted to certain activities,
the shift commander can instantly perceive which officers
are putting in a full day's work and which men are being
carried by others, and in what areas.

Table IX shows the production totals for all men
involved in the study for the entire seven quarters. The
following is an attempt to discuss each measured work unit

and their respective areas of concern.

Felony arrests on sight. This category while being

 

the most important measured work Unit is also the most diffi-
cult to obtain; difficult because the opportunity for such
arrests are not prevalent in this community due to environ;
mental factors. But, even though the opportunity is not

great, opportunity still exists. This is evidenced by the

fact that one officer made nine felony arrests in the period
studied. Out of the thirty-nine officers involved in the
study, seventeen made two or less felony arrests. Out of these
seventeen officers, four made no felony arrests at all during

the period under investigation. This, indeed, would indicate

76

TABLE IX

OF PUBLIC SAFETY DURING PERIOD

1 JANUARY 1962--22 SEPTEMBER 1963

INDIVIDUAL TOTALS FOR MEASURED WORK UNITS OF OAK PARK,
MICHIGAN DEPT.

 

 

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77

“TABLE IX (Continued)

OF PUBLIC SAFETY DURING PERIOD

1 JANUARY 1962-~22 SEPTEMBER 1963

INDIVIDUAL TOTALS FOR MEASURED WORK UNITS OF OAK PARK,
MICHIGAN DEPT.

 

 

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TABLE IX (Continued)

INDIVIDUAL TOTALS FOR MEASURED WORK UNITS OF OAK PARK,
MICHIGAN DEPT. OF PUBLIC SAFETY DURING PERIOD

l'JANUARY 1962--22 SEPTEMBER 1963

 

 

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79

(Continued)

IX

TABLE

’

OAK PAR

J8 PERIOD
19 3

DURII“

—‘

WORK UNITS OF
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80

an area of concern; mainly upon the question of the officer's

knowledge of law and patrol tactics.

Misdemeanor arrests. This category offers a wider

 

latitude than the preceeding one. The opportunity for a
misdemeanor arrest is much greater. The top officer in this
category had 25% misdemeanor arrests. Eight officers had
three or less misdemeanor arrests, while of this amount, one
man made no arrests. With these figures in mind, reason
definitely exists for further analysis of the work habits
and tactics of the men showing so few arrests.

Warrant arrests. This is another work unit where
Opportunity is lessened considerably. The use of a separate
officer serving as a warrant officer definitely limits the
number of warrant arrests secured by the patrol division.
However, the fact that the arrests are still available is
evidenced by one officer in this study compiling 15% warrant
arrests. On the other hand, eleven men made three or less
warrant arrests during this same period. This indicates
that some officers are not investigating thoroughly enough,
those persons that are contacted for other offenses.

Driving under the influence of liquor arrests. In-

 

 

deed, in a society whose dependence upon the automobile for
tranSportation in pleasure-seeking forays, ample opportunity

exists for this type of arrest. In the period studied, one
officer made eight arrests of this type. In the same period,

81
nine officers never made a driving under the influence arrest.
It is truly evident that a need exists for further investiga;
tion of these nine officer's personal work habits to deter?
mine reasons for the lack of showing in this category.

Reckless driving arrests. This section is a diffi-

 

cult one to analyze. The opportunity for this type of arrest r
is limited both by the structure of the statute and the com- W
munity under study. Seventeen men made no arrests of this

type. One man made five arrests. It would be extremely diffi-

‘P Viki-a1“. 'n' ‘ "nu- - -_ 3

cult to relate work and patrol habits to this category.

Other hazardous moving violation citations. This is

 

 

an area where great Opportunity for contact exists. The

fact that there is a great number of moving traffic viola-

tions can not be questioned. For the twentyeone months studied,
five men produced less than one hundred of this type viola-
tion, and one of this group wrote only thirtyeeight citations.
Further diagnosis is highly indicated in this area. A lack

of knowledge of law or patrol tactics appears to be evidenced

by these officers who are producing at such a low rate.

Non-hazardous moving and parking violation citations.

 

This category also holds great opportunity for contact. The
number of autos on the streets and highways attest to this.

Of the thirty-nine officers under study, seven produced less
than fifty non-hazardous moving violation citations, while

at the same time, one officer produced 171. Parking violation

'\_

v‘

82
citations show the same pattern. Eight officers produced
fifty or less citations. During the same period one officer
had 266 parking violation citations to his credit. The
extreme lows in these categories reflect definite areas of

concern to the officer and his superiors.

Other ordinance violation citations. The instances

 

for the issuance of this type of violation are many in an
intense residential area such as Oak Park. One officer

found enough instances to warrant the issuance of 37% citations.

gra-mm‘ ;~ &3_‘—-‘..s4£ -1- nan-pa nut—é

At the same time, seven men issued five or less citations;

out of this total, one man issued none.

Open doors and windows. Any officer who conscient-

 

iously checks the buildings in his respective patrol area
will find at least one open door and/or window per shift.
The high officers in this area had #2% open doors and sixty-
One open windows. Fifteen officers had found seven or less
Open windows during the period under study. This definitely
calls for a closer scrutiny of patrol procedure by super?
visory officers.

Stolen autos recovered. This section, as previous-

 

 

ly stated, tests an officer's powers of observation. In
the period under investigation, eight Officers never re-

covered a stolen auto.

Bicycles recovered. This category, as evidenced by

 

supporting figures, offers many situations to the officer for

83
recovery of bicycles. Yet, with all this opportunity, four
men never recovered a bicycle in the twentyaone months
studied.

Found B&E's. This section will not be considered since

 

very few opportunities exist for finding unlawful entries in
this type of community. Yet, it must be mentioned that in :4
cases where an instance of unlawful entry was found by a

patrolman, it was the result of excellent patrol tactics. E:

Juvenile safety violation notices. Once again is

 

found a category for great contacts. This area can be liken-

!“ I? C; "it-1
!

ed to hazardous moving violations for rate of occurrence.
Even with this fact in mind, it is found that five officers
have never issued a juvenile safety violation.

Field interrogation cards issued. This area illust-

 

 

rates an officer's diligence concerning persons within his
areas of patrol. Most officers did well in this area, but
six Officers issued ten or less field interrogation cards.

Fire inspections. This category will not be consid-

 

ered since supervisors assign individual men fire inspections
to be completed.

Control. Along with discussing each measured work
unit, concern must be reflected upon the extent of control
exercised by command officers concerning the areas under study.

Each command officer has the responsibility to review each

measured work unit of each individual officer for instances

84

of honest mistake on the part of the reporting officer.

There have been a few attempts at fraud and willful miss

representation of time figures by officers to enhance their

own positions. It is not believed that these few instances

greatly affect the averages over a considerable length of

time. By the same token, this is indeed an excellent T“

opportunity for the command officer to visualize what his

- __._._‘_,__ ..

officers are doing on the street. The command officer can

instantly be aware of officers who fall from their establish-

!f‘ .. _..

ed levels. Also, the shift commander can investigate and
control those officers that appear overzealous in the perfor-

mance of their duty.
III. SUMMARY

The Function Index System, at the time of this writing,
has been an integral part of the Oak Park Department of Public
Safety for over three years. It has been utilized, along
with other evaluation tools, with a high degree of success
by the administration in areas of pay and placement. In the
areas of pay, raises have been granted and/or withheld on the
basis of a combination of low function index standing and poor
progress evaluation. The area of placement and promotion is
also affected by low or high function index standing. When

an officer is considered for a promotion or placement, the

 

85
function index and progress reports carry a great deal of
weight in the final decision.

Generally, the system has been accepted by most Of
the men affected by it. Also, evaluations of individual
officers by superiors have become more pointed since the
inception of the function index.

There were fears at the onset of the use of the Fun-
ction Index System that it would create a race for high posi-
tions. Also, it was feared that the system would degenerate
into a "ticket quota" system. These fears were proved by the
command and administration to be groundless. It was found
that while the top officers did not produce more, the other
officers in the lower quartiles became more aware of what was
expected of them. This was shown by a comparison of produce
tion records prior to the inception of the function index
system. (Records of production have been kept by the adminis-
tration since 1958.) There was no great increase of tickets
issued by the officers involved. To the contrary, there were
less tickets issued by the Officers after the inception of
the program than before its beginning. This, it is believed
by the administration, was due to the excellent control factors
exerted and an excellent presentation of the aims of the ad?
ministration in establishing the function index.

The future of the function index appears to be bright

f If

-.-._—-_,.- «fa—“._. -_1..—_'._

Fr -..'..'

86
in Oak Park. If the trend continues, there will be a gradual
shortening of the span between the high and low quartiles
until there is no significant difference between them. It
is hoped by the administration that a program can be con-
structed eventually to give a merit raise to all officers who
consistently place in the top quartile and receive good f”
progress reports. This would tend to reward the man that ' a
shows a continuous allQaround good record. 1

The use of production figures by the Oak Park Public
Safety Department as a tool of evaluation was, and is, an , :
experiment. Therefore, as an experiment, it is subject to
the faults that any new project experiences. These faults,
though not of such a nature to affect the overall purpose,
are such that a change appears necessary for improvement.
With this in mind, two recommended changes in the system
will be forwarded.
A recommended change is in the area of the weights
assigned to each measured work unit. The figures were
arbitrarily assigned by the director, but it is felt that
certain measured work units deserve more detailed analysis
respective to weight assignment. An example of this is the
sections dealing with open doors and windows. Both receive
the same weight value. To the functioning patrolman this is

incongruous. The Open window can be found by spotlight by

the officer without leaving the car. The open or unlocked

 

 

(C

\L

87
doors, however, entail more work since the Officer has to
remove himself from the car and hand-check every door. This,
in itself, constitutes an effort that is marked by a closer
observation of the business being inspected. Considered
in this manner, the open door should have a heavier weight
than the open window. All of the weights should be review; ' .1
ed with a thought to the operating level. ' ;

TABLE x g

{I
TRANSPOSITION OF FUNCTION INDEX TO WHOLE NUMBERS . ¥_

   

 
 

 
 

 

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‘1; Proposed methOd Of

 

 

 

 

Numerical Officer Function index as
standing presented now function index

1. AK 2.62 262
2. w 1.80 180
9. AJ 1.54 15H
16. AI 1.22 122
23. U 1.06 106
28. AH .99 99
3A. 2 .93 93
38. s .89 89
39. AA .70 7O

 

The second area in which a change would be beneficial is
in the figure used to represent the function index. At pre-
sent, it is represented by a digital number with decimals.

It is felt that this does not accurately show the true
differences between men and quartiles. It is suggested that
the decimal place be moved two places to the right, thus

making whole numbers out of digits and decimals. Table X on

 

I“

I.

88
the preceeding page is an example of what could be accomp-
lished.

As these function index numbers are transposed, the
differences become more readily apparent. For example, the
difference between Officer "AK", the number one man, and the
second man, Officer "W", is more significant when the figure
is represented as a difference of eighty-two than when it is
.82. Likewise, more significance is attached to the diff-
erence between the top and bottom man when the figure is re-
presented as 192 rather than 1.92. The change suggested
would be an administrative one and would not in any manner
affect the validity of the system. It could only clarify
the function index scale, thus making the recognized diff-
erences more readily apparent.

.A standard_2£ comparison. The Function Index is a

 

 

unique method of evaluation. Inherent in this uniqueness is
the lack of accepted methods by which to judge the worth of
such a program. As was mentioned earlier, no other like
method has been published concerning the use of production
figures in evaluating police patrolmen. Therefore, this form
of comparison can not be used. A Function Index System could
be instituted in other police departments having much the
same circumstances as the Oak Park Department. This indeed

would be one method to prove or disprove the Oak Park ex-

89
periment. Perhaps instituting the Function Index in many
departments would be the best method for evaluating the
results and testing the hypothesis. For the purpose of this
study, though, time and space limitations prevent this.

There is one method of investigating the value of the
FunctiOn Index. This is by comparing the performance of N r’
the officers under the system before the index was institute
ed with their performance under the index. This has been k
done in Table XI. The work that the officers did in the

seven quarters prior to the inception of the Function Index

a' “51!; 1.17" -< .r -

has been compiled and transformed into Function Index
totals. This period covered seven quarters from 1 April
1960-~31 December 1962. The figures were obtained from the
same records, and in the same manner, as the figures for
the period used in the study.

As can be seen in Table XI, twenty-nine officers have
been used. Only those officers that appeared in the original
study were utilized. When comparing the two periods, it can
readily be observed that improvement resulted among the
majority Of the Officers. Of the twenty-nine officers,
nineteen showed definite improvement in Function Index stand-
ing, nine Officers had regressed from their previous stand-

ings, and one officer showed no change from the previous

period. Considering the nineteen officers that showed

90
TABLE XI

COMPARISON OF FUNCTION INDEX FOR PERIODS
1 APRIL 1960—-31 DECEMBER 1962 AI
1 JANUARY 1962--22 SEPTEMBER 1963

__‘__‘

 

 

INDIVIDUAL 1 APRIL 1960 TO 1 JANUARY 1962 TO
OFFICER 31 DECEMBER 1962 22 SEPTEMBER 1963
A 1.14 .98
B .69 .91
C 1.49 1.28
D 1.31 1.32
E 1.37 1.69
F .85 .97
G 1.03 .98
I 1.04 1.09
J 1.50 1.u2
K .72 .99
L 1.u7 1.61
N 1.A1 1.52
N 1.02 1.32
O 1.14 1.12
P .90 .90
R 1.32 1.61
S .O .8
T 1.0 1.1
U .94 1.06
V 2.08 1.79
w 1.93 1.80
x 1.38 1.44
z 1.00 .93
AA 1.02 .70
AB .89 1.11
AC .97 1.21
AD .70 .99
AB .88 1.0u
AK 2.81 2.62

 

 

 

91
improvement, the range was from a .01 to a .34 function
index point. The nine officers that regressed ranged from a
.05 to a .32 function index point. There was no pattern to
the regressions. All quartiles were represented.

It is felt by the administrator of the Oak Park
Department of Public Safety that this aforementioned im;
provement was due in great part to the use of the Function
Index. It is felt that the Function Index established a
workable guideline for what was expected of the officers

involved.

-5 A')‘ .r. ‘hf‘ fia.-.. -_.-«— q ‘

CHAPTER VII
SUMMARY AND CONCLUSIONS

This final chapter will include an attempt by the
author to evaluate the research methodology as utilized
to determine the answer to the question posed in Chapter
I; can the number of police tasks performed be utilized
as an effective evaluation tool by police administrators?
In addition, the more Important findings and the limita-'
tions of the study will be discussed. The closing para?
graphs will contain an estimate of the future research
needed on the problem of using police tasks performed as

tools of evaluation.

I. SUMMARY

Purpose of EES.§EE§X3 The study had a two-fold pur-
pose. The first was to examine in detail the experiment by
the Oak Park Department of Public Safety using production
total figures as an objective rating tool for police patrol-
men, This was accomplished through a detailed examination
Of all facets of the Oak Park Department of Public Safety's
S‘IVStemover a period of seven quarters or one and three-
fourth years. The second purpose was to determine the
feasibility of using the number of police tasks performed

as an objective evaluation tool by police administrators.

93
This will be discussed in detail in the conclusion of this

chapter. It is realized that before either of these pur-
poses can be utilized on a wide scale, all valid research
which will contribute reliable information to those con-
cerned with the standards involved must be fully exploited.

Significant findings. The hypothesis that work load

 

totals can be utilized as objective police patrolman evalua—
tion tools appears to be true in the Oak Park environment.
The Function Index System accurately revealed (on a scale
basis) the officers who were functioning to near capacity.
The index also graphically illustrated the officers who were
not functioning to any degree of satisfaction. The use of
production totals, too, were utilized by the department to a
high degree of success. Through these totals, the supervisors
were able to accurately pinpoint the areas that were being
neglected and thus determine where improvement by the indi-
vidual officer was needed.

Limitations. The prime limitation is the other factors

 

obviously involved in an experiment of this type; namely,
experience, personal interest, education, attitude, physical
ability, ambition, etc.. All of these factors have a high
degree of influence on the production totals. However,
temporal and intellectual limitations restricted the author

to the specific areas covered by this investigation.

94
Another limitation was the fact that the group studied
in Oak Park was neither adequate nor representative. The
total of thirty~nine officers used would hardly provide a
representative sampling of the nation's police patrolmen.
The study was also limited in the area of quality. No effort
was made to follow—up or evaluate the quality of each mea-
sured work unit performed. A research of the court records

might prove invaluable in this respect.

4;"; .' v. “.24.-£ 'o-m‘...’ :-

Time—wise, the study was limited. Even though seven

‘tnfiathn‘v’fi .1

quarters were used, more time might have revealed different
structures or conclusions. Perhaps a study in depth on a

five—year basis might prove interesting.

II. CONCLUSIONS

The results of this experiment logically gives rise
to the assumption that this system, or one of a similar
nature, could be used by other police departments as an
objective tool of evaluation. In any department, the
supervisors must have information concerning the actual
work load in the job to which the officer is assigned and
recorded information as to how the officer is performing
his work. The Function Index System does this, but is
limited by the records system of the individual department.

Adequate records must be maintained before any function

95

index system can be expected to have a degree of success.
Too, the system must have adequate supervision in order
that it prove successful. V. A. Leonard in his treatise
on police organization similarly feels this way when he
states, "It is generally conceded that a rating system
is just as valid as its design and the degree of intelli-
gence, judgment, honesty and understanding of the rating
instrument exercised by the raters."1 Other authors in
the fields of administration and management have also
emphasized the importance of the raters and the administra-
tion of the rating program.2

It must be emphasized that the appraisal of the indi-
vidual police patrolman is extremely difficult. Despite the
disagreement among the experts as to the proper rating system
to use, there is general agreement about certain fundamental
concepts: (1) supervisors have to be adequately trained in
techniques of rating; (2) the officer Should be rated on his
own work, in relation to what others are doing in the same
areas; (3) the supervisor must be able to verify his judgment

by direct evidence; and (A) the officer must have an opport-

 

lLeonard,'<_3-p. cit., p. 109.

2

Gocke, 22. cit., p. 150; Wolf, op. cit., p. 235;
Dale Yoder, PersonneI Management and IEHUstrIal Relations_
(Englewood CIIffs, N.J.: PrenticeeHaII'Inc., 1952), p. 344.

 

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96
unity to discuss his ratings with his immediate and higher
superiors. The last element is considered the most im-
portant concept by Hepner when he writes concerning merit
rating, "Thus far, the focus of attention in merit rating
has been on evaluation of the individual, but progressive
managements are learning how to communicate the appraisals
to the employee in terms of job performance coaching."3
All of the foregoing elements are exercised in the Oak
Park Department of Public Safety's rating system and must
be exercised in any other department where a function
index system is in operation or contemplated.

The fundamental purpose of the function index system
is to eliminate as much as possible, the variable human
factors in evaluation of employees, thus making the system
more objective. It is found, however, that some authors
in the field of evaluation feel that there is no such thing
as an objective rating device because it is impossible to

remove entirely the factors of personal judgment and bias.

Even though this is true, there is no valid reason why the

 

3Harry N. Hepner, Perceptive Management and Supervision
(Englewood Cliffs, N.J.: Prentice—Hall Inc., Tg‘olfi p. 332.

 

 

)4 . .

Leonard, op. cit., p. 108; William McGehee and Paul N.
Thayer, Training‘Ih.Bfi§iness and Industry (New York: John
Wiley and Sons, IfiE., 1961), p. 115; PauI Pigors and Charles
Meyers, Personnel Administration (fourth edition; New York:
McGraw-HilI’BOOk 00., inc., 1901), p. 293.

 

 

 

 

l‘

97

Function Index System, as it is used by Oak Park, cannot
be utilized to supplement the subjective rating system
presently being used by other police departments.
Generally in the use of any rating system, there will
be opponents. It must be realized that objections will be
raised; one such objection forwarded by White in his work
on public administration typifies the reaction of most of

the opponents of this type of rating system. White states:

Inspired by an extraordinary faith in the validity
of various schemes, supervisors have put them to work
in some jurisdictions with a thoroughness which cast
caution to the winds. Men and women have been singled
out to lose their jobs, to sacrifice a part of their
income and to abandon prospect of promotion because a
mathematical conversion of a series of check marks by
supervisors totaled less than an arbitrary sum. The
effort to control the judgment of supervision to this
degree and to govern the fate of individuals in this 5
way is not sound personnel policy.

This quotation should in no manner exclude the use of the
Function Index System, but should serve as a guide for the
application and further research required before such a
system is instituted.

_Additional research required. The prime additional

 

research data needed on the utilization of the function

 

5Leonard D. White, Introduction to the Study of Public
_§gministration (New York: The Macmillan Company, 19555,
p. 3920

 

 

SW. :51 -3L_'u—'K_-:."

 

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‘4

98

index would be validity and reliability studies conducted
on the Oak Park experiment. Any device to be used for
evaluation must be valid and reliable. There is no other
method to determine these two factors than by detailed
validity and reliability studies.

As was mentioned previously, the other factors that
influence production must also be examined. Such factors
as education, experience, motivation, age, etc., must be
analyzed and related to the total picture of what effect
they have Upon the system under study. Emphasis must be
placed upon the influence of these factors upon the mea-
sured work units selected.

Since the experiment by the Oak Park Public Safety
Department can neither be classified as adequate (because
of the relative short period of time involved) nor reliable
(due to the few numbers of officers used), more studies
involving different departments must be proposed. A series
of similarly conceived research studies, conducted in police
departments with enough members to provide an adequate, and
in many different types of police departments to provide
an adequate sampling, must be conducted before the hypothesis
can even be partially validated in a scientifically reliable
manner.

A final area of the experiment that needs futher re-

99

search is the quality of the measured work units performed.
A method of follow-up must be researched in order to eval-
uate the quality of each measured work unit performed.

In this area also, there should be comprehensive beat
studies to evaluate the influence of beat assignments and
time of day assignments upon the work produced.

With these thoughts in mind, a suggestion may be made
as to what the next step in police patrolman evaluation
should be. A program of research and experimentation by
both progressive police administrators and police admin-
istration schools, concerning the above mentioned areas,
appears to be needed in order to design a more effective
police patrolman evaluation. When researching and ex~
perimenting with any rating plan, one must continuously
keep in mind the words of Whitehill, "A rating plan that

succeeds is one that fulfills real needs."

 

(emphasis added)

6Whitehill, 93. cit., p. 169.

m. whvoLYPehtmvti :l! I.l.vul...l..lu u

BIBLIOGRAPHY

lOl

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103

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104

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