HomeMy Public PortalAbout03/14/1986COMMISSIONERS
WILLIAM F. KOCH, JR., Mayor
JOEL HUNTER, Vice Mayor
ALAN I. ARMOUR
ROBERT J. DI %SON
BRIAN PFEIFLER
TOWN OF GULF STREAM
PALM BEACH COUNTY. FLORIDA
F.THA"
TOWN COMMISSION MEETING
TOWN OF GULF STREAM
MARCH 14, 1986
1. Roll Call.
2. Approval of Minutes: February 14, 1986.
3. Staff Report.
a. Financial Report
b. Police Report
C. Manager's Report
d. Bond Issue Project Report
e. Town Attorney Report
f. Public Works Report
4. Planning and Zoning Board Report.
P.B. 0185 -13.
A request by Mr. Samuel Ogren, agent for Mr. and Mrs.
J. Paul Ekberg for final site plan approval and determination
of the front yard for the construction of a new single family
residence on property located at 5 Driftwood Landing.
5. Landscaping - Gulf Stream School
6. Second and Final reading of Ordinance 86 -1- Adopting the
Coastal Building Code as recommended by the State of Fla.
7. Commissioner Comments /Recommendations.
8. Public Comments /Request.
9. Adjournemtn.
MAIL ADDRESS
246 SEA ROAD
GULF STREAM, FLORIDA
33444
TEL.: GULF STREAM
2765116
Town Manager
WILLIAM E. GWYNN
Town Clerk
BARBARA GWYNN
Chief of Police
JAMES GREER
TOWN OF GULF STREAM
PALM BEACH COUNTY, FLORIDA
COMMISSIONERS
MAIL ADDRESS
246 SEA ROAD
WILLIAM F. KOCH, JR., Mayor
GULF STREAM, FLORIDA
JOEL HUNTER, Vice Mayor
33444
TEL.: GULF STREAM
ALAN I. ARMOUR
276.5116
MINUTES
ROBERT J. DIXSON
Town Manager
BRIAN PFEIFLER
TOWN COMMISSION MEETING
WILLIAM E. GWYNN
MARCH 14, 1986
Town Clerk
BARBARA GWYNN
Chief of Police
JAMES GREER
1. Roll Call.
Present Others Present
Mayor Koch Bill Gwynn, Town Manager
Vice Mayor Hunter Barbara Gwynn, Town Clerk
Commissioner Armour Gene Caputo, Town Consultant
Commissioner Dixson Jim Greer, Police Chief
Commissioner Pfeifler Clarence Sova, Public Works Supervisor
Lou Sessa, Code Enforcement Ofcr
John Randolph, Town Attorney
William Mayer, Chairman, Planning & Zoning
2. Approval of Minutes: February 14, 1986.
Mr. Armour stated that the item dealing with the removal of australian pines along
AlA was not correct. He felt the item should be referred back to the Planning &
Zoning Board to recommend an official Town policy to deal with the issue in the
future.
Following a motion by Mr. Armour and second by Mr. Hunter, the minutes were
unanimously approved as submitted.
3. Staff Report.
a. Financial Report
The Financial Report was unanimously accepted as presented by Mr. Gwynn.
b. Police Report.
The Police Report was unanimously accepted as presented by Chief Greer.
c. Manager's Report.
There was no specific Manager's Report for this meeting.
d. Bond Issue Project Report.
Mr. Gwynn stated that Mr. Caputo has changed his agreement with the Town and
has reduced his hours per week. As such he felt he could not continue
effectively coordinating the Town Hall Project. Therefore, Mayor Koch
reported on the progress of construction. He also asked that John Randolph
look into the contract with Executone for the new phone system.
Minutes
Town Commission Meeting
March 14, 1986
page 2
e. Town Attorney Report.
There was no specific Town Attorney Report at this meeting.
f. Public Works Report.
There was no specific Public Works Report at this meeting.
g. Code Enforcement Officer Report.
Mr. Sessa reported on the number of active permits. He also stated that
the Thorne residence has been sold and the property will be cleaned up.
4. Planning and Zoning Board Report.
P.B. 1185 -13.
A request by Mr. Samuel Ogren, agent for Mr. and Mrs. J. Paul Ekberg for final
site plan approval and determination of the front yard for the construction
of a new single family residence on property located at 5 Driftwood Landing.
Mr. Mayer presented the request and indicated that the Planning & Zoning Board
has recommended approval.
Upon a motion by Mr. Armour and second by Mr. Hunter, the request was
unanimously approved.
5. Landscaping - Gulf Stream School.
Mr. Pfeifler discussed his concerns and presented the problem.
6. Second and Final reading of Ordinance 86 -1 Adopting the Coastal Building
Code as recommended by the State of Florida.
Upon a motion by Mr. Dixson and second by Mr. Armour, Ordinance 86 -1 was
unanimously approved on second reading.
7. Commissioner Comments /Recommendations.
Upon a motion by Mr. Armour and second by Mr. Pfeifler, the Commission unanimously
approved full payment to Rusten Associates for preparation of the Police Study.
There was discussion on the Palm Beach County Solid Waste Authority and the
Growth Management Task Force.
8. Public Comments /Request.
There were no public comments or requests.
9. Adjournment.
e b g no further business, the meeting was adjourned at 10:15 A.M.
Eugene A. ,Caputo, Consultant
TOWN OF GULF STREAM
PALM BEACH COUNTY, FLORIDA
C�UMMISSIONERS MAIL ADDRESS
208 SEA ROAD
WILLIAM F. NOCH, JR., Mayor GULF STREAM, FLORIDA
JOEL HUNTER, Vice Mayor 37444
ALAN I. ARMOUR TEL.: GULF STREAM
2785118
ROBERT J. DIXSON March 27, 1986 Town Manager
BRIAN PFEIFLEfl
WILLIAM E. GWYNN
Town Clerk
BARBARA GWYNN
chief of Police
Mr. William Gwynn, Town Manager JAMES GREER
Town of Gulf Stream
246 Sea Road
Gulf Stream, F1.33444
6
Dear Bill:
As recommended by the current police study, requested by the Town Commission,
we would like to address the general issues set forth by the Rusten report.
Use of nationwide statistics in police departments is a traditionally accepted
method of standarization and can be a valuable tool in its basic structure.
But, as in most police agencies there are important variations from the general
procedures. These variations are implemented for numerous reasons, but most
importantly the department is molded to the specific needs and perculiarities of
its' jurisdiction. Statistics and opinions used to compile the recommendations
in the recent police study are generally accepted in the police community, but
are rarely ever followed to the letter. Over the past five or so years, by using
similar statistics and procedures as the mean average, variations have been made
in order to create the best possible police service for-the people of this commun-
ity.
Foremost, we would like to preface these comments with one observation. It appears
that we have been thrown in the melting pot along with numerous larger police
departments. The survey did not address all the priorities concerning our small
community. For example, when the survey mentioned that the sergeant would have
nothing better to do than seek out ordinance violations. In reality Gulf Stream
holds the enforcement of its' ordinances high in priority. We would like to pre-
serve the Town and not let it's inherent nature deteriorate as have other commun-
ities. As police procedures change throughout the nation, it does not necessarily
apply to us as an individual community.
In response to the nine recommendations made by the Rusten report:
Recommendation ill: The Police Department work schedule should be revised to
limit single patrol units to the overnight shift, when demand for police services
is at an extremely low level with a daily average of only .33 calls for service
between the hours of 11 p.m, and 7 a.m.
Response to #1: The scheduling of one unit on the 11 p.m. to 7 a.m. shift is not
a problem and can be implemented immediately, but it must be noted that certain
residents have already voiced their opinion that they would feel uneasy with
only one patrol on the midnight shift.
-2-
Recommendation #2: The Police Department work schedule should be revised to
provide four hours of road patrol /road supervison four days a week by the
Lieutenant; and full -time road patrol supervision by the Sergeant including
Saturdays and Sundays.
Response to #2(a): The Police Department has one full -time Lieutenant. His
job description has been revised to include more patrol activity and less paper-
work. The paperwork process will be absorbed during the different shifts by the
Sergeant and patrolmen.
Response to #2(b): The Police Department has one full -time Sergeant. It is
recommended in the police study that the Sergeant conduct full -time road patrol
supervision including Saturdays & Sundays. This would require an additional
promotion of a Sergeant. One of the two Sergeants would then act as a relief
person for the other during days off, vacation, sick, holidays, etc. This would
also enable us to continue with the investigative service which we have enjoyed
in the past. The Lieutenant would supervise on all other shifts not covered.
Both Sergeants and the Lieutenant would be working supervisors.
Recommendation 113: The Gulf Stream Police Department should increase its planning
of directed patrol activities. Such functions as beach patrol and radar traffic
control, and the coordination of patrol activities on each side of the Waterway,
should be determined and assigned on the basis of community needs, not left to
the patrol officers to work out based on their personal preferences.
Response to #3: The Gulf Stream Police has implemented this recommendation with
emphasis on random patrol as opposed to selective enforcement.
' Recommendation #4: The Chief of Police should meet with the Director of CDC to
determine the reasons for the several lengthy delays in dispatching Gulf Stream
patrol units during the month of January.
Response to #4: The Director of CDC, Mr. MacCaffrey has been apprised of all on-
going complaints with communications. Most problems have been alleviated. The
remaining discrepancies should disappear after CDC is reorganized.
Recommendation #5: The Gulf Stream Police Department should immediately insti-
tute the practice of maintaining a chronological file of dispatch cards supplied
it by the CDC. Dispatch cards should be retained by the Department for a period
of one year.
Response to #5: A filing system has been instituted to accomodate this recommend-
ation.
Recommendation #6: All dispatch cards should be reviewed by the Lieutenant, not
only to match them with officers' reports, but also to monitor time delays in
queue, patrol response times, volume and nature of Calls for Service, amount of
time officers spend in responding to Calls for Service, and the pattern of Calls
for Service in terms of months, days of week, and times of day.
Response to #6: This will be contained in the system indicated in #5.
Recommendation #7: The Town of Gulf Stream should continue its present practice
of surveying other Palm Beach County police departments annually to determine
current salaries in each rank, then take the appropriate steps to keep Gulf
Stream in the middle to slightly higher than middle salary range in all categories.
Response to #7: The police survey is currently in progress. The current statis-
tics were not available for the Rusten report. They will indicate some differences
compared to the report, such as the discrepancy in the ranking of the Chief's
C, annual salary, in top -out and bottom salaries of the patrolman. These and other
matters will be presented and discussed aL latur Cummissluu muuLlugs.
Recommendation N8: The Police Department's policy book should be amended to
limit to three hours the number of hours a sworn officer can work off -duty on
those days he is also scheduled to work his regular department assignment.
Response to N8: Most of our off -duty details average approximately 3 hours.
All details are subject to approval by the Chief. To implement policy circum-
venting the Chief's discretion in this matter would prove to be too restrictive
for our Department in its ability to function. We would suggest no changes in
current policy regarding this matter.
Recommendation N9: The Chief of Police should provide the Town Commission with
a written report by April 1, 1986 explaining how he intends to go about imple-
menting the recommendations in this report. He should also submit written
progress reports to the Commission, by May 1 and July 1, 1986, on the status
of implementing all of the recommendations.
Response to N9: It is hoped that the aforementioned statements will fulfill this
recommendation.
In conclusion we can easily see huw individuals outside could form an opinion and
criticise our Department, especially when compared to the national average. We
have made great strides to move away from the textbook policing and mold ourselves
\_ to the specific needs of this community. The Town has also made great efforts to
move away from a reactionary type police department and emphasize the prevention
of crime. The criticisms and recommendations are well taken. Some revision of
scheduling and policy is imminent. However, more than a minimal change in the
present system would be taking a step in the wrong direction. We would be going
back to square one. Let us keep the statistics within reasonable distance as a
guide, then go out and serve the Towns people as they are paying us to do.
James W. Greer
Chief of Police
EMERGENCY
ORDINANCE NO. 86 -1
AN ORDINANCE OF THE TOWN COMMISSION OF THE
TOWN OF GULF STREAM, PALM BEACH COUNTY,
FLORIDA, ADOPTING THE COASTAL BUILDING CODE
AS RECOMMENDED BY THE STATE OF FLORIDA,
DEPARTMENT OF COMMUNITY AFFAIRS, SO AS TO
MEET THE REQUIREMENTS OF THE STATE OF FLORIDA
"COASTAL ZONE PROTECTION ACT OF 1985 "; PROVIDING
FOR SEVERABILITY; PROVIDING FOR CODIFICATION;
PROVIDING AN EFFECTIVE DATE.
BE IT ORDAINED BY THE TOWN COMMISSION OF THE TOWN OF
GULF STREAM, as follows:
Section 1. The Coastal Building Code, as recommended
by the State of Florida, Department of Community Affairs, meeting
the requirements of the State of Florida, "Coastal Zone Protection
Act of 1985 ", is hereby adopted and incorporated herein as
fully as if set forth at length herein.
Section 2. If any provision of this Ordinance or
the application thereof is held invalid, such invalidity shall
Jnot affect the other provisions or applications of this Ordinance
which can be given effect without the invalid provisions or
applications and to this end the provisions of this Ordinance
are hereby declared severable.
Section 3. This Ordinance shall be codified and
made a part of the official Code of Ordinances of the Town of
Gulf Stream, Florida.
Section 4. This Ordinance shall take effect immediately
upon its passage and approval, as provided by law.
PASSED AND ADOPTED ON First READING THIS 14th
Second reading 14th of March, 1986
DAY OF February 1986.
'MAY-
ATTEST:
Town Clerk
Balances 2/28/86
Deposits
Withdrawals
Balances 3/31/86
Receipts
Electric Franchise
Real Estate Taxes
Lots Cleaned
Insurance Rebate
Interest
Fines
Licenses
Water
Trash
Cigarette Tax
Other
Permits
Emergency Medical Service
i Cent Sales Tax
Due From Construction Fund
Florida Revenue Sharing
Invested Funds
General Fund
Water
Police Department (Boat Sale)
Dredging
Sinking Fund
FINANCIAL REPORT
Month of March 1986
OPERATING ACCOUNT
86,718.40
88,333.38
112,572.92
62,478.86
9,168.67
33,563.33
90.00
5,233.00
2,957.86
600.00
326.79
20,551.39
6,423.48
202.87
170.60
2,232.75
2,140.00
1,724.64
1,460.00
1,488.00
Total 88,333.38
403,542.49
57,062.23
10,660.72
45,930.76
7,253.14
FINANCIAL REPORT cont. Page 2.
March, 1986
3965
Edgar Office Supply
Supplies
$ 24.09
66
Wm. Gwynn
Acct. Set. Car Allow. Sec.Ser.
1,520.00
67
City of Delray Beach
Water 1/20 -2/15 Pel. Lane. meter.
372.91
68
Southern Bell
T.H.
192.42
69
Dry Cleaning Unlimited
Police
71.15
70
Bill Wallace Ford
New police car
10,994.21
71
Void
72
Wizard Marketing
P.D.
54.95
73
R & R Uniform
P.D.
127.45
74
Russell & Axon, In.
Eng. Service to be reimbursed
447.75
75
AT &T
Lease equipment
8.55
76
AT &T
it it
72.57
77
Boynton Auto
Police D
73.04
78
City of Delray B each
Water 1/20 -2/15
14,038.41
79
Void
80
County Sanitation
March
198.00
81
Purity Uniform
Sanit. Dept
117.20
82
Ding -A -Ling
Answering service
35.00
83
Easy Pay Tire Stores
Police
312.51
84
Flagcraft Inc.
Flags for new T.H.
111.00
85
Fairchild - Lowell Corp.
P.D.
12.00
86
Gulf 011
Gas
862.68
87
The Good Life
Cassette Tapes
53.65
88
Void
89
Tom Sova
P.D.
200.00
C
90
Harris /3M
Supplies Copier machine
78.80
91
Scott Electric
Police trailer
329.00
92
Telpage
P.D.
13.00
93
Bill Wallace Ford
P.D.
632.80
94
Smith Bros.
P.D.
35.42
95
Town of Gulf Stream
P.D. Checking acct.
169.10
96
FP &L
Street lights.T.H. Maint.
1,252.78
97
Jim Ladden
Reimburse E.M.S.
140.00
98
Service Electric
Wiring light Fixtures New T.H.
Rem. 260.00
99
Town of Gulf Strem
Payroll
7,952.26
4000
Barnett Bank
W/H
1,612.00
01
Fla. Div. of REt.
S/S
1,858.98
02
USCM Def. Comp
Employee
951.00
03
Delray Credit Union
it
1,180.00
04
Transtronic
P.D.
332.76
05
Econo Auto Painting
P.D.
304.75
06
Chief Waites
P.B. Cty Chief of POlice dues
25.00
07
Rusten Associates
Police review
10,500.00
08
IDS Pension Plan
Employee
2,456.98
09
Town of Gulf Stream
P.R.
8,892.98
10
Barnett Bank
W/H
1,632.00
11
Void
12
Fla. Div. of Retirement
S/S
1,899.13
13
USCM Def Comp
Employee
951.00
14
Delray Municipal Credit Union "
480.00
15
Clarence Sova
T.H. supplies
223.39
16
Town of Ocean Ridge
Bal. due Fire contract
33,962.00
17
BoDel
Printing
63.80
18
The News of Delray
Adv. Notices of meeting etc.
27.51
FINANCIAL REPORT Cont. Page 3.
March, 1986
4019 Ding -A -Ling
20 Dr. Galainena
21 Gulf OI1 Corp.
22 Aid to Traffic
23 Hoxies Shoes
24 IBM
25 IDS
26 Multiplier Industries
27 P.B. Cty Solid Waste
Answering service
Physical new police officer
Gas
Signs
P.D.
Maint. Agreement
Employee pension fund
P.D. Supplies
Trash disposal
$ 35.00
75.00
840.25
161.25
65.00
64.46
2,456.98
69.92
689.08
Total $112,572.92
Cl FINANCIAL REPORT Cont. Page 4
March, 1986
1920 Helmes 3/1 - 3/14
$ 198.44
21 Greer
821.74
22 Stocks
748.60
23 Buchan
57.27
24 Hatton
635.54
25 Burtka
756.32
26 Neff
653.46
27 Williams
725.17
28 Schunck
570.63
29 Sova
538.32
30 Colebrook
456.78
31 Gwynn
600.24
32 Delorme
556.87
33 Pickering
438.96
34 Schmitz
193.92
35 Helmes 3/15 - 3/28
198.44
36 Greer
821.74
37 Stocks
624.94
38 Buchan
757.27
39 Hatton
635.54
40 Burtka.
756.32
41 Neff
653.46
42 Williams
725.17
v 43 Schunck
570.63
44 Sova
538.32
45 Colebrook
456.78
46 Gwynn
600.24
47 Delorme
556.87
48 Pickering
398.96
1949 Schmitz
598.30
Total
16,845.24
C o W �� ��) 4 C I A �� C e p y
A S S E S S M E N T O F
G U L F S T R E A M P O L I C E D E P A R T M E N T
T O W N O F G U L F S T R E A M , F L O R I D A
F E B R U A R Y 1 9 8 6
RUSTEN ASSOCIATES
655 Fifteenth Street, N.W.
Suite 320
Washington, D.C. 20005
(202) 639 -4201
February 28, 1986
Mr. William E. Gwynn
Town Manager
Town of Gulf Stream
246 Sea Road
Gulf Stream, FL 33444
Dear Mr. Gwynn:
3250 Wilshire Boulevard
Suite 900
Los Angeles, California 90010
(213) 857 -8368
MANAGEMENT
CONSULTANTS
We submit herewith the final report of our assessment of the management,
operations, and staffing of the Gulf Stream Police Department.
Gulf Stream is an unusual community in many respects, and it requires a type
and emphasis of police service that are not commonly found in other communities.
By and large, the department is serving Gulf Stream well. However, some improvements
in management and operations are in order, and more effective utilization of existing
manpower would provide increased patrol coverage without the degree of staffing
increases that has been discussed previously by the Town Commission. Our specific
findings and recommendations are discussed in detail in this report.
We wish to thank you, the Mayor and Town Commissioners, the Town Clerk,
the Chief of Police, and all of the members of the Gulf Stream Police Department
for the support and cooperation we received during the course of this study. We also
wish to thank those officers and members of the Town of Gulf Stream Civic Association,
Inc. who participated in this study by providing us with their perceptions and suggestions
concerning police services.
Sincerely,
RUSTEN ASSOCIATES
(�-1/4 61 � 1 4"
Allan C. Rusten
President
Chapter
I
II
III.
TABLE OF CONTENTS
Page No.
INTRODUCTION 1
Background of the Study 1
Objectives and Scope of the Study 1
Methodology of the Study 2
Arrangement of This Report 3
FINDINGS AND RECOMMENDATIONS 4
Overview of the Department
4
Organization and Operations of the Department
4
Manpower Utilization and Staffing Levels
6
Calls For Service
7
Utilization Factor
9
Response Times
10
Time of Call in Queue
10
Staffing Levels
10
Dispatch and Records
13
Police Department Salaries
14
Other Concerns and Issues
15
Facilities and Equipment
15
Rules and Regulations
15
Off -Duty Employment
16
Wearing of Uniform by Chief
16
Marine Patrol
16
Future Leadership of the Police Department
17
Concluding Comments
17
Summary of Recommendations
19
PLAN OF ACTION PO
APPENDICES
APPENDIX A. PERSONS INTERVIEWED
APPENDIX B. RECOMMENDED POLICE SCHEDULE
I. INTRODUCTION
. r
I'IC 1. lNTRODucriON
L_
Background of the Study
In August 1985, the Town Manager received a memorandum from one member
of the Town Commission concerning "current police matters related to 1985 -86 budget
— requirements." The memorandum recommended police personnel additions and increased
salaries for police officers.
The memorandum further stated:
"Should the Commission adhere to its present position, there is
an alternative - however only as a constructive means of ultimate
resolution of this serious problem - namely that $5,000 be included
in the 1985 -86 budget for the purpose of retaining and paying a
well - qualified expert of known repute in police affairs, who would
study and report his findings and recommendations as to the
structure of our Police Department and its manpower adequacy to
meet the present and future needs of the Town of Gulf Stream."
In December 1985, the Town of Gulf Stream Civic Association, Inc. advised
the Mayor by letter that it supported the suggestion to "engage the services of an
independent consultant" and offered to financially support the study "which should
provide professional answers to existing questions."
Subsequently, the Town of Gulf Stream received formal written proposals from
three organizations prepared to conduct a study of the Town's police department.
The Town selected Rusten Associates to conduct the study and executed an Agreement
with the consulting firm on January 10, 1986.
Objectives and Scope of the Study
The objectives and scope of the study of the Gulf Stream Police Department
are spelled out in the Rusten Associates proposal of December 11, 1985, which was
subsequently made a part of the Agreement between the Town of Gulf Stream and
the consulting firm. The specific tasks to be performed were described as follows:
Task 1. Review and analyze pertinent documents and data, including but not limited
to the following:
• Current organization charts of the Police Department;
• Personnel lists and staffing assignments, including shift rosters for
both sworn officers and civilian personnel;
• Rules and regulations of the'department and all administrative orders;
• Personnel rules and ordinances that apply to the department;
• Existing bargaining agreements that cover department personnel;
• The present and most recent department budgets;
• All written procedures covering operations of the various units or
functions of the department;
-1-
I' Y
o All available newspaper clippings and other material published
over the past year concerning the Police Department; and
' o All available statistics and reports concerning crime rates, clearances,
crime analysis, and workloads (e.g., by patrol area, by hours, days
and months).
Task 2. For the purposes of obtaining overview perceptions of Police Department
management, operations, staffing and performance, as well as community
perceptions as expressed by citizens to their representatives, conduct
individual, in -depth interviews with the Mayor and members of the Commission,
with the Town Manager, and with other Town officials who have ongoing
professional dealings with the Police Department. In addition, conduct
a group interview with appropriate officers of the local civic association(s)
to obtain their views of police department and public safety issues in
Gulf Stream.
Task 3. For the purposes of obtaining information concerning the organization,
management, operations, workloads, productivity, personnel practices,
and staffing levels of the Police Department, conduct individual, in -depth
interviews with the Chief of Police and the ten other members of the
Police Department.
Task 4. Observe daily Police Department operations, and inspect facilities and
equipment as appropriate.
Task 5. Review and analyze all available workload data for each unit or activity
C of the Police Department. Develop our own sample of service demand
levels by utilizing Calls for Service data for specific months, days of week,
times of day, and by Patrol zone or district.
Task 6. Distill and analyze all of the data collected during performance of Tasks
1 -5. Prepare a written report of our findings of the strengths and weaknesses
of the Police Department, as they relate to organization, management,
operations, workloads, productivity, personnel practices, staffing levels,
and other associated areas. Formulate appropriate suggestions and recommendations,
and develop a written Plan of Action which sets forth a time - sequenced
and prioritized schedule for implementing the various recommendations.
Produce the final written report in 15 copies.
Task 7. Formally present the final report(s) to the Mayor and Commission, and
to the Town Manager and Chief of Police, at public and /or private sessions,
and discuss the implications of the report contents.
Methodology of the Study
Rusten Associates initiated the Police Department study in Gulf Stream on
January 21, 1986. Two members of the consulting team (Allan C. Rusten, Project
Manager; and James T. Nolan, Senior Associate) spent a total of seven man -days
in Gulf Stream conducting 18 in -depth interviews with Town officials and members
of the Police Department, and meeting with 13 officers and members of the Gulf
Stream Civic Association (see Appendix A); observing daily operations in the Police
Department; and inspecting appropriate equipment And facilities /plans.
-2-
i_
L
The consulting team spent an additional 12 man -days collecting, reviewing and
analyzing various documents pertaining to this assignment; developing a sample data
base to measure Police patrol workloads utilizing complaint /dispatch cards provided
through the South County Cooperative Dispatch Center (CDC); and then distilling
and analyzing the information gathered, arriving at conclusions and formulating rec-
ommendations, where appropriate.
The remainder of this report represents the product of the consultants' efforts.
Arrangement of This Report
In addition to this introductory chapter, there are the following chapters in
this report:
Chapter II contains our findings of the strengths and weaknesses of the Gulf
Stream Police Department and our recommendations for increasing the effectiveness
of the department.
Chapter III is the Plan of Action for implementing the recommendations on
a prioritized time schedule.
Appendix A contains a list of all persons interviewed during the study in Gulf
Stream.
Appendix B contains our recommended working schedule for the Gulf Stream
Police Department, requiring no additional personnel.
Appendix C contains an alternate schedule for the Gulf Stream Police Department
should the Town Commission decide to add one police officer.
r
-3-
I
II. FINDINGS AND RECOMMENDATIONS
` II. FINDINGS AND RECOMMENDATIONS
A. Overview of the Department
The Gulf Stream Police Department consists of a Chief, a Lieutenant, a Sergeant,
seven patrol officers and a civilian secretary. All officers hired by the current chief
have prior police experience (a policy with which we concur). Only one officer is
a holdover from the previous police administration, so the present Chief has been
able to mold this department to his own style.
That style appears to be a blend of strict discipline, as clearly and simply stated
in the department's Policy Book, delegation of responsibility and decision - making
down to the patrol officer level, and participatory management in instances such
as the selection of new personnel.
All in all, this appears to be a well -run and well- functioning department. Morale
and job satisfaction are as high — perhaps higher — as in any of the 30 or so other
police departments we have assessed throughout the country. The sworn officers
have an unusually high regard for their Chief, and they thoroughly like the citizens
they serve and the manner in which the citizens of Gulf Stream treat them.
Quite frankly, Gulf Stream is a wonderful place to work as a police officer.
The crime rate is extremely low; the workload is almost non - existent; most calls
for service are for false alarms of residential security systems; there are few occasions
to make arrests; there are virtually none of the stresses and tensions that attend
C� police work in more diversified communities; and there are a number of fringe benefits
and /or job conditions which are not normally accorded police personnel elsewhere.
Only the young police officer in search of "action" would find Gulf Stream an undesir-
able place to work.
B. Organization and Operations of the Department
The Chief of Police is clearly in command of this small department, and he
interacts directly with his personnel constantly. The Chief's time is divided among
responsibilities for overseeing the department; dealing with officials of the Town
government; meeting with community leaders as the need arises; interacting with
other Chiefs of Police in investigative, policing and professional matters; and taking
lead responsibility for the few ongoing criminal investigations with which the depart-
ment is involved.
The Lieutenant, a position recently upgraded from sergeant, serves as second
in command, works the same Monday through Friday day shift hours as the Chief,
and is responsible for a limited amount of paperwork. By his own estimates, the Lieu-
tenant currently spends only one hour or so on the road each day, essentially looking
for ordinance violations, and has only two to three hours of paperwork to do most
days. While the Chief would like the Lieutenant to be at his beck and call in the
Police Department office at all times the Chief is present, the Lieutenant simply
doesn't have enough paperwork to fill his time and is therefore under - utilized. We
,1 believe he should be more of a working supervisor, and we will have recommendations
on this subject in the "Manpower Utilization" section of this report.
-4-
The sole Sergeant in the department, who describes himself as the patrol oper-
ations supervisor, normally works a 4 p.m. to midnight shift, Monday through Friday,
so that he can communicate with the Lieutenant and Chief before they go off duty
at 5 p.m. and can supervise patrol officers during most of the 3 p.m. to 11 p.m. shift,
as well as oversee the start of the 11 p.m. to 7 a.m. shift. When there is only one
patrol unit on duty during the 3 p.m. to 11 p.m. shift, the Sergeant serves as a working
supervisor and actually performs as a patrol officer. When two units are working
that shift, he serves in a far less productive capacity, seeking out ordinance violations.
In addition, the Sergeant is often pulled off his shift for other purposes which may
include following up on investigations and making automotive and equipment repairs.
As in the case of the Lieutenant, we believe the Sergeant is not used in the most
productive manner possible. As supervisor of road patrol, he should be a working
supervisor, in our view. We will have recommendations on this matter in the "Manpower
Utilization" section of this report.
With the Chief, the Lieutenant and the Sergeant all working Mondays through
Fridays, there is occasionally a problem of lack of supervisor availability on weekends.
Patrol officers have no problem contacting a supervisor by telephone during the week,
even during the 11 p.m. to 7 a.m. shift. However, they do report some difficulties
in locating a supervisor on weekends when the need arises, especially if only one patrol
unit is on duty. We will have a suggestion on this matter subsequently.
Given the small size of this department, there is no formal organizational structure
in terms of divisions or sections. If there were, the overriding organizational unit
would be the Patrol unit, because road patrol is the primary purpose and activity
of this department. Patrol coverage of Gulf Stream is provided by three operating
shifts (11 p.m. to 7 a.m.; 7 a.m. to 3 p.m.; and 3 p.m. to 11 p.m.) seven days a week
the year 'round. On most shifts there are two patrol units or police vehicles assigned,
but only one unit is currently assigned on approximately 24 percent of the shifts.
Patrol units and personnel are given substantial latitude in carrying out their
duties. All are expected to conduct random patrols up and down streets and, in many
cases, driveways on the east side of the Intracoastal Waterway, and through the streets
of Place Au Soleil on the west side of the Waterway. While the hope is that one patrol
unit will always be on each side of the Waterway (when two are on duty), there is
no formal system to assure this. In fact, there is no formal system of patrol, so it
is not uncommon for one patrol unit to inadvertently follow the other down the same
streets.
When there are two patrol units on duty, the officers have other options open
to them. They may set up radar units to control traffic on AlA. They may park
their police car and use the 4 -wheel Honda for beach patrol (normally on Saturdays
and Sundays for periods of approximately two hours).
While this system is substantially more informal than we would prefer, it appears
to work for Gulf Stream. And it does help the officers combat the most serious problem
they face during their shifts, which is boredom. Nevertheless, we will have recommend-
ations regarding directed patrol activities in a later section of this report.
There is no formal organizational structure in the Gulf Stream Police Department
for conducting criminal investigations. Several police officers are trained in crime
scene techniques and handle fingerprinting, photographic and other related duties
-5-
as and when they are needed. The Chief, with his background as a detective, takes
the lead in handling criminal investigations. There was a time when officers were
assigned on a monthly basis to work on investigative follow -ups, but those duties
now tend to fall to the Chief and the Sergeant, although other officers may be utilized
for occasional stakeouts. However, such overtime activity is not extensive, and the
department stays within its budget for salaries and wages. There is substantial contact
maintained with other police departments in the hope that open cases can be cleared
through joint actions. Fortunately, Gulf Stream's need for investigative capabilities
is minimal given the existing rate and nature of crime in the community. It would
have even less need if it were not for the reluctance to allow the Palm Beach County
Sheriff's Department to handle such investigations. That reluctance stems from the
belief that Gulf Stream cases would be of such low priority as to receive little or
no attention.
C. Manpower Utilization and Staffing Levels
Three issues or concerns are, to a great extent, the primary reasons this study
was conducted. Two are related — a request for additional manpower and a desire
to have two police units in service at all times. We will deal with those matters in
this section of the report. The third issue, salaries, will be addressed in a subsequent
section.
In the discussions which took place in Gulf Stream prior to this study relative
to the need for four additional police officers (a 40 percent increase in the number
of sworn personnel), it would appear that a substantial amount of erroneous information
i and data somehow found their way into the debate. For example, in documents we
reviewed, we found factual errors concerning:
-The number of working police shifts per year;
-The number of man -hours required to field two police officers per shift
year 'round;
-The percentage of time a police officer is actually available for duty
after vacation, sick leave, and other time demands are subtracted;
-The percentage of time Gulf Stream is covered by only one police officer;
and
-The salary ranking of Gulf Stream as compared with other police departments
in Palm Beach County.
Interestingly, not one member of the Gulf Stream Police Department says there
is a need for additional officers. Some say they wouldn't know what to do with them.
Even when the normally emotional subject of backup support is mentioned for those
instances when only one patrol unit is on duty, the Gulf Stream officers say there
is no problem because officers from Delray Beach and Ocean Ridge are available
if the need arises.
We shall attempt to put aside emotion and erroneous information, and instead
look at the facts which should govern logical decisions about manpower utilization
and staffing levels.
C, Calls For Service
Because the workload of the Patrol function within a police department represents
the initial response to the public's demand for service, it serves as an excellent barometer
of the service demands placed on a department. Such service demands can be analyzed
to determine the extent to which resources (manpower, equipment, etc.) are needed,
where they are needed, and when they are needed.
Normally, the basic data are available within a police department's records
unit and /or its dispatch center. In Gulf Stream's case, the data source is the complaint
or dispatch card which is filled out by the South County Cooperative Dispatch Center
(CDC) when a citizen telephones in for police assistance (a Call For Service). On
each card (which is dated), the CDC records the time the telephone call was received,
the time the patrol unit was dispatched, the time the patrol unit arrived at the scene,
and the time the patrol unit cleared or left the scene after completing its work /investig-
ation. The CDC provides batches of the complaint cards to the Gulf Stream Police
Department periodically, and the cards are matched with the reports police officers
must prepare for each call to which they respond. Gulf Stream then disposes of the
complaint cards, a practice about which we will comment later.
When we initiated our study and sought to develop a data base of Calls For
Service covering the past year at various seasons, months, days and times of day,
we found that there was no historical record maintained. The Gulf Stream Police
Department, in destroying complaint cards after matching them with written police
reports, was under the impression that the CDC in Boca Raton was maintaining copies
/- of the complaint cards. However, the CDC has not been maintaining such copies.
,! Therefore, the only complaint cards available to us for analysis were for the period
December 30, 1985 through January 22, 1986.
The model we use to measure patrol workload and manpower utilization in police
departments is based on other national studies. Simply stated, the model separates
patrol response to Calls For Service (CPS) into one category and all other patrol activ-
ities into a second category. That second category includes every type of patrol
activity other than responding to Calls For Service. Examples would include meal
breaks, administrative duties, and vehicle maintenance; directed patrol activities
such as checking vacant houses, operating a radar unit at a fixed post, and activating
the beach patrol; and finally random or deterrent patrol, where patrol units or vehicles
cruise around their respective zones or areas.
The national experience indicates that the practical utilization of a patrol officer
for responding to Calls For Service (CFS) should not exceed 45 percent of his /her
available time per shift. In Gulf Stream, the patrol officer spends less than four
percent of his time per shift responding to Calls For Service. National studies demonstrate
that a patrol officer needs about 55 percent of his /her time per shift for those other
types of activities and functions described previously, including random or deterrent
patrol. In Gulf Stream, the average patrol officer has approximately 83 percent of
his shift for those other activities, including random /deterrent patrol. Said another
way, a single patrol unit in Gulf Stream is able to provide about three times the amount
of deterrent patrol of the community than is possible in other communities. This
factor is an essential consideration in evaluating Gulf Stream's situation.
-7-
Calls for Service (CFS) represent the most commonly used measure of police
C, workloads and the level of service demands placed on a police department. In Gulf
Stream, the CFS workload is exceedingly low. Based on statistics provided us by the
Gulf Stream Police Department, here is the volume of Calls For Service to which
the department responded during all of 1985:
January 69
February 64
March 93
April 77
May 64
June 81
July 73
August 91
September 77
October 55
November 72
December 77
Total 1985 893
The total of 893 Calls For Service during 1985 represents a daily average of
2.4 Calls For Service or less than one Call For Service per shift per day.
When the Calls For Service in 1985 are analyzed by time of day, it is clear that
there is virtually no demand for police service between the hours of 11 p.m. and 7
/ a.m.
Time of Day CFS
11 p.m.- 1 a.m.
56
1 a.m. - 3 a.m.
30
3 a.m. - 5 a.m.
19
5 a.m. - 7 a.m.
16
7 a.m. - 9 a.m.
71
9 a.m. - 11 a.m.
109
11 a.m.- 1 p.m.
96
1 p.m. - 3 p.m.
101
3 p.m. - 5 p.m.
111
5 p.m. - 7 p.m.
102
7 P.M. - 9 P.M.
74
9 P.M. - 11 P.M.
108
Based on the department's statistics for all of 1985, there was a daily average
of only .33 Calls For Service between the hours of 11 p.m. and 7 a.m., and a daily
average of 2.1 Calls For Service between the hours of 7 a.m. and 11 p.m.
The new data we gathered and analyzed for most of January 1986 corresponds
generally with the 1985 statistics. For example, while the daily average of Calls
For Service in 1985 was 2.4, the daily average during our 1986 sample period was
3.5. As for the time of day at which the Calls For Service were received, there was
a daily average of only .60 Calls For Service between 11 p.m. and 7 a.m., and a daily
average of 2.91 Calls For Service between 7 u.m. and l l p.m.
Utilization Factor
Another recognized measurement of workloads and manpower utilization concerns
the degree to which available patrol personnel or patrol units are actually used. The
Gulf Stream Police Department has averaged five patrol units on duty each day.
Total minutes available is determined by the number of hours in the time frame being
measured, multiplied by 60 minutes, multiplied by the number of units in operation.
We have determined total minutes utilized by adding the amount of time shown
on dispatch cards from dispatch to clearance, then adding 20 minutes for the writing
of a report for each Call For Service. Our data sample consisted of 75 dispatch cards
for the period December 30, 1985 through January 22, 1986. As explained previously,
these were the only dispatch cards available for sampling. The data reveal the follow-
ing
( *Due to there being fewer than one Call For Service per two -hour time frame, we
have assigned to each time frame 20 minutes for the writing of a report. Even with
this addition, there remains an extremely low utilization factor in the Town of Gulf
Stream, due primarily to the low number of Calls For Service).
In addition to responding to Calls For Service, patrol units spend time for main-
tenance and service, which includes personal needs such as meal breaks; and special
details, stopping vehicles, assisting motorists, etc. Based on our analysis of the January
sample, the daily average percentage of time used for these activities by Gulf Stream
patrol officers is 3.7 %.
When we combine the 3.7% of time used for service and maintenance activities
and the average utilization factor of 12.9% per 24 hour period, we find that the average
amount of time utilized per day per shift is 16.6 %. This leaves 83.4% of a patrol
1 officer's time for some form of preventive patrol activities in Gulf Stream. In most
departments nationally, the time available for such preventive patrol activities is
No. of Units
Total Minutes
Total Minutes
% of Time
Time Frame
On Patrol
Available
Utilized
Utilized
Mid - 2am
1
120
*22.6
18.8%
2am - 4am
1
120
*21.4
17.8%
4am - 6am
1
120
*20.6
17.1%
6am - 8am
1
120
*22.9
19.1%
Sam -loam
2
240
*26.4
11.0%
loam -Noon
2
240
*23.5
9.8%
Noon- 2pm
2
240
*24.3
10.1%
2pm - 4pm
2
240
*22.1
9.2%
4pm - 6pm
2
240
*21.9
9.1%
6pm - 8pm
2
240
*22.9
9.5%
8pm -1 Opm
2
240
*27.5
11.5%
lOpm- Mid
2
240
*27.2
11.3%
( *Due to there being fewer than one Call For Service per two -hour time frame, we
have assigned to each time frame 20 minutes for the writing of a report. Even with
this addition, there remains an extremely low utilization factor in the Town of Gulf
Stream, due primarily to the low number of Calls For Service).
In addition to responding to Calls For Service, patrol units spend time for main-
tenance and service, which includes personal needs such as meal breaks; and special
details, stopping vehicles, assisting motorists, etc. Based on our analysis of the January
sample, the daily average percentage of time used for these activities by Gulf Stream
patrol officers is 3.7 %.
When we combine the 3.7% of time used for service and maintenance activities
and the average utilization factor of 12.9% per 24 hour period, we find that the average
amount of time utilized per day per shift is 16.6 %. This leaves 83.4% of a patrol
1 officer's time for some form of preventive patrol activities in Gulf Stream. In most
departments nationally, the time available for such preventive patrol activities is
closer to 25%. Thus, the average patrol unit in Gulf Stream has the preventive patrol
C time availability of three patrol units in most Other cities. This is all important factor
in considering the type of law enforcement activities needed in Gulf Stream because
while a single patrol unit cannot cover three areas at once, it can patrol an area over
a given shift that would.require three units elsewhere.
Response Times
Police response times in Gulf Stream are quite good. Our analysis of the January
sample of dispatch cards indicates that police response time (elapsed time from the
dispatch of a patrol unit to its arrival on the scene) averaged 3.5 minutes. The highest
single response time was 13 minutes, and three others exceeded 10 minutes.
Time of Calls In Queue
When we speak of the length of time calls are held in queue we are referring
to the time that elapses in CDC between receipt of the telephone Call For Service
and the dispatching of a Gulf Stream patrol unit. In this instance, time of calls held
in queue is beyond Gulf Stream's direct control because the personnel involved are
employees of the CDC. Nevertheless, there appears to be a problem in this area
which needs the attention of the Gulf Stream police leadership.
Our analysis of the January dispatch card sample reveals that there were inordinate
i delays in the dispatching of patrol units in several instances. Calls were delayed
in queue an average of 1.49 minutes, which is reasonable. What is unreasonable are
the calls that were delayed in queue for as long as 10 minutes. Those January delayed
dispatches which should be reviewed by the Gulf Stream police leadership are as follows:
10 minutes - Assist
7 minutes - Suspicious Person
6 minutes - Alarm
5 minutes - Medical
4 minutes - Alarm
4 minutes - Alarm
3 minutes - Alarm
3 minutes - Alarm
Staffing Levels
When we examine all of the data that normally dictate the number of police
personnel that are required to serve the needs of a community — the number of Calls
For Service, the manpower utilization factor, the nature and degree of crime in the
community, and the number of arrests that are made — we reach the conclusion that
the Town of Gulf Stream does not need additional police officers.
This conclusion is based on the facts that:
oPatrol personnel are called upon to respond to only two or three Calls
For Service per day. That means officers are spending less than four
-10-
percent of their time meeting demands for service, as compared to other
communities where responding to CFS represents 25% to 45% of patrol
officers' time;
oPatrol personnel in Gulf Stream are free during more than 83% of their
shifts to provide preventive patrol. That's three times the amount of
deterrent patrol time available in most communities.
oAll data show that there is little demand for police services during the
hours of 11 p.m. to 7 a.m.
oEven when only one patrol unit is on duty in Gulf Stream, the utilization
of a patrol officer never exceeds 20 %, as compared to the nationallyrecognized
maximum utilization of 45 %.
oThere were only 19 reported felonies in Gulf Stream during the last reporting
year (June 1, 1984 - June 1, 1985)and only six criminal and three criminal
traffic arrests.
However, we do believe that a number of actions should be taken to enhance
patrol coverage in Gulf Stream and to correct several deficiencies which currently
exist, as follows:
Deficiency: Gulf Stream does not have sufficient police manpower to operate
two patrol units on all shifts. At the present time, single units are scheduled for
duty at various times of the day and night, on all three shifts, depending on how the
schedule falls. Insufficient attention is paid to scheduling single patrol units when
service demands are at their lowest levels.
1: The Police Department work schedule should be revised to limit
a.m.
Deficiency: The department's Lieutenant and Sergeant are under - utilized and
should spend far more of their time as working supervisors on road patrol.
Deficiency: The Chief, the Lieutenant and the Sergeant all work Mondays through
Fridays. No supervisors are scheduled for weekend duty, and patrol officers say they
sometime have difficulty reaching a supervisor on weekends.
We have developed a schedule which will achieve implementation of Recommendations
1 and 2. The schedule accomplishes the following:
— Limits one -unit patrols to 3 a.m. to 7 a.m. Mondays through Thursdays,
and to 11 p.m. to 7 a.m. Fridays through Sundays, when service demands
are at their lowest levels.
-11-
-- Provides for a relief patrol unit that can be used to fill in for officers
who are on vacation, ill, taking compensatory time off, attending classes,
etc. or can be used for special assignments, investigations, or to add
a second patrol unit to those that have only one scheduled.
-- Schedules the Lieutenant for four hours of road patrol /road supervision
Mondays through Thursdays, giving him four hours those days and all
day Fridays to complete his paperwork and special assignments the
Chief may give him.
-- Schedules the Sergeant for duty Thursdays through Mondays, thereby
providing supervisor presence on the weekends, and assigns him full -time
to road patrol /road supervision.
-- Rearranges some of the standard shift times in order to provide patrol
coverage when it is needed.
The schedule we have developed for the Gulf Stream Police Department appears
in Appendix B.
It is our professional judgment that this schedule will meet the needs of the
Gulf Stream community without any increase in police personnel. It reduces to a
maximum of 40 hours out of the 168 hours in a week (23.8 %) the time when only one
police unit is on duty, and these hours are the least eventful and most quiet in the
community, as demonstrated by Police Department records.
If the Town of Gulf Stream decides that it wants two patrol units on duty at
all times, regardless of service demand levels and workloads, then one police officer
must be added to the department. In that event, the department would have to use
a different schedule, which is shown in Appendix C.
Before we leave the subject of police department schedules, it must be stated
that there is near - unanimous support among Gulf Stream police officers for what
is called the 4 -10 schedule. Under such a plan, the officers work four days a week,
10 hours a day. Depending on how the schedules are arranged, officers can have three
or four consecutive days off. This is a schedule which is very popular among police
officers around the country because, among other things, it enhances their ability
to hold off -duty jobs or operate their own businesses. It is generally regarded as
being quite beneficial for the police personnel but not necessarily to the community.
Its only advantages from management's point of view are that it is great for morale
(which is already quite high in Gulf Stream), and it could move this department closer
-- but not all the way -- to having two units on duty at all times. Its disadvantages
are that it creates 10 -hour work days which can add to the boredom factor and decrease
the alertness of police officers, presents even longer (perhaps dangerously long) work-
days for officers who also moonlight, and creates administrative and management
difficulties which are unnecessary. Professionally, we recommend that departments
not institute such schedules because they usually breed more problems than they
solve.
Deficiency: The Gulf Stream Police Department currently allows its officers
to decide for themselves (or, in some cases, among themselves) who and when they
-12-
will operate the 4 -wheel Honda for beach patrol and the radar units for traffic regula-
tion on AlA, and how (or if) the two units on duty will work out arrangements to
have one police car on each side of the Intracostal Waterway at all, or most, times.
In view of the fact that patrol officers in Gulf Stream have some 83% of their shifts
available for preventive or random patrol, we believe the department leadership should
engage in more planning of structured patrol activities.
D. Dispatch and Records
The South County Cooperative Dispatch Center (CDC) currently provides dispatch
services for the Gulf Stream Police Department. We are quite familiar with the
management and operations of the CDC as the result of our previous assignments
in the Boca Raton area, and we have always had a high professional regard for the
proficiency of that organization. However, as discussed previously in this report,
our analysis of dispatch cards for the month of January reveals inordinate delays
in queue, or delays in dispatching Gulf Stream patrol units after receiving telephone
Calls For Service from citizens. This matter needs the immediate attention of the
police department's leadership.
4:
the
were shown in an ea earlier section of this repreport. por delays in queue
We have previously discussed the fact that the Gulf Stream Police Department
has not been filing dispatch cards supplied it by the CDC because of lack of space
in its present cramped quarters. This situation was further compounded by a misunder-
standing by which the department erroneously thought the CDC was retaining copies
of dispatch cards it was supplying to the department. As a result, we could find no
historical records of Calls For Service, time held in queue, response times, and the
other important management information which is available on dispatch cards and
which should be utilized by a police department continually to monitor its own effic-
iency and workloads.
space
are completed.
Gulf
new
one
-13-
analysis should serve as the basis for allocation of resources to ensure that manpower
is being utilized when and where needed. Such analysis should also provide guidance
as to when and how patrol schedules should be adjusted.
The CDC currently serving Gulf Stream will be disbanded within the next year
or so, and through a realignment of participating police agencies, it is anticipated
that Gulf Stream will receive its dispatch services from the City of Delray Beach.
It is imperative that sufficient planning and negotiations be dedicated to that transfer
so that Gulf Stream obtains the level of service it requires. The type of monitoring
of dispatch cards described in Recommendation 6 above will be especially important
when dispatch services are moved to another agency, such as Delray Beach.
During the course of our fact - finding in Gulf Stream, we were asked if the Town
should consider setting up its own dispatch operations. Now that we have been able
to assess all of the data, we would strongly recommend against such a step. Gulf
Stream's Police Department receives so few Calls For Service (about three a day)
that a separate dispatch unit is simply not warranted. When we factor in the cost
of equipment, supplies, and personnel to operate the dispatch center 24 hours a day,
seven days a week, it is clearly not a cost - effective approach.
E. Police Department Salaries
We noted previously that one of the issues which, at least in part, led to this
study is the contention of one member of the Town Commission that police salaries
in Gulf Stream are inadequate.
Our analysis of comparative salary data made available to us through the Police
Department and the Town Clerk reveals the following:
--The 1985 Quad- County Survey of Palm Beach, Broward, Dade and Monroe
Counties shows that the salary paid to the Chief of Police in Gulf Stream
ranks fourth highest among a total of 11 police departments in Palm
Beach County represented in the survey.
—A 1985 salary survey of 28 police agencies in Palm Beach County, conducted
by the Gulf Stream Police Department, shows that the Chief's salary
ranks fifth highest among 12 departments responding.
—The same 1985 salary survey shows that the salary paid a Sergeant in
Gulf Stream is second highest among 17 departments at the entry level,
but it drops to 11th among the 17 departments at the maximum level.
—That same 1985 salary survey shows that the salary paid a police officer
in Gulf Stream ranks 11th highest among 28 departments at the entry
level, then tails off slightly to 15th among the 28 departments at the
maximum level.
In summary, then, Gulf Stream's salaries for police personnel are generally
higher than most police agencies in the county, except for the maximum or top -out
salaries for sergeant (slightly below mid - range) and police officer (at mid - range).
-14-
L
i
L
1
Given the size of Gulf Stream and its police department, the general working
environment and the lack of usual police work stress, and the fringe benefits provided
to police personnel including generous Christmas bonuses and a liberal sick leave
policy which allows sick day use for vacations and pay for unused sick days at time
of severance, it is our professional judgment that the present police compensation
package is quite appropriate.
As final observations on the subject of salaries, we find no evidence of personnel
turnover in the Police Deparment as a result of salary displeasure. In addition, we
interviewed each member of the department and not one of them cited salaries as
a problem or area which needed improvement. In the words of one officer, "We get
good pay for what we do." We would concur with that statement.
F. Other Concerns and Issues
During the course of our study in Gulf Stream, a number of lesser issues or
items of concern came to our attention. We shall comment upon each in this section
of the report.
Facilities and Equipment
The Gulf Stream Police Department is well- equipped and has little difficulty
in obtaining whatever equipment they feel they need, within reason.
As for space facilities, at the time of our fact - finding visit the department
was cramped in inadequate facilities in the Town Hall and in a temporary trailer
in the parking lot. That situation will change dramatically when the new Town Hall
is opened and the old building is converted into the new police headquarters.
We have examined the plans for the new police facility. They provide substant-
ially more space than this department needs at this time. Care should be taken to
ensure that the new, spacious police headquarters does not become a gathering point
for on- and off -duty police personnel and that the availability of office space does
not encourage police supervisors and officers to spend time at desks instead of being
out on the road.
Rules and Regulations
We always examine a police department's rules and regulations. They normally
tell us things about the management of a department, the management style of the
department's leadership, and the communication that flows or does not flow within
a department.
The Gulf Stream Police Department has a Policy Book which is, in effect, its
rules and regulations. For the most part, the book is clear, to the point, and covers
appropriate points. We would regard it as an adequate document for a department
of its size.
-15-
0 GIT -Duly Idmploymenl
Gulf Stream police officers are permitted to engage in off -duty employment,
but, as stated in the department's Policy Book, all requests for such jobs must be
approved by the Chief of Police.
Most off -duty jobs in Gulf Stream come through requests from the golf clubs
or individual residents. The job opportunities are posted in the Police Department,
and interested personnel may sign up for the jobs. The department is not always
able to fill all such requests.
The Policy Book spells out what type of work oft' -duty police officers may or
may not do in uniform and in civilian clothes. It does not, however, fix a limit of
the number of hours an officer may work off -duty on those days when he is also scheduled
to work for the Police Department. But the normal off -duty assignment in Gulf Stream
is limited to three hours, we were told, and that would be reasonable when combined
with an eight hour department shift. To allow combined workdays to extend beyond
that would be, in our view, a dangerous practice.
Book should be amended to
a sworn
We were asked about the Town's liability when an off -duty police officer is
working a private assignment in uniform and with the Police Department's equipment.
The answer which has grown out of litigation in other communities is quite clear.
If the off -duty police officer is working with the Town's permission as a police officer
and is using those police powers which are bestowed upon him by the Town, then the
Town is fully liable for him and for his actions as a police officer.
Wearing of Uniform by Chief
We heard complaints about the fact that the Chief of Police rarely if ever wears
his police uniform and were asked to review that situation.
If there is a trend nationally regarding the attire worn by Chiefs of Police it
is in the direction of more informality. However, some Chiefs prefer the formality
and authority which a uniform conveys.
We have discussed this matter with the Chief in Gulf Stream and have suggested
to him that he adopt the practice of wearing his uniform when he represents the Police
Department in formal or official settings such as at meetings of the Town Commission,
crime prevention meetings with groups of citizens, and meetings involving other police
agencies. When the department's new facilities are completed, the Chief will be
able to keep his uniform in his office and change in and out of it during the course
of a day.
Marine Patrol
We were asked to examine the question of whether or not the Gulf Stream Police
Department should create its own Marine Patrol to police the Intracostal Waterway.
-16-
We are quite familiar with the marine patrols which are operated by other police
departments in Florida. Based on that experience and our observations in Gulf Stream,
we believe it would be extremely unproductive and extravagant for the department
to create such a unit. It would be more sensible for the Town to continue its efforts
to work through the appropriate Florida Marine Patrol and U.S. Coast Guard authorities
to attempt to resolve speeding and related problems.
Future Leadership of the Police Department
The Chief of Police has done an excellent job over the past five years of rebuild-
ing the Gulf Stream Police Department. Only one of the nine officers serving under
his command is a holdover from the previous police administration. The Chief has
literally had the opportunity to mold this department in the form he wants it.
It has been suggested that the Chief may run for public office in the near future.
Should he make such a decision, he should, of course, resign immediately as Chief
of Police in Gulf Stream. Our concern is that the Chief's departure for this or any
other reason will leave the department with a leadership void.
Recently, one of the Sergeants was elevated to the rank of Lieutenant as number
two in command of the department. While he may have long -range potential, he
is not yet ready to assume command of this police department.
It would be in the best interests of this department to embark on a career develop -
ment program for the Lieutenant and others with leadership potential in the department
to prepare them for future promotions. In the meantime, however, should the present
Chief leave in the near future, the Town would have to look outside the department
for a new Chief.
Concluding Comments
During the pre -study debate in Gulf Stream on the proposal to add four police
officers, it was implied that the Town Commission was not facing up to its respons-
ibilities; that it may be providing "inadequate police control" of traffic on AIA, and
therefore might be held legally liable; and that other undesirable consequences could
result if four officers were not added to increase beach patrol, provide two patrol
units at all time, etc.
Based on our findings, it is our professional judgment that the Town Commission
has acted quite responsibly in providing the level of police protection now existent,
and further, in commissioning an objective assessment of the law enforcement needs
of Gulf Stream.
-17-
This report has been quite specific in quantifying the incidence of crime, the
demands for police service, the police workloads, and the staffing needs of this police
(� department. Obviously, the policy- makers of this community may choose to provide
as many police officers as they want, over and above the statistically- defined need,
simply because they regard increased police presence as a calming influence. That
is a political decision which only the elected Town Commissioners can make.
However, the policy- makers should also keep in mind that police officers, generally
speaking., do not prevent crime. Police agencies are a reactive force which primarily
serve their community after a crime has been committed. Certainly, there are instances
in which the presence of a police officer may delay commission of a crime, encourage
its movement to another location, or even dissuade its commission at least temporariy.
But to suggest that additional police officers in Gulf Stream will quarantee the prevent-
ion of accidents on AlA, unpleasant incidents on the beach, injury to police officers,
and unsolved crimes is simply not supported by the overwhelming national research
on the subject.
5 -A
SUMMARY OF RECOMMENDATIONS
The Police Department work schedule should be revised to limit single patrol
units to the overnight shift, when demand for police services is at an extremely
low level with a daily average of only .33 Calls For Service between the hours
of 11 p.m. and 7 a.m.
The Police Department work schedule should be revised to provide four hours
of road patrol /road supervision four days a week by the Lieutenant; and full -time
road patrol supervision by the Sergeant including Saturdays and Sundays.
3. The Gulf Stream Police Department should increase its planning of directed
patrol activities. Such functions as beach patrol and radar traffic control, and
the coordination of patrol activities on each side of the Waterway, should be
determined and assigned on the basis of community needs, not left to the patrol
officers to work out based on their personal preferences.
4. The Chief of Police should meet with the Director of the CDC to determine
the reasons for the several lengthy delays in dispatching Gulf Stream patrol
units during the month of January.
5. The Gulf Stream Police Department should immediately institute the practice
of maintaining a chronological file of dispatch cards supplied it by the CDC.
\ Dispatch cards should be retained by the department for a period of one year.
6. All dispatch cards from the CDC should be reviewed by the Lieutenant, not
only to match them with officers' reports, but also to monitor time delays in
queue, patrol response times, volume and nature of Calls For Service, amount
of time officers spend in responding to Calls For Service, and the pattern of
Calls For Service in terms of months, days of week, and times of day.
7. The Town of Gulf Stream should continue its present practice of surveying other
Palm Beach County police departments annually to determine current salaries
in each rank, then take the appropriate steps to keep Gulf Stream in the middle
to slightly higher than middle salary range in all categories.
8. The Police Department's Policy Book should be amended to limit to three hours
the number of hours a sworn officer can work off -duty on those days he is also
scheduled to work his regular department assignment.
9. The Chief of Police should provide the Town Commission with a written report
by April 1, 1986 explaining how he intends to go about implementing the recommend-
ations in this report. He should also submit written progress reports to the
Commission, by May 1 and July 1, 1986, on the status of implementing all of
the recommendations.
-19-
J
III. PLAN OF ACTION
Ill. PLAN OF ACTION
We have presented a total of nine formal recommendations in this report. In
order to assist the Mayor and Town Commission, the Town Manager, and the Chief
of Police in planning the implementation of these recommendations, we have separated
eight of,them into two priority groups which reflect what we consider to be their
relative importance. Each of the two priority categories carries its own timetable,
as follows:
Priority 1 — Implement within two months or by May 1, 1986.
Priority 2 — Implement within four months or by July 1, 1986.
Within each priority grouping, we have listed the recommendations in what
we consider their order of importance.
Priority 1 — Implement by May 1, 1986
Recommendation 4: The Chief of Police should meet with the Director of the CDC
to determine the reasons for the several lengthy delays in
dispatching Gulf Stream patrol units during January.
Recommendation 5: The Gulf Stream Police Department should immediately institute
the practice of maintaining a chronological file of dispatch
cards supplied it by the CDC. Dispatch cards should be retained
by the department for a period of one year.
Recommendation 6: All dispatch cards from the CDC should be reviewed by the
Lieutenant, not only to match them with officers' reports,
but also to monitor time delays in queue, patrol response times,
volume and nature of Calls For Service, amount of time officers
spend in responding to Calls For Service, and the pattern of
Calls For Service in terms of months, days of week, and times
of day.
Recommendation 1: The Police Department work schedule should be revised to
limit single patrol units to the overnight shift, when demand
for police services is at an extremely low level with a daily
average of only .33 Calls For Service between the hours of
11 p.m. and 7 a.m. (Action on this recommendation can only
be taken after the Town Commission makes a policy decision
as to whether to accept our recommended schedule with no
increase in personnel, as shown in Appendix B, or to add one
police officer to the department in order to provide two patrol
units per shift. Should the latter decision be made, the department
should implement our alternate work schedule, as shown in
Appendix C).
Recommendation 2: The Police Department work schedule should be revised to
provide four hours of road patrol /road supervision four days
a week by the Lieutenant; and full -time road patrol supervision
by the Sergeant including Saturdays and Sundays.
-20-
Priority 2 — Implement by July 1, 1986
Recommendation 3: The Gulf Stream Police Department should increase its planning
of directed patrol activities. Such functions as beach patrol
and radar traffic control, and the coordination of patrol activities
on each side of the Waterway, should be determined and assigned
on the basis of community needs, not left to the patrol officers
to work out based on their personal preferences.
Recommendation 8: The Police Department's Policy Book should be amended to
limit to three hours the number of hours a sworn officer can
work off -duty on those days he is also scheduled to work his
regular department assignment.
Recommendation 7: The Town of Gulf Stream should continue its present practice
of surveying other Palm Beach County police departments
annually to determine current salaries in each rank, then take
the appropriate steps to keep Gulf Stream in the middle to
slightly higher than middle salary range in all categories.
The ninth recommendation carries its own timetable, as follows:
Recommendation 9: The Chief of Police should provide the Town Commission with
a written report by April 1, 1986 explaining how he intends
to go about implementing the recommendations in this report.
He should also submit written progress reports to the Comm-
ission, by May 1 and July 1, 1986, on the status of implement-
ing all of the recommendations.
-21-
APPENDICES
APPENDIX A. PERSONS INTERVIEWED
APPENDIX A. PERSONS INTERVIEWED
The following individuals were interviewed by members of the Rusten Associates
consulting team during the course of this study. Most of the members of the Gulf
Stream Civic Association participated in a group discussion at the Gulf Stream Golf
Club on.January 22, 1986.
Town of Gulf Stream Officials
Mayor William F. Koch, Jr.
Vice Mayor Joel Hunter
Commissioner Alan I. Armour
Commissioner Robert J. Dixson
Commissioner Brian Pfeifler
Town Manager William E. Gwynn
Town Clerk Barbara Gwynn
Officers and Members of the Gulf Stream Civic Association
William F. Souder, Jr., President
Franklin P. O'Brien, Vice President and Secretary
James E. Cross, Treasurer
James L. Allen, Director
Donald C. Dayton, Director
Dean Hill, Jr., Director
William A. Lynch, Director
Harold C. Snowdon, Director
Lawrence E. Stahl, Director
John Bloomquist
Ames Gardner
Carl Gezelschap
Richard A. Malstrom, President, Place Au Soleil Civic Association
Personnel of the Gulf Stream Police Department
Chief James Greer
Lt. John Buchan
Sgt. Herbert Hatton
Officer Ray Burtka
Officer Frank Delorme
Officer James Lundy
Officer Roy Neff
Officer Gerald Schunk
Officer Joseph Stocks
Officer Eugene Williams
Sigrid Helmes, Secretary
A -1
APPENDIX B. RECOMMENDED POLICE SCHEDULE
APPENDIX B. RECOMMENDED POLICE SCHEDULE
In Chapter II of this report, dealing with Findings and Recommendations, we
discussed the service demand levels at various times of the day, the volume of Calls
For Service, and the deficiencies that now exist concerning police patrol coverage
in Gulf Stream.
We concluded that Gulf Stream does not have enough police officers to field
two patrol units on each shift, but we also stated that, in our professional judgment,
the community does not need additional police officers given existing workloads and
service demand levels. We suggested a revised police schedule which will limit the
use of single patrol units to all or part of the overnight shift when requests for police
service are at their lowest levels. Our recommended schedule is presented on the
following page:
M1
Hours
Mon
Tues
Wed
Thurs'
Fri
Sat
Sun
7
am
*Lt
*Lt
*Lt
*Lt
to
-
-
*A
*A
*A
*A
*A
11
am
*B
*B
-
-
*B
*B
*B
(2)
(2)
(2)
(2)
(2)
(2)
(2)
11
am
-
-
A
A
A
A
A
to
B
B
-
-
B
B
B
3
Pm
*C
*C
*C
*C
-
-
-
(2)
(2)
(2)
(2)
(2)
(2)
(2)
3
Pm
C
C
C
C
*C
-
_
to
*D
*D
*D
-
-
*D
*D
7
Pm
-
(2)
-
(2)
-
(2)
*S
(2)
*S
(2)
*S
(2)
*S
(2)
7
Pm
D
D
D
-
-
D
D
to
*S
-
-
S
S
S
S
11
Pm
-
*E
*E
*E
C
-
-
(2)
(2)
(2)
(2)
(2)
(2)
(2)
11
Pm
-
E
E
E
*E
*E
-
to
*F
*F
*F
*F
-
_
*F
3
am
S
-
-
-
-
-
(2)
(2)
(2)
(2)
(1)
(1)
-
(1)
3
am
F
F
F
F
_
_
F
to
-
-
-
-
E
E
-
7
am
(1)
(1)
(1)
(1)
(1)
(1)
(1)
Symbols and Keys
* designates start of shift.
() indicates number of patrol units assigned during time period.
A through F represents six (6) assigned patrol officers /units.
G, which is not shown as assigned, is the seventh patrol officer or unit and is
the relief unit. This officer is available for a full week of relief duty; and for one
day replacement of an officer who is on vacation, ill, taking a compensatory day,
attending required training courses, etc. 1f.Unit G is not needed for relief, this officer
may be used for special assignments, investigations, or to provide a second patrol
unit during the overnight shift.
S represents the Sergeant, who is assigned full -time responsibility for road patrol
supervision and is the supervisor on duty during weekends.
Lt is the Lieutenant. He is assigned to road patrol /road supervision from 7
a.m. to 11 a.m. Mondays through Thursdays. His desk duty for paperwork requirements
and assignments made by the Chief is scheduled from 11 a.m. to 3 p.m. Mondays through
Thursdays and 9 a.m. to 5 p.m. Fridays.
APPENDIX C. ALTERNATE POLICE SCHEDULE
6' APPENDIX C. ALTERNATE. POLICE SCHEDULE
In Chapter II of this report, we presented certain data and concluded that:
—The Gulf Stream Police Department does not have a sufficient number
of sworn officers to provide two patrol units on each shift;
—The data indicate that there is no need for two patrol units on the overnight
shift;
— By rearranging the present schedule and using supervisors as working
supervisors with more road patrol responsibilities, we devised a schedule
(see Appendix B) which minimizes one -unit patrol periods and limits
those times to the inactive overnight period;
—If the Town Commissioners come to a policy decision that they want
two patrol units on duty at all times regardless of service demand levels,
it would require one additional patrol officer and a further revised schedule.
Our recommended schedule to provide two - patrol -unit coverage around the
clock, including the addition of one police officer to the department, is presented
on the following page:
C -1
Hours
Mon.
Tues
Wed
Thurs
Fri
Sat
Sun
7
am
*Lt
*Lt
to
-
-
*A
'rA
*A
*A
*A
11
am
*B
G
-
iuc
*B
*B
*B
(2)
(2)
(2)
(2)
(2)
(2)
(2)
11
am
-
-
A
A
A
A
A
to
*C
*C
*C
C
3
Pm
B
*B
-
-
B
B
B
(2)
(2)
(2)
(2)
(2)
(2)
(2)
3
Pm
C
C
C
-
*C
-
-
to
*D
-
*D
*E
-
*D
*D
7
Pm
-
B
-
*S
*S
*S
*S
(2)
(2)
(2)
(2)
(2)
(2)
(2)
7
Pm
D
*D
D
-
-
D
D
to
*S
-
-
S
S
S
S
11
Pm
-
*E
*E
E
C
-
-
(2)
(2)
(2)
(2)
(2)
(2)
(2)
11
Pm
S
E
E
-
*E
*E
-
to
*F
-
*F
*F
-
-
*F
3
am
-
D
-
*G
*G
*G
*G
(2)
(2)
(2)
(2)
(2)
(2)
(2)
3
am
F
*F
F
F
-
-
F
to
*G
-
-
G
G
G
G
7
am
-
*H
*H
-
E
E
-
(2)
(2)
(2)
(2)
(2)
(2)
(2)
Symbols and Keys
*designates start of shift.
( ) indicates number of patrol units assigned during time period
A through G represents seven (7) assigned patrol officers /units,
H, which is given only two 4 -hour patrol assignments on the schedule, is the
eighth patrol officer or unit and is the relief unit. This officer is available for a full
week of relief duty; and for one day replacement of an officer who is on vacation,
ill, taking a compensatory day, attending required training courses, etc. If Unit H
is not needed for relief, this officer may be used for special assignments, investigations,
etc.
S represents the Sergeant, who is assigned full -time responsibility for road patrol
supervision and is the supervisor on duty during weekends.
Lt is the Lieutenant. Ile is assigned to road patrol /road supervision from 7
a.m. to 11 a.m. Mondays through Wednesdays. His desk duty for paperwork requirements
and assignments made by the Chief is scheduled from 11 a.m. to 3 p.m. Mondays through
Wednesdays and from 9 a.m. to 5 p.m. Thursdays and Fridays.
C -2
G� � _.,
J � �� �
� <' �+/ ��
��'�'_t` � .. ��,�e"' �� `� ,� , gip_ �' ��u /�.c%'r 'Y—� `—�
C
�� `""'
1�, �%�/
S- �-n,�,
G,q L ✓A�
'�`u '�