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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  CoW�� ��)4 CIA �� Ce py ASSESSMENT OF GULF STREAM POLICE DEPARTMENT TOWN OF GULF STREAM, FLORIDA FEBRUARY 1986 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 '�