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HomeMy WebLinkAboutA Study to Determine the Feasibility of the Consolidateion of Law Enforcement Agencies and/or Services for Town of Mamaroneck Village of Larchmont 6/1/1974 --17“-011 OF ' ' I Ann r9 f2clnlr�K A STUDY TO DETERMINE THE FEASIBILITY OF THE CONSOLIDATION OF LAW ENFORCEMENT AGENCIES AND/ OR SERVICES FOR TOWN OF MAMARONECK • VILLAGE OF LARCHMONT This study was conducted by and financed by the State of New York, Division of Criminal Justice Services, Bureau for Municipal Police.. ARCHIBALD R. MURRAY, Commissioner Division of Criminal Justice Services CHARLES C. MC CLOSKEY, JR. , Director Bureau for Municipal Police VINCENT A. LA FLEUR Staff Director of Study May 1973 Iyi4 1914 TABLE OF CONTENTS CHAPTER PAGE I Larchmont and Mararoneck 1 II Incident Data 7 III Crime Factors 11 IV Manpower Availability 14 V Present and Projected Organizational Structures 16 VI Consolidation Considerations 45 VII Coordination Considerations 47 VIII Permissive Legislation 49 IX Motor Vehicle Equipment 51 X Conclusion 54 CHAPTER I 1. LARCHMONT AND MAMARONECK �^ The Town of Mamaroneck within Westchester County, encompasses the entire Village of Larchmont and a portion of the Village of Mamaroneck. This report will be concerned with the feasibility of a coordinated or consolidated effort insofar as law enforcement direction is concerned for two units of government, the Village of Larchmont and the Town of Mamaroneck, excluding the Village of Mamaroneck. The Consolidation Concept There have been countless studies conducted in, New York State, mostly on a county basis, of consolidating all police agencies into one County agency, but at the present time there have been only two Counties, Nassau and Suffolk, with County Police Depart- ments and neither of these Counties have total consolidation. The most recent governmental study on the subject is encom- passed in the survey made by the National Advisory Committee on Criminal Justice Standards and Goals, "The Police" , in 1973. In their opening statement on combined police services, they state, "Every State and local government and every police agency should provide police services by the most effective and efficient organizational means available to it. In deter- mining this means, each should acknowledge that the police organization (and any functional unit within it) should be large enough to be effective but small enough to be re- sponsive to the people. If the most effective and efficient police service can be provided through mutual agreement or joint participation with other criminal justice agencies, the governmental entity or the police agency immediately should enter into the appropriate agreement or joint operation. At a minimum, police agencies that employ fewer than 10 sworn employees should consolidate for improved efficiency and effecti'=eness. " Prepared by '.he Bureau for Municipal slice, State of New Yorn 2. Although the statement has merit, it is still basing any combined effort on the statement that "if the most effective and efficient police service can be provided through mutual agreement----" rather than mandating that such agreements should be undertaken. This report further relates, "No State or local government or police agency should enter into any agreement for or participate in any police service that would not be responsive to the needs of its jurisdiction and that does not at least: a. Maintain the current level of a service at a reduced cost. b. Improve the current level of a service either at the same cost or at an increasedcost if justified; or c. Provide an additional service at least as effectively and economically as it could be provided by the agency alone. " Still, in another section of the report, the statement is made that "consolidation is much less likely to save money than to improve effectiveness. " In the 1968 total consolidation of the City of Jacksonville and Duval County, Florida, it was the consensus of opinion that the police operation was more efficient, but the public safety budget rose considerably. In consolidation studies conducted by the Bureau for Municipal Police, there has not been one instance where we have found a financial savings to the units of government involved if consolidation was implemented. There is no simple formula involved in a feasibility study © of this natures If this were the case, the Town of Mamaroneck and the Village of Larchmont would have consolidated several years Prepared by the Bureau for Municipal :police, State of New York. 3. ago, or conversely, abandoned the concept entirely. We will project various pertinent factors which we consider as fundamental (112 in a consolidation study, but ultimately the decision will still have to be made on the local level, by residents of the community and their duly elected officials. Town of Mamaroneck Police Department This Department provides police services to a population of 13,002 (1970 census) in an area of approximately six square miles. It has a current operating budget of $980,796.00 for a total of 40 authorized sworn personnel. Village of Larchmont Police Department This Department provides police services for a population of 7,203 (1970 census) in an area approximately one square mile. The tentative budget for the police department for the coming fiscal year is $493, 905.00 for a total of 28 sworn personnel. We must add to this figure, an amount of $148,000.00, the estimated cost for employee benefits. The total budget therefore, will be approximately $641,905.00, Combined Totals Sworn Unit of Govt. Population Size Personnel Budget Larchmont 7,203 1 sq. mi. 28 * 641,905.00 Mamaroneck 13,002 .548 q. mi. 40 _ 980,796.00 20,205 7 sq„ mi. 68 $1,622,701.00 * Including estimated fringe costs. O Prepared by the Bureau for Municipal Police, State of New York. 4. Comparison of Salaries (As of July, 1974) . Larchmont Mamaroneck �I -z Chief 18,725. 00 20; 200 .00 Lieutenant 16,060.00 16,600.00 ' Detective-Sergeant 14, 965.00 14, 800.00 Sergeant 14, 965.00 14,200.00 a1 .5o Patrolman-Detective 13, 965.00 13,600.00 *30o Patrolman 12,205.00- 11,788.00- 13, 465.00 13,000.00 Police Employees (sworn and civilian) per 1,000 inhabitants. Town of Mamaroneck - population 13,002 employees 41 Police population per 1,000 inhabitants - 3. 15 Village of Larchmont - population 7,203 employees 28 Police population per 1, 000 inhabitants - 3.89 (Number of employees divided by rate per 1, 000) FBI Statistics - Middle Atlantic States, average number of police employees per 1,000 inhabitants, both for units of government under 10,000 and also in the 10,000 to 25,000 classification, is 1.7. Prepared by the Bureau for Municipal Police, State of New York . I 5. The police population for both units of government far exceed national averages. However, the material in the 1972 edition of "Crime in the United States", prepared and released by the Federal Bureau of Investigation relates, "these figures should not be interpreted as indicating recommended or desirable police strength. Adequate police requirements for a specific place can only be determined following careful study and analysis of the local situation together with a thorough evaluation of the numerous factors which affect police needs. " The factors we are using in this study encompass the manpower availability factor, incident calls, including criminal and non- GuFeata, criminal incidents, police expenditures, police officers per capita and manpower distribution. (11.11.41 We are aware that although these are standard factors utilized in comparable studies, the crime incidents are probably lower than those actually committed. This is due not to any police crime reporting procedures, but that all crime generally, in Larchmont and Mamaroneck, and throughout the United States, is not reported to the police. This is a variable over which we have no control. Another factor which should be known to the elected officials and police management is the output factor or the measurement of the services received by the citizens of both communities. This citizen-evaluation process of services received can only be C ascertained by a sampling-interviewing of residents of the community Prepared by the Bureau for Municipal Police, State of New York. 6. who have requested the services of the police and obtaining their opinions on response time, assistance provided, police attitudes, etc. C O Prepared by the Bureau for Municipal Police, State of New York. CHAPTER II 7. INCIDENT DATA During an eight hour tour of duty, the police officer in ® the field will spend his time on preventive patrol, responding to non-criminal service calls or working on criminal and traffic incidents. It is a fairly well accepted fact that the greatest percentage of the calls to which he responds, are non-criminal in nature. These range from 80 to 90% as compared with 10 to 20% criminal or quasi-criminal complaints. As all complaints, criminal and non-criminal constitute work for the patrol officer, we will not, in this instance, differentiate between the two. The statistics representing numbers of service calls was provided by personnel of both police departments. Number of calls requiring police aTime service for both Departments for the year 197 8 a.m.-9 a.m. 878 9 - 10 678 10 - 11 1000 11 - 12 N 783 12 N - 1 p.m. 727 1 - 2 774 2 - 3 758 3 - 4 p.m. 674 6272 (8 a.m. to 4 p.m.) 4 p.m.-5 p.m. 987 5 - 6 1031 6 - 7 810 7 - 8 751 8 - 9 901 9 - 10 964 10 - 11 885 11 - 12 M 573 6902 (4 p.m. to 12 M.) Prepared by the Bureau for Municipal Police, State of New York. 8. Number of calls requiring police Time service for both Departments for the year 1973 12 M - 1 a.m. 584 1 2 410 2 - 3 339 3 - 4 210 4 - 5 151 5 - 6 99 6 - 7 170 7 - 8 a.m. 401 2364 (12 M. to 8 a.m. ) We therefore find that on a shift basis, for both Departments, we have on the: 8 a.m.- 4 p.m. shift, 40. 37% of the days total work requirements 4 p.m. - 12 M. shift, 44.42% of the days total work requirements 12 M. , - 8 a.m,shift, 15. 21% of the days total work requirements There is little variance from these work percentages for each Department. On an individual Department basis, we find Larchmontz 8 a.m.- 4 p.m. - 39. 38% of the days total work requirements 4 p.m.- 12 M. - 43. 96% of the days total work requirements 12 M. -- 8 a.m. - 16.66% of the days total work requirements For the Town of Mamaroneck Police Department: 8 a.m.- 4 p.m. - 41.06% of the days total work requirements 4 p.m. - 12 M. - 44. 74% of the days total work requirements 12 M. - 8 a.m. - 14.20% of the days total work requirements The workload percentage for the Town of Mamaroneck has not varied greatly from a 1969 study made of the Department. The studies at that time indicated: Prepared by the Bureau for Municipal Police, State of New York. 9. 8 a.m.- 4 p.m. 37.78% of the days workload 4 p.m.- 12 M. 48. 18/ of the days workload 12 M. - 8 a.m. 14. 03/ of the days workload 1 Although this might indicate a degree of workload stability, studies of this nature should constantly be undertaken to ascertain with exactness, variances in total workload requirements. Calculating the Required Number of Beats or Posts Previous studies have shown that the average time required to investigate a case at the preliminary level by members of a patrol division is 45 minutes. After application of this factor and making allowances for buffer time and repressive patrol time, the number of beats or posts to be patrolled can be determined. We will use the combined number of incidents for both Departments: For the 8 a.m. - 4 p.m. shift: Number of incidents for the year 6, 272 Multiplied by .75 hours (45 minutes) 4, 704 hours Multiplied by 3 (to add buffer factor and time for routine patrol) 14, 112 total hours Divided by number of hours necessary to man 1 patrol beat on one shift for one year (8 x 365 or 2920) = 4.83 or 5 beats or posts For the 4 p.m. - 12 M. shift: Number of incidents for the year 6, 902 Multiplied by .75 hours (45 minutes) 5, 176.50 hours 1 © IACP Survey of the Town of Mamaroneck P.D. , 1969, pg. 18. Prepared by the Bureau for Municipal Police, State of New York. 10. Multiplied by 3 (to add buffer factor and time for routine patrol) 15,529.50 hours Divided by number of hours necessary to ® man 1 patrol beat on one shift for one year. = 5.32 or 5 beats or posts For the 12 M. to 8 a.m. shift: Number of incidents for the year 2, 364 Multiplied by .75 hours (45 minutes) 1,773 hours Multiplied by 3 (to add buffer factor and time for routine patrol) 5, 319 Divided by number of hours necessary to man 1 patrol beat on one shift for one year =. 1.82 or 2 beats or posts The beat or post configuration should be determined by using a map of the jurisdictions patrolled by the Town of Mamaroneck and the Village of Larchmont Police Departments and spotting the location of the calls for service, or making a network of uniformly III spaced horizontal and perpendicular lines as a grid for locating points by means of coordinates and using this as a basis for, post configuration. Prepared by the Bureau for Municipal Police, State of New York. CHAPTER III CRIME FACTORS As the fiscal year of the Village of Larchmont is from May 31st to June 1st, and the fiscal year of the Town of Mamaroneck is on a calendar basis, comparison of data provided in annual reports is most difficult. The only clearinghouse on crime reports is done on a calendar year basis by the Federal Bureau of Investigation. As data for units of government in the 10,000 to 25,000 popu- lation category was first published in the 1972 edition of "Crime in the United States", information on Part I offenses is provided for the Town of Mamaroneck for the year 1972, but as the Village of Larchmont is below 10, 000 in population, Larchmont data is not published. The Federal Bureau of Investigation uses a Crime Index for comparison purposes, which in 1972 constituted the total number of crimes of murder, forcible rape, aggravated assault, robbery, burglary, larceny $50 and over and auto theft. The Crime Index for the Town of Mamaroneck for the year 1972 is 268. Part I offenses for the year 1973 was obtained from local records. Category Mamaroneck Larchmont Robbery 1 9, Assault (aggravated) / 3 14 Burglary B4 -I- 14-6 a.rNmei-s 129 59 Larceny 276 296 Auto Theft 30 26 Prepared by the Bureau for Municipal Police, State of New York. J.2.. The factors which cause crime are many and vary from place to place. The Uniform Crime Reports list many conditions which affect the volume and type of crime that occurs, and some of these factors include the density and size of the community population, composition of the population, economic situation therein, stability of the population, effective strength of the police force and their degree of efficiency, and policies and attitudes of all segments of the criminal justice system in the performance of their assigned. functions. Crime Clearance Rate One of the best norms that can be used by a police administrator and his community to judge the efficiency of his operation is first to establish with accuracy the rates of crimes clearance and then compare these rates with national rates, along with prior rates of their own department.. For instance, if the national clearance rate for the crime of burglary which was 19% for the year 1972, is either above or below an individual city's rate, it is a just barometer of not only the work of the police department, but the cooperation of the community with the police department. The rules for establishing clearance rates are established nationally so that everyone should be keeping score in an identical fashion. To quote briefly a summary of those rules from "Crime in the United States" : 410 Prepared by the Bureau for Municipal Police, State of New York. 13 . "In this Program police clear a crime when they have identified the offender, have sufficient evidence to charge him, and actually take him into custody. Crime 111 solutions are also recorded in exceptional instances when some element beyond police control precludes the placing of formal charges against the offender, such as the victim' s refusal to prosecute after the offender is identified or local prosecution is declined because the subject is being prosecuted elsewhere for a crime committed in another jurisdiction. The arrest of one person can clear several crimes or several persons may be arrested in the process of clearing one crime. " As an administrative tool, it is well to have the number of crimes or offenses in each category listed, with the number of clearances shown in the adjoining column so the chief of police when examining his monthly and annual reports, can at a glance, determine if his department is above or below national clearance rates in the various crime categories. This is required of State and Federal reporting, but few monthly reports prepared for local authorities list offenses and clearances in the same manner. Q Prepared by the Bureau for Municipal Police, State of New York. A CHAPTER IV 14. MANPOWER AVAILABILITY To obtain with some degree of accuracy, the manpower needed to fill a particular job, position or post, we first determine the average-on and average-off time for departmental personnel. In order to do this we must determine the man-year productivity of an officer in order to assign an appropriate number of personnel to each shift to cover the required beats 24 hours a day, 365 days a year. In determining gross man--power requirements, it must be assumed that each officer is capable of producing an end product equal to that of all other officers. A basic police man-year is 365 8-hour tours of duty or 2, 920 man hours. Effective man hours, that is net hours available per officer to perform field functions, can be determined by subtracting those periods of time when an officer is unavailable because of days off, leave, illness, etc. In calculating time off for the two departments, the following factors were taken into consideration: Category Mamaroneck Larchmont Normal days off 104.00 104.00 (ay. per man' Vacation 24.78 14.67 Sick time 6. 13 5.67 Holidays 12.00 7.00 Injuries 0 4.15 Training 0.82 2. 96 Funeral leave 0.21 0.74 Other 0.47 1.93 148.41 141. 12 At this point, we have determined for the year 1973, that the average employee of the Town of Mamaroneck Police Department did © not work 148.41 days. He did work 216.59. Prepared by the Bureau for Municipal Police, State of New York. 13. The average employee of the Village of Larchmont Police Department did not work 141. 12 days during the year 1973. He 110 did work 223.88 days. By dividing the "on-days" into 365, we arrive at the full coverage or assignment/availability factor for each Department. Mamaroneck- 365 = 1.68 (Assignment/Availability factor) 216. 59 Larchmont - 365 = 1.63 (Assignment/Availability factor) 223.88 For the Mamaroneck Police Department, 1.68 men must be assigned. to each position that requires manning on an 8-hour basis, 365 days per year. The ratio of 1.68 to 1 is designated as the "assignment/availability" factor. For the Larchmont Police Department, 1.63 men must be assigned • to each position that requires manning on an 8-hour basis, 365 days per year. The ratio of 1.63 to 1 is designated as the "assignment/availability" factor. For example, if a patrolman is to be assigned as a desk officer on all three shifts, we will multiply the number of shifts (3) by the availability factor (1.63) and find that it will take 4.89 or 5 officers to man the desk with a police officer on a continuing basis. • Prepared by the Bureau for Municipal Police.. State of New York. CHAPTER V 16. PRESENT AND PROJECTED ORGANIZATIONAL STRUCTURES This portion of the survey will be devoted to the organiza- tional structure of one single law enforcement agency for the Town of Mamaroneck and the Village of Larchmont. We will ,provide the rationale for the major projections made, and will base patrol assignments on proven concepts of need based on calls for police service with a given number of beats or posts predicated on service calls. If the two units of government were consolidated insofar as law enforcement is concerned, we would then have a cDmmunity approximately wren square miles in size, with a population of 20, 205. The organizational chart will depict all present services being maintained, but it will separate staff and line duties into separate bureaus. At the present time, first line supervisory officers in both Departments are performing staff duties in addition to their line functions. The chart will also provide for additional services, such as inspections, internal affairs, planning and research, etc. The proposed organizational structure initially will consist of three bureaus, line, staff and administration. LINE BUREAU Essentially, line functions relate to the operations or tasks designed to render direct aid and service to the public. All patrol and investigative assignments are included in the line bureau. Prepared by the Bureau for Municipal Police, State of New York. : 7. STAFF BUREAU Staff functions relate to the operations and tasks designed to render aid to the line units. Example The records section will furnish to patrol officers and investi- gators, information pertaining to the description, address, employ- ment, etc. ; of a suspect in a crime. Radio communications will impart this information to the police personnel in the field. ADMINISTRATIVE BUREAU This Bureau, which is also Staff in nature, has the function of ensuring the accomplishment of the other two Bureaus, Line and Staff. This Bureau assists the administrative head to direct and control his operations and obtain compliance with his directives. See Organizational Chart on the following page. RATIONALE The patrol assignments will doubtless be the most controversial with the management of both departments. We have however, predicated these assignments on the basis of statistics provided this Bureau by both Departments. In our review of police incidents which was depicted in detail, it was indicated that there was a need for five beats or posts on two shifts and two beats on one shift. As both Departments do not have permanent working shifts, but rotate their patrol personnel from one time shift to another periodically, there is no alternative other than dividing the number of personnel available for patrol work, by three. Prepared by t'.o Bureau for Municipal Poo . ce, State of New Yoric , 19. Initial Organizational Structure Chief Inspections Senior Steno Internal Affairs --T--- , Planning & Resch. (Lt. & Sgt. ) _ Line Bureau Staff Bur. Administrative (Lieut. ) (Lieut. ) Bureau --- 'eut 1st Platoon 1 r Traffic Training-Pers. 1 Sgt. (5 Posts) l (Sgt. ) Recruit. (Sgt.)-- VM _____ -- -1 ---_- Performance Apprais. 2nd Platoon Records _ i Budget-Payroll ---7 1 Sgt. (5 Posts) � Ptl. 1I Equipment-Specs '� r- -----1------] � Preventive Main. iT� -�__ Equipment-Inventories 3rd Platoon Identification Vouchers-Bills ---? L___ 1 Sgt. (5 Posts:- _______ _ osts) Ptl. _ Supplies �" _________1 �`F___—�!� � Work Schedules Investigations Desk and I 2 Ptl. 1 Det.Sgt. Communications (initial stage) 6 Dets. i 1 Sgt. 4 Ptl. 1 - 1 (initial stage) Juvenile 1 Det.Sgt.2 Dets. I C Prepared by the Bureau for Municipal Police, State of New York. If the shifts worked permanent hours, then the various squads could be divided into the proper proportions as dictated by the number of calls for police service at various hours. We will therefore, by necessity, state there should be five beats, posts or sectors for the entire twenty-four hour period. These would be patrolled by vehicles, four of the vehicles manned by one officer and the fifth vehicle manned by two officers. There would also be a supervisory officer in the field at all times. Contractual Agreements The Town of Mamaroneck Police Department has a contractual agreement with their personnel, prohibiting the use of one-man cars on the 12 Midnight to 8:00 a.m. shift. Although there are many arguments against the exclusive use of two-man patrol vehicles C except in depressed urban areas, posts that have histories of attacks against police officers, etc. , this view must necessarily be negated in view of the existing contract. Suggested Patrol Content The formulas we have used for post designation, indicated the need for five posts on the 8 a.m. to 4 p.m. shift, and also for the 4 p.m.to 12 M. shift. It indicated the need for two posts on the x2 M. to 8 a.m. shift. On the 8 a.m. to 4 p.m. and 4 p.m. to 12 M. shifts, we propose the establishment of five posts, one vehicle in each post, with one man each in four vehicles and two men in the fifth vehicle. The two-man © vehicle to be in the post encompassing the shopping areas and small businesses adjacent to the commuter train station. Prepared by the Bureau for Municipal Tolice, State of New York- 20. On the 12 M. to 8 a.m. shift, there would be three, two-man vehicles. Consideration could be given to a two-man cover shift, from 7 p.m. to 3 a.m. which would result in four two-man vehicles in the field from 12 M. to 3 a.m. We are giving consideration to a cover shift to allay any fears of residents of both communities that patrol coverage is being depleted as a result of any projected plans. Although calls for service are lowest on the 12 M. - 8 a.m. shift, it is also the time when crimes against property and the person are feared the most, hence, the consideration for this additional post. The number of calls for police service from 3 a.m. to 7 a.m. are minimal, and although it represents four hours, or half of the entire shift, has only 26% of the calls for the entire eight hour period. This mandate of two-man vehicles from 12 M. to 8 a.m. may have some merit from 12 M. to 3 a.m. , but is a poor use of manpower for the remaining five hours of the tour. The Patrolmen content would therefore be as follows: Post 8-4 4-12 12-8 7 p.m.-3 a.m. Total Post #1 1 1 2 ##2 1 1 2 ##3 1 1 2 4 ##4 1 1 2 4 #5 2 2 2 6 Cover Shift _ 2 2 Totals 6 6 6 2 20 Prepared by t'A.c: Bureau for. Municipal :-o ice, State of New York 21. To determine how many Patrolmen needed to maintain this coverage around the clock, we will use the availa ity factor of 1.68 for each position. Post 8-4 4-12 12-8 7 p.m.-3 a.m. Total #1 1.68 1.68 3.36 #2 1.68 1.68 3. 36 #3 1.68 1.68 3.36 6. 72 #4 1.68 1.68 3. 36 6.72 #5 3.36 3. 36 3.36 10.08 Cover Shift 3.36 3. 36 Totals 10.08 10.08 10.08 3.36 33.60 It will necessitate 34 patrolmen assigned to field duties to effect the coverage as indicated. This number of Patrolmen, 34, is only two short of the present combined patrol forces of both Departments, available for patrol duties. The Town of Mamaroneck has an authorized complement of 25 Patrolmen, although they have been working one short, with 24 Patrolmen. The Village of Larchmont has an authorized strength of 18 Patrolmen, and also have been working with one Patrolman shortage. The Town has one Patrolman assigned to parking enforcement, one assigned to records, and a minimum of two, assigned to Desk duties. This reduces the number of men for patrol duties to a maximum of 21. The Village of Larchmont has a minimum of 3 officers assigned to desk duties, reducing the number of men for patrol duties to 1� The combined number of officers, 21 plus 15 amounts to 36 officers, the maximum number available for patrol duties. Prepared by fwie Bureau for Municipal P.D7.ice, State of New York. 22. For all practical purposes, in listing officers assigned to desk duties, we have listed positions. If we were to apply the availability/factor component for full coverage, 24 hours a day, seven days a week, the number of patrolmen would exceed five for desk duties. Patrol Supervision In addition to the posts being covered by patrolman, there will be a Sergeant in the field, on all shifts, for supervisory duties. This will require 1.68 x 3 or 5.04 (five) Sergeants assigned to field supervisory duties. The Lieutenant who is in charge of all Line functions will have over-all command of the three platoons and will be responsible to the Chief of Police for the successful operation of the platoons. C Investigations At the present time within the two Police Departments, there are three Detectives and three Detective-Patrolmen for a total of ten vestigators. In the projected new structure for both Departments, we have recommended two investigative units, one unit consisting of one Detective-Sergeant and six Detectives, to handle general assignments. The second investigative unit is to handle juvenile matters, and will consist of one Detective-Sergeant and two detectives. We have therefore, retained the same number of investigating personnel, but have reduced the number of Detective-Sergeants from three Oto two. Prepared by the Bureau for Municipal Police, State of New Yo'-k. 23. Numerical Strength of Detective Division It is an accepted opinion that the numerical strength of the Detective Division (excluding special units) should not exceed about ten percent of the total number of sworn personnel. An amount in excess of this figure may indicate that not enough. stress is being placed on preventive activity by patrol officers or upon preliminary investigations by patrol officers. As the total combined strength of the projected Department will be between sixty and seventy, the number of investigators for general assignment duty is generally within the accepted • guidelines. The Line Bureau will therefore consist of: 1 - Lieutenant, who will have over-all command. C5 - Sergeants, assigned to Patrol supervision. 34 - Patrolmen. 1 - Detective-Sergeant in charge of general investigations but still responsible to the Lieutenant in charge of all line operations.. 6 - Detectives assigned to general investigations. 1 - Detective-Sergeant in charge of the juvenile operation, but still responsible to the Lieutenant in charge of all Line operations. 2 - Detectives assigned to investigate juvenile complaints. Total Line personnel, 50. STAFF BUREAU 1. Traffic Analysis. This unit would be staffed with a Sergeant, preferably one who has had training with the Nor•thw•western. Traffic Institute, or the ten week Traffic Management course sponsored by the New York State Police. Prepared by the Bureau for Municipal Police, State of New York. 24. The Sergeant in charge would examine all accident reports for completeness, causes, etc , and maintain a pin map depicting the location of automobile accidents for use in (a) selective traffic enforcement; (b) deployment of patrols for the prevention of accidents; (c) furnishing of factual information for the planning of safety programs; (d) furnishing of factual information to identify physical and engineering difficulties as well as the need for additional traffic control devices. He would develop a breathalyzer or alcotector program for use in D.W.I. cases instead of the present method of blopd analysis. He would have control of all Uniform Traffic Tickets and local parking tag violation forms. CHe would act as liaison officer with State, and Town and/or Village authorities on signalization, sign erection, and request the passage of permissive legislation for such controls. He would work with the training officer insofar as in-service traffic training programs are concerned. He would have under his direction, the officer assigned to parking meter enforcement, and the one civilian employee designated as the maintenance man for traffic signs. He will also act as the Liaison Officer with the crossing guards and parking enforcement personnel. { 2. Identification Unit. CThis unit would be staffed with a Patrolman and would have overall charge of identification records. He would also perform necessary fingerprinting and photographing tasks and do necessary film processing. Prepared by the Bureau for Municipal 'til ice, State of New York , He should be permitted the opportunity to attend courses involving fingerprinting and photography and develop an expertise in this field. He should receive training also as an evidence technician and have charge of the collection and preservation of evidence. As one man should have charge of all evidence and property, and have the necessary storage facilities for these properties, the Identification Officer will also assume this task. This should not be construed that the Identification officer will perform all identification tasks in the field. Investigative personnel who are already trained and capable of lifting latent fingerprints at the scene of a crime and performing other tasks, will continue to do so. However, if there is an expanded police depart- ment, there should be one officer in overall charge of these functions. 3. Records Unit. This unit will be staffed with a Patrolman who will have charge of a central records office for receiving, indexing, classifying and filing of all criminal and non-criminal complaints and investiga- tions, and preparing the necessary monthly and annual reports. 4. Desk - Communications Unit In our first organizational structure, we have assigned one Sergeant and four patrolmen to perform desk duties. We will however, recommend in the final implementation stage, that these functions be transferred from sworn personnel to five civilian dispatcher- typists. These duties usually consist of five primary functions, which are: Prepared by the Bureau for Municipal roiice, State of New York. A 26. (a) operating the telephone switchboard, including the transfer of calls to other police offices and the receipt and re- cording of routine calls from officers on the street either through call boxes or the regular telephone system; (b) receiving complaints by telephone or at the desk or counter, and recording them on incident-report forms and a daily bulletin; (c) dispatching officers by radio or telephone, with attendant duties of maintaining a radio log and some device for showing the availability of officers for radio service; (d) recording and storing personal property oL prisoners; (e) furnishing information to the public by telephone or at the desk or counter. As most of the above functions are clerical in nature, many Police agencies are now assigning civilian personnel to perform these duties, relieving trained police personnel to perform other law enforcement duties. However, until this concept is adoped, it will be necessary to assign one Sergeant and four Patrolmen for desk duties. Prepared by the Bureau for Municipal Police, State of New York. 27. The Staff Bureau will therefore consist of: 1 - Lieutenant, who will have over-all charge of all units. 1 - Sergeant, assigned to Traffic functions. 1 - Patrolman assigned to parking meter enforcement working under the direction of the Traffic Sergeant. 1 - Civilian maintenance man, (parking signs) . 1 - Patrolman, assigned to the Records unit. 1 - Patrolman, assigned to the Identification and Evidence- Property retention unit. 1 - Sergeant, desk duties. 4 - Patrolmen, desk duties. It is recommended that the five sworn personnel assigned to desk duties, be replaced with five civilian-dispatcher-typists. The content of this Bureau would first consist of: 1 - Lieutenant 2 - Sergeants Cl '7 - Patrolmen 1 - Civilian employee It would finally consist of: 1 - Lieutenant c1 - Sergeant - Patrolmen 6 - Civilian employees ADMINISTRATIVE BUREAU 1 - Training and Personnel Unit. There would be a Sergeant in charge of this unit, who would have over-all charge of Departmental training and personnel require- ments and would direct recruit investigations, utilizing investigative personnel for this purpose. He would also have charge of firearms training, utilizing trained instructors ordinarily assigned to other regular duties, for this purpose. This Bureau would also have other responsibilities, although each responsibility would not necessarily entail additional personnel. Prepared by the Bureau for Municipal .'mice, State of New York- n. Personnel Evaluation System or a Performance Appraisal System should be developed. As all personnel are judged, or evaluated in some fashion, there is no reason why these evaluations should not be documented. Most employees like to know how they rate with their supervisors, and an appraisal system is an invaluable management tool. An appropriate system should be developed by the Lieutenant in charge of Administrative Services, working with the planning and research officer and utilizing community and govern- mental resources experienced in this field. After a format has been designed, there will be no one man performing this service, as it will involve the services of all supervisory and command personnel. It will be the function of the Administrative Bureau to have charge and direct the program. There are other administrative tasks, some of a specific nature, others of a record-keeping nature. Administration should assist the Chief of Police in preparing annual budgets and making payroll adjustments. Assist in the preparation of specifications for acquisition of Departmental equipment. Maintain a preventive maintenance file on each vehicle and from mileage reports obtained from daily activity reports, have necessary work done on each vehicle, listing prices for each preventive maintenance and/or repair jobs. © Obtain from Bureau heads, a complete inventory of all Depart- mental equipment on an annual basis. Prepared by fit).e Bureau for Municipal P.)lice, State of New York. 29. Keep records of all expenses, submitting bills and vouchers rl for payment, and comparing these expenditures with line budget items so that the Chief will always know the surplus or deficit in each account. Be the focal point for keeping all equipment in operating order. Any equipment malfunctions are to be reported to Administra- tion who in turn will make the necessary contact for repair of the equipment. Maintain supplies and order when necessary all office forms, stationery, teletype paper, etc. Assist the Chief of Police in the preparation of work schedules, and maintain proper records of when personnel are off, and for what reasons, hours on duty, etc. The duties of Court liaison officer which are primarily in the supportive classification, can for the time being, be performed in the same manner as presently conducted by the Town of Mamaroneck Police Department, by the Detective Sergeant. The formal alignment of Administrative duties will be the function of the Lieutenant in charge of this Bureau, working with the planning and research officer. Until this formalization is attained, two Patrolmen will be assigned to this Bureau to also assist in this task. The Administrative Bureau, will therefore, on a temporary bass consist of: 1 - Lieutenant, in charge of the Bureau. 1 - Sergeant, in charge of the Training and Personnel Unit. 2 - Patrolmen. prepared by the Bureau for Municipal Police, State of New York.. J . We are also advocating in the organizational stage (see Chart, page 18) a Lieutenant, working directly for the Chief of Police, to have charge of three functions, (1) Inspections, (2). Internal Affairs and (3) Planning and Research. In a large Department, these three functions would be handled by three different officers, or units, but in a Department of sixty to seventy sworn personnel, all functions could be handled by one officer, as no one function would involve a full eight hour day. It is also suggested, in the organizational phase only, that a Sergeant be assigned to assist the Lieutenant in the direction and planning of these functions. Present Complement of Both Departments (Sworn Personnel) Position Larchmont Mamaroneck Totals C Chief 1 1 2 Lieutenant 2 2 4 Detective-Sergeant 1 2 3 Detective 4 4 Detective-Patrolman 3 3 Sergeants 3 6 9 Patrolmen 18 25 43 Totals 28 40 68 Prepared by the Bureau for Municipal Police, State of New York. Projection of Personnel for Proposed Department (Initial Phase) Position Number Chief 1 Lieutenant 1 - In Charge, Line Bureau 1 - In Charge, Staff Bureau 1 - In Charge, Adm. Bureau 1 - Working directly for Chief 4 Detective-Sergeant 1 - General Inv. 1 - Juvenile Inv. 2 Detectives 6 - General Inv. 2 - Juvenile Inv. 8 Sergeants 5 - Patrol (Line) 1 - Traffic (Staff) * 1 - Communications (Staff) 1 - Training (Adm. ) * 1 - Assist Inspections Lieut. 9 Patrolmen 34 - Patrol 1 - Records 1 - Ident. * 4 - Communications * 2 - Administrative Bureau Staff 1 - Parking Enf. 43 Total Sworn Personnel 67 * Positions to be adjusted. • Prepared by the Bureau for Municipal Police, State of New York. A ".) . This initial structure has eliminated one Chief of Police, and changed one Detective-Sergeant position to Detective. 4011) The rationale for this initial structure is to provide positions for all current personnel. It is not the intent of this report, nor is it believed to be the intent of the Boards of the Village of Larchmont and the Town of Mamaroneck, to eliminate positions. It is our intent to reduce the number of positions by attrition, and to use civilian personnel in place of sworn personnel in some categories. The civilian personnel in the initial phase will include those persons working in similar capacities presently for both Depart- ments and would consist of: Parking Enforcement Officer (full time) 1 L. Parking Enforcement Officer (part time) 3 L. Crossing Guards 11 M. Crossing Guards (full time) 7 L. Crossing Guards (part time) 2 L. Senior Stenographer 1 M. Traffic Sign maintenance man 1 M. Cleaner 1 M. Part Time Clerk 1 L. 28 410 Prepared by the Bureau for Municipal Police, State of New York. 3. Projection of Personnel for Proposed Department (Final Phase) Sworn Position Personnel Civilians Total Chief 1 1 Lieutenants 1 - Line Bureau 1 - Staff Bureau 1 - Inspections, et al 3 3 Detective-Sergeant 1 - General Investigations 1 - Juvenile Investigations 2 2 Detectives 6 - General Investigations 2 - Juvenile Investigations 8 8 Sergeants 5 - Patrol Supervision 1 - Training 1 - Traffic 7 7 Patrolmen 34 - Patrol 1 - Records 1 - Identification 1 - For Traffic Sergeant 1 - Other Staff Duties 38 38 Dispatcher-Typists 5 5 5 - Desk-Communications Other Civilian Positions 1 - Sr. Stenographer 1 - General staff duties 4 - Parking Enforcement Officers (1F. 3P.) 20 - Crossing Guards (Full & Part Time) 1 - Traffic Sign maintenance man 1 - Cleaner 28 28 Totals 59 33 92 111 Prepared by the Bureau for Municipal Police, State of New York. 14. By attrition, the number of Lieutenants would be reduced from four to three. The number of Sergeants, from nine to seven. 4711) The number of Patrolmen, from 43 to 38. One Detective-Sergeant position would be changed to the rank of Detective. Six civilians would be added, five to perform various desk duties as dispatcher-typists, and one to perform various clerical staff duties. One part-time clerk would be eliminated. The number of crossing guards, parking enforcement officers, etc. , would remain the same, pending a study by planning and re- search to determine whether or not consolidation of assignments could reduce personnel. C Prepared by the Bureau for Municipal Police, State of New York. Ad 35. Final Organizational Structure . i 1 Chief —..................._______............................1.___—_-_-....., , Inspections Sr . Steno Inter,Affairs Plann.& iFch. (Lieut) , . 1 , ......................,.............. FTI.I In4E BT.JAU STAFF BUREAU (Lie-nt) (Lieut) , 1st Platoon Traini ng-Pers. ' Recruitment itl Sgt.-5 Posts (Sgt. ) 0 2nd Platoon Traffic 1 Sgt.-5 Posts Sgt. & Ptl. ! 3rd Platoon Records 1 .Sgt.-5 Posts Ptl . I - 171.. vestigations - Identification 1 Det.Sgto - Ptl. 6 Detectives juvenile inves. dommunications- . , - 1 Det.Sgt. Desk 2 Detectives 5 civilians IgFrc7r7-0.ance APpr, LIBudget - Payroll Eauipment-Specs Preventive Main. Inventories Bills-Vouchers Supplies Work. Schedules C 1 1 Civilian • F 36. Tentative Salary Structure, Both Departments, as of July, 1974. Title Larchmont Totals Mamaroneck Totals Chief (1) 18,725.00 18,725.00 (1) 20, 200.00 20, 200.00 Lieut. (2) 16,060.00 32, 120.00 (2) 16,600.00 33, 200.00 Sgt. (3) 14, 965.00 44, 895 .00 (6) 14,200.00 85, 200. 00 Det.-Sgt. (1) 14,965.00 14, 965.00 (2) 14,800.00 29,600.00 Ptl.-Det. (3) 13, 965.00 41, 895.00 Det. (4) 13,600.00 54,400.00 * Ptl. (18) 12,835.00 231,030.00 (25) 12,369.00 309, 225.00 Totals 28 383,630.00 40 531,825.00 (Sworn Personnel) • Crossing Guards (9) 28, 100.00 (11) 32,400.00 • Parking Enf. Officer (4) 10, 755.00 Typist (1) 7,400.00 Sr. Steno (1) 9,585.00 Traffic Signs Main. Man (1) 5,751,00 Cleaner (1) 5,200.00 Civilian Personnel (14) Sub-Total 46,255.00 (14) Sub-Total 52,936.00 TOTALS (Sworn & Civilian) 429,885.00 584, 761.00 Emergency Comp. 15,000.00 Both Estimated Holidays 16,500.00 at 40, 000.00 461, 385.00 624, 761. 00 • * Average Patrolman salary estimated. (Average of highest and lowest salaries. ) Prepared by tie Bureau for Municipal Ponce, State of New Yorx,. 37. We must remind the reader at this time that due primarily to taking an average on patrolmen salaries, our total projections on the salary structure will not coincide with the exact figures for personal services as represented in the budgets for the Town of Mamaroneck and the Village of Larchmont. The average Patrolman figure was chosen for expediency and brevity. We also wish to question an item in the Village of Larchmont budget, page 31, item, Patrolman-Detective. This item lists 3 posi- tions at $13, 965.00. The following columns for total appropriation and general fund, lists the totals as $24, 895.00. The total amount for 3 positions at $13,965. 00 per position results in a figure of $41,895.00. Perhaps there is a reason why this amount was listed at $24,895.00 instead of $41,895.00. If $24,895.00 is the proper entry, then the figure of $404,250.00 for sworn personnel salaries is correct. If $41,895.00 is the correct figure, then the total sworn personnel salary entry should have been $421,250.00. On page 36, we have listed the structure of both Departments, with projected salaries, as of July, 1974. All figures are exact except (1) we have arrived at an average figure for Patrolman in both Departments and (2) we have estimated the holiday compensation and overtime of the Town of Mamaroneck Police Department as $40,000.00. On page 38, we will depict an organizational structure for the first organizational phase, utilizing the same personnel, minus one Chief. On pages 39 and 40, we will depict an organizational structure for the final phase, with changes in personnel as a result of attrition. Prepared by 73ureau for Municipal Pciice, State of New York. 38. Structure for combined Police Department, to coincide with the first orgy <.ational structure. We are using tentative July, 1974 salary projections, and also using the highest salary in each position category. Position Sala No. of Positions Total Chief 20, 200.00 1 20,200.00 Lieutenant 16,600.00 4 66,400.00 Det. Sgt. 14, 965.00 2 29, 930.00 Detective 13, 965.00 8 111, 720.00 Sergeant 14, 965.00 9 134,685.00 * Patrolman 12,835.00 43 551, 905.00 Totals (sworn personnel 67 914,840.00 Sr. Steno 1 9,585.00 ® Crossing Guards 20 60,500.00 Parking Enforcement 4 10,755.00 Typist 1 7,400.00 Traffic Sign Main. 1 5, 751.00 Cleaner 1 5,200.00 Totals (civilian personnel 28 99, 191.00 * Overtime, Holidays, etc. for both Departments 71,500.00 Totals: Sworn personnel 914,840.00 Civilian personnel 99, 191.00 Overtime, holidays, etc. 71,500.00 Combined totals $1, 085,531.00 The figure of $1,085,531.00 represents the estimated total for 401) personal services, excluding employee benefits, for a single Police Department for both units of government in the first phase. * Estimates Prepared by t}-_ Bureau for Municipal State of New York. Final Organizational Structure Using estimated projected salaries as of July, 1974, the followingpositions are recommended for the final organizational g structure, after attrition has reduced the number of Lieutenants to 3, the number of Sergeants to 7 and Patrolmen to 38. Six civilian positions have been created, in addition to those civilian posts already authorized. The final structure will also result in two Bureaus, Line and Staff, eliminating the Administrative Bureau. Position Salary No. of Positions Total Chief $20,200.00 1 $20, 200.00 Lieutenant 16,600.00 3 49, 800.00 Det. Sgt. 14, 965.00 2 29, 930.00 Detective 13, 965.00 8 111,720.00 ® Sergeant 14, 965.00 7 104, 755.00 Patrolman 12,835.00 38 487,730.00 Totals, sworn personnel 59 $804, 135.00 Sr. Steno 1 9, 585.00 Crossing Guards 20 60,500.00 Parking Enforcement Officers (1 full, 3 part time) 4 10, 755.OG Traffic Sign Maintenance 1 5,751.00 Cleaner 1 5, 20000 Civilian Personnel 27 $91, 791. 00 Prepared by the Bureau for Municipal Police, State of New York. 40. New civilian personnel: Dispatcher-typists CC 9, 585.00 5 47, 925.00 Staff duties 9,585.00 1 9,595.00 Total civilian personnel 33 149, 301.00 Estimated overtime, holiday, etc. payments 71,500.00 The combined estimated budget for the two Departments in the final implementation stage, excluding employee benefits : Sworn personnel $804, 135. 00 Civilian personnel 149, 301.00 Estimated overtime, holiday payments 71,500. 00 $1, 024, 936. 00 The reason we have excluded employee benefits at this time is that we are attempting to obtain a "budget-sampling" insofar as salaries are concerned. In doing so, we have made estimations in two categories, (1) average Patrolman salary, and (2) overtime and holiday compensation for the Town of Mamaroneck. The inclusion of employee benefits would project a third estimate, that of employee benefits for the Village of Larchmont. Although this amount is pro- jected correctly in the Town of Mamaroneck budget as $245,910.00, the specific amount is not listed in the Village of Larchmont budget. Prepared by the Bureau for Municipal Police, State of New York. 41. Costs for continuance of two Departments (July, 1974), On page 36, our projections for maintaining two separate Police Departments, excluding employee benefits, amounts to $1,086,146.00. This is for personal services only. Mindful that we have estimated the average Patrolman salary, and estimated holiday and overtime compensation for the Town of Mamaroneck, we will list total Pe so al services, excluding employee benefits, as they appear in the current budgets for both units of government: For the Town of Mamaroneck $626, 936.00 For the Village of Larchmont 450,505.00 $1, 077,441.00 This is a variance of $8,705.00 from our estimated budget of $1,086, 146.00, due for the most part, in not listing all of the ® 43 Patrolman salaries of both Departments exactly as they appear on payroll records. For purposes of illustration, we will continue to use our projected figure of $1,086,146.00 for the costs of continuing the two Departments separately and apart from the other. Costs for combining both Departments into one Department with the same number of personnel, less one Chief) . On page 38 we have arrived at a figure of $1,085,531.00 for personal services for one Police Department for both units of govern- ment, excluding employee benefits. This would be for the first organizational phase. C Prepared by the Bureau for Municipal Police, State of New York. 42. Costs for the unified Police Department for both units of government in the final organizational phase. On pages 39 and 40, we have arrived at a figure of $1,024, 936.00 for personal services, excluding employee benefits, for the cost of operating a single police agency for both units of government in the final organizational phase. First Implementation Phase In this first phase we have only eliminated one position, that of Chief of Police, and changed a rank of Detective-Sergeant to Detective. There will actually be no savings in the first phase, although our comparisons indicate a reduction of $615•.00. $1,086, 146. 00 (from page 36, costs for maintaining two separate Departments) 1,085,531.00 (from page 38, for one Department, first organizational phase) C $ 615.00 Position For two Depts. For one Dept. Differential (page 36) (page 38) Chief 38, 925.00 20, 200.00 - 18,725.00 Lieut. 65,320.00 66,400.00 + 1, 080.00 Sgt. 130,095.00 134,685.00 + 4,590.00 Det. Sgt. 44, 565.00 29,930.00 - 14,635.00 Detective 96,295.00 111, 720.00 + 15 ,425.00 Ptl. 540, 255.00 551, 905.00 + 11,650.00 or minus $615.00 The primary purpose in the first phase is to establish a new organizational structure and at the same time, retain all positions until attrition will result in the final implementation stage. Prepared by the Bureau for Municipal Police, State of New York. A 43. Final Implementation Phase The final phase reflects a savings of approximately $61,210.00 in personal services, i.e. , $1,086, 146.00 (from page 36, costs for maintaining two separate Departments) 1,024,936.00 (from page 40, one Department, final implementation phase) $ 61,210.00 Position For two Depts. For one Dept. Differential (page 36) (page 39) Chief $38,925.00 20,200.00 18,725.00 Lieut. 65,320.00 49,800.00 15,520.00 Sgt. 130,095.00 104,755.00 25, 340.00 Det. Sgt. 44,565.00 29, 930.00 14, 635.00 Patrolman 540,255.00 487,730.00 52,525.00 Typist 7,400.00 -0- 7,400.00 $134,145.00 411 Prepared by the Bureau for Municipal Police, State of New York. 44. Additions to implement final phase: 6 civilians @ $9, 585.00 $57,510.00 Position of Detective: $ 96, 295.00 for 2 Depts. , pg. 36 111,720.00 for 1 Dept. , pg. 39, an increase of - 15,425.00 $72,935.00 Minuses 134, 145.00 Additions 72, 935.00 Savings $61, 210.00 It is realized that this estimate in savings in personal services is based on figures for July, 1974, and the final imple- mentation stage, if adopted, would be sometime in the future, with different sets of figures based on increased costs. However, this exercise was conducted by necessity even though we had to use estimates in two categories, to factually ascertain that a savings in personal services could be realized by consolidation of the two departments, reducing some positions by attrition, and using civilian personnel in place of some sworn personnel. Prepared by the Bureau for Municipal Police, State of New York. i CHAPTER VI 43. CONSOLIDATION CONSIDERATIONS Vital Areas of Consideration in the Event of Consolidation: The Police Facility In a previous report, we have made the statement that although each police facility is adequate for their present needs, neither Department Headquarters is large enough to house men and equipment if consolidation is considered. The facilities are also inadequate to house a central records and communications center on a coordi- nated basis. The Town of Mamaroneck police facility has no capabili- ties for expansion and/or renovations and the Village of Larchmont Police Department also has many restrictions insofar as space and renovations are concerned. The only reasonable move for a consolidated effort would be © the construction of a new police building. Transfer of Personnel Depending upon the agreement format decided upon by both governing bodies, there would have to be a transfer of all civil service employees from one agency to another. This is permitted by statute, with the consent of both governing bodies. Uniformity There would have to be uniformity in appearance and equipment, i.e. , uniforms, insignias, weapons, decals, forms, etc. There would also have to be uniformity in a records system. At the present time, both Departments have different records systems Oand approaches to this very important facet of police work. One Prepared by the Bureau for Municipal Police, State of New York. .4 6. Department would have to adopt the records system of the other Department, or an entirely new records system could be installed 0 for the new agency. There would also have to be uniformity of Rules of Conduct. Uniformity in salaries and fringe benefits. Governing Body There would have to be established, one governing body such as a Board of Commissioners. As any future direction must be decided upon by local Town and Village officials, the content of this Board would be contingent upon the course of action taken by these officials. 401) Prepared by the Bureau for Municipal Police, State of New York. CHAPTER VII 47. COORDINATION CONSIDERATIONS The coordination of various services should also be C considered in any cooperative concept. In the coordination of services area, which is actually a step-by-step, piece-by-piece, one thing at a time approach, violent or disruptive changes are avoided. It is actually a type of a compromise which in one sense retains the fundamentals of the present system, but offers possible improvements in specific areas. It also provides the opportunity to ascertain how well two agencies can operate working together as sometimes departments used to working autonomously may not feel inclined to cooperate with a total consolidation effort. One of the pitfalls in a coordinated program is to involve, in the initial stage, more units than absolutely necessary. The merging of services should start with records and communications. Central Records and Communications The first coordinated program of records and communications is suggested because each is dependent upon the other for a favor- able result. Records supply the capability for pertinent infor- mation of crimes, suspects and deployment of personnel, together with management information. Communications is a means of furnishing this information to the officers in the field. A central records office would mandate uniformity in the manner of preparing forms and various reports and maintaining all records in one location, in conjunction with the dispatching center. Prepared by the Bureau for Municipal Police, State of New York. 4d. Although we have stated in a previous report that there are similarities in the two records systems, it would be necessary that one or the other system be adopted for general use, or an entirely new records system be adopted by the two agencies. Coordinated communicaticns would represent a lesser problem., as both Departments are now on the same frequency. The problem of housing these coordinated facilities, however is a formidable one. Although each police facility is adequate for their present needs, neither Department is large enough to house men and equipment for coordination of records and communi- cations. Extensive renovations, if possible, for this effort alone, would not be feasible. Although coordination of designated services must be con- sidered, it precipitates an immediate problem of adequate facilities. Prepared by the Bureau for Municipal Police, State of New York. CHAPTER VIII 49. PERMISSIVE LEGISLATION In New York State, we have one of the broadest authorizations for municipal cooperation which is contained in Article 5-G of the General Municipal Law. In essence, Article 5-G provides that two or more local governments may agree to perform a function or service or to provide a facility either jointly, or on a coopera- tive basis-- where one of the parties renders the service or provides the facility for the other. This authorization is predicated on each of the parties having the authority or power to perform the service or provide the facili- ties on its own. In other words, anything that the local govern- ments can do separately by themselves, they may cooperate in doing it either as a joint undertaking or as an undertaking whereby one does it for the other. Article 5-G outlines some of the considerations that have to be taken into account by the contracting parties when negotiating or even at an earlier stage, when exploring, the possibilities of cooperation under such statute. These considerations, among others, include (1) allocation of capital costs; (2) allocation and maintenance costs; (3) administrative structure and supervision; (4) employment practices and procedures; (5) the charging of rates or fees, if any. The statute provides the broadest latitude for the contracting parties to work out an arrangement which is most suitable for their needs. Prepared by the Bureau for Municipal Police, State of New York. 5 O. Let us look in terms of practical application how Article 5-G can be utilized in providing police services on a cooperative basis. In terms of parties, two or more towns, a town and a village, or village and a town, or a city and a town, or a city and a village or any combination of such local governments may cooperate pursuant to Article 5-G. The foregoing merely represents an outlining of the major provisions and capabilities of Article 5-G. It goes without saying that if this permissive legislation is utilized, Town and Village Attorneys must be consulted for their opinions for possible adaptation. Prepared by the Bureau for Municipal Police, State of New York. CHAPTER IX ri, MOTOR VEHICLE EQUIPMENT Town of Mamaroneck As of April 1, 1974, the Town Police Department had ten vehicles, 1 truck and 1 solo motorcycle. 1 - Vega, 1973 6 - Fords, 1974 3 - Chevrolets, 1972 and 1973 models Five vehicles are marked, five are unmarked. Village of Larchmont As of April 1, 1974, the Village Police Department had seven vehicles, I truck and 1 Cushman scooter. 5 Chevrolets, 1973 model 4 - marked 1 - unmarked 0 2 -- 1972 models 1 - Administration 1 - Investigations Automotive Maintenance "Department-owned vehicles must be greased, washed, and repaired; the oil must be checked, replenished, and changed; batteries must be checked, watered, and charged. Tires must be kept correctly inflated and repaired. The quality of materials used must be studied, and periodic tests will be necessary to prevent the purchase of inferior gasolines, oils, tires, and other equipment. "Motor-vehicle equipment may be maintained by a central munici- pal repair shop, a police shop, or by private contract. The choice should be based on the quality, convenience, and cost of the service. "Theoretically, a central municipal repair shop is able to maintain police vehicles most economically. A police department is deeply concerned with prompt and efficient maintenance in order that cars may not be kept out of service an unreasonably long time. ® The number of department automobiles is usually geared to routine operations, with a few spare vehicles for use during protracted Prepared by the Bureau for Municipal Police, State of New York. 52. repair periods; delays are costly because they restrict the most productive use of manpower. A shop under direct police control is more likely to adjust its operations toward a minimum tie-up of. O vehicles during hours of peak activity; its location in, or adjacent to, headquarters may provide a greater convenience than a central municipal shop. This is not invariably the case, however, and comparative studies should be made to determine which resource is the more desirable. ",Motor equipment in a small department may be most satisfacto- rily serviced and repaired by a private garage, while in somewhat larger departments, servicing may be done by the police department. and repairs by private contract. As the amount of work increases, the police department may undertake motor tune-ups and minor repairs. "Vehicles require a service to be given at the start of each tour of duty; gasoline, oil, and water must be checked and refilled, the windshield and door glasses cleaned, the interior swept out, and the supply of tickets and other printed matter replenished. This service should be provided at headquarters in order to minimize time loss and to permit the use of trusty labor and more complete supervision of the officers and service crew. When suitable facili- ties are provided, 24-hour trusty service for battery and tire changes may also be available under the control of the headquarters �►� staff. C "The gasoline pump is the bottleneck in the service operation; in order to diminish delay, an adequate number should be installed, and cars on beats that require less patrol mileage may be serviced only once or twice each day. In larger departments it may be advisable to have officers report off duty on a staggered schedule in order to lessen the time needed for servicing and to avoid leaving the city uncovered at change of shift. "In large cities, tire-remount stations are economical in that they allay a tendency of the driver to place a flat tire on the spare rack rather than to go a long distance for a tire change. Also, a tire-repair truck may be used to advantage in large cities. This truck, equipped with racks, carries tires of all required sizes and other equipment needed for tire repair and changing. It can be radio-dispatched upon requests from officers in the field. Other economies may be effected by guarding against tire damage through improper inflation and by using a special pump to take water out of underground gasoline tanks. Water can be detected instantly by the use of litmus paste on the gasoline guage-stick. "The care of the interior of cars and patrol wagons is important to maintenance and economy. In patrol wagons particularly it is necessary to guard against the storage of wet blankets and rusty tools. prepared by the Bureau for Municipal Police, State of New York. 33. The use of proper lighting and mechanicalventilation and well- designed storage chests equipped with subfloors will prevent some deterioration. "A careful study of maintenance records to prevent time- consuming duplication should be the responsibility of the director of automotive maintenance. He should also conduct a continuing study of gasoline, mileage, vendor and repair costs, and compara- tive studies of several different types of automobiles to determine their relative economy. In addition, he should provide for regular inspections and audits to ascertain the quality of the repairs and the accuracy of the charges. " 1 If a consolidation of the two Departments is attained, one of the functions of the planning and research officer would be to ascertain the proper number of vehicles, with spares, necessary to maintain proper services to the residents of the community. The vehicle requirements for the new Department should be less than the present requirements for two Departments. 1 Police Administration, 3rd Edition, 1972, Wilson/McLaren, pages 535, 536, 537. Prepared by the Bureau for Municipal Police, State of New York. CHAPTER X CONCLUSION In the consideration of a consolidation of this nature, there should be careful thought of all the favorable and unfavor- able aspects involved. "Agencies should recognize that there is no absolute correlation between size and efficiency. Larger agencies are not necessarily more efficient than smaller ones. They may be less so. Smaller agencies may be better structured to respond to local needs. " 1 The combined Police Service portion of the study conducted by the Commission on Criminal Justice Standards and Goals does not convince the reader that he should or should not consolidate. In certain instances, consolidation is advisable. Other statements, such as "consolidation is much less likely to save money than to improve effectiveness" , and the above quote that there is no absolute correlation between size and efficiency, among others, indicates the need for study, and perhaps a reflection of not only on the part of the elected officials, but the community residents. It must be considered that in the consolidation concept presented, except for some additional administrative posts, there are no additional services provided to the general public. It must also be considered whether or not there will be any effect on local pride, and if the present method is more responsive to the needs of the community than the projected method. 1 National Commission on Criminal Justice Standards & Goals, "The Police", 1973, page 109. C Prepared by the Bureau for Municipal Police, State of New York. E 5. It must be considered that a new police building will be a necessity if consolidation is adopted, offsetting any savings Ceffected in the final implementation stage. It should be considered whether or not total consolidation by referendum of both units of government involving all positions and services into one governmental agency would be more advanta- geous than piecemeal consolidation of designated services. It must be considered whether Westchester County will effect partial or total consolidation of all police agencies within the County in the next decade. It must be considered whether any merger or congolidation should involve just two law enforcement agencies or additional contiguous law enforcement agencies. CThese are considerations which must be taken into account on the local level and not decided by any outside consulting agency, regardless of their expertise in police management studies. The above are aspects which are more on the negative side. Obvious advantages to the consolidation concept must also be considered, and they would include: 1. A better structured law enforcement agency, with a distinct separation of line and staff services. 2. The removal of jurisdictional barriers. 3. The advantages of central purchasing. 4. The reassignment of some police personnel from "in-house" to field law enforcement duties. 5. Contract negotiations with one, rather than two PBA units. Prepared by the Bureau for Municipal Police, State of New York. 6. 6. In the final implementation stage, maintenance of services at a lower cost. O7. A realization that within a five year period, or ten years at a maximum, if the status-quo is maintained, both Departments will need new facilities which would far exceed the cost of one joint facility. From a planning viewpoint, coordination of services would be our first recommendation, as a stepping stone to total consolidation. We feel however, that any coordinated concept goes hand-in-hand with facilities and neither facility is adequate to house any coordina- tion of, for example, records and communications. Renovation for this purpose alone, would be fiscally irresponsible. Insofar as consolidation is concerned, we have projected a model structure for the merger of the two police agencies in two implementation stages, with a "budget-sampling" insofar as personal services are concerned. We did not include employee benefits, con- tractual, equipment and other services in the budget-sampling, but are certain savings can also be effected in these areas for one combined law enforcement agency. We have projected both the negative and positive viewpoints of the consolidation concept. The decision to maintain the status- quo or to consolidate the law enforcement agencies must now rest with the officials on the local level, consistent with the desires of their constituents and the home rule principles which have long governed the villages, towns, cities and counties within the State of New York. Prepared by the Bureau for Municipal Police, State of New York. 0 BIBLIOGRAPHY Budget Documents, 1974, Town of Mamaroneck 1974-1975, Village of Larchmont. Police Annual Reports, Village of Larchmont and Town of Mamaroneck for current fiscal years. Crime in the United States, published by the Federal Bureau of Investigation, years 1971 and 1972. National Advisory Committee on Criminal Justice Standards and Goals, "Police", 1973. Police Administration, 3rd Edition, 1972, Wilson/McLaren, pages 374, 496, 535, 536, 537, 698. Article 5-G, General Municipal Law Murray M. Jaros, Associate Counsel, New York State Office for Local Government. Prepared by the Bureau for Municipal Police, State of New York.