I have had the opportunity to wade through the 500+ pages of the report prepared by Carroll Buracker and Associates on behalf of the city of Greensboro.
This administrative review was ordered by the City Council in response to concerns expressed by the community on matters related to crime and the performance of the Greensboro Police Department. A perception of increased gang-related crime, and a cluster of homicides late last year, as well as high background crime levels, led the council to issue an implicit message to Chief Bellamy-- that he might be held accountable for how his department performs.
In addition, there has been continuing concern regarding the department's handling of wrongdoing committed by police officers still on the force-- e.g., the sexual assault case.
Numerous citizens had previously spoken out in various ways. And the issues have received considerable coverage and discussion in the Rhino Times, the Bledsoe series, the News and Record, at Ben Holder's blog, here and at other blogs as well.
Unfortunately, the process of retaining the GPD consultant was left in the hands of Mitchell Johnson. The effort overall represents a mixed bag. Today I am going to concentrate on some of the positive aspects of the report, of which there are many. It turns out that the Buracker report, explicitly or by implication, deals directly with many of the problems in the department that have been discussed here and elsewhere over the last couple of years.
While an effort was made to slant the presentation given before the City Council in a positive light, the report directly addresses some unfortunate, unpleasant realities-- and some insufficiencies-- that have existed in the department.
I will enumerate some of the main points made, and how they deal with issues discussed previously (here and elsewhere):
1. Level and quality of supervision over patrol and other officers: There had been allegations made in the Bledsoe series and elsewhere that a number of individual officers had not been working when they should have been; and have been involved, while technically on duty, in a number of nefarious activities. This is at least partially a problem related to supervision in the field.
It can be a challenge to supervise officers who are working autonomously in police vehicles. Buracker had a number of suggestions. He wants to raise the rank of supervising officers to at least the level of sergeant. This would imply a higher level of standing, qualification and preparation for supervisory duties. He remarked that it is very unusual to have corporals shoulder so much supervisory responsibility in a police department, and recommended eliminating that rank entirely. Instead, he said, there should be at least one lieutenant and sergeant for each shift.
In addition, he calls for the watch commander on duty at all times to be a captain instead of lieutenant-- even nights and weekends. He wants a Deputy Chief of the Operations Bureau to oversee the whole system.
He wants more high-ranking officers-- those higher in the command structure-- working evenings and weekends, which can be the busiest times. And he wants patrol officers restricted to a limited geographic zone, so they concentrate on their primary responsibilities and do not wander far afield. He wants them to be restricted from "self-dispatching", for instance to traffic stops conducted by other officers.
Buracker critiques the process of evaluating the performance of officers. He indicates the current process is ineffective, and reflects a natural human tendency on the part of supervisors and those within the command structure to avoid dealing with certain issues regarded as unpleasant. He argues, however, that there should be an ongoing process of "personnel management"-- not evaluation-- that demonstrably produces and documents improvements in performance; and that reflects the core values of the department and the needs of the general public. Buracker proposes a more structured, systematic approach than that which currently exists.
He wants watch commanders and division commanders to conduct periodic checks to assure staff are working where they are supposed to be working-- even nights and weekends.
And here is, perhaps, the most interesting recommendation of all. Buracker wants the city to monitor electronically the location of each officer in the field through "vehicle locators" placed on individual cars. Recall that this was the measure taken by David Wray's men in the case of James Hinson's vehicle that precipitated the GPD fiasco, and all that followed. This was perhaps the greatest irony in the entire report.
2. Maximizing the availability of authorized officer positions to do productive work: There has been a debate as to whether the department requires additional officers. Most observers appear to accept the premise that it does. The Buracker report, however, leads one to believe that the GPD should have more officers at its disposal than it actually does-- right now.
There are a number of reasons for this. The first, perhaps, reflects the problems and issues with supervision discussed in the previous section-- issues related to employee behavior and inadequate supervision. But there are other reasons as well.
For instance, Buracker points out that the current scheduling of shifts tends to produce too much coverage during the early hours of the day, and during week days-- and not enough from the early evening through the night, or on weekends. After all the controversy over David Wray's rotating shift schedule, it appears the department succumbed to the demands of officers and provided a schedule that gave lots of people the most desirable hours. While it is entirely understandable they would want this type of shift, it does not serve the public well, because crime does not follow the temporal pattern of a traditional work week.
He wants certain units and teams to be deployed evenings and weekends: Community Resource Team (CRT) members; Criminal Investigations detectives, Vice/Narcotics detectives and officers; PNRC (housing projects police); and crime analysis.
He wants only one-officer cars in PNRC, instead of two-officer cars. And he wants these officers doing surveillance to a greater extent in unmarked cars. There is some veiled criticism of this section--even a suggestion that it perhaps should be disbanded-- because patrol had to respond to over 76% of the calls in the housing projects-- its territory.
In one of the units that works mostly weekdays, he even found they had structured their work shifts so they have a 3-day weekend every other week.
He wants Criminal Investigations to eliminate all the unnecessary meetings in that department that tie up key staff. And he wants more clerical help to free up staff in Criminal Investigations, Vice/Narcotics and at the command level for other activities.
He critiques the recent "knee jerk" City Council decisions with respect to creation of a gang unit and robbery suspension unit. He wants the gang unit reduced to 8 members, and to have it give some officers back to CRT. He wants the robbery unit disbanded.
He wants every specialty unit created to have a written purpose and plan, including hours of work and objectives.
Staffing previously did not reflect how busy individual patrol zones are. As
a result, response times in certain zones have been suboptimal. He
wants the department to continue re-drawing the lines of these zones to
better reflect work demands, and then reevaluate this situation on an
annual basis.
City policy states there needs to be only one officer available per division. He proposes to correct this deficiency.
He proposes that the traffic unit be deployed to assist with patrol, and with responses to certain priority calls. He wants the unit to sacrifice its K-9's to the narcotics division.
Because of the way Tim Bellamy devised the most recent schedule, the department apparently has not even remotely been at full strength with respect to officers being deployed at peak times.
Buracker therefore recommends altering the work shifts to more closely reflect the demands that the department experiences. He wants more clerical support in certain areas so that key staff are not bogged down typing or doing routine administrative chores. He wants new hires to be dedicated to working the peak times.
He says that it takes too much time to get new recruits through the police academy, and makes recommendations to streamline this process so they can be working more quickly. (Other parties have suggested taking advantage of criminal justice training available in the community colleges.) He also wants to achieve certain efficiencies with respect to employee down time due to annual training.
He makes veiled suggestions that there may be abuse of sick time and prolonged light duty assignments; and makes some recommendations to deal with these issues. It appears to me that the department allows far too much sick time to its employees-- 12 days per year. I think this should be eliminated, and a fraction of it rolled partially into annual leave time. Having so much paid sick time invites abuse.
Finally, he observes that the department consistently has less employees working than the number of slots allocated to it by the city. This is because of resignations, retirements, and the amount of time it takes to get new hires through the police academy. The department, it seems, is never able to "catch up" to its maximal level of positions allocated. Buracker makes a suggestion that the department be permitted to hire even more people than appears to be needed so that the department can operate at full strength and not be caught short via normal attrition. He calls this process "overhire" or "dual encumber". This appears to be a good suggestion.
He thinks officers should be permitted to take home their cars to reduce down time going from personal car to patrol car and vice versa; and also to increase visibility in the community.
3. Handling of cases when police officers are accused of wrong-doing: This has been a matter of considerable public discussion and controversy. Buracker has some pointed observations and recommendations.
He feels, for instance, that it takes the department too long to review these cases. And he feels that, in too many cases, the charges are not sustained, and the officer is not disciplined enough. He points out that the standard of proof in administrative proceedings is lower than in criminal proceedings, yet the GPD seems to operate-- in an unwritten way-- according to a much higher burden of proof for its internal investigations.
It was reported in the Bledsoe series that certain officers at key positions in the internal affairs processes or the departmental hierarchy were able to run screen patterns for officers accused of wrongdoing in the past.
Buracker finds there is no consistent written policy regarding pay when officers are placed on administrative leave while their cases are being handled. This presumably creates a situation like Scott Sanders and Tom Fox having their pay withheld; while the officers accused of sexual assault are placed on paid administrative leave for over seven months.
Interestingly, he proposes disbanding the unit on which the alleged sexual assault took place-- TSET.
In any case, he also calls for more charges against staff to be "sustained" when these internal processes take place. He wants more severe discipline. He wants accused employees to spend less time on paid administrative leave. And he calls for faster reviews. These statements cut to the essence of many of the public criticisms and observations made regarding these processes.
He wants swift discipline when there are violations or abuses of the city's off-duty work program. This has been another matter of public controversy.
Buracker wants more staff-- and higher ranks-- among those in Internal Affairs.
Finally, he recommends a consistent, written policy regarding paid administrative leave.
4. Crime-fighting technique-- We have discussed various crime fighting approaches in the past on this blog. And some have called for a renewed emphasis on patrol activities. Buracker seems to support the premise that the department's patrol function needs to be strengthened. He wants more patrol time dedicated to proactive activities instead of "obligated" time.
He wants the department's crime analysts to generate relevant crime data on a daily basis so it can be shared with relevant officers-- including those at the level of patrol. This would be the near-equivalent of real-time data made available to those doing the work. He wants them placed under the Deputy Chief of Field Operations to facilitate crime data-sharing with these officers.
At the level of the individual police officer, he proposes a "beat plan" to describe the activities of those officers within that beat.
He proposes expanded Community Policing and Problem-Oriented Policing. He wants new emphasis on problem-solving activities in communities at risk. And he suggests that these activities be inculcated into the basic philosophy of the department, and made a standard part of all new hire training and annual training.
He proposes a captain under the Deputy Chief of Field Operations to coordinate all problem-solving/community policing activities.
He wants better performance measures of individual units like CRT and PNRC. He proposes all four units doing community policing being integrated into a single model; and their activities should be coordinated. (The other two are SRO-- the school resource officers-- and the new, to-be-created unit called Tactical.)
He wants CRT's to maintan detailed logs of their activities and accomplishments. And he suggests that "beat coordinators"-- a sergeant or lieutenant-- well versed in community policing be assigned to each geographic area. This person would be handed problems to be addressed, and help coordinate other departmental and city resources and units with a potential to assist with the problem at hand.
TSET deals with street-level narcotics. It would be replaced with the
general tactical unit that is supposed to deal more flexibly and proactively with various problems,
and that would receive some of the TSET officers. Other TSET staff
would be directed to the a street crime drugs unit within the
narcotics division to assure better coordination on narcotics
activities.
Interestingly, Buracker wants the city attorney to work on nuisance abatement cases. This had been a matter of some public controversy a number of months ago.
I am pleased with the emphasis on problem-oriented policing and problem-solving.
Summary: There is a wealth of recommendations in the full report that address directly items that have been of major concern in the community. Some question the department's ability to fight crime; and its willingness to enforce standards appropriately among its own officers. The department has been embroiled in controversy for three years over these matters.
There are many helpful perspectives on these matters within the report. Unfortunately, the verbal presentation given to the City Council emphasized topics such as staffing levels and promotions policies.
Massive amounts of data were presented verbally to the City Council, but not in a manner that would demonstrate how recommendations would resolve the department's current difficulties with respect to crime-fighting and internal matters. In fact, there was a concerted effort to make it appear that the department was not experiencing any significant difficulties.
Unfortunately, if the city council presentation is the last word on this report, we will get little of benefit from it. And if there is more conversation on these sensitive topics, we can be assured that various forces will work behind the scenes to maintain the status quo on certain key issues. In that event, the city can be counted upon to do precisely the wrong thing, if the past is any indication of what the future will hold.
This post was intended to highlight what I view as the positive aspects of the report-- many of which I am afraid might ultimately be ignored. A later post will deal with the downsides of the report.
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