POLICE ADMINISTRATION GARY W. CORDNER KUTZTOWN UNIVERSITY KATHRYN E. SCARBOROUGH EASTERN KENTUCKY UNIVERSITY 7th EDITION Police Administration, Seventh Edition Copyright © 1989, 1995, 1999, 2004, 2007, 2010 Matthew Bender & Company, Inc., a member of the LexisNexis Group New Providence, NJ ISBN: 978-1-4224-6324-6 Phone 877-374-2919 Web Site www.lexisnexis.com/anderson/criminaljustice All rights reserved. No part of this book may be reproduced in any form or by any electronic or mechanical means, including information storage and retrieval systems, without permission in writing from the publisher. LexisNexis and the Knowledge Burst logo are trademarks of Reed Elsevier Properties, Inc. Anderson Publishing is a registered trademark of Anderson Publishing, a member of the LexisNexis Group. Library of Congress Cataloging-in-Publication Data Cordner, Gary W. Police administration / by Gary W. Cordner and Kathryn E. Scarborough -- 7th ed. p. cm. Includes bibliographical references and indexes. ISBN 978-1-4224-6324-6 (softbound : alk. paper) 1. Police administration. 2. Police administration- -United States. I. Scarborough, Kathryn E. II. Title. HV7935.C66 2010 363.2068--dc22 2009052186 Cover design by Tin Box Studio, Inc. EDITOR Elisabeth Roszmann Ebben ACQUISITIONS EDITOR Michael C. Braswell Preface This book is written for students and practitioners interested in police administration. Although police administration is far from a simple undertak- ing, the subject matter of this book is purposely presented in the simplest possible terms. The difficulties inherent in managing a police department and assuring the quality delivery of police services to the public can be over- whelming. These challenges demand the best efforts of the best men and women who can be attracted to the law enforcement field. This is especially true in a free, democratic society in which the police are trusted to exercise great restraint in the use of their awesome powers. For this edition we continued to resist the urge to add homeland security to the title of the book, just as with previous editions we resisted the urge to add community policing to the title of the book or to add a chapter or two on community policing. There is a chapter on “Police and Homeland Security,” though, because this new mission has important features that are somewhat different from more traditional police missions. We also continue to give increased attention throughout the book to such matters as the police intelligence function, information sharing, interagency cooperation, and communications interoperability. The text opens with several basic considerations crucial to understand- ing the unique features of police administration. These include the develop- ment and environment of police administration, the nature of police work, police goals and objectives, police organizational tasks, and the role of the police executive. These basic considerations provide a foundation for more detailed exploration of modern police administration. We then examine the challenging enterprise of police administration from several important perspectives, including a systems perspective; a tradi- tional, structural perspective; a human behavioral perspective; and a strategic management perspective. The systems perspective, which permeates the entire text, emphasizes the interrelatedness among units and organizations, the influence of external conditions on systems, and the importance of feed- back for correcting and improving performance. The traditional perspective highlights administrative principles, management functions, and the impor- tance of written guidelines. The behavioral perspective stresses the human element in organizations, an element that is often overlooked or taken for granted. The strategic management perspective considers communications iii iv Police Administration and information systems, evaluation of police performance, the strategies and tactics by which police work is accomplished, and prevailing and promising approaches to increasing the effectiveness of police agencies. We think it is extremely beneficial to examine police administration from these multiple perspectives. Many texts adopt just one view, thereby ignoring important aspects of the subject. We hope our approach helps you appreciate the breadth and complexity of contemporary police administra- tion. If you are interested in further exploring this complexity, each chapter includes a short suggested reading list. Five case studies are included at the end of the book. You may want to practice using the conceptual and theoretical tools introduced in the text to identify and analyze the organizational problems and situations presented in these cases. Many fields of professional activity seek improvement and recognition by establishing standards. Extensive police standards were first promulgated more than three decades ago by the National Advisory Commission on Crimi- nal Justice Standards and Goals and the American Bar Association Project on Standards for Criminal Justice. More recently, the Commission on Accredita- tion for Law Enforcement Agencies has identified standards for police adop- tion. We have inserted some of the standards from these sources throughout the text to acquaint you with the benchmarks that professionally recognized groups use in evaluating police departments. We believe that the field of police administration today is vibrant and exciting. Many studies conducted over the last 30-plus years have provided useful information to expand theory and refine practice. New and innovative programs and policies have been developed and tested. Some of our most basic assumptions about crime, violence, policing, and police administra- tion have been seriously challenged. In the 1990s, the community policing strategy caught the imagination of ordinary citizens, local officials, the U.S. Congress, and even the president of the United States. More recently, international terrorism has dramatically affected America’s beliefs and expectations about policing and public safety, and given rise to the new construct “homeland security.” The role of local police in homeland security will be evolving in the years to come. Traditional lines between local police, federal law enforcement, and the military may be blurred. Very impor- tant issues related to public protection and civil liberties will be at stake. Underlying all this effort and activity are some important fundamental issues related to order and liberty in a free society. The police are at the vortex of all our hopes for a fair, just, and safe existence; police administration remains as honorable and challenging an undertaking as any that can be imagined. Acknowledgments We are grateful to everyone who has contributed to this book in one way or another: by reading the manuscript at its various stages of develop- ment and making valuable suggestions and contributions; by giving us direct editorial input; by shaping the attitudes and philosophies that we have taken with us into the book; and by encouraging us and being patient with us dur- ing the long period since we began the first edition of this book more than 30 years ago. The first five editions of this text were coauthored by Robert Sheehan of Northeastern University, a true pioneer in police education and police professionalization. His words, ideas, and values still permeate the book, for which we are profoundly grateful. He was the ultimate philosopher, guide, and friend. We want to thank the following individuals for the professional guidance and personal kindness they have shown: Larry Ball, Kentucky Law Enforce- ment Council; Cornelius Behan, Chief (ret.), Baltimore County (Maryland) Police Department; Edward Blessing, Chief (ret.), Easton (Maryland) Police Department; Ed Brodt, Kentucky Regional Community Policing Institute; J.R. Brown, Kentucky Department of Criminal Justice Training (DOCJT); Tim Bynum, Michigan State University; David Carter, Michigan State University; Derral Cheatwood, University of Texas–San Antonio; Pam Collins, Eastern Kentucky University; Ed Connors, Institute for Law and Justice; Sylvester Daughtry, Commission on Accreditation for Law Enforcement Agencies; Steve Edwards, Bureau of Justice Assistance; Herman Goldstein, University of Wisconsin (ret.); Jack Greene, Northeastern University; Donna Hale, Shippensburg University; David Hayeslip Jr., Urban Institute; Larry Hoover, Sam Houston State University; Dennis Kenney, John Jay College of Criminal Justice; Ken Morris, DOCJT; Truett Ricks, Eastern Kentucky University (ret.); Rana Sampson, San Diego, California; Michael Scott, University of Wiscon- sin; Cindy Shain, Kentucky Regional Community Policing Institute; Mitchell Smith, Lexington (Kentucky) Division of Police (ret.); Mittie Southerland, Academy of Criminal Justice Sciences; Robert Stack, Lexington (Kentucky) Division of Police; Darrel Stephens, Johns Hopkins University; William Tafoya, University of New Haven; Walter Tangel, DOCJT; and Gerald Wil- liams, University of Colorado at Denver. v vi Police Administration We owe a special debt to Janice Ahmad, University of Houston-Down- town, who reviewed a previous edition of the text and Case Studies and pro- vided extensive feedback. We hope that the changes we continue to make will meet with her satisfaction. We are very grateful for the long-standing assistance and encouragement provided by Anderson Publishing of the LexisNexis Group, including Michael Braswell, Susan Braswell, Kelly Grondin, and especially Elisabeth Ebben. We would particularly like to acknowledge the pioneering contributions to police and criminal justice education provided by Bill Simon, now retired from Anderson. Finally, special recognition is due our families for their patience, under- standing, and many sacrifices. Thank you all very much. Contents Preface iii Acknowledgments v Part One Basic Considerations 1 Chapter 1 Introduction to Police Administration 3 Learning Objectives 3 The Development of Police Administration 4 The Political Era 5 The Professional Era 6 The Community Era 7 The Social Context of Police Administration 8 The Political Context of Police Administration 11 The Legal Context of Police Administration 13 The Challenge of Police Administration in a Democratic Society 14 Community-Oriented Police Administration 16 Homeland Security 17 Ten Guiding Principles 18 Summary 19 Discussion Questions 19 Notes 20 Suggested Reading 22 Chapter 2 The Nature of Police Work 23 Learning Objectives 23 The Evolution of Police Work 24 Police Discretion 28 Crime Control, Order Maintenance, or Social Service? 31 The Core of the Police Role 33 The Skill of Policing 35 While on Routine Patrol 37 Management Implications 38 Summary 40 Discussion Questions 40 Notes 41 Suggested Reading 43 vii viii Police Administration Chapter 3 Police Goals and Systems 45 Learning Objectives 45 The Purposes of the Police 46 The Police Mission 47 Police Goals and Objectives 48 Important Values 52 The Systems Concept 54 Inputs, Processes, Outputs, and Feedback 57 Types of Systems 58 Organizations as Systems 59 The Police Organization as a System 59 The Police in the Larger System 62 Summary 63 Discussion Questions 64 Cases 64 Notes 65 Suggested Reading 66 Chapter 4 Police Organizational Tasks 67 Learning Objectives 67 The Operations Subsystem 68 Patrol 69 Traffic 70 Criminal Investigation 71 Vice and Drugs 73 Organized Crime 74 Special Operations 75 Crime Prevention 75 Juvenile Services 77 Community Services 78 School Services 79 The Administration Subsystem 81 Personnel 81 Training 83 Planning and Analysis 84 Budget and Finance 85 Legal Assistance 86 Information Processing 87 Public Information 87 Inspections 89 Internal Affairs 90 Intelligence 91 The Auxiliary Services Subsystem 93 Records 93 Telecommunications 94 Property and Evidence 95 Laboratory 96 Contents ix Detention 97 Identification 97 Alcohol Testing 98 Facilities 98 Equipment and Supply 99 Maintenance 100 Interdependence of Subsystem Tasks 100 Summary 101 Discussion Questions 101 Notes 102 Suggested Reading 104 Part Two The Traditional Perspective 105 Chapter 5 Principles and Policies in the Police Organization 107 Learning Objectives 107 Authority, Responsibility, and Accountability 107 Delegation of Authority 110 The Authority-Level Principle 112 Key Organizational Principles 114 Chain of Command 114 Unity of Command 116 Span of Control 118 Grouping Like Functions 119 Written Guidelines 122 Organizational Policy 126 Organizational Procedures 128 Organizational Rules and Regulations 131 Formulation of Organizational Guidelines 133 Discipline 135 Summary 137 Discussion Questions 138 Cases 138 Notes 138 Suggested Reading 140 Chapter 6 Functions of Police Management 141 Learning Objectives 141 Management Functions by Level in the Organization 142 System Building 143 Interdependence 144 Environment 145 Feedback 146 Change and Organizational Learning 147 Planning 148