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HomeMy WebLinkAboutWORKSTUDY-A_SANTA ANA PD - STRATEGIC PATROL STAFFING PLAN - FINAL REPORT Santa Ana Police Department Five-Year Strategic Patrol Staffing Plan Final Report January 2015 Report Prepared By: Eric J. Fritsch, Ph.D. Professor and Chair University of North Texas Department of Criminal Justice 1155 Union Circle #305130 Copyright © 2015 Denton, TX 76203-5017 University of North Texas (940) 565-4954 Denton, TX 76203 fritsch@unt.edu All rights reserved TABLE OF CONTENTS Section I: Patrol Division Staffing 2 Critical Issues Facing SAPD Patrol 2 Critical Issue #1: Insufficient Immediate Availability 2 Critical Issue #2: Excessive Response Time to Priority 1 Calls 3 Critical Issue #3: Insufficient Self-Initiated Time 4 Modeling Patrol Staffing Needs 4 Purpose of the Base Model: Establishing the Concurrent Validity of the MAPP 6 Building the Base Model: MAPP Variables 7 Calls for Service and Service Time Variables 7 Self-Initiated and Administrative Time Variables 8 Response Time Variables 9 Immediate Availability Variables 10 Visibility Variables 12 Weights for Performance Objectives 12 Leave Percentage 13 Two Officer Units 13 Results of the Base MAPP Modeling Process 13 Section II: Strategic Staffing Plan Patrol Officer Positions 16 Building the Strategic Staffing Plan for Patrol 16 SAPD 19 Section III: Summary of Patrol Staffing Recommendations 21 LIST OF TABLES Table 1: Patrol Division Staffing 2 Table 2: Base MAPP Input Values for Annual Number of Calls for Service by Priority Level by Patrol District 7 Table 3: Base MAPP Input Values for Average Service Time for Calls for Service by Priority Level by Patrol District 8 Table 4: Base MAPP Input Values for Self-Initiated and Administrative Time by Patrol District 8 Table 5: Base MAPP Input Values for Response Time Variables 10 Table 6: Base MAPP Input Values for Immediate Availability Variables 11 Table 7: Base MAPP Input Values for Visibility Variables 12 Table 8: Base MAPP Input Values for Performance Objective Weights 13 Table 9: MAPP Variables and Determination of Staffing Needs 15 Table 10: Summary of Patrol Staffing Recommendations by Fiscal Year 21 źź In May 2014, the Santa Ana Police Department (SAPD) contracted with the University of North Texas for the development of a five-year strategic patrol staffing plan. Various methodologies were employed during the study including interviews with command staff, analysis of existing departmental and city data and reports, assessment of national best practices applicable to SAPD, and the development of statistical models to project staffing needs. The project team was tasked with developing a five year strategic patrol staffing plan for SAPD. This report is structured in three primary sections and provides the reader with data, information, and analysis that lead to recommendations relevant to the strategic staffing plan of the Santa Ana Police Department. The three sections are as follows: Section I: Patrol Division Staffing; Section II: Strategic Staffing Plan Patrol Officer Positions; and, Section III: Summary of Patrol Staffing Recommendations. Њ SECTION I: PATROLDIVISION STAFFING This report specifically focuses on the uniformed patrol function within the SAPD Patrol Division and the number of patrol officers needed over the next five years. Table 1 illustrates the current patrol staffing levels within the division. There are currently 147 authorized patrol officers in the SAPD Patrol Division. For deployment purposes, patrol operations in SAPD are divided into four distinct patrol districts. The authorized patrol officer staffing levels within each district are presented in Table 1. In order to remain consistent with the patrol district structure, the patrol staffing analysis completed in this section of the report was completed at the district level. The district level analysis can then be aggregated to determine the total number of patrol officers needed in SAPD. The patrol officer staffing needs of each of these patrol districts over the next five years are discussed in this report. Table 1 Patrol Division Staffing Position Classification Authorized Personnel Patrol Officer District 1: Westend Sworn 36 Patrol Officer District 2: Northeast Sworn 34 Patrol Officer District 3: Southeast Sworn 37 Patrol Officer District 4: Southcoast Sworn 40 Total: 147 CRITICAL ISSUES FACING SAPD PATROL After the data analysis, it is evident that there are three critical issues facing patrol that demonstrate the current stress put on patrol due to insufficient staffing, including: officers to respond to Priority 1 calls for service; -initiated time available to officers. Each of these issues is discussed in greater detail below. Critical Issue #1: Insufficient Immediate Availability One of the core performance objectives of any patrol division is to have officers available who can immediately respond to Priority 1 calls for service. Priority 1 calls for service are the most serious calls received by Santa Ana PD and commonly involve crimes in-progress and incidents that put citizens in imminent danger where rapid response matters. Rapid response to Priority 1 calls for service can increase the probability of arrest of the suspect at the scene of the offense, decrease injuries suffered by the victim, decrease property loss and destruction, and deescalate the situation due to officer presence. It is imperative in order to meet this objective that officers must be Ћ immediately sent to the scene once the dispatcher has obtained sufficient information regarding the nature of the call. Priority 1 calls for service. The data points assessed are from the time the call is answered by the dispatcher to the time the officer is en route to the scene. Since these are Priority 1 calls for service, it is expected that the time between these two data points is small. However, before assessing the data, an adjustment must be made for call-taking time. Once the dispatcher answers the 911 call, there is a period of time in which the dispatcher is obtaining sufficient information before the dispatcher can get an officer en route to the scene. This information includes the nature of the incident, location, and other pertinent information. Since there is not a field within the computer aided dispatch system to definitely determine if a Priority 1 call is being held due to a lack of patrol personnel availability, the research team needed to establish a time standard. After discussion with SAPD command staff and personnel a standard of 80 seconds was established. It was determined that if a Priority 1 call was not dispatched within 80 seconds of being answered, it was typically being held because no officer was available to handle the call. In applying this standard, it was determined that 34.32% of the Priority 1 calls for service in 2013 took 81 or more seconds to dispatch. What accounts for the excessive hold time in dispatch for 35% of the Priority 1 calls received by SAPD. Some of the excess hold time in dispatch is probably due to shift changes. It is a constant challenge in most law enforcement agencies to keep up with the call volume during shift change. Some of the excess hold time in dispatch may be due to inefficient processes within dispatch and patrol such as the unwillingness to preempt an officer on a lunch break to respond to a Priority 1 call for service. However, the magnitude of the problem leads the research team to the conclusion The strategic staffing that the excessive hold time is due largely to insufficient staffing in patrol. plan for patrol that is described later in this report will focus significantly on increasing the immediate availability of officers and decreasing the hold time in dispatch for Priority 1 calls for service. Critical Issue #2: Excessive Response Time to Priority 1 Calls for Service Excessive response time to Priority 1 calls for service was identified as the second critical issue facing SAPD patrol. The first critical issue focused on insufficient immediate availability for Priority 1 calls. These two issues may sound similar, but they are, in fact, distinct from one another. The calculation of the immediately availability factor ends once an officer is dispatched to a Priority 1 call and that is when response time begins to be calculated. Response times are measured from the time an officer is dispatched to the call for service to arrival at the scene. Basically, the hold time described in the first critical issue is excluded in calculating the response time to Priority 1 calls for service. Ќ Response times to Priority 1 calls are measured from the time an officer is dispatched to the call for service to arrival at the scene. Data obtained from SAPD indicate that the average response time to Priority 1 calls for service by patrol district ranges from a low of 6.78 minutes to a high of 7.43 minutes in 2013. The response times to Priority 1 calls are too high in comparison to the experience of the research team with other agencies and with national norms. As previously mentioned, Priority 1 calls for service are the most serious calls received by SAPD and commonly involve crimes in-progress and incidents that put citizens in imminent danger where rapid response matters. These incidents are critical, where minutes, and even seconds, can have a major impact The strategic staffing plan for patrol that is described later in this on the outcome of the incident. report will focus significantly on decreasing the response time to Priority 1 calls for service in the future . Critical Issue #3: Insufficient Self-Initiated Time One of the core responsibilities of patrol officers is to conduct proactive, self-initiated activities. community policing and problem solving activities, stopping suspicious individuals, making traffic stops, among others. As discussed in a later section of this report, SAPD patrol officers spent slightly less than 8% of each shift on self-initiated activities in 2013. The amount of time SAPD patrol officers spend on self-initiated activities is very low in comparison to the experience of the research team while researching other agencies and in comparison to national norms. The long-established national standard is 33% of each shift should be allocated for self-initiated activities which is over 4 times more than the activities currently performed by SAPD patrol The strategic patrol staffing plan that is built in the next section of this report will officers. increase the amount of time patrol officers have for self-initiated activities . The critical issues discussed provide evidence that the SAPD Patrol Division is stressed due to insufficient staffing. When patrol is not sufficiently staffed, Priority 1 calls for service are held in dispatch because of a lack of availability of officers to immediately send to the call, response times become excessive and self-initiated activities are minimal which are all currently occurring in SAPD. MODELING PATROL STAFFING NEEDS The primary issue addressed in this report focuses on the question: How many sworn police officers should be assigned to patrol in the Santa Ana Police Department (SAPD) through fiscal year 2019-20? The methodology employed to answer the above question was the use of the Model for the Allocation of Patrol Personnel (MAPP). MAPP is a validated allocation model created by the author and has been successfully used in other cities and jurisdictions to accurately project the Ѝ number of officers required in patrol, utilizing variable service level schemes and performance 1 objectives. The MAPP is designed to determine the number of officers that need to be assigned to patrol based on established performance objectives. The model first determines the number of officers needed to answer calls for service and then builds upon that number to ensure that enough officers are assigned to patrol so that performance objectives can be met. There are six performance objectives for patrol used in this model. Each is discussed below. Ability to meet response time goals for Priority 1 calls for service It is crucial for SAPD officers to be geographically disbursed throughout the community so they are able to respond rapidly to Priority 1 calls. Priority 1 calls involve crimes in-progress and incidents that put citizens in imminent danger where rapid response matters. These incidents are critical, where minutes, and even seconds, can have a major impact on the outcome of the incident. Rapid response to Priority 1 calls for service can increase the probability of arrest of the suspect at the scene of the offense, decrease injuries suffered by the victim, decrease property loss and destruction, and deescalate the situation due to officer presence. It is imperative in order to meet this objective that officers must be immediately sent to the scene once the dispatcher has obtained sufficient information regarding the nature of the call and that officers respond rapidly. The MAPP takes into account the number of officers that need to be assigned to patrol in order to meet response time goals to Priority 1 calls. Ability to meet response time goals for Priority 2 calls for service It is also important for officers to respond quickly to Priority 2 calls to ensure the situation does not escalate into a more serious incident. Therefore, the MAPP takes into account the number of officers that need to be assigned to patrol in order to meet response time goals to Priority 2 calls. Ability to meet response time goals for Priority 3 callsfor service Although these calls are not as critical, it is also important for officers to be able to respond to Priority 3 calls in a reasonable amount of time primarily for citizen satisfaction purposes. 1 The original version of MAPP was built and tested by the author in 2000. Earlier versions of the model were featured in the Executive Issues Seminar Series which was sponsored by the Bill Blackwood Law Enforcement Management Institute of Texas as well as training provided by the Illinois Law Enforcement Training and Standards Board. Most recently, the MAPP was utilized in comprehensive staffing studies for the Allen TX, Denton, TX, DeSoto TX, El Paso TX, Eugene OR, McKinney TX, Midlothian TX, Richardson TX, Riley County KS, and Rowlett TX Police Departments. The web-based MAPP is used by police and sheriff departments throughout the country through an agreement with the University of North Texas. Dr. Fritsch has also authored a book entitled Police Patrol Allocation and Deployment and published by Pearson Prentice Hall, the only book on the market dedicated to the assessment of police patrol staffing issues as well as a research methods book entitled Applied Research Methods in Criminal Justice and Criminology, published by McGraw-Hill. Ў Therefore, the MAPP takes into account the number of officers that need to be assigned to patrol Having an officer available to immediately respond to a Priority 1 call SAPD must have officers available who can immediately respond to a Priority 1 call for service. If all on-duty officers are busy on other calls for service and activities, then the responses to Priority 1 calls will be delayed. In order to ensure sufficient immediate availability, a performance objective is set in the MAPP for the percentage of Priority 1 calls for which there should be at least one officer available to respond. This model then takes that percentage into account in determining the number of officers that need to be assigned to patrol. Visibility of officers The public, as they carry out their daily activities, likes to see police officers. They also like to see police officers in their neighborhoods. It is important for the police to be visible to citizens in order to make citizens feel safe and to deter potential criminal activity. Therefore, the MAPP sets visibility objectives for patrol and determines how many officers need to be assigned to patrol to meet these objectives. Officer Self-Initiated and Administrative Time The MAPP also takes into account additional performance objectives that are essential to the patrol function. First, officers are expected to spend a certain percentage of their on-duty time performing self-initiated activities such as enforcing traffic violations, stopping suspicious persons, and patrolling locations known for criminal activity. Second, officers spend a certain percentage of their time on administrative activities as well such as activities related to the start and end of each patrol shift as well as meal breaks. The MAPP accounts for these additional activities performed by officers when determining the number of officers that need to be assigned to patrol. PURPOSE OF THE BASE MODEL: ESTABLISHING THE CONCURRENT VALIDITY OF THE MAPP The initial objective in the modeling process was to develop a valid mathematical model that replicates the current conditions of patrol in SAPD by building a base MAPP. Validity addresses the accuracy of the modeling process and refers to the extent to which the MAPP is able to measure the current conditions of patrol in SAPD. Although the validity of the MAPP has been demonstrated in prior studies, it is critical to reassess its validity as it applies to SAPD patrol. The validity of the MAPP as it applies to SAPD patrol is tested by building a base MAPP as described in the next section of this report. By utilizing the data presented in the next section, if the base MAPP, through a complex series of statistical computations and algorithms, can identify the current number of officers assigned to Џ SAPD patrol, then the concurrent validity of the MAPP is demonstrated. In other words, there is concurrent validity if the number of patrol officers needed in SAPD according to the base MAPP is the same as the number of patrol officers assigned to SAPD at the time of the analysis. Concurrent validity is a complex and objective means of determining the validity of the MAPP. As demonstrated in the next section, the research team was successful in building a valid base MAPP and establishing the concurrent validity of the MAPP as it applies to SAPD. Establishing concurrent validity verifies the accuracy of the MAPP and its ability to be used to accurately determine SAPD patrol staffing needs in the future. BUILDING THE BASE MODEL: MAPP VARIABLES The initial objective in the modeling process was to build a base MAPP for each patrol district which reflects the current conditions of patrol in SAPD. A total of 30 variables were used in the development of the base MAPP for SAPD. In this section, each of the variables is discussed along with the data assessed to arrive at their values. Calls for Service and Service Time Variables The main concept behind the MAPP is to account for all activities performed by SAPD patrol officers and the amount of time it takes to perform these activities. In order to accomplish this, it is necessary to assess calls for service in the City of Santa Ana. The data assessed for calls for service include dispatched calls only since data on self-initiated and administrative activities are accounted for in a separate part of the MAPP. The call for service data were provided to the research team by SAPD personnel and include all calls for service, by priority level and patrol district, for calendar year 2013. The MAPP input values for calls for service are illustrated in Table 2. Table 2 Base MAPP Input Values for Annual Number of Calls for Service by Priority Level by Patrol District District 1 District 2 District 3 District 4 MAPP Variable Westend Northeast Southeast Southcoast Annual Number of Priority 1 CFS 502 544 489 645 Annual Number of Priority 2 CFS 4,293 4,283 4,014 5,108 Annual Number of Priority 3 CFS 13,558 13,993 14,221 16,323 Total 18,353 18,820 18,724 22,076 Service time is calculated based on the elapsed time from when an officer is en route to the scene to when the officer clears the call. It includes the time spent on each call by the primary unit assigned the call as well as all back-up unit responses as well. The average service time for calls for service data were provided to the research team by SAPD personnel and include the average А service time, by priority level and patrol district, for calendar year 2013. Table 3 shows the average service time for calls for service for each priority level by patrol district as entered into the MAPP. Table 3 Base MAPP Input Values for Average Service Time for Calls for Service by Priority Level by Patrol District District 1 District 2 District 3 District 4 MAPP Variable Westend Northeast Southeast Southcoast hours Average Service Time () for 3.2460 2.4158 2.9943 2.9003 Priority 1 Calls hours Average Service Time () for 1.7543 1.3667 1.6335 1.6258 Priority 2 Calls hours Average Service Time () for 0.9568 0.8075 0.8163 0.8343 Priority 3 Calls Self-Initiated and Administrative Time Variables The self-initiated time an officer spends on-duty is also taken into consideration in the perform directed patrol activities, participate in community policing and problem solving activities, stop suspicious individuals, make traffic stops, as well as other activities. In order to build the base MAPP and replicate the current state of affairs in SAPD patrol, the total number of self-initiated activities performed by patrol officers and the average service time of these activities in calendar year 2013 were assessed and provided to the research team by SAPD personnel. The data were provided by patrol district as illustrated in Table 4. The amount of time SAPD patrol officers spend on self-initiated activities within each patrol district is consistent; ranges from 4.19 to 4.88 minutes per hour per officer (see Table 4). As mentioned in the Critical Issues section of this report, the amount of self-initiated time spent by SAPD patrol officers is very low in comparison to the experience of the research team while researching other agencies and in comparison to national norms. Table 4 Base MAPP Input Values for Self-Initiated and Administrative Time by Patrol District District 1 District 2 District 3 District 4 MAPP Variable Westend Northeast Southeast Southcoast Self-Initiated Time in Minutes per 4.88 4.37 4.39 4.19 Hour per Officer Administrative Time in Minutes per 8.40 8.56 8.64 7.76 Hour per Officer Б Strategic Patrol Staffing Plan: Point to Consider The strategic patrol staffing plan that is built in the next section of this report will increase the number of minutes per hour per officer for self- initiated activities to 15 minutes for each patrol district which equates to 25% of each shift. This standard fits with the norms established by the research team in prior staffing studies of between 25%-35% self-initiated time on each shift, fits with the long-established national standard of 33% of each shift should be allocated for self-initiated activities, and fits with current best practices in law enforcement. The MAPP also takes into account the administrative time an officer spends on-duty. Administrative time includes meal breaks, vehicle check/maintenance, briefing/roll call, shift preparation activities as well as end of shift activities, and paperwork that is not completed on calls for service. In order to build the base MAPP and replicate the current state of affairs in SAPD patrol, the total number of administrative activities performed by patrol officers and the average service time of these activities in calendar year 2013 were assessed and provided to the research team by SAPD personnel. The amount of time SAPD patrol officers spend on administrative activities within each patrol district is consistent; ranges from 7.76 to 8.64 minutes per hour per officer (see Table 4). The amount of administrative time spent by SAPD patrol officers is lower than expected in comparison to the experience of the research team while researching other agencies and in comparison to national norms. The research team typically sees values in the 10 to 12 minutes per hour range. Response Time Variables In order to determine the number of officers needed to meet the response time goals to calls for service, it is necessary to assess three variables. First, the response time values for SAPD must be established. Response times are based on the amount of time from the call being available for dispatch to an officer to arrival of the officer on the scene. Therefore, the response times include the hold time in dispatch while a dispatcher is waiting for an officer to become available to answer the call for service which is why response times are significantly higher for Priority 3 calls (see Table 5). The response time values in Table 5 were provided to the research team by SAPD personnel and are based on 2013 data. Second, the response time objectives established in the MAPP require that the size of the geographic area covered by patrol be taken into account. Since the modeling is being completed at the patrol district level, the area in square miles of each patrol district was used in the development of the base MAPP (see Table 5). В Third, average response speed to emergency and non-emergency calls for service must be determined. The response speeds were provided to the research team by SAPD personnel. The response speeds are aggregate numbers for patrol so the same values are used for each patrol district. The response speeds may seem low but they take into account the time in which the officer must stop at stop lights (for non-emergency activities), slow down due to traffic conditions, as well as other circumstances which cause the patrol vehicle to slow down. The response time data used in the development of the base MAPP are presented in Table 5. Table 5 Base MAPP Input Values for Response Time Variables District 1 District 2 District 3 District 4 MAPP Variable Westend Northeast Southeast Southcoast Response Time for Priority 1 Calls 7.10 6.78 7.43 6.97 minutes () Response Time for Priority 2 Calls 13.33 9.53 11.22 11.17 minutes () Response Time for Priority 3 Calls 42.91 33.98 36.79 37.32 minutes () square miles Area () 6.95 5.43 6.82 8.35 Average Response Speed to Emergency 30.86 mph 30.86 mph 30.86 mph 30.86 mph Calls for Service Average Response Speed to Non- 17.27 mph 17.27 mph 17.27 mph 17.27 mph Emergency Calls for Service Strategic Patrol Staffing Plan: Point to Consider The strategic patrol staffing plan that is built in the next section of this report will modify current response times by decreasing response times to 5 minutes for Priority 1 calls, 10 minutes for Priority 2 calls, and 35 minutes for Priority 3 calls. These response time goals are consistent with current national best practices and with norms established in prior staffing studies by the research team. Immediate Availability Variables It is critical for SAPD to have enough patrol officers on-duty to be able to immediately respond to Priority 1 calls for service. In determining the number of officers needed to have an officer immediately available to respond to an emergency call for service, two variables are taken into account. First, the percentage of time an officer is available to immediately respond to an emergency call for service was determined. As previously discussed in the Critical Issues section of this report, in order determine the current status of patrol on this variable, the research team ЊЉ assessed the average hold time in dispatch for Priority 1 calls in 2013 and looked for any hold times that exceeded the 80 second standard set by SAPD personnel. In applying this standard, it was determined that 34.32% of the Priority 1 calls for service in 2013 took 81 or more seconds to dispatch. For the base MAPP, the percentage of time one patrol officer will be available to immediately respond to a Priority 1 call for service was set at 65% (see Table 6). Second, when determining the number of officers needed to provide an immediate response to a Priority 1 call for service, it is assumed that there are occasions when an officer who is on another call for service or self-initiated or administrative activity can clear that call or activity and respond to the Priority 1 call. When the officer is finished responding to the Priority 1 call for service, then the officer can return to the previous call or activity if necessary. Therefore, a certain percentage of calls for service, self-initiated activities, and administrative activities can be preempted if an officer is needed to respond to a Priority 1 call for service. However, it is argued that some calls for service or self-initiated activities cannot or should not be preempted because of the severity of the call for service, potential escalation, or because of citizen satisfaction reasons. The values established for the immediate availability performance objective are illustrated in Table 6. These values are policy decisions/administrative goals which were made by the SAPD command staff. The preemption values are reasonable in comparison to what the research team has seen in prior staffing assessments. Table 6 Base MAPP Input Values for Immediate Availability Variables MAPP Variable All Patrol Districts Percentage of time an officer will be available to immediately respond to a Priority 1 call 65% Percentage of calls for service that cannot be preempted 33% Percentage of administrative activities that cannot be preempted 15% Percentage of self-initiated activities that cannot be preempted 50% Strategic Patrol Staffing Plan: Point to Consider As previously discussed, SAPD has insufficient immediate availability in comparison to the experience of the research team with other agencies and with national norms. The strategic staffing plan for patrol that is described in the next section will focus on significantly increasing the immediate availability of officers and decreasing the hold time in dispatch for Priority 1 calls for service. The immediate availability standard will be set at 95% which is certainly a reasonable expectation due to both the rarity and severity of Priority 1 calls. ЊЊ Visibility Variables In order to determine the number of officers needed to meet the visibility performance objective, it is necessary to assess three variables. First, the visibility objective for two types of roadways must be set: 1) highway and arterial roadways, and 2) collector and residential streets. These objectives are based on the answer to the following questions: 1) how often should a patrol officer pass any given point on a highway or arterial roadway? and 2) how often should a patrol officer pass any given point on a collector or residential street? Basically, if a person was to stand on a street, how often should they see a patrol officer? The visibility objectives were set at 4 hours for highway and arterial roadways and 36 hours for collector and residential streets. This basically means that an officer should pass any given point on a highway or arterial roadway once every 4 hours and any given point on a collector or residential street every 36 hours. It is also important to remember that this performance objective is basically an average. Therefore, there will be some residential roadways in which an officer is seen more frequently than once every 36 hours. Likewise, there will be some residential roadways in which an officer is seen less frequently than the visibility objective. Second, the visibility objectives established in the MAPP require that the number of roadway miles be taken into account. The number of highway/arterial and collector/residential roadway miles was provided to the research team by SAPD personnel. The number of roadways miles was provided for each of the four patrol districts. Third, average patrol speed must be determined. The patrol speed was provided to the research team by SAPD personnel. The response speed provided is The patrol speeds may seem low aggregate for patrol so the same value is used for each patrol district. but they take into account the time in which the officer must stop at stop lights/signs, slow down to verify or dispel suspicious circumstances, and identify precursors to criminal activity. The visibility objective data used in the development of the MAPP are presented in Table 7. Table 7 Base MAPP Input Values for Visibility Variables District 1 District 2 District 3 District 4 MAPP Variable Westend Northeast Southeast Southcoast Visibility Objective Highway and 4 4 4 4 hours Arterial Roadways () Visibility Objective Collector and 36 36 36 36 hours Residential Streets () Miles of Highway and Arterial Roadways 18.62 13.41 15.93 22.01 Miles of Collector and Residential Streets 118.30 85.00 96.78 129.73 Average Patrol Speed 16.2 mph 16.2 mph16.2 mph16.2 mph Weights for Performance Objectives As discussed, the MAPP focuses on several performance objectives. By weighting the performance objectives, SAPD command staff can decide which of the performance objectives is most important and thus should hold more weight in determining the number of officers that need ЊЋ to be assigned to patrol. The weights must add up to 100%. For example, if SAPD command staff feels that each performance objective is equally important, then a 20% weight is assigned to each performance objective. A 35% weight was assigned by the SAPD command staff to the response time to Priority 1 calls objective while a 20% weight was assigned to each of the following: the patrol visibility objective; response time to Priority 2 calls objective; and, response time to Priority 3 calls objective. A weight of 5% was assigned to the immediate availability objective (see Table 8). The Priority 1 response time objective is most important to the SAPD command staff and thus will hold more weight in the determination of the number of officers that should be assigned to patrol. Table 8 Base MAPP Input Values for Performance Objective Weights MAPP Variable All Patrol Districts Response Time Goal for Priority 1 Calls Objective Weight 35% Patrol Visibility Objective Weight 20% Response Time Goal for Priority 2 Calls Objective Weight 20% Response Time Goal for Priority 3 Calls Objective Weight 20% Immediate Availability Objective Weight 5% Leave Percentage The average number of hours (n=492 hours) taken by patrol officers for each category of leave in 2013 was provided to the research team by SAPD personnel. Using the value of 492 hours of leave per year per patrol officer, the leave percentage was calculated. Since the data provided was for all patrol officers, not specific officers, the leave rate was not calculated for each patrol district. The leave percentage was 23.59% for patrol officers in 2013. The SAPD leave percentage is consistent with the average of 24% established in prior staffing studies conducted by the research team. Two Officer Units The percentage of time patrol units are staffed with two officers was also taken into account in the development of the base MAPP. The use of two officer units is rare in SAPD; the value was set at 2% in the base MAPP. RESULTS OF THE BASE MAPP MODELING PROCESS Table 9 illustrates the value for each variable used in the development of the base MAPP which depicts the current state of conditions in SAPD patrol. Using the data presented in Table 9, the base MAPP was able to accurately determine 36 patrol officers were assigned to District 1 in 2013, 34 patrol officers were assigned to District 2 in 2013, 37 patrol officers were assigned in District 3, and 40 patrol officers were assigned to District 4 in 2013. The patrol staffing levels within each ЊЌ district determined by the base MAPP are equivalent to the 2013 patrol staffing levels within SAPD. Therefore, the base MAPP is an accurate reflection of the current conditions in SAPD patrol and the concurrent validity of the MAPP has been established. There is one caveat that needs to be discussed in relation to the current patrol staffing levels within the SAPD Patrol Division. Currently, SAPD uses detectives assigned to the Investigations Bureau to backfill positions in patrol to maintain minimum staffing levels. Detectives work a total of 68 patrol shifts per 28 day deployment period. The detectives work 10 hour patrol shifts. By totaling the hours across the 13 deployment periods per year and accounting for the leave rate, it was determined that the use of detectives in patrol amounts to 5 FTE of work each year. Since this reflected actual work time in patrol in 2013, the year of the base MAPP, these additional FTE were added to the authorized patrol staffing levels in each patrol district reflected in Table 9. One FTE was added to districts 1, 2, and 3, while 2 FTE were added to district 4 since it is the largest patrol district in terms of number of patrol officers assigned. For example, District 1 actually has 35 patrol officers assigned but one FTE was added due to the use of detectives to backfill patrol shifts. This equates to 36 total officers as reflected in Table 9. Why is this important to note? The strategic patrol staffing plan that is built in the next section is predicated on the assumption that the practice of backfilling patrol shifts with detectives will If SAPD discontinues the practice of using detectives assigned to the continue in the future. Investigations Bureau to backfill positions in patrol to maintain minimum staffing levels, then 5 FTE need to be added to the number of additional patrol officers recommended in the next section of this report. ЊЍ Table 9MAPP Variables and Determination of Staffing Needs District 1 District 2 District 3 District 4 Call for Service (CFS) and Service Time Variables Westend Northeast Southeast Southcoast Annual number of Priority 1 CFS 502 544 489 645 Annual number of Priority 2 CFS 4,293 4,283 4,014 5,108 Annual number of Priority 3 CFS 13,558 13,993 14,221 16,323 Average service time (hours) per Priority 1 CFS 3.2460 2.4158 2.9943 2.9003 Average service time (hours) per Priority 2 CFS 1.7543 1.3667 1.6335 1.6258 Average service time (hours) per Priority 3 CFS 0.9568 0.8075 0.8163 0.8343 Self-Initiated and Administrative Time Variables Base 4.88 Base 4.37 Base 4.39 Base 4.19 Performance objective - Self-initiated time in minutes per hour per officer Future 15.0 Future 15.0 Future 15.0 Future 15.0 Base 8.40 Base 8.56 Base 8.64 Base 7.76 Performance objective - Administrative time in minutes per hour per officer Future 10.0 Future 10.0 Future 10.0 Future 10.0 Response Time Variables Base - 7.10 Base 6.78 Base - 7.43 Base 6.97 Performance objective Response time goal for Priority 1 calls (minutes) Future 5.0 Future 5.0 Future 5.0 Future 5.0 Base 13.33 Base 9.53 Base 11.22 Base 11.17 Performance objective Response time goal for Priority 2 calls (minutes) Future 10.0 Future 10.0 Future 10.0 Future 10.0 Base 42.91 Base 33.98 Base 36.79 Base 37.32 Performance objective Response time goal for Priority 3 calls (minutes) Future 35.0 Future 35.0 Future 35.0 Future 35.0 Area (square miles) 6.95 5.43 6.82 8.35 Average response speed (mph) for emergency activities 30.86 30.86 30.86 30.86 Average response speed (mph) for non-emergency activities 17.27 17.27 17.27 17.27 Immediate Availability Variables Performance objective - Percentage of time an officer will be available to Base 65 Base 65 Base 65 Base 65 immediately respond to a Priority 1 call Future - 95 Future - 95 Future - 95 Future - 95 Percentage of calls for service that cannot be preempted 33 33 33 33 Percentage of administrative activities that cannot be preempted 15 15 15 15 Percentage of self-initiated activities that cannot be preempted 50 50 50 50 Visibility Variables Performance objective - Visibility objective (hours), highway/arterial roadways 4 4 4 4 Performance objective - Visibility objective (hours), collector/residential roadways 36 36 36 36 Number of miles, highway/arterial roadways 18.62 13.41 15.93 22.01 Number of miles, collector/residential roadways 118.30 85.00 96.78 129.73 Average patrol speed (mph), 16.2 16.2 16.2 16.2 Weights for Performance Objectives Response time goal for Priority 1 calls objective weight (percentage) 35 35 35 35 Patrol visibility objective weight (percentage) 20 20 20 20 Response time goal for Priority 2 calls objective weight (percentage) 20 20 20 20 Response time goal for Priority 3 calls objective weight (percentage) 20 20 20 20 Immediate availability objective weight (percentage) 5 5 5 5 Leave Percentage Average percentage of time on leave 23.59 23.59 23.59 23.59 Additional Variable Percentage of time patrol units staffed with two officers 2 2 2 2 Current Number of Patrol Officers Assigned 36 34 37 40 +11 Additional Patrol Officers Needed +11 +8 +9 Recommended Number of Patrol Officers Assigned 47 42 46 51 ЊЎ SECTION II: STRATEGIC STAFFING PLAN -PATROL OFFICERPOSITIONS Since concurrent validity was established in the development of the base MAPP, this section of the report focuses on building a strategic staffing plan for SAPD patrol and the predictive validity of the MAPP. Predictive validity addresses the ability of the MAPP to accurately determine the results that will occur in the future when additional patrol officers are added in SAPD. As discussed below, the focus of the strategic staffing plan is on increasing the immediate availability of officers to respond to Priority 1 calls for service, decreasing response times, and increasing self- initiated and administrative time since current deficiencies in all these areas were identified by the research team. So the question then becomes, how do the SAPD command staff know that the projected increases in immediate availability and self-initiated time and decreases in response time will occur if the additional patrol personnel are added as recommended in this section? The answer is simple; since the base MAPP demonstrated the concurrent validity of the MAPP as a mathematical replication of the current conditions within SAPD patrol, the MAPP can accurately determine future patrol staffing needs by modifying the variables utilized in the base MAPP. Any of the values in the base MAPP can be modified and the patrol staffing needs to meet the new performance objective accurately determined. Therefore, the predictive validity of the MAPP can be established and the SAPD command staff can have confidence that the increases in patrol staffing will result in the intended benefits (i.e., increased immediate availability and self-initiated time and decreased response time). BUILDING THE STRATEGIC STAFFING PLAN FOR PATROL As illustrated in Table 9, SAPD patrol staffing increases are necessary to decrease response times to calls for service, increase the immediate availability factor, and increase self-initiated and administrative time for patrol officers. In order to improve the current level of patrol service provided to Santa Ana citizens, the changes made to the base MAPP are discussed in this section. The rows highlighted in green in Table 9 reflect the variables that were changed from the base MAPP to build the strategic staffing plan for patrol. All values used in the development of the base MAPP fit within the expected norms established by the research team in prior staffing studies with the exception of six variables (these variables are highlighted in green in Table 9): 1)Self-initiated time in minutes per hour per officer; 2)Administrative time in minutes per hour per officer; 3)Response time goal for Priority 1 calls for service; 4)Response time goal for Priority 2 calls for service; 5)Response time goal for Priority 3 calls for service; and, ЊЏ 6)Percentage of time an officer will be available to immediately respond to a Priority 1 call for service. The strategic patrol staffing plan that is developed in this section will focus on staffing the patrol function in SAPD so improvements on self-initiated and administrative time, response times, and immediate availability can be made and can become more in line with contemporary staffing standards. Patrol staffing increases are necessary to decrease response times, especially to Priority 1 calls for service, increase the immediate availability factor, and increase the amount of time officers have to conduct self-initiated and administrative activities. In order to significantly improve the current level of patrol service provided to the citizens of Santa Ana, the following changes were made to the base MAPP (see Table 9). 1)Self-initiated time in minutes per hour per officer was increased from the current less than 5 minutes in each patrol district in the base MAPP to 15 minutes in the MAPP developed This standard fits with the norms established by the for the strategic patrol staffing plan. research team in prior staffing studies of between 25%-35% self-initiated time on each shift, fits with the long-established national standard of 33% of each shift should be allocated for self-initiated activities, and fits with current best practices in law enforcement. 2)Response time for Priority 1 calls (minutes) was decreased from the current 6.78-7.43 minutes, depending on the patrol district, in the base MAPP to 5 minutes for each patrol A 5 minute response time to district in the MAPP developed for the strategic staffing plan. Priority 1 calls for service is consistent with current national best practices and with norms established in prior staffing studies by the research team . 3)The immediate availability factor was increased from the current standard of 65% in the An established base MAPP to 95% in the MAPP developed for the strategic staffing plan. standard of having at least one patrol officer available to immediately respond to a Priority 1 call for service 95% of the time is consistent with current contemporary staffing standards and national best practices due to both the rarity and severity of Priority 1 calls . 4)Response time for Priority 2 calls (minutes) was decreased from the current 9.53-13.33 minutes, depending on the patrol district, in the base MAPP to a standard of 10 minutes A 10 minute for each patrol district in the MAPP developed for the strategic staffing plan. response time to Priority 2 calls for service is consistent with current national best practices and with norms established in prior staffing studies by the research team . 5)Response time for Priority 3 calls (minutes) was decreased from the current 33.98-42.91 minutes, depending on the patrol district, in the base MAPP to a standard of 35 minutes A 35 minute for each patrol district in the MAPP developed for the strategic staffing plan. ЊА response time to Priority 3 calls for service is consistent with norms established in prior staffing studies by the research team for agencies the size of SAPD. 6) Administrative time in minutes per hour per officer was increased from the current average of about 8 minutes across the patrol districts in the base MAPP to 10 minutes in This standard fits with the the MAPP developed for the strategic patrol staffing plan. experience of the research team of a range of 10 to 12 minutes per hour for administrative activities. All of the other variables in the base MAPP remained the same in the MAPP developed for the strategic staffing plan. Recommendation #1: Based on the results of the MAPP, it is recommended that 186 patrol officers be assigned to the SAPD Patrol Division by the end of fiscal year 2019- 20. This is 39 additional patrol officers above the current authorized patrol staffing of 147. By patrol district, 11 additional patrol officers are needed in District 1: Westend, 8 additional patrol officers are needed in District 2: Northeast, 9 additional patrol officers are needed in District 3: Southeast, and 11 additional patrol officers are needed in District 4: Southcoast. Implementation Timeframe: FY 2015-16 Add 8 patrol officers FY 2016-17 Add 8 patrol officers FY 2017-18 Add 8 patrol officers FY 2018-19 Add 8 patrol officers FY 2019-20 Add 7 patrol officers This represents an increase of 39 patrol officers over the current authorized patrol strength of 147; a 26.5% increase. Changes of this magnitude do not typically occur quickly. Therefore, the strategic patrol staffing plan will accomplish the addition of 39 patrol officers over a five year period. The City needs to make steady progress towards the goal of adding 39 patrol officers over the next 5 years or response times will not decrease, immediate availability will not increase, and self-initiated and administrative time will not increase. The implementation of the strategic patrol staffing plan as designed will allow SAPD patrol officers to do the following: ЊБ 2,180 Priority 1 dispatched calls for service, 17,698 Priority 2 dispatched calls for service, and 58,095 Priority 3 dispatched calls for service; iority 2 calls for service in 10 minutes, and Priority 3 calls for service in 35 minutes; a Priority 1 call for service 95% of the time; % of their shift on self-initiated activities; Spend 16.7% of their shift on administrative activities; and SAPD In concluding this section, a few points to consider as SAPD implements this strategic patrol staffing plan are offered. First, since the validity of the MAPP was established, it is expected the benefits described in the previous section will be realized as patrol staffing increases occur (i.e., increased self-initiated and administrative time, decreased response times, and increased immediate availability). It is recommended that SAPD personnel measure the benefits obtained each year as staffing increases occur to further validate the results of the added patrol personnel. Second, the SAPD command staff should be cognizant of the other benchmarks established for patrol in this report and measure their maintenance annually. For example, the patrol staffing levels in this report are established to allow SAPD patrol officers to annually respond to 2,180 Priority 1 dispatched calls for service, 17,698 Priority 2 dispatched calls for service, and 58,095 Priority 3 dispatched calls for service;. However, an assessment of calls for service from 2011- 2013 including projections for 2014 show an annual average increase in Priority 1 calls for service of 6.25 percent as well as an annual increase of 5.94 percent increase in Priority 2 calls for service and a 2.56 percent annual increase in Priority 3 calls for service over the past 4 years. The values for the number of calls for service in the base MAPP were based on 2013 and were held staticin the modeling completed for the strategic staffing plan. If the annual increase in calls for service continue, then a new benchmark for annual calls for service, by priority level, should be established through trend analysis and the patrol staffing increases recommended in this report should be adjusted accordingly. Third, as previously discussed, the strategic patrol staffing plan is predicated on the assumption that the practice of backfilling patrol shifts with detectives will continue in the future. If SAPD discontinues the practice of using detectives assigned to the Investigations Bureau to backfill ЊВ positions in patrol to maintain minimum staffing levels, then 5 FTE need to be added to the number of additional patrol officers recommended in this report. Fourth, prior to each budget request, SAPD command staff should assess current data to verify that self-initiated, administrative time, and immediate availability are increasing and response times are decreasing as projected. If the projections are not validated, then the patrol staffing request needs to be adjusted based on the data available at the time. This assessment may lead to an increase or decrease in the number of patrol officers requested. ЋЉ SECTION III: SUMMARY OF PATROL STAFFING RECOMMENDATIONS The patrol officer staffing recommendations for the next five years are included in Table 10. Table 10 Summary of Patrol Staffing Recommendations by Fiscal Year Positions FY 2015-16 Classification Number of Positions Patrol Division Patrol Officer District 1: Westend Sworn 2 Patrol Officer District 2: Northeast Sworn 2 Patrol Officer District 3: Southeast Sworn 2 Patrol Officer District 4: Southcoast Sworn 2 Total New Positions 8 Positions FY 2016-17 Classification Number of Positions Patrol Division Patrol Officer District 1: Westend Sworn 3 Patrol Officer District 2: Northeast Sworn 2 Patrol Officer District 3: Southeast Sworn 1 Patrol Officer District 4: Southcoast Sworn 2 Total New Positions 8 Positions FY 2017-18 Classification Number of Positions Patrol Division Patrol Officer District 1: Westend Sworn 2 Patrol Officer District 2: Northeast Sworn 1 Patrol Officer District 3: Southeast Sworn 2 Patrol Officer District 4: Southcoast Sworn 3 Total New Positions 8 Positions FY 2018-19 Classification Number of Positions Patrol Division Patrol Officer District 1: Westend Sworn 2 Patrol Officer District 2: Northeast Sworn 2 Patrol Officer District 3: Southeast Sworn 2 Patrol Officer District 4: Southcoast Sworn 2 Total New Positions 8 Positions FY 2019-20 Classification Number of Positions Patrol Division Patrol Officer District 1: Westend Sworn 2 Patrol Officer District 2: Northeast Sworn 2 Patrol Officer District 3: Southeast Sworn 1 Patrol Officer District 4: Southcoast Sworn 2 Total New Positions 7 ЋЊ