Final Report
Police Operations
Grand Rapids, Michigan
August 2012
Submitted by:
ICMA Center for Public Safety Management
International City/County Management Association
777 North Capitol Street NE, Suite 500
Washington, DC 20002
Background
About ICMA
The International City/County Management Association (ICMA) is the premier local government
leadership and management organization. Since 1914, ICMA’s mission has been to create excellence
in local governance by developing and advocating professional local government management
worldwide. ICMA provides an information clearinghouse, technical assistance, training, and
professional development to more than 9,000 city, town, and county experts and other individuals
throughout the world.
ICMA Center for Public Safety Management
The ICMA Center for Public Safety Management team helps communities solve critical
problems by providing management consulting support to local governments. The Center’s
expertise in public safety encompasses the following areas and beyond: organizational
development, leadership and ethics, training, assessment of calls-for-service workload, staffing
requirements analysis, design of standards and hiring guidelines for police and fire chief
recruitment, police/fire consolidation, community-oriented policing, and city/county/regional
mergers.
Performance Measures
The reports generated by the operations and data analysis team are based upon key performance
indicators that have been identified in standards and safety regulations and by public safety special
interest groups and through the Center for Performance Measurement of ICMA. These performance
measures have developed following decades of research and are applicable in all communities. For
that reason, comparison of reports will yield similar reporting formats, but each community’s data
are analyzed on an individual basis by the ICMA specialists and represent the unique information
compiled for that community.
Methodology
The ICMA Center for Public Safety Management team follows a standardized approach to
conducting analyses of police, fire, and other departments involved in providing safety services to
the public. We have developed this standardized approach by combining the experience sets of
dozens of subject matter experts experienced in data and operations assessment in the areas of
police, fire, and EMS. Our collective team has more than a combined 100 years of conducting such
studies for cities in the United States and internationally.
The Public Safety Management team begins most projects by extracting calls for service and raw
data from an agency’s computer-aided dispatch (CAD) system. The data are sorted and analyzed for
comparison to nationally developed performance indicators. These performance indicators (e.g.,
response times, workload by time, multiple-unit dispatching) are valuable measures of an agency’s
performance regardless of its size. The findings are shown in tables and graphs and are organized
page i
in an easy-to-follow, logical format. Most of the resulting document’s structure and categories for
performance indicators are standard, but the data reported are unique to the jurisdictions. Given
the size and complexity of the documents, structuring the findings in this way allows for simple,
clean reporting.
The team conducts an operational review in conjunction with the data analysis. The performance
indicators serve as the basis for the operational review. The review process follows a standardized
approach comparable to that of national accreditation agencies. Prior to the arrival of an on-site
team, agencies are asked to provide the team with key operational documents (e.g., policies and
procedures, assets lists, etc.). The on-site review usually includes interviews with public safety
management and supervisory personnel, rank-and-file officers, and local government staff.
The information collected during site visits and through analysis of the data results in a set of
observations and recommendations that highlight strengths, weaknesses, opportunities, and
threats of all areas under review. To generate recommendations, the team reviews operational
documents, interviews and observations from site visits, relevant literature, statutes and
regulations, industry standards, and other areas specifically included in a project’s scope of work.
This standardized approach ensures that the ICMA Center for Public Safety measures and observes
all of the critical components of an agency, which in turn provides substance to benchmark against
jurisdictions with similar profiles. Although agencies may vary in size, priorities, and challenges,
there are basic commonalities that enable comparison. The approach also enables the tea to
identify best practices in use throughout the country.
In general, the standardized approach adopts the principles of the scientific method: We ask
questions and request documentation upon project startup; confirm accuracy of information
received; deploy operations and data analysis teams to research each unique environment; perform
data modeling; share preliminary findings with each jurisdiction; assess any inconsistencies
reported by client jurisdictions; follow up on areas of concern; and communicate our results in a
formal, written report.
ICMA Project Contributors
Thomas J. Wieczorek, Director, ICMA Center for Public Safety
Leonard A. Matarese, Director, Public Safety Services
Dov N. Chelst, Senior Quantitative Analyst
James Gabbard, Senior Public Safety Consultant
James E. McCabe, Senior Public Safety Consultant
Paul O’Connell, Senior Public Safety Consultant
Priscila Monachesi Kale, Quantitative Analyst
Dennis Kouba, Senior Editor
Background
page ii
Contents
Background ................................................................................................................. i
About ICMA ................................................................................................................................ i
ICMA Center for Public Safety Management ............................................................................. i
Performance Measures .............................................................................................................. i
Methodology .............................................................................................................................. i
ICMA Project Contributors ........................................................................................................ ii
Executive Summary .................................................................................................... 1
Methodology.............................................................................................................. 4
Data Analysis ............................................................................................................................. 4
Interviews .................................................................................................................................. 4
Focus Groups ............................................................................................................................. 4
Document Review ..................................................................................................................... 4
Observations.............................................................................................................................. 4
Implementing the Report's Recommendations ........................................................................ 4
Community Overview ................................................................................................. 6
Administration and Operations ................................................................................................. 6
Grand Rapids Demographics ..................................................................................................... 7
Uniform Crime Report/Crime Trends ........................................................................................ 7
Comparisons/Benchmarks ........................................................................................................ 9
Performance Measurement and Strategic Planning ................................................... 11
Patrol Division .......................................................................................................... 15
Patrol Deployment .................................................................................................................. 15
Revisiting the Rule of 60 .......................................................................................................... 31
Demand Management............................................................................................................. 34
Watch Commanders ................................................................................................................ 38
Reorganization......................................................................................................................... 39
Community Police Officer Program ......................................................................................... 41
Technology on Patrol............................................................................................................... 43
Special Response Team ........................................................................................................... 44
Investigations Division .............................................................................................. 39
General Case Team .................................................................................................................. 47
Major Case Teams I & II ........................................................................................................... 47
Family Services Team .............................................................................................................. 48
Combined Auto Theft Team .................................................................................................... 49
Metropolitan Fraud and Identity Theft Team ......................................................................... 49
Kent Metropolitan Major Case Task Force .............................................................................. 49
Alcohol, Tobbaco, and Firearms Investigative Unit ................................................................. 50
Specialized Investigative Personnel......................................................................................... 50
Vice Unit .................................................................................................................................. 51
Forensic Services Unit.............................................................................................................. 52
Multi-agency Operations ......................................................................................................... 53
Support Services Division.......................................................................................... 55
Special Services, Special Events, and Assignments ................................................................. 55
Property and Evidence ............................................................................................................ 56
Communications Bureau ......................................................................................................... 56
Facility/Fleet ............................................................................................................................ 61
Information Technology and Records Management............................................................... 62
Training .................................................................................................................................... 64
Administration ......................................................................................................... 68
Professional Responsibility ...................................................................................................... 68
Rules, Regulations, Policies, and Procedures ......................................................................... 72
Summary .................................................................................................................. 73
Appendix.................................................................................................................. 74
Tables
Table 1: Recommended Staffing of Sworn Personnel ............................................................... 3
Table 2: GRPD in Perspective .................................................................................................. 10
Table 3: Patrol Deployment (effective September 2011) ....................................................... 18
Table 4: Service Area CFS Comparison .................................................................................... 26
Table 5: Peak Workload Staffing ............................................................................................. 28
Table 6: Needed vs. Current Staffing....................................................................................... 29
Table 7: Staffing Deviation ...................................................................................................... 30
Table 8: Projected Saturation Index at Peak Demand............................................................. 31
Table 9: Recommended Patrol Staffing Configuration............................................................ 33
Table 10: Recommended Patrol Division Staffing ................................................................... 33
Table 11: Calls for Service, 2011 .............................................................................................. 34
Table 12: Investigations Division Sworn Personnel Assignments ........................................... 46
Table 13: Recommended Investigations Division Staffing ...................................................... 54
Table 14: Average Dispatch, Travel, and Response Times, by Priority ................................... 60
Figures
Figure 1: Grand Rapids Property Crime Rate, 2001–2010 ........................................................ 8
Figure 2: Grand Rapids Violent Crime Rate, 2001–2010 ........................................................... 8
Figure 3: Patrol Saturation Index, February 2011, Weekdays ................................................ 19
Figure 4: Patrol Saturation Index, Feburary 2011, Weekends ................................................ 20
Figure 5: Patrol Saturation Index, August 2011, Weekdays ................................................... 21
Figure 6: Patrol Saturation Index, August 2011, Weekends ................................................... 22
Figure 7: 2012 Deployment and 2011 Workload, Winter Weekdays ..................................... 24
Figure 8: 2012 Deployment and 2011 Workload, Winter Weekends .................................... 25
Executive Summary
ICMA was commissioned to review the operations of the Grand Rapids Police Department (GRPD).
While this analysis covered all aspects of the department’s operations, particular focus was on
identifying the appropriate staffing of the agency given its workload, community demographics,
and crime levels.
We utilized operations research methodology to analyze departmental workload and compared
that workload to staffing and deployment levels. We reviewed other performance indicators, which
allowed us to understand service implications on current staffing. We reviewed the department’s
organizational design to determine if the various functions of a modern police agency were staffed
appropriately.
The study incorporated several distinct phases: data collection, interviews with key police and
administration personnel, on-site observations of the job environment, data analysis, comparative
analyses, alternatives and recommendations, and submission and oral briefings.
Based on our review, it is our opinion that the GRPD is a highly professional, well-managed police
agency. Members of the department of all ranks and positions demonstrate a high degree of
professionalism and dedication to the agency and the community. The information management
system developed and implemented in the department is beyond compare in contemporary law
enforcement. The department’s response to the challenging economic environment in Grand Rapids
appears to have been handled professionally and appropriate measures have been taken to deal
with budget and personnel reductions while still maintaining core services. However, continued
reductions in resources undoubtedly will have an impact on the ability of the department to
maintain current service levels.
The recommendations provided here seek to ensure that police resources are optimally deployed,
streamline operations, and identify efficiencies in order to reduce costs while maintaining the high
level of police service currently provided to the citizens of Grand Rapids. Implementation of these
recommendations should be undertaken with full participation of all the relevant stakeholders
involved. ICMA recommends that the Grand Rapids Police Department:

Reduce personnel assigned to patrol.

Examine calls for service (CFS) response to improve efficiency and reduce overall time
spent on assignments and the number of officers assigned per CFS.

Examine CFS demand to reduce the number of “nonpolice” CFS handled by patrol units.

Eliminate the watch commander position and replace it with a shift commander rotation
with responsibility shared by all GRPD lieutenants.

Merge the North and West service areas and the South and East service areas to create two
new service areas commanded by one captain in each. Each of these service areas should
also have two lieutenants assigned.

Staff a position of deputy chief for patrol operations.
page 1

Equip marked patrol cars with license plate reader technology and automated external
defibrillators.

Develop and implement a more efficient criminal case management system that uses
solvability factors to assign cases. All other incidents should be used as information and
processed into intelligence for investigations and patrol enforcement operations.

Merge the general case teams and major case teams and create two investigative teams
with one assigned to each of the new service areas. These teams should consist of one
sergeant and eight investigators; they should report to a lieutenant and will be responsible
for all criminal investigations in Grand Rapids.

Restructure the work schedule to ensure detectives are working and available at night and
during the weekends. Each team should cover at least one weekend day, and team shifts
should not overlap by more than three hours.

Reassign personnel currently assigned to specialized task forces

Curtail 24-hour public access to the police headquarters facility; reconfigure the entrance to
limit access to the Monroe Street entrance only and include a secure front-desk area facing
this entrance.
Combining all of the personnel recommendations contained in this report will result in an
organization consisting of 269 sworn and 81 civilian personnel. The staffing of the civilian positions
remains unchanged. Table 1 on the next page presents the organization for sworn positions. ICMA
considers these staffing levels as minimums based upon current workload demands.
The ICMA team thanks the city and police administrations of Grand Rapids for their assistance in
completing this project. In particular, ICMA commends City Manager Greg Sundstrom and Police
Chief Kevin Belk for their enthusiasm and cooperation with ICMA team regarding documentation
requests and the overall project.
Executive Summary
page 2
TABLE 1: Recommended Staffing of Sworn Personnel
Executive
Internal Affairs
SRT
LT Military
Chief
1
1
Deputy
Chief
0
Support Division
IT
Special Services
Training
Special Events
B&GCGRYC
1
1
1
3
Sergeant
1
2
3
1
1
0
Patrol Division
East-South
ES-CPO
North-West
NW CPO
Executive Summary
0
1
Lieutenant
1
0
Investigations
Division
Detective Unit
Major Case 1
Major Case 2
Family Services
Cyber Forensics
Kent Metro TF
ATF
CATT
MFITT
Warrants
Subpoena
City Attorney
Housing
Vice
Total
Grand Total Sworn
Captain
1
1
1
1
1
3
3
1
2
1
1
1
1
1
2
3
8
1
2
1
2
8
1
8
1
2
4
17
1
4
12
31
Patrol
Officer
16
1
17
2
7
4
1
2
16
8
8
9
1
2
2
2
1
1
1
1
1
14
51
1
1
60
10
60
7
137
220
270
page 3
Methodology
Data Analysis
This report utilizes numerous sources of data to support conclusions and recommendations for the
Grand Rapids Police Department. Information was obtained from the FBI Uniform Crime Reporting
(UCR) Program, Part I Index, crime and police officer head counts, and numerous sources of GRPD
internal information, including data mining from the computer-aided dispatch (CAD) system for
information on calls for service (CFS).
Interviews
The study relied extensively on intensive interviews with GRPD personnel. On-site and in-person
interviews were conducted with all division commanders regarding their operations. Similarly,
police labor representatives were interviewed to get an understanding of the labor-management
climate in the GRPD.
Focus Groups
A focus group is an unstructured group interview in which the moderator actively encourages
discussion among participants. Focus groups generally consist of eight to ten participants and are
used to explore issues that are difficult to define. Group discussion permits greater exploration of
topics. For the purposes of this study, focus groups were held with representatives of the
department.
Document Review
The Grand Rapids Police Department provided the ICMA team with numerous reports and
summary documents, as well as information on strategic plans, personnel staffing and deployment,
evaluations, training records, and performance statistics.
Observations
Over the course of the evaluation period, numerous observations were conducted. These included
observations of general patrol, special enforcement, investigations, and administrative functions.
ICMA representatives engaged all facets of department operations from a “participant observation”
perspective.
Implementing the Report’s Recommendations
ICMA’s conclusions and recommendations serve as a blueprint for both city and police
administrations. City administrators should have periodic meetings with the GRPD to ensure that
ICMA’s recommendations are implemented. It is strongly recommended that the chief identify and
task one individual with responsibility for implementing these recommendations. This person
should be given the authority and responsibility to effectuate the changes recommended. This
includes ensuring the recommendations are executed in a timely fashion and evaluating the
department’s progress every six months for efficiency, effectiveness, and performance.
page 4
All of ICMA’s recommendations are practical and sensible and should be implemented by the police
administration within a reasonable period of time. If the city desires, ICMA can provide a service to
periodically review, monitor, and reevaluate the department’s progress to help ensure that the
recommendations are implemented properly. If the police administration continues to have
difficulty implementing the recommendations, ICMA can assist with implementation.
Methodology
page 5
Community Overview
Policing involves a complex set of activities. Police officers are not simply crime fighters whose
responsibilities are to protect people’s safety and property and to enhance the public’s sense of
security. The police have myriad other basic responsibilities on a daily basis, including preserving
order in the community, guaranteeing the movement of pedestrian and vehicular traffic, protecting
and extending the rights of persons to speak and assemble freely, and providing assistance for
those who cannot assist themselves.
As the second-largest city in Michigan, Grand Rapids has big-city flair, with world-renowned
cultural and historic sites, professional sports teams, and a dynamic downtown. Integrated into this
“big city” are diverse and vibrant residential communities with distinct neighborhoods, active
communities, and a small-town feel. Both the city and the police department are dedicated to the
principles of community policing, and the department strives to provide a high level of service to
the Grand Rapids community.
The Grand Rapids Police Department provides a full range of police services, including responding
to emergencies and calls for service, performing directed activities, and solving problems.
Administration and Operations
The Grand Rapids Police Department has 379 employees serving a population of approximately
188,000 residents. The department is staffed as follows:


298 sworn personnel:
o
1 Chief
o
6 Police captains
o
16 Police lieutenants
o
33 Police sergeants
o
241 Police officers
81 nonsworn personnel
The department is organized as follows:

Four patrol service areas: North, South, East, and West.

Investigative Division, including a detective unit, vice unit, and forensic services unit.

Support Services Division, including information technology; crime analysis; training; office
of film, music and special events; communications bureau; financial services; records unit;
and the special services unit. The Support Services Division is commanded by one captain
and one sergeant.

Special Response Team, with one lieutenant, two sergeants, and sixteen police officers.

An internal affairs unit that reports directly to the chief.
page 6
Grand Rapids Demographics
When determining the appropriateness of deployed resources—both current and future—a key
factor for consideration is the demographic characteristics of the community. According to the U.S.
Census Bureau, the city of Grand Rapids’ total area is 44.40 square miles, with a population density
of 4,236 persons per square mile. The racial makeup of the city is estimated to be 64.6 percent
white, 15.6 percent Hispanic, 20.9 percent black, and 1.9 percent Asian.
Uniform Crime Report/Crime Trends
As defined by the FBI’s Uniform Crime Reporting (UCR) Program, Part I crimes are major crimes
used to measure the extent, fluctuation, and distribution of serious crime in geographical areas.
Part I crimes are the seven most serious offenses: murder, rape, robbery, aggravated assault,
burglary, larceny, and motor vehicle theft.
In 2010, the city of Grand Rapids reported 9,405 Part I crimes, compared with 10,409 in 2009, or a
9.9 percent decrease. 1 Appendix A displays the Part I crimes for Grand Rapids in 2010 and puts the
reported crimes into proper context. In addition to raw numbers, serious crime is converted to a
rate per 100,000 residents and compared with the crime rates of the ten largest cities in Michigan,
as well as national and state crime rates.
Grand Rapids is the second largest city in Michigan, but has just the fourth highest rate of violent
crime of the ten largest cities in the state (Detroit, Grand Rapids, Warren, Sterling Heights, Lansing,
Ann Arbor, Flint, Clinton Township, Livonia, and Dearborn). However, the violent crime rate is
about 113.2 percent higher than the national average and 75.3 percent higher than the violent
crime rate in Michigan. Grand Rapids’ property crime rate also ranks fourth-highest in the state.
Grand Rapids’ property crime rate of 4,051 crimes per 100,000 residents is 37.7 percent higher
than the national average and 49.3 percent higher than the state average. (See Appendix A for
Grand Rapids crime data.)
This analysis is not intended as an illustration of how Grand Rapids compares with other
communities with regard to crime. As a large metropolitan area with a high population density, it is
to be expected that the crime rate in Grand Rapids would surpass national and state averages. And
although the rates of crime in Grand Rapids exceed national and state averages, they are lower than
other large cities in Michigan. These factors suggest that crime should be a concern for the
community, but also that the city is safer than other Michigan cities of comparable size.
Larceny in Grand Rapids is the highest reported crime and the one crime that drives the overall rate
of crime in the community. In 2010, Grand Rapids experienced 4,609 larcenies, representing 49.0
percent of all serious crime.
Figures 1 and 2 depict the crime trends in Grand Rapids between 2001 and 2010. As illustrated in
this figure, the rate of property crime in Grand Rapids has decreased since 2001, when it was 5,018
1
2010 UCR Part I Offense data is used because at the time of this report the 2011 crime data were not available
from the FBI. Similarly, the ten-year crime rate comparisons are limited to 2001–2010 because this is the most
current data available from the UCR program.
Community Overview
page 7
property crimes per 100,000 residents. By the end of 2010, the rate had decreased 19.27 percent to
4,051 per 100,000 residents. Between 2001 and 2007, there was a steady increase in property
crime rate, but between 2007 and 2010, property crime decreased drastically, with the entire
reduction in property crime over the ten-year period occurring between 2007 and 2010.
Since property crime is the most frequent crime in Grand Rapids and exists at a rate higher than the
national, state, and comparable city rates, it deserves attention from an organizational and
managerial perspective.
FIGURE 1: Grand Rapids Property Crime Rate, 2001–2010
Property Crime Rate
6000
5000
4000
3000
2000
1000
0
1
2
3
4
5
6
7
8
9
10
As shown in Figure 2, violent crime also has decreased in Grand Rapids over the last decade. In
2001, the violent crime rate was 1,030 per 100,000 residents. By 2010, this decreased had 16.6
percent to a rate of 859 violent crimes per 100,000 residents. Despite this decline, Grand Rapids’
violent crime rate remains much higher than the national and state averages.
FIGURE 2: Grand Rapids Violent Crime Rate, 2001–2010
Violent Crime Rate
1200
1000
800
600
400
200
0
1
2
3
Community Overview
4
5
6
7
8
9
10
page 8
Aggravated assault is the most common category of violent crime in Grand Rapids, which had
1,025 reports of aggravated assault in 2010. The high rate of aggravated assault (525 per 100,000
residents) suggests that this category of violent crime deserves the greatest share of attention
from an organizational and strategic perspective.
GRPD has made great strides in improving the character of the community and addressing
serious crime, but more work needs to be done. The department’s aggressive approach to violent
crime must be continued.
Comparisons/Benchmarks
Putting Grand Rapids’ crime rate information into perspective requires comparing the GRPD with
other major police departments. The IBM report Smarter, Faster, Cheaper looks at several financial,
organizational, and demographic variables in order to assess the relative efficiency of police
departments. 2 This report presents the data from 100 major U. S. cities of various sizes and regions
and controlled economic indicators by the cost of living in each community. Keeping in mind that
each community has characteristics that govern the style and size of its police department, these
characteristics and comparisons are useful in understanding the relative performance of the GRPD.
The benchmarks that are illustrative of the police department’s performance—spending per capita
on police services, crime rate, spending per serious crime, and sworn officers per capita—are
presented in Table 2.
The GRPD spends approximately $243 per capita on police services. This compares favorably to the
$263 per capita spent in the 100 U. S. cities in the IBM report. Grand Rapids’ 2010 crime rate of
5,002 serious crimes per 100,000 residents is in line with the average crime rate of 5,000 presented
in the report. However, spending per crime in Grand Rapids is $4,875 per serious crime—
approximately 27 percent less than the average expenditure per serious crime of $6,702. Also, the
GRPD employs 298 sworn officers, or 159 officers per 100,000, which is lower than the average per
capita deployment of 190 officers per 100,000 residents.
A similar perspective on operational efficiency can be gained by inspecting the amount of money
spent on overtime costs as a percentage of overall spending. In FY11 the GRPD spent over $1.8
million on police overtime. This expense represents approximately 4 percent of the overall budget.
This is lower than average and demonstrates limited overtime expense and/or close management
of overtime accrual.
2
IBM, Smarter, Faster, Cheaper: An Operational Efficiency Benchmarking Study of 100 US Cities, 2011.
Community Overview
page 9
TABLE 2: GRPD in Perspective
Benchmark Area
Per capita police spending
Crime rate
Spending per serious crime
Officers per capita
Overtime (% of budget)
GRPD
$243
5,002
$4,875
159
4%
Benchmark
$263
5,000
$6,702
190
5%
Versus
Benchmark
Lower
Similar
Lower
Lower
Lower
Combined, this data suggests that the GRPD operates in a more efficient and cost-effective manner
than the average U. S. city. Costs of operation appear lower in all areas examined. Recent personnel
cuts, efficiency savings, and sound financial management appear to have put the GRPD in a
favorable position compared to other communities in the United States.
The key to operational efficiency is not necessarily in financial austerity, however. The size and
style of a police department and the types of services that it provides are a reflection of the
character and demands of that community. The challenge is to determine how many police officers
are necessary to meet that demand, and how to deploy those personnel in an effective and efficient
manner. The above analysis demonstrates that the GRPD is financially efficient in its personnel
deployment. The analysis that follows is an attempt to build upon this discussion and answer the
“how many” and “how to deploy” questions that are the essence of police operational and personnel
resource decisions.
Community Overview
page 10
Performance Measurement and Strategic Planning
The GRPD has developed an advanced and sophisticated system for collecting data from every
operational component of the organization. The state of the performance measurement system is
impressive. Department managers can determine, in real time, the precise activity of every officer
working on a particular day. The FileMaker system developed internally by the GRPD is probably
the most advanced system of its kind in contemporary law enforcement, and the department is
light-years ahead of most police departments when it comes to data collection and performance
measurement.
The department promulgates a Manual of Procedures, which is comprehensive, properly formatted,
and consistent with those of police agencies of similar size. The department’s manual and
procedures are reviewed annually and revised as necessary. New procedures are developed and
communicated throughout the department as necessary (that is, between formal review periods).
The department prepares and issues annual reports, which are posted on the department’s
website. These reports are clearly written, comprehensive, and informative. The reports do not,
however, make express reference to specific department goals and objectives (and the
department’s level of success in or progress toward achieving these goals).
The annual reports contain crime statistics for each service area. Community policing activities for
each service area are also described. Separate reports are provided for each division, with
photographs of supervisory personnel.
The department had a strategic plan for the period 2007-2009. A copy of the plan is available on the
department’s website.
Patrol officers record their activities by making daily entries in an e-log.
The department records Terry stops (i.e., stop, question and frisk procedures authorized under
Terry v. Ohio, 392 U.S. 1 (1968)) and field interrogations via “contact reports.” Aggregate data
regarding field interrogations (Terry stops) performed by the entire department were displayed
during crime analysis meetings, but were not broken down by location or service area.
The department presently holds the following management meetings:

Weekly crime analysis meetings, which are attended by patrol commanders, detectives, and
supervisors

Captains’ meetings, which are attended by all six of the department’s captains

Monthly command staff meetings, which are attended by lieutenants, captains, and the
chief.
The chief also holds weekly command staff meetings with all six captains. Monthly command staff
meetings are held with all supervisors at or above the rank of lieutenant.
page 11
The ICMA consultants attended one of the weekly crime analysis meetings. These meetings are held
in a large conference room with projection equipment. Representatives from various units were in
attendance, including the major case unit, crime prevention unit, detective division, fugitive task
force, the special response team, the various patrol service areas, and the chief.
The discussions were led by the department’s crime analyst, a police officer. PowerPoint files
containing the data to be discussed were forwarded to participants the day before the meeting. The
meetings apparently do not follow a standardized agenda. There were no handouts distributed at
this meeting. The PowerPoint slides that were used to recap particular incidents and cases were
only displayed briefly.
There was a free flow of information and good interaction, particularly among investigators. There
was an extended discussion regarding the burglary of a medical marijuana facility. The group was
notified that the department was required recently to provide an “explanation letter” to the state to
address possible reasons for a drop in reported burglaries. This drop was noted by state officials.
One participant at the meeting requested that the crime analysis officer provide a multiyear
retrospective analysis of residential and commercial burglaries in order to identify a possible
reason or reasons for the drop. It was suggested that burglaries were perhaps related to the
housing market and correlated to the overall number of vacant houses. The discussions were
problem oriented and collaborative, but patrol supervisors should generally take a more active role
in these discussions.
Overall, the department’s crime analysis capabilities meet or exceed those of other U. S. police
departments of similar size.
In light of recent fiscal challenges and staffing reductions, a sergeant has recently been designated
to direct the department’s strategic planning and transformation efforts. This individual is charged
with identifying potential operational efficiencies and reports directly to the captain commanding
the Support Services Division.
Recommendations:

The department’s annual reports should make express reference to specific department
goals and objectives (and the department’s relative level of success in achieving them).

The weekly crime analysis meetings should be enhanced. All divisions and units should
attend so that the entire organizational chart is represented at these meetings. The
department should consider inviting other agencies to these meetings, such as the
Department of Parole. Note: The department does appear to be actively engaged in this
regard through the Grand Rapids Police Department/Michigan Prisoner Re-Entry/State
Parole Partnership.

The crime analyst should not lead all discussions at the weekly crime analysis meetings.
Supervisors should take turns leading or moderating these meetings. This ensures personal
accountability.
Performance Measurement and Strategic Planning
page 12

A standardized agenda should be circulated and used at all crime analysis meetings, and
one person in attendance must be directed to record significant discussions and specific
action steps for follow-up.

During the crime analysis meetings, supervisors assigned to the various patrol service areas
should be directed to present (that is, verbally describe) significant cases and incidents
occurring within their geographic areas of responsibility. For example, information about
robberies and shootings should be presented by patrol service area commanders and/or
their staff. Detectives can amplify these reports and case presentations by describing the
course of ongoing investigations, when appropriate. Specific action plans and further steps
should be addressed and documented, so that appropriate follow-up can be made at
subsequent meetings.

Crime analysis meetings should be used to engage the entire organization and encourage
joint problem solving, particularly between the patrol and detective divisions. Meetings
should be used to collaboratively answer the following questions regarding crime in Grand
Rapids: What’s going on? How do we know? What should we do about it? and Are we having
any impact? The criminal events and conditions must be linked directly to specific anticrime
efforts. In this way there can be continuity and accountability when these matters are
reexamined at subsequent meetings. If these meetings are viewed or understood as merely
informational get-togethers, their true potential will be lost.

All geographic crime maps that are displayed at crime analysis meetings should also include
time of occurrence or report for each incident mapped. Maps should be overlaid in order to
display long-term trends in particular sections of the city.

Field interrogation data should be provided by service area, specific location, and time of
day. The department must be able to determine, in an ongoing fashion: Who is being
stopped? Exactly when and where? By whom? and Why? Once again, the service area
commanders should be expected to present this data to the group as evidence of “best
efforts” used to address crime in chronic locations.

The department should create an officers’ council. This body would meet quarterly and
serve as a forum for open discussion between the administration and rank and file. In
addition to its various crime analysis and command staff meetings, the department should
have a mechanism for conveying information to police officers and receiving feedback in an
informal setting. These meetings would be separate and apart from the collective
bargaining process, and would merely serve as a means of identifying and discussing new
department programs and initiatives. In particular, this would be helpful with regard to any
future discussions regarding potential mergers or shared service agreements. This body
could meet regularly with the chief in an informal setting to discuss “the state of the
department” (that is, current and future policies, challenges, etc.). Officers would elect their
own representatives, would make recommendations for future actions and, in some
circumstances, would share a leadership role in developing and implementing new
programs and/or setting policy. (An example would be the decision to identify new
uniforms, technology, or patrol vehicles.) This model has been implemented successfully in
a number of large- and mid-sized police departments throughout the country.
Performance Measurement and Strategic Planning
page 13

The department should form a similar body for informal communications between the chief
and nonsworn personnel.

The personal performance evaluations that are now being used must include a process for
providing and documenting useful performance feedback to those being evaluated.
Individual performance targets/goals must be linked logically to unit and department goals.

Personal development plans should be developed and tracked for employees of all ranks.

It is also imperative that all supervisors who are charged with preparing performance
evaluations of their subordinates receive ongoing training in an evaluator’s responsibilities
and proper evaluation procedures. From both a supervisory and morale standpoint, all
members of the department must understand that performance evaluations are an
important and necessary part of police operations.

The department must establish clear guidelines for addressing the performance of officers
who receive an “unsatisfactory” rating in the annual performance appraisal. The guidelines
should include, among other things, additional monitoring, training, and mentoring, with a
written action plan and timeline for the correction of noted deficiencies.

ICMA suggests that the department actively monitor the work performed by the financial
services unit to determine whether such work could be more efficiently and economically
performed via a shared service model with other city departments.
Performance Measurement and Strategic Planning
page 14
Patrol Division
The GRPD provides the community with a full range of police services, including responding to
emergencies and calls for service (CFS), performing directed activities, and solving problems. The
GRPD is a service-oriented department providing a high level of service to the community. The
Patrol Division is comprised of four service areas (North, South, East, and West) commanded by a
captain. There is no overall commander of the patrol division, and each service area captain reports
directly to the chief of police. Each service area acts as an autonomous organizational unit with
patrol, community policing, and investigative components.
The division of the city into service areas was undertaken after an analysis of crime, calls for
service, and demographics. The service areas are not similar in geographic size, but approximate
each other in population (approximately 45,000 residents per service area), and each one offers its
own unique set of conditions that require police attention. Each of the four service area is further
subdivided into eight “beats” patrolled by an officer in the regular patrol rotation. Ideally, every
beat is covered every shift by an officer of patrol, but staffing and deployment conditions do not
always make this possible. Often, officers are “doubled-up” and cover more than one beat during
their shift.
The service area captain also acts as a “mini-chief” to the communities served and is expected to
coordinate crime control strategies, deployment of personnel, and respond to community concerns.
ICMA’s assessment of this element of the GRPD is that it is efficient, is expertly organized and
managed, and employs an optimal combination of personnel and functions to deliver high-quality
service to Grand Rapids. Like most organizational designs, there are positive and negative factors
associated with the service area concept (mostly positive), and the recommendations provided
here are meant to improve an already high-performing function.
Patrol Deployment
Uniformed patrol is considered the backbone of policing in the United States. Bureau of Justice
Statistics indicate that more than 95 percent of U. S. police departments in the same size category
as the GRPD provide uniformed patrol. Officers assigned to this important function are the
members of the department most visible to the public and occupy the largest share of resources
committed by the department. Proper allocation of these resources is critical in order to have
officers available to respond to calls for service and provide numerous law enforcement services to
the public.
Although some police administrators suggest that there are national standards for the number of
patrol officers per thousand people, no such standards exist. The International Association of Chiefs
of Police (IACP) states that ready-made, universally applicable patrol staffing standards do not
exist. Furthermore, ratios such as officers-per-thousand population are inappropriate data to use as
the basis for staffing decisions.
Staffing decisions, particularly in patrol, must be based on actual workload. Only after the actual
workload is analyzed can a determination be made as to the amount of discretionary patrol time
that should exist, consistent with the community’s ability to fund it. To understand actual workload
page 15
(the time required to complete certain activities) it is critical to review in detail the total reported
events, separated into different categories such as directed patrol, administrative tasks, officerinitiated activities, and citizen-initiated activities. This analysis allows identification of activities
that are really “calls” from those activities that are other events.
Understanding the difference between the various types of police department events and the
staffing implications is critical to determining actual deployment needs. This requires looking at the
total deployed hours of the police department with a comparison to the time being spent currently
to provide services.
Rule of 60
In general, a “Rule of 60” can be applied to evaluate patrol staffing. This rule has two parts. The first
part states that 60 percent of the sworn officers in a department should be dedicated to the patrol
function (patrol staffing) and the second part states that no more than 60 percent of their time
should be committed to calls for service. This commitment of 60 percent of their time is referred to
as the patrol saturation index.
The Rule of 60 is not a hard-and-fast rule, but rather a starting point for discussion on patrol
deployment. Resource allocation decisions must be made from a policy and/or managerial
perspective through which costs and benefits of competing demands are considered. The patrol
saturation index indicates the percentage of time dedicated by police officers to public demands for
service and administrative duties related to their jobs. Effective patrol deployment would exist at
amounts where the saturation index was less than 60.
This Rule of 60 for patrol deployment does not mean the remaining 40 percent of time is downtime
or break time. It is a reflection of the extent that patrol officer time is saturated by calls for service.
The time when police personnel are not responding to calls should be committed to managementdirected operations. This is a more focused use of time and can include supervised allocation of
patrol officer activities toward proactive enforcement, crime prevention, community policing, and
citizen safety initiatives. It will also provide ready and available resources in the event of a largescale emergency.
From an organizational standpoint, it is important to have uniformed patrol resources available at
all times of the day to deal with issues such as proactive enforcement, community policing, and
emergency response. Patrol is generally the most visible and available resource in policing, and the
ability to harness this resource is critical for successful operations.
From an officer’s standpoint, once a certain level of CFS activity is reached, the officer’s focus shifts
to a CFS-based reactionary mode. Once a threshold is reached, the patrol officer’s mindset begins to
shift from one that looks for ways to deal with crime and quality-of-life conditions in the
community to one that continually prepares for the next call for service. After a point of CFS
saturation, officers cease proactive policing and engage in a reactionary style of policing. The
outlook becomes “Why act proactively when my actions are only going to be interrupted by a call
for service?” Uncommitted time is spent waiting for the next call. The saturation threshold is
generally considered to be 60 percent.
Patrol
page 16
The ICMA data analysis at the end of this report provides a rich overview of CFS and staffing
demands experienced by the GRPD. The analysis here looks specifically at patrol deployment and
maximizing the personnel resources of the GRPD to meet CFS demands and engage in proactive
policing to combat crime, disorder, and traffic issues in the community.
According to the GRPD Organizational Chart effective September 2011, the patrol function is staffed
by four captains, two lieutenants, seventeen sergeants, and 154 patrol officers, for a total of 177
sworn officers assigned to the four service areas. These 177 sergeants and police officers represent
59.4 percent of the 298 sworn officers in the GRPD. This distribution indicates that 59.4 percent of
the GRPD sworn personnel are assigned to patrol and the agency is appropriately balanced.
Saturation Index
General patrol operations in the GRPD are staffed using 12-hour shifts. Each service area is broken
down into two shifts (day and night), with a different number of officers in each shift, and two
rotations (A and B), with approximately the same number of officers in each rotation (see Table 3
on the next page). This patrol configuration provides approximately the same deployment levels in
each service area, with the night shift staffing more officers in each service area than the day shift.
Figures 3, 4, 5, and 6 graphically represent the saturation index (SI) of patrol resources in the GRPD
during February and August, 2011. The amount of available patrol resources is denoted by the
dashed green line at the top of each figure. The 100 percent value indicates the total police officer
hours available during the 24-hour period. This amount varies during the day consistent with the
staffing of the shifts, but at any given hour the total amount of available manpower will equal 100
percent. The red dashed line fixed at the 60 percent level represents the upper level of the
saturation index). This is the point at which patrol resources become largely reactive as CFS and
workload demands consume a large portion of available resources.
It is ICMA’s contention that patrol staffing is deployed optimally when the SI is in the 60 percent
range. An SI greater than 60 percent indicates that the patrol manpower is largely reactive and
overburdened with CFS and workload demands. An SI of approximately 60 percent indicates that
patrol manpower is staffed optimally. SI levels much lower than 60 percent, however, indicate
underutilized patrol deployment and opportunities for a reduction in patrol resources or
reallocation of police personnel.
Departments must be cautious in interpreting the SI too narrowly. One should not conclude that the
SI can never exceed 60 percent at any time during the day or that in any given hour no more than
60 percent of any officer’s time be committed to calls for service. The SI at 60 percent is intended to
be a benchmark to evaluate service demands on patrol staffing. When SI levels exceed 60 percent
for substantial periods of a given shift or at isolated and specific times during the day, decisions
should be made to reallocate or realign personnel to reduce the SI to levels below 60. (The data
analysis section of this report goes into great detail of the exact elements of this information).
Patrol
page 17
TABLE 3: Patrol Deployment (effective September 2011)
Service Area
Captain
Lieutenant
North
1
.5
a
Shift
b
East
West
1
1
1
.5
.5
.5
c
Sergeant
Patrol Officer
Day
A
1
7
Day
B
1
7
Night
A
1
10
Night
B
1
10
d
South
Rotation
CPO
N/A
3
Day
A
1
7
Day
B
1
7
Night
A
1
10
Night
B
1
10
CPO
N/A
1
7
Day
A
1
7
Day
B
1
7
Night
A
1
9
Night
B
1
10
CPO
N/A
Day
A
1
8
Day
B
1
8
Night
A
1
10
Night
B
1
10
CPO
N/A
3
4
a
One lieutenant is assigned to two service areas (North-West, South-East).
Tours are staggered to minimize overlap (0530x1730, 0630x1830; 1730x0530, 1830x0630)
c
Rotations work opposite each other and follow this schedule: 2-on, 2-off, 3-on, 2-off, 2-on, and 3-off.
d
Community police officers have variable start times and work 10-hour tours.
b
Examination of Figures 3, 4, 5, and 6 permits exploration of the second prong of the Rule of 60.
Again, the Rule of 60 examines the relationship between total work and total patrol, and to comply
with this rule, total work should be less than 60 percent of total patrol. The black line represents
the total combination of activities, including out-of-service time—which could be for administrative
duties related to CFS and personal time—and all other activities related to service provision. This
black line also includes time spent on police-initiated calls for service, which can include traffic
stops and calls for service received directly by the officer on patrol.
These various activities are represented cumulatively on the graph so each activity adds to the
other. The total workload is arrived at by combining other-initiated, officer-initiated, out-of-service,
and directed patrol times. Keep in mind that the black line does not represent just workload; it is
Patrol
page 18
the percentage of workload related to the amount of available manpower. So at any given hour of
the day during these two representative months, workload is compared to available manpower and
the result is the patrol saturation index. Total available manpower is represented by the dotted
green line at the top of the figure and the 60 percent benchmark is the red dotted line in the middle.
In order to evaluate patrol staffing, the second prong of the Rule of 60 can be applied here. In this
case, the most effective use of patrol resources occurs when officers are not committed to CFS
activities greater than 60 percent of total available time. Examination of the data presented in the
four figures indicates that ideal patrol is staffed consistently throughout the day in both months
and patrol saturation is consistently below the 60 percent threshold.
Figure 3 shows the patrol SI for weekdays in February 2011. As the figure indicates, the SI never
exceeds the 60 percent threshold. The SI ranges from a low of approximately 7.6 percent at 6:00
A.M. to a high of 50.8 percent at 1:00 P.M., with a daily average of 32.8 percent. Note that direct
public demand for services indicated by the solid blue line (other-initiated) in Figure 4
demonstrates that at all times during the weekdays in February the GRPD had adequate, even
surplus, patrol resources to meet that demand.
FIGURE 3: Patrol Saturation Index, February 2011, Weekdays
100
Percentage
80
60
40
20
0
0
2
4
6
8
10
12
14
16
18
20
22
Hour
Workload vs. Deployment, February 2011, Weekdays:
Average workload: 9.5 officers per hour
Average % deployed (SI): 32.8%
Low SI: 7.6%
Low SI time: 0600 hours
Peak SI: 50.8%
Peak SI time: 1300 hours
Patrol
page 19
Figure 4 presents the patrol SI for weekends in February 2011. As the figure indicates, the SI
never exceeds the 60 percent threshold. The SI ranges from a low of approximately 14.1 percent
at 5:30 A.M. to a high of 56.6 percent at 12:45 P.M., with a daily average of 38.4 percent.
FIGURE 4: Patrol Saturation Index, February 2011, Weekends
100
Percentage
80
60
40
20
0
0
2
4
6
8
10
12
14
16
18
20
22
Hour
Workload vs. Deployment, February 2011, Weekends:
Average workload: 10.9 officers per hour
Average % deployed (SI): 38.4%
Low SI: 14.1%
Low SI time: 0530 hours
Peak SI: 56.6%
Peak SI time: 1245 hours
Patrol
page 20
Figure 5 presents the patrol SI for weekdays in August 2011. As the figure indicates, the SI exceeds
60 percent briefly between 12:30 P.M. and 1:00 P.M. and returns below the threshold for the
remainder of the day. The SI ranges from a low of approximately 12.2 percent at 6:30 A.M. to high of
63.2 percent at 1:00 P.M., with a daily average of 42.2 percent.
FIGURE 5: Patrol Saturation Index, August 2011, Weekdays
100
Percentage
80
60
40
20
0
0
2
4
6
8
10
12
14
16
18
20
22
Hour
Workload vs. Deployment, August 2011, Weekdays:
Average workload: 11.6 officers per hour
Average % deployed (SI): 42.2%
Low SI: 12.2%
Low SI time: 0630 hours
Peak SI: 63.2%
Peak SI time: 1300 hours
Patrol
page 21
Figure 6 presents the patrol SI for weekends in August 2011. As the figure indicates, the SI never
exceeds the 60 percent threshold. The SI ranges from a low of approximately 14.0 percent at
6:35 A.M. to a high of 59.6 percent at 3:00 P.M., with a daily average of 42.8 percent.
FIGURE 6: Patrol Saturation Index, August 2011, Weekends
100
Percentage
80
60
40
20
0
0
2
4
6
8
10
12
14
16
18
20
22
Hour
Workload vs. Deployment, August 2011, Weekends:
Average workload: 11.3 officers per hour
Average % deployed (SI): 42.8%
Low SI: 14.0%
Low SI time: 0630 hours
Peak SI: 59.6%
Peak SI time: 1500 hours
The GRPD and the employee unions recently negotiated the terms of a new labor agreement that
modified patrol schedules. This modification called for the reduction of four hours from one 12hour shift every two weeks. The GRPD inspected the patrol schedule and designated the days and
hours when the officers would experience this four-hour shift reduction. In general, the GRPD
eliminated four hours at the beginning of the day rotations, and four hours at the end of the evening
rotations. Essentially, the department reduced staffing during the times when service demands
were the lowest.
The existing “Kelly Day” is an artifact of the 12-hour shift schedule in place in the GRPD. Because
officers work 168 hours in the four week schedule and are only paid for 160, the extra time was
accrued as an “extra day off,” or Kelly Day. The department and the union were successful at
negotiating this issue and shortening one day every two weeks to an 8-hour day from a12-hour day.
Patrol
page 22
For the day shift this means starting later (either at 9:30 or 10:30 A.M.); for the night shift it means
ending earlier (either at 1:30 or 2:30 A.M.). As a result, the officers lose the extra day off.
The negotiation and change in scheduling are part of a two-phase staffing reduction. Phase I of the
plan, in effect at the time of this report, calls for patrol staffing levels in the GRPD to be reduced to
130 officers. Phase II of the plan calls for a further reduction to 124 officers, but to supplement
patrol staffing during summer months (six officers on each shift each day will be deployed on
overtime to bring the staffing levels back to 130 officers). Essentially, the staffing levels on patrol in
the GRPD will be reduced to 124 officers and during the months of April through September six
officers will be deployed on overtime.
This is an excellent demonstration of effective management and sound labor relations. It is also
another example of the GRPD using all available tools to reduce personnel costs and maintain
service levels. The department is commended for this approach.
In light of these recent changes, it is necessary to revisit the patrol staffing, workload, and
saturation index models presented above. Undoubtedly, the elimination of hours at the beginning
and end of each rotation has an impact on all these factors, and it is necessary to understand the
impact.
Figures 7 and 8 examine patrol staffing and workload in the wake of the four-hour shift reduction.
In order to make this comparison, 2011 workload data are used. Collecting new CFS data to make
this comparison was beyond the scope of the study. In addition, 2012 staffing information relative
to the patrol reductions is compared with last year’s data for the weekdays and weekends in
winter.
Integrating both sources of information demonstrates that the GRPD is making better use of patrol
resources by balancing staff and demand. The result is a smoother trend in the saturation index,
indicating that workload and staffing is held relatively constant throughout the day. The absence of
large swings in the saturation index from peaks to valleys and back indicates that sufficient patrol
staff is present throughout the day to meet service demands on a consistent basis. Once again, this
is an excellent way to manage personnel resources.
Patrol
page 23
As shown in Figure 7, average weekday workload for winter 2011 was 9.5 officers per hour. This
translates into an average saturation index of 30 percent for weekdays. The peak SI was 44 percent,
occurring at 2:30 A.M. This figure demonstrates that sufficient resources are available under the
reconfigured staffing model to meet service demands from calls for service.
FIGURE 7: 2012 Deployment and 2011 Workload, Winter Weekdays
100
Percentage
75
50
25
0
0
2
4
6
8
10
12
Hour
14
16
18
20
22
Workload vs. Deployment, Winter Weekdays:
Average workload: 9.5 officers per hour
Average % deployed (SI): 30%
Low SI: 10%
Low SI time: 0645 hours
Peak SI: 44%
Peak SI time: 1230 hours
Patrol
page 24
As shown in to Figure 8, average weekend workload for winter 2011 was eleven officers per hour.
This translates into an average saturation index of 39 percent for weekends. The peak SI was 57
percent, occurring at 3:15 A.M. This figure also demonstrates that sufficient resources are available
under the reconfigured staffing model to meet service demands from CFS.
FIGURE 8: 2012 Deployment and 2011 Workload, Winter Weekends
100
Percentage
75
50
25
0
0
2
4
6
8
10
12
14
16
18
20
22
Hour
Workload vs. Deployment, Winter Weekends:
Average workload: 11 officers per hour
Average % deployed (SI): 39%
Low SI: 14%
Low SI time: 0745 hours
Peak SI: 57%
Peak SI time: 1315 hours
Figures 7 and 8 above indicate that patrol workload can be handled by the current staffing and is
easily within the acceptable range of saturation index. Adding to this staffing with overtime
deployment in the busy months allows a greater level of assurance that demands for service from
CFS will be met.
Appropriate Patrol Staffing
Taking into consideration the demand for police services in Grand Rapids and the concept of
saturation index, appropriate levels of patrol staffing can be determined. The optimal level of patrol
staffing will lead to the modeling of patrol schedules and act as the foundation for the staffing of the
entire department.
Patrol
page 25
Service Area Comparisons
Before discussing appropriate staffing models in the GRPD it is important to consider the variation
in demand between the four service areas. Table 4 presents information relating to the call volume
in each service area, seasonal variation in CFS, committed time and officers to the average CFS and
the breakdown of citizen and police initiated CFS.
Inspection of Table 4 indicates that the CFS characteristics in the four service areas are fairly
uniformed. The East service area has the lowest other-initiated CFS with 16,115 and the highest
police-initiated CFS with 9411. The West service area has the highest other-initiated CFS with
20,149 and the lowest police-initiated CFS with 7,210. The average time to handle a CFS is similar
at around 40 minutes and each service area commits approximately 2 officers to each CFS.
Similarly, the average number of CFS per hour is around 3.0. Also, there does not appear to be any
seasonal differences between the service areas. Each service area experiences an increase during
the warmer months, and a decrease during the colder months. The only notable exception is that
the east service area CFS volume peaks during July and August while the peak in the other areas
appears in the prior two months.
TABLE 4: Service Area CFS Comparison
Nov.
–Dec.
57.05
Jan.
–Feb.
61.81
Mar.
–Apr.
68.95
May
–June
81.02
July
–Aug.
72.92
Sept.
–Oct.
69.05
CFS
per
Hour
2.90
2.0
62.67
62.39
67.85
80.18
71.03
70.97
2.90
45.34
1.9
59.38
61.47
68.69
78.41
82.34
69.02
2.90
36.32
1.9
68.84
68.29
72.62
84.26
79.69
75.84
3.10
North
Total
CFS
25,000
Police
CFS
7,943
Other
CFS
17,057
CFS CFS
Time Units
40.63 1.9
South
25,262
8,418
16,844
39.58
East
25,526
9,411
16,115
West
27,359
7,210
20,149
The relative consistency between the four service areas, therefore, permits an aggregated
deployment analysis. The discussion can now move into workload and staffing analysis looking at
the city as a whole.
Workload and Staffing
Table 5 lists the demand for police services in terms of total workload during weekends and
weekdays in February and August. These workload demands are listed in the left portion of the
table and are presented for each hour of the day. At midnight during the week in February total
workload demand for police service in Grand Rapids was 9.6 police-hours. In other words, through
citizen-initiated CFS, self-initiated activities by GRPD officers, and out-of-service requirements, 9.6
hours of time were expended at that hour. Inspection of the table indicates that demand for
services, or total workload, decreases as the night progresses hitting a low point around 5:00 A.M.
and then increases throughout the day. The adjacent columns represent workload demands for
weekends in February and weekdays and weekends in August. Workload patterns are slightly
different on weekends and in August, but the general pattern appears in each column.
To staff appropriately, ICMA recommends that consideration be given to peak workload at each
individual hour during the day. The next column in Table 5, labeled Peak workload, represents the
Patrol
page 26
highest workload observed during that hour in any one of the four periods (weekends/weekdays in
February/August). Looking at the 12:00 A.M. hour, the peak workload was 17.5 police-hours
demanded in weekends in August. The “peak workload” column, therefore, is constructed by
selecting the highest workload figure during each of the 24-hour time periods in the table.
The next column in Table 5 is labeled “60% SI – Peak.” This column represents the number of police
officers required to maintain staffing levels at the 60 percent saturation index for that given hour.
Thus, with 17.5 hours of workload, 29.1 police officers are required to meet that workload while
maintaining the 60 percent saturation threshold (17.5/60% = 29.1). The same calculation is made
for each of the 24-hour periods and the result is the number of police officers that are required to
be available to meet peak workload and maintain the 60 percent saturation threshold.
Staffing patrol coverage is a challenging task. In order to have a certain number of officers available,
additional officers must be assigned. Training, sick time, court, vacations, and a myriad of other
responsibilities take personnel away from their primary patrol assignments. On a typical shift it is
common that 25 percent of the officers assigned will not be available because of another competing
responsibility.3 Therefore, in order to ensure that 29.1 officers are available to meet workload
demands and adhere to the 60 percent saturation index threshold, a staffing adjustment must be
made assigning additional officers to work with the expectation they will be unavailable because of
other demands. The right column in Figure 4 presents the number of officers that are needed to be
assigned in order to meet appropriate levels of workload in Grand Rapids. At 12:00 A.M., in order to
meet the peak workload demand of 17.5 officer-hours, 29.1 officers need to be working to meet the
60 percent threshold, and 39 officers need to be scheduled for that time period (29.1/75% = 39).
Inspection of the next row of Table 5 shows the workload and required staffing for the hour from
1:00 to 2:00 A.M. In this case the peak workload is 16.7 police-hours, and 37 officers must be
scheduled to work in order for 27.9 of them to be assigned to meet that workload within the 60
percent threshold. The same calculation can be made at each hour of the day and a 24-hour staffing
distribution can be created. According to Table 5, required staffing for peak workload ranges from a
high of 39 officers at 12:00 A.M. to a low of 12 officers at 5:00 A.M. Also, the staffing requirements are
not uniform and fluctuate throughout the day, peaking at midnight and tapering off until the early
morning when they begin to rise steadily throughout the day.
3
The Police Executive Research Forum recognizes 75 percent as the appropriate factor for determining patrol
availability staffing.
Patrol
page 27
TABLE 5: Peak Workload Staffing
Workload
February
Time
a
Weekday
August
Weekend
Weekday
Weekend
Peak
Required Staffing
Staffing
60% SI
for
a
Peak
Peak
12 AM
9.6
14.1
14.3
17.5
17.5
29.1
39
1 AM
9.0
15.5
13.5
16.7
16.7
27.9
37
2 AM
9.8
15.4
13.0
16.8
16.8
28.0
37
3 AM
10.2
16.7
12.2
17.0
17.0
28.3
38
4 AM
7.0
13.1
10.4
16.0
16.0
26.7
36
5 AM
3.0
7.1
5.8
9.5
9.5
15.8
21
6 AM
2.1
5.2
3.7
4.6
5.2
8.7
12
7 AM
5.1
5.3
6.3
3.9
6.3
10.5
14
8 AM
8.4
4.5
8.7
5.6
8.7
14.5
19
9 AM
9.2
6.5
11.0
6.8
11.0
18.3
24
10 AM
8.9
9.2
9.8
6.4
9.8
16.3
22
11 AM
8.7
9.9
10.8
7.5
10.8
18.0
24
12 PM
11.4
12.2
12.1
10.9
12.2
20.3
27
1 PM
12.8
13.3
14.7
11.5
14.7
24.5
33
2 PM
12.2
12.6
13.5
11.2
13.5
22.5
30
3 PM
12.6
13.2
11.4
12.0
13.2
22.0
29
4 PM
11.3
11.4
12.2
10.4
12.2
20.3
27
5 PM
10.0
9.9
10.8
8.2
10.8
18.0
24
6 PM
9.9
11.6
10.9
9.6
11.6
19.3
26
7 PM
12.3
12.6
15.2
12.7
15.2
25.3
34
8 PM
11.6
11.2
15.7
13.8
15.7
26.2
35
9 PM
12.9
13.6
14.6
15.2
15.2
25.3
34
10 PM
12.7
12.6
15.4
14.5
15.4
25.7
34
11 PM
12.2
12.2
15.8
13.9
15.8
26.3
35
Blue = Night Shift, 1800x0600; Yellow = Day Shift, 0600x1800
The challenge of managing patrol operations is to ensure that sufficient resources are available to
meet demand through appropriate staffing and scheduling. The GRPD employs two 12-hour shifts
with essentially fixed personnel assignments during these two 12-hour blocks. The fixed nature of
the staffing combined with the variable nature of workload demands will naturally create periods
of personnel surplus and shortage throughout the day. The goal is to minimize these surpluses and
shortages and create a work schedule that reduces the variance between demand and supply.
Table 6 presents a comparison between the number of officers needed, based upon the data from
Table 5, and the current staffing in the GRPD. According to the data in Table 6, 39 officers are
required at 12:00 A.M. to meet the 60 percent threshold. Currently 31 officers are assigned, which
translates into a shortage of eight officers during that hour. At the bottom of Table 5 are figures that
represent total manpower, manpower per hour, required personnel, and surplus. Total manpower
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is the sum of each hourly “needed” figure, or 39 plus 37, plus 37, etc.—a total of 691. Dividing 691
by 24 results in the average per hour—in this case 29
TABLE 6: Needed vs.
officers per hour. Since there are two shifts (night and day)
Current Staffing
and two rotations (A and B), the average manpower per
Time
Needed Current
hour is multiplied by 4 to determine to optimal number of
required police officers on patrol. In this case, based upon
12 AM
39
31
the current workload demands, and the requirement of
1 AM
37
30
meeting the 60 percent peak threshold, 116 officers are
2 AM
37
28
required to meet these criteria. Under the current staffing
3 AM
38
27
model, the GRPD employs 124 officers on patrol, 8 more
4 AM
36
27
than necessary.
In an ideal world, the GRPD would be able to carve out the
right number of people working at the precise hour to meet
both supply and demand. Unfortunately, the rigid nature of
the deployment schedule makes this impossible. Thus, the
perfect state can only be approximated by creating the “best
fit” of patrol staffing and workload demand. The best fit
occurs when the variation between workload demand and
police officer supply is the lowest. This best fit is created by
modeling or manipulating various combinations of officers
and 12-hour blocks to reduce the variance between supply
and demand to its lowest possible level.
An added challenge to these calculations is the presence of
the service areas with approximately uniform workload
demands. It is necessary to balance the personnel resources
assigned to the service areas, which puts added restrictions
on the number of personnel necessary for deployment.
Taking these factors into consideration (12-hour tours,
service areas), a patrol staffing model with 120 officers can
be used.
5 AM
21
25
6 AM
12
24
7 AM
14
25
8 AM
19
32
9 AM
24
33
10 AM
22
35
11 AM
24
35
12 PM
27
35
1 PM
33
35
2 PM
30
35
3 PM
29
35
4 PM
27
35
5 PM
24
35
6 PM
26
30
7 PM
34
31
8 PM
35
31
9 PM
34
31
10 PM
34
31
11 PM
Total
manpower
Manpower
per hour
Required
personnel
35
31
691
746
With 120 officers assigned to patrol (4 more officers than
29
31
necessary based on workload), an equal distribution of
116
124
officers can be made by shift and by service area. Appendix
B depicts various staffing models with shift length variations
Surplus
0
8
and officer concentration by hour. The culmination of these
models indicates that the best fit for patrol deployment in the GRPD results from 12-hour shifts
with start/end times of 5:00 A.M. and 5:00 P.M., with 36 officers assigned to the night shift and 24 to
the day shift. This combination of shift length, start and end time, and officer assignments creates
the best fit of patrol resources to meet the demand for police services.
Table 7 shows the culmination of these factors working together in a visual fashion. The far-left
column is the hour of the day, labeled “time.” The “needed” columns represent the number of police
officers needed in that given hour to meet the 60 percent threshold. The “staffed” column
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represents the optimal shift and personnel combination based upon the shift/demand modeling.
The “current” column represents the current staffing on patrol in the GRPD. Finally, the “deviation”
column represents the difference between the number of officers staffed and the number of officers
required. Where the deviation is negative, there are fewer officers assigned than needed to meet
the 60 percent threshold; where the number is positive there are more officers assigned than
required.
TABLE 7: Staffing Deviation
Time
Needed
Staffed
12 AM
39
36
1 AM
37
36
2 AM
37
3 AM
Deviation
Needed
Current
Deviation
-3
39
31
-8
-1
37
30
-7
36
-1
37
28
-9
38
36
-2
38
27
-11
4 AM
36
36
0
36
27
-10
5 AM
21
24
3
21
25
4
6 AM
12
24
12
12
24
12
7 AM
14
24
10
14
25
11
8 AM
19
24
5
19
32
13
9 AM
24
24
0
24
33
9
10 AM
22
24
2
22
35
13
11 AM
24
24
0
24
35
11
12 PM
27
24
-3
27
35
8
1 PM
33
24
-9
33
35
2
2 PM
30
24
-6
30
35
5
3 PM
29
24
-5
29
35
6
4 PM
27
24
-3
27
35
8
5 PM
24
36
12
24
35
11
6 PM
26
36
10
26
30
4
7 PM
34
36
2
34
31
-3
8 PM
35
36
1
35
31
-4
9 PM
34
36
2
34
31
-3
10 PM
34
36
2
34
31
-3
11 PM
35
36
1
35
31
-4
Total Deviation.
29
55
Patrol Officer Surplus
1.21
2.30
Surplus
4
8
Variance
29.56
64.95
In a perfect system, the deviations would all be zeros and demand would be meet perfectly by
appropriate staffing. Since this is impossible to achieve, best fit is the desired state. Adding up the
deviations over the 24-hour day results in the surplus/deficit of staff on patrol. The term “variance”
is simply a calculation that portrays the amount of variability in the deviation between demand and
supply, or workload and staffing. The best fit seeks to minimize the variability to the greatest extent
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possible. Large differences between workload and available staff would indicate a poor fit and this
would be captured by the level of variance.
Taking all of these factors together permits a comparison of the current staffing with the proposed
staffing of 120 officers divided equally between the service areas, with 36 assigned at night and 24
during the day. According to Table 7, the best fit results from having 120 officers assigned in a
24/36 split, with 5:00 A.M. and 5:00 P.M. start and end times. The total number of deviations
(difference between demand and available staff) is 29, or 1.21 per hour. This indicates that over the
course of the 24-hour period there are 29 office-hours too many (1.21 per hour), or four officers
too many, based on the current workload. This compares favorably to the 55 surplus officer-hours
in the current staffing allocation. The current allocation indicates that there are eight officers more
than current workload requires. Similarly, the variance in the proposed model is lower than the
current staffing model (29.56 compared to 64.95). This indicates that the 24/36 split meets the
workload demands better than the current staffing model because the variability between the
workload and the staffing is lower.
The end result of this analysis is that the GRPD patrol operations should be staffed with 120 officers
divided equally among service areas with 12-hour shifts, with 24 officers assigned to the day shift
and 36 officers to the night shift.
Revisiting the Rule of 60
Based upon the above discussion it is necessary to revisit both parts of the rule of 60 to
demonstrate the impact this staffing model will have on workload, and to determine the foundation
for staffing the department.
Table 8 illustrates the analysis in reverse. Based upon the 120 officer, 24/36 shift distribution with
5:00 A.M./5:00 P.M. start and end time and peak workload demands, the saturation index can be
calculated. The far-left column labeled “staffed” represents the 24/36 shift assignments. With the
assumption that only 75 percent of the officers assigned will be available for patrol (25 percent
absent due to court, sick, training, vacation, etc.) the column “working” reduces the “staffed”
column by 25 percent and provides an estimate of the number of officers that will actually be
assigned to patrol. The peak demand is taken from Table 5; the far-right column right is the
saturation index based upon these data.
According to this analysis, the average peak saturation is approximately 58 percent. During the
24-hour day, the 60 percent threshold is breeched during ten of the hourly periods (highlighted).
Additionally, this analysis does not incorporate the deployment of the community police officers
assigned to patrol in the GRPD. The CPOs generally work weekday shifts and can be available to
supplement patrol staffing during peak times if necessary. Furthermore, considering that these
values represent peak demand, this appears to be an appropriate deployment plan to meet
workload demands in Grand Rapids.
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TABLE 8: Projected Saturation Index at Peak Demand
Time
Staffed
Working
Peak
Demand
Saturation
Index
12 AM
36
27
17.5
64.64
1 AM
36
27
16.7
62.03
2 AM
36
27
16.8
62.26
3 AM
36
27
17.0
62.89
4 AM
36
27
16.0
59.30
5 AM
24
18
9.5
52.63
6 AM
24
18
5.2
28.89
7 AM
24
18
6.3
35.00
8 AM
24
18
8.7
48.33
9 AM
24
18
11.0
61.11
10 AM
24
18
9.8
54.44
11 AM
24
18
10.8
60.00
12 PM
24
18
12.2
67.78
1 PM
24
18
14.7
81.67
2 PM
24
18
13.5
75.00
3 PM
24
18
13.2
73.33
4 PM
24
18
12.2
67.78
5 PM
36
27
10.8
40.00
6 PM
36
27
11.6
42.96
7 PM
36
27
15.2
56.30
8 PM
36
27
15.7
58.15
9 PM
36
27
15.2
56.30
10 PM
36
27
15.4
57.04
11 PM
36
27
15.8
58.52
Average
57.80
The staffing figures presented in these tables are only for personnel in the rank of police officer.
Supervision, management, and community policing officers must be added to these personnel
figures to apply the second part of the Rule of 60. The second part of the Rule of 60 suggests that 60
percent of the department should be in patrol operations. The patrol function in Grand Rapids can
be configured according to Table 9 to meet workload demands.
Several other areas of this report provide recommendations for the organization of the GRPD’s
patrol function; these recommendations are applied here. Essentially, ICMA’s analysis reveals that
the GRPD would be better served by two service areas instead of four, two lieutenants should be
assigned to each new service area, a deputy chief should be assigned and responsible for patrol
operations, and the community policing function should remain unchanged. Integrating these
factors into the staffing levels, Table 9 represents the organization and staffing of this new division.
According to the ICMA analysis, 161 sworn personnel should be assigned to patrol. These
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personnel, assigned according to the recommended distribution and organization will be sufficient
to meet workload demands in Grand Rapids.
TABLE 9: Recommended Patrol Staffing Configuration
Service Areaa
Captain
Lieutenant
Shiftb
Rotationc
Sergeant
Patrol
Officer
North
1
2
Day
A
2
12
Day
B
2
12
Night
A
2
18
Night
B
2
18
CPOd
N/A
Day
A
2
12
Day
B
2
12
Night
A
2
18
Night
B
2
18
CPO
N/A
1
10
South
1
2
7
a
With the deputy chief in overall command.
Shifts are staggered to minimize overlap (0430x1630, 0530x1730; 1630x0430, 1730x0530).
c
Rotations work opposite each other and follow this schedule: 2-on, 2-off, 3-on, 2-off, 2-on, and 3-off.
d
Community police officers work 10-hour shifts on weekdays.
b
Based upon 161 sworn personnel assigned to the patrol division, and applying the second part of
the Rule of 60, there should be approximately 269 sworn officers in the entire GRPD. The new
patrol configuration is represented in Table 10.
TABLE 10: Recommended Patrol Division Staffing
Deputy
Chief
Captain
Lieutenant
1
2
Sergeant
Patrol
Officer
Total
1
East-South
ES-CPO
North-West
1
2
8
60
1
10
8
60
NW CPO
Total
7
1
2
4
17
137
161
Recommendations:

Patrol
Staff the patrol division with 161 sworn personnel, with 120 of those officers assigned to
patrol shifts.
page 33

Employ two 12-hour shifts. The day shift should start at 5 A.M. and consist of 24 officers on
each rotation. The night shift should start at 5:00 P.M. and be staffed with 36 officers on each
rotation.
Demand Management
In calendar year 2010, the GRPD responded to more than 94,000 CFS. Examination of the data
extracted from the CAD system and detailed in the data analysis section of this report shows that
out of these calls, approximately 63,000 were actual calls for service generated by public demand
and 31,000 were police-initiated assignments. Table 11 lists the major categories of assignment
and the average amount of time spent on each one of those assignments during 2010.
Table 11 illustrates the CFS demand in Grand Rapids. The table breaks down the volume of calls by
category and shows the amount of time necessary to handle each call. As shown, the “traffic
enforcement” category has the highest number of calls for service, with 24,670. “Check/investigate”
is the next highest with nearly 11,600 calls, and “crime-persons” is in third, with more than 11,000
calls.
TABLE 11: Calls for Service, 2011
Category
Accidents
Alarm
Animal calls
Assist other agency
Check/investigation
Crime–persons
Crime–property
Disturbance
Juvenile
Miscellaneous
Prisoner–arrest
Suspicious person/vehicle
Traffic enforcement
Total
Calls
430
25
37
364
2,070
296
645
414
57
3,718
2,633
121
20,215
31,025
Police-initiated
Units
per Call
Minutes
1.4
62.2
3.0
31.5
1.4
38.0
1.7
54.1
1.5
42.3
2.2
67.2
1.8
71.8
1.9
39.2
1.5
47.8
1.5
50.0
1.7
73.5
2.0
41.4
1.2
14.2
1.3
28.8
Calls
6,089
4,972
1,347
1,786
9,515
10,827
7,660
9,892
545
1,758
44
4,302
4,455
63,192
Other-initiated
Units
per Call
Minutes
1.3
64.8
2.1
17.7
1.2
27.5
1.9
43.3
1.9
43.0
2.1
53.4
1.7
60.4
2.0
27.2
1.8
26.9
1.8
36.9
1.8
68.0
2.0
31.6
1.2
27.2
1.8
42.0
Total
Calls
6,519
4,997
1,384
2,150
11,585
11,123
8,305
10,306
602
5,476
2677
4,423
24,670
94,217
All CFS
% of
Total
6.9
5.3
1.5
2.3
12.3
11.8
8.8
10.9
0.6
5.8
2.8
4.7
26.2
100.0
The data in Table 11 lead to several observations. First, total CFS volume as a percentage of
population is low. According to the table there were 94,217 CFS in the year between November 1,
2010, and October 31, 2011, with 20,215 being police-initiated traffic enforcement. Therefore,
direct demand for service is approximately 75,000 CFS. The population of Grand Rapids is
approximately 188,000. This indicates that during the 12-month period under observation the CFS
rate was approximately 0.40 per person (or 400 CFS for every 1,000 residents).
While there is no accepted standard ratio between calls for service and population, the lower the
ratio means the better managed the CFS function is in an organization. ICMA studies of
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page 34
Rank
6
8
12
11
2
3
5
4
13
7
10
9
1
communities similar in size to Grand Rapids show the CFS/population ratio to range between 0.4
and 1.1 CFS per person, per year. A value of 0.40 CFS/person/year indicates that there is an
effective “triage” system in place in the GRPD and call-takers are screening out frivolous and/or
“nonpolice” calls. Once again, the management of the GRPD should be commended for outstanding
performance in this area.
ICMA experience indicates that without effective management, the 911 system can become a catchall for community demands. Being open 24 hours, 365 days each year, 911 is often the “go-to”
resource for community concerns. If not properly managed, this can result in the misuse or
ineffective deployment of valuable police resources. The data from the GRPD indicate that police
resources, as reflected by CFS/population ratio, are being deployed effectively.
In group discussions, patrol officers voiced frustration over being dispatched to nuisance, or
nonemergency police, calls for service, such as kids refusing to go to school, landscapers blowing
leaves in the street, birds or other animals that had gotten into homes, etc. Although these types of
calls for service were reported, in general the GRPD seems to do a fairly good job of minimizing
response to non-emergency calls coming into the 911 system.
Reducing Responses to Certain Calls
Despite what appears to be effective CFS triaging, the GRPD still handles a high number of calls that
have limited or no relationship to law enforcement. Consideration should be given to evaluating
responses to these calls. This evaluation could be performed by a committee of GRPD personnel,
who can examine calls for service and recommend means to eliminate, downsize, and streamline
responses to certain calls by units on patrol. The quantity and quality of certain calls deserve closer
scrutiny as, as substantially curtailing response holds enormous potential for improving
operational efficiencies.
Three categories of calls (burglar alarms, traffic accidents with property damage only, and
miscellaneous) might not warrant the response of a sworn police officer. For example, at motor
vehicle accidents involving only property damage, the police role is largely administrative,
preparing and filing reports. Similarly, industry experience also tells us that more than 98 percent
of all burglar alarms are false alarms and that calls regarding animal complaints are typically just
nuisance-type calls that do not involve any danger to citizens. The bottom line here is that many
calls for service dispatched to officers in the GRPD could be eliminated.
In 2011, the GRPD responded to more than 4,497 burglar alarms, which represented 5.3 percent of
all calls for service. At 17.7 minutes per call (with 2.1 officers responding), this equates to almost
2,800 hours spent on this one type of call. Experience dictates that response to these calls is a waste
of valuable police resources. In order to address this problem, a double call verification program is
taking hold across the county. Currently, the alarm industry is working with police departments to
reduce alarm types of calls. The industry is a strong advocate of developing ordinances and
procedures to address police responses to false alarms and will work closely with any agency
exploring this issue. It should be noted that nationwide, 98 percent of alarm calls are false and are
caused by user error that can often be addressed by alarm management programs. Alarm reduction
needs to be addressed aggressively in Grand Rapids.
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Adopting an alarm callback program has the potential to reduce CFS volume by thousands of calls.
Currently, the department uses a false-alarm management program to identify chronic locations
and reduce the overall number of alarms responded to by patrol personnel. It appears this program
has been effective and it has generated significant income (via fines and penalties) for the city. A
location that experiences three or more false alarms within a stated period is identified as
“chronic.” Fines range from $50 to $200 per false alarm. Annual fines average approximately
$50,000 per year. The computerized program that tracks these calls was developed in-house by
department personnel.
Recommended changes to the program are not intended to eliminate or expand the existing chronic
alarm program, but rather to prevent police response to the alarm in the first place and force the
alarm company and/or alarm owner to shoulder the burden of the false alarm.
In 2011, the GRPD responded to 5,476 reports of “miscellaneous,” which are types of calls that do
not have a criminal or police nature. At 36.9 minutes per call (with 1.8 officers responding to each
call) this amounts to more than 6,000 hours each year of officers handling calls that have limited
relevance to police services. During interviews and focus groups, officers raised concerns about the
time they spend responding to calls that have no police purpose. Calls in this miscellaneous
category are likely to capture many of these assignments.
Traffic crashes represent almost 6.9 percent of the total CFS workload. Police departments across
the nation are removing property-damage traffic crashes from the emergency police responsibility.
Response by a sworn police officer to a routine property-damage-only traffic crash is a
questionable use of emergency police resources.
Combined, these three categories of calls represent almost 18 percent of the patrol CFS workload in
Grand Rapids. The large majority of these incidents probably do not require police response. These
categories of calls must be examined carefully to determine whether police response should be
continued. To accomplish this task, ICMA recommends that the GRPD establish a committee that
includes all the principal stakeholders, including representatives from all ranks within the
department and community members. The committee should be assigned the responsibility of
evaluating the CFS workload with an eye toward reducing nonemergency CFS response.
With the department’s recent history of downsizing, it is critical to identify all calls for service that
do not require an immediate police response. The department must strongly encourage citizens to
utilize the department’s website for online reporting.
Time Spent on Calls
The data presented in Table 11 show that in 2011 it took officers an average of 42.0 minutes to
complete a nonpolice-initiated call for service. ICMA research on calls for service in similar
jurisdictions indicates that the average time for CFS completion is approximately 30 minutes. This
indicates that it takes approximately 40 percent longer to for the GRPD to handle a call for service
than it does for the average U. S. police department of a similar size. The variables that drive CFS
completion time are numerous and beyond the scope of this analysis. However, this suggests that
the GRPD must take a hard look at the factors driving the relatively high completion time.
Patrol
page 36
Similarly, the data from Table 11 indicate that the GRPD dispatches approximately 1.8 officers to
the average call for service. ICMA research in this area indicates that in similar jurisdictions the
average number of officers dispatched to calls is approximately 1.6. This indicates that the GRPD
sends more officers per calls than may be needed.
Looking at these data in context with the discussion on the saturation index presented earlier leads
to several important conclusions. First, Grand Rapids already adopts an aggressive CFS
management process, but this process can be even more finely tuned by closer examination of the
CFS categories of alarms, miscellaneous, and traffic crash–property damage only. Second, the
surplus of officers assigned to the patrol division indicates that more officers are assigned to calls
for service for longer periods than would otherwise be necessary. In other words, the excess supply
of police personnel resources and the paucity of CFS demand may be contributing to the fact that
there are more officers responding to calls and remaining on the scene of these calls longer.
To put these statistics into perspective, in Grand Rapids during the 12-month period of CFS
observation, the GRPD average time per call to an “other-initiated” call for service was 42.0
minutes, with an average of 1.8 officers per call. To handle 63,192 other-initiated calls for service,
the GRPD employed 79,622 police hours (42.0 min x 1.8 officers x 63,192 = 79,622 police officerhours). This contrasts with the number of hours that would be employed using the average values
from previous ICMA research. With 1.6 police officers per call, and 30 minutes per call, it would
take 50,554 hours to handle 63,192 calls (30 min x 1.6 officers x 63,192 CFS = 50,554). Therefore,
in the average community studied by ICMA, it would require 36.5 percent fewer police officer hours
to handle 63,192 calls than currently deployed in Grand Rapids (50,554-79,622/79,622 = -36.5
percent).
Once again, the factors associated with the number of officers required to handle a CFS and the
amount of time spent on each call for service are well beyond the scope of this report. However,
patrol commanders and supervisors should more closely inspect the response to CFS and seek
ways to improve efficiencies noted above. For example, in the GRPD it takes more than an hour
(64.8 minutes) to handle the average traffic accident (an accident where the response is probably
not necessary), and more than an hour to handle the average response to a “crime-person” CFS.
Clearly, these categories of calls, and several others, require closer inspection with an eye towards
eliminating unnecessary delays in handling calls.
Pulling all these variables together gives support to the conclusion that the patrol officers handling
calls for service dedicate more time than expected to handle these calls. The reasons driving
extended CFS service time could be numerous and a thorough examination of the CFS handling
process should be undertaken. By eliminating categories of calls for service and improving service
times could lower demand for police services and, therefore, reduce the number of police officers
required to handle these calls. An exact conclusion on personnel changes in response to these
observations can only be offered after a full examination of the CFS process.
Recommendations:

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Engage in more aggressive CFS management, tighter supervision of officers deployed, and a
cushion in the saturation index lead to the recommendation provided earlier of reducing
page 37
the patrol field services. Further reductions might also be possible, but caution must be
exercised in this area; no further reductions should be made until the impact can be
assessed.

Track elapsed time for CFS and number of officers assigned to CFS with an eye towards
minimizing both to the greatest extent possible.

The data analysis supports the notion that a thorough examination by the GRPD of CFS
response can eliminate calls for service, downsize patrol staffing, and streamline CFS
response. Furthermore, a detailed analysis must be made of the variables associated with
CFS completion time, with an eye toward streamlining officer duties and responsibilities at
these incidents.
Watch Commanders
In addition to the officers deployed in the service areas, the GRPD staffs a position of “watch
commander.” The watch commander is a lieutenant assigned to patrol operations and who works
out of the police headquarters facility. Lieutenants assigned to this position work 12-hour shifts,
follow the standard patrol rotation for days off, and work out of the watch commanders' office
behind the front-desk area of headquarters. Watch commanders are responsible for supervising
day-to-day patrol operations, and when the command staff is off (nights/weekends), they are the
highest ranking police officials in the city and responsible for police responses to critical situations,
in addition to addressing a live list of service referrals within the city.
The watch commander position appears to be a vestige of a past organizational structure in the
GRPD, and a position whose usefulness has passed. The need to have a high-ranking member of the
GRPD in charge and responsible for patrol operations is essential; however, committing six
lieutenants to this function is a misuse of valuable personnel resources. The six lieutenants
assigned to this function represent more than one-third of all personnel at this rank. Considering
the reductions in personnel throughout the agency, this is a position that needs to be reevaluated
and alternatives considered to maximize personnel deployment and improve efficiency while
maintaining an adequate level of command presence on patrol.
Ensuring a command presence on patrol is essential to proper police management of the patrol
function. However, it is recommended that this responsibility be diffused throughout the agency, in
particular in the service areas, that the fixed position of watch commander be eliminated, and that
the lieutenants be redeployed to other essential functions. During the course of a week, there are
seven night shifts (Monday to Sunday, from 6:30 P.M. to 6:30 A.M.), and two weekend day shifts
(Saturday and Sunday, from 6:30 A.M. to 6:30 P.M.) that would need coverage by a shift commander
(a lieutenant or, if no lieutenant is available, a captain) who would have responsibility for patrol
operations on that shift. A rotation can be established to ensure coverage of the nine shiftcommander shifts each week. If a critical incident occurs during the day shift, the lieutenant or
captain responsible for the area where the incident occurs would be responsible for responding to,
and coordinating, the police response.
Following the elimination of the watch commander position, on an alternative/rotating basis, all
lieutenants (the four assigned to the service areas as well as all other lieutenants in the GRPD
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regardless of assignment) would take turns supervising patrol during the night shift weekdays, and
both day and night shifts weekends. (Adequate supervisory personnel are available during the
daytime hours to ensure coverage when most lieutenants and captains are ordinarily scheduled to
work).
Recommendation:

Eliminate the fixed position of watch commander, deploy lieutenants assigned to this
position to the service areas, and diffuse the responsibility for supervising patrol operations
to all lieutenants in the GRPD.
Reorganization
The elimination of the watch commander position allows for additional reorganization within the
GRPD. Currently, the GRPD is organized into four service areas to support patrol operations. With
additional lieutenants assigned to these service areas it is possible to reorganize and streamline
service area operations. Instead of having four captains commanding four service areas with one
lieutenant assigned to two captains and two service areas, it is recommended that this arrangement
be reversed: service areas should be combined with one captain should assume command of each
new service area. Stated another way, two existing service areas should be combined into one, the
resulting combined area should be commanded by a captain, and lieutenants should be assigned to
command divisions/districts within those merged service areas. The natural combination of service
areas would follow along the radio frequencies currently utilized by the GRPD. The North and West
service areas would merge into one, with one captain in overall command. Similarly, the South and
East service areas would combine with one captain in command. Two lieutenants would be
assigned to each new service area; each would be responsible for a geographic area akin to the
former service areas.
Advantages of Reorganization and Reassignment
This proposed system offers numerous advantages over the current temporal system of
responsibility currently in place in the GRPD.
1. It realigns the appropriate span of control. One lieutenant should not report to two
captains. This arrangement needs to be modified and is also likely the vestige of a former
organizational arrangement.
2. It better utilizes the GRPD’s lieutenants. The current position of watch commander
underutilizes this critical middle-management position. The presence of a lieutenant on
patrol at all times and available to respond to and coordinate police incidents is worthwhile
and recommended. However, the watch commanders, particularly during the weekdays,
rarely act in this capacity and are often “chained to the desk” in the headquarters facility.
3. Integrating lieutenants into the operations of the service areas accentuates the primacy of
this organizational design and emphasizes the importance of the service area as the point of
contact with the community from both a CFS and community policing perspective.
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4. The current service area commanders (lieutenants and captains) get limited opportunity to
engage in patrol operations at night and during the weekends to the extent that they should.
Oftentimes, personnel working nights and weekends will go weeks or months without
seeing the service area commanders.
5. Captains as service area commanders currently only supervise approximately forty sworn
officers and report to a community of approximately 45,000. Undoubtedly, captains in the
GRPD are capable of handling a much greater sphere of responsibility and also should have
a much broader span of control than one-half of one lieutenant and four sergeants. In other
words, all of the captains in the GRPD assigned to service areas are impressive individuals
with the training, education, and experience to handle much more responsibility than they
exercise currently. Their talents should be put to use with a more challenging assignment:
more personnel and a greater area of the city to police. Merging service areas, combining
these personnel, and expanding the area of responsibility in the community, will afford
patrol captains greater authority and responsibility and better align managerial potential
with organizational span of control.
6. All lieutenants in the department would be responsible for patrol operations on a rotating
basis. This will require all lieutenants to be capable of performing patrol and ensuring they
are familiar with the basic operations of patrol in the GRPD.
7. By integrating the existing personnel assigned to the watch commander position into the
service areas and rotating patrol coverage responsibility among all lieutenants in the
department, four lieutenant positions can be eliminated.
8. Each shift has at least four sergeants scheduled for duty. Instead of all sergeants assigned to
patrol and the watch commander assigned inside police headquarters, one sergeant each
shift on a rotating basis should be assigned to the front desk during its hours of operation
(see recommendation below regarding the headquarters facility). This would maintain a
supervisory presence in police headquarters to respond to issues that arise from “walk-in”
complainants and would position a lieutenant on patrol each shift to coordinate, supervise,
and respond to police incidents throughout the city.
The elimination of two service areas and two captain positions would improve patrol organization
and service delivery in the GRPD. In addition to the elimination of the watch commander position
and integrating these lieutenants into the newly reorganized service areas, it is recommended that
a deputy chief position be reinstituted with the primary responsibility for overseeing patrol
operations.
Presently, the four service areas operate autonomously . While this has numerous advantages, it
also has disadvantages. In particular, the four autonomous service areas compete for scarce
resources in the organization. This can encourage proactive and aggressive management, but it also
may be detrimental to the mission and goals of the department as a whole. In other words, what
might be best for one service area and the needs and goals of its commander and community might
not be good for the entire department.
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This does not appear to be problematic for the organization, but anecdotal evidence provided by
service area personnel suggests that there is competition (sometimes negative) for personnel as
well as a reluctance to redeploy personnel to other service areas to respond to calls and address
crime and quality-of-life conditions. The presence of a deputy chief would be an ideal buffer to
these competitive situations and ensure that services are delivered in an appropriate manner and
that competition between service area exists in the most positive light possible. The deputy chief
would act as the second in command of the department and as managerial support for the chief of
police. In addition to these primary responsibilities, the deputy chief would also be responsible for
overseeing patrol operations.
Recommendations:

Eliminate the watch commander position and replace it with a rotation of lieutenants
assigned as shift commanders.

Merge the four service areas into two. Personnel would be merged and each new service
area would be commander by one captain.

Staff a position of deputy chief of patrol to coordinate patrol operations.
Community Police Officer Program
Each service area has a cadre of officers—community police officers (CPOs)—assigned to
community policing functions. While the number of personnel varies by service area, each of twelve
funded neighborhoods in Grand Rapids has at least one CPO assigned to it.
The implementation and overall management of this program is impressive. Police organizations
around the country struggle to implement community policing. The competing demands of
“traditional” police work (reactive response to crime and CFS) often leaves little time and resources
for “community” policing activities. Thus, in philosophy, a department might be committed to
community policing, but there may be little in the way of actual community policing because of
other demands on resources. The GRPD does an excellent job balancing these competing demands
and has developed what appears to be an effective way of implementing community policing in a
challenging environment.
According to the GRPD organizational chart dated September 2011, community police officers are
assigned to the service areas as follows:

North: 3 CPOs

South: 1 sergeant and 7 CPOs

East: 3 CPOs

West: 4 CPOs.
In addition to general enforcement duties, these officers are also responsible for responding to
long-term community conditions and acting as liaisons with the organized communities in the city.
All twelve funded neighborhood organizations have a CPO assigned; each officer is also assigned to
cover the more active unfunded and informal associations as well. CPO activities include being
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page 41
members of local association boards as well as attending association meetings. Additionally, the
sergeant assigned to the South service area supervises the department’s crime prevention program.
CPOs are leveraged in the department’s crime prevention efforts, receive extensive training in
home and personal security, and conduct numerous security inspections and courses throughout
the year. One CPO is a board member of the Crime Prevention Association of Michigan.
Service Referrals
The CPOs in the GRPD are instrumental in responding to “service referral” requests generated in
the service areas. Service referrals are tools used by the GRPD to record, assign, and track requests
for police service from the community. Service referrals are a unique and highly effective tool, and
the GRPD should be commended for employing them to manage crime and disorderly conditions
throughout the city.
Different than emergency calls for service received through the 911 system, service referrals are
typically generated by service area commanders in response a direct request for service from the
community or self-initiated through analysis of crime and disorder trends in the community. For
example, if a neighborhood resident complains about a traffic problem in their community, or the
service area commander, through an analysis of traffic crash reports, observes a traffic problem, a
service referral can be generated to alert patrol and CPO of the condition. Once generated, the
department can then track the amount of time and enforcement dedicated to addressing the
problem. This also enables the service area commander to learn if the problem was addressed, and
notify the community member as to what was done to address the problem. It also allows the
commander to determine if the condition has been corrected and what, if any, additional resources
are necessary to eliminate the condition altogether.
While this appears to be a simple method of recording, assigning, and tracking community
problems, it is really an innovative and unique managerial tool that is rarely found in contemporary
policing. Furthermore, when combined with the impressive information management system in the
GRPD, department personnel can tell in real time the amount of resources—both time and
enforcement—expended on service referrals, and exactly which members of the department
contributed to that effort. This one simple tool is an excellent example of the integration of
information technology, community policing, and proactive management brought to bear on crime
and disorder conditions in Grand Rapids. It is also an excellent example of the forward thinking and
innovative management approach that permeates the entire agency.
The CPOs also engage in a substantial amount of problem-solving activities. Academic research on
police operational approaches indicates that routine police response to 911 CFS and community
policing offers little assistance in reducing crime.4 However, focused enforcement and problem
solving in “hot spots” offer great potential for reducing crime. CPOs operate under this problemsolving approach and address crime and quality-of-life conditions in these hot spots. The evidence
provided on the GRPD's CPO program demonstrates it to be effective. The CPO program should be
4
National Research Council, Fairness and Effectiveness in Policing: The Evidence; Committee to Review Research
on Police Policy and Practice (Washington, DC: National Academies Press, 2003).
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page 42
supported to the greatest extent possible by other patrol, investigative, and specialty enforcement
units and operations.
Recommendations:

Maintain the current staffing and functions of the community police officer program.
Technology on Patrol
Without exception, the GRPD employs the most sophisticated use of information technology to
manage patrol resources that ICMA has observed in any police department. The IT platform
integrates calls for service, crime reports, investigations, records, motor vehicle information, and all
forms of electronic data that the department collects or accesses. The system is so advanced that
police officer activity and crime trends can be monitored in real time from any device with access to
the system. The GRPD is on the cutting edge of police information management and should again be
commended for this impressive system.
Also, the department employs the standard technology for patrol operations. Each vehicle contains
radar, video, and computer technology; officers have the capability to access department systems
and prepare reports remotely. However, two key pieces of technology are missing from patrol
operations: license plate readers (LPR) and automated external defibrillators (AEDs).
Recent research has shown that license plate readers are very effective tools for apprehending auto
thieves and recovering stolen vehicles. They cost around $20,000 to $25,000 per device, and can
check license plates about ten times faster than an officer manually checking license plates. Their
use can result in double the number of arrests and recoveries of stolen vehicles.5 Agencies that
employ LPR technology report that over the next five years they plan on increasing the deployment
of LPR to equip approximately 25 percent of their patrol cars. It is strongly recommended that the
GRPD implement this technology and install an LPR in at least one marked patrol car in each
service area. Currently, the GRPD assigns three investigators to an auto theft task force. A one-time
purchase of four LPRs is less expensive than the recurring expense of one investigator and
undoubted strengthens the auto crime reduction capabilities of the department. Adding LPR
technology is a better and more cost-effective way of deploying personnel and technology to reduce
auto crime.
An automated external defibrillator, or AED, is a portable electronic device that automatically
diagnoses the potentially life threatening cardiac arrhythmias of ventricular fibrillation and
ventricular tachycardia in a person. It is then used to treat them through defibrillation, the
application of electrical therapy, which stops the arrhythmia and allows the heart to reestablish an
effective rhythm.
With simple audio and visual commands, AEDs are designed to be simple to use for first
responders, and their use is taught in many first aid, first responder, and basic life support (BLS)
level CPR classes. The deployment of AEDs in marked police vehicles in Grand Rapids would greatly
enhance the life-saving capabilities of the department. These inexpensive (less than $2,000 each
5
Police Executive Research Forum study of LPR effectiveness in the Mesa, Arizona, Police Department.
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unit) and easy-to-use devices would be a tremendous asset to the GRPD and their purchase and
deployment is strongly recommended.
Recommendation:

Deploy four license plate readers and four automated external defibrillators and distribute
them proportionately in marked vehicles throughout the service areas (2 per each new
service area).
Special Response Team
The department has a tactical unit known as the Special Response Team (SRT). This unit is
commanded by a lieutenant and consists of two sergeants and sixteen officers. The SRT has a
“patrol focus” and its members perform a variety of law enforcement functions within assigned
service areas in addition to tactical response and support. In 2010 the unit executed 188 high-risk
warrants, made 298 felony and 1,036 misdemeanor arrests, issued 1,102 traffic citations,
conducted more than 1,500 field interrogations, and provided dignitary protection. The SRT
commander reports directly to the chief.
In general, the SRT is a valuable asset to the GRPD. The level of training and the level of activity
produced are impressive. This small cadre of officers and supervisors undoubtedly contributes to
the overall effectiveness of the department and the overall quality of life in Grand Rapids.
Recommendation:

No changes in staffing or function should be made to the special response team.
Review/Summary of Patrol Recommendations:

Reduce personnel assigned to patrol to 120 police officers assigned to rotating shifts, and
161 sworn officers assigned to the patrol division.

Closely examine CFS response to improve efficiency and reduce overall time spent on
assignments and the number of officers assigned per CFS.

Closely examine CFS demand to reduce the number of “nonpolice” calls handled by patrol
units.

Eliminate the watch commander position and replace it with a shift commander rotation
with responsibility shared by all GRPD lieutenants.

Merge the North and West service areas and the South and East service areas to create two
new service areas commanded by one captain in each. These service areas should also have
two lieutenants assigned.

Staff a position of deputy chief for patrol operations.

Equip four marked patrol cars with license plate reader technology and automated external
defibrillators.
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Investigations Division
The Investigations Division provides a wide range of investigative services for the city of Grand
Rapids. The division is responsible for the investigation of all crimes against persons, property
crimes, auto thefts, frauds, vice-related crimes, and all other felonies and misdemeanors occurring
within the city limits. Members of the division also participate in joint task force and
multijurisdictional operations. The division is commanded by a captain and is divided into three
units: (1) detectives, (2) vice, and (3) forensic services. The detective unit is supervised by a
lieutenant and one sergeant responsible for case management, the vice unit is also supervised by a
lieutenant, and the forensic services unit is supervised by a civilian forensic supervisor. In addition
to this management team the division is staffed by forty-five police officers and six sergeants
assigned as detectives. Fourteen of the officers and three sergeants are assigned to the vice unit.
Officers assigned to the detective unit and the vice unit are laterally transferred to these
assignments for an unlimited time at the discretion of the chief of police. The forensic services unit
has a manager and nine civilian personnel: two latent print examiners and seven crime scene
technicians.
The current sworn staffing of the investigations division is presented in Table 12.
TABLE 12: Investigations Division Sworn Personnel Assignments
Captain Lieutenant
Sergeant
Patrol
Officer
Total
1
Detective Unit
1
2
Major Case 1
1
6
Major Case 2
1
5
Family Services
1
9
Cyber Forensics
1
Kent Metro Cold Case TF
2
FBI Fugitive TF
2
ATF TF
1
CATT
3
MFITT
1
Warrants
1
Subpoena Delivery
1
City Attorney
1
Housing Enforcement
1
General Case
1
11
Subtotal
1
6
45
Vice
1
3
14
2
9
59
Total
Investigations
1
72
page 45
The combined units of the division investigated a total of 25,809 cases in 2011. The division
cleared 13,554 of these cases by arrest, for a clearance rate of 52.5 percent. The division also
reported an additional 2,972 cases were exceptionally cleared cases, for an exceptional case
clearance rate of 11.5 percent.
General Case Team
The general case team has eleven detectives assigned to investigate a wide variety of cases; it
concentrates on burglaries, simple assaults, larcenies, and fraud. Three detectives are assigned to
each one of the city’s service areas. This practice allows the individual detectives to work the same
area consistently, keeping them familiar with the residents and the issues that require the attention
of the department. This also allows the detectives to develop information sources and to more
closely monitor criminal activity within their assigned service areas. However, when the need
arises detectives have the flexibility to work and assist in other service areas. The police reports
that are received by the general case detectives are reviewed on a daily basis. The on-duty sergeant
reviews these cases and they are assigned based on the type of case, location, and the solvability
factors that are part of the police report. In 2010 the general case team was assigned 5,204 cases.
Inspection of the case assignments to the general case team reveals that an overwhelming number
of cases cannot be solved and are not suitable for investigation in the first place. For example, in
2010 one officer was assigned cases in the categories labeled “throw litter in public,” “suspicious
person,” “dog running at large,” etc. A full inspection of the case assignments for all of the general
case detectives shows a similar pattern of frivolous and unworkable cases. Therefore, the
detectives did not actually investigate 5,204 cases in 2010, this was simply the number of cases
they were assigned. This undermines the case management process and is a misleading
representation of the actual investigative function of these individuals. In totality, it appears that
the general cases detectives perform largely administrative work and the continued staffing of
these positions should be reevaluated.
Recommendation:

Eliminate the general case team and redeploy/eliminate detective positions assigned to this
function.
Major Case Teams I & II
The major case teams have thirteen detectives and two sergeants assigned to investigate all major
crimes. This includes homicides, serious assaults, robberies, death investigations, and officerinvolved shootings. Two of the major case team members are assigned to the Kent Metro Cold Case
Team. This team investigates and coordinates the investigation of past major cases with an
emphasis on unsolved homicide cases. In 2010 the major case teams investigated 2,149 serious
offenses that occurred within the city limits of Grand Rapids.
Here again, the case management and assignment process provides a misleading representation of
the investigative performance of these detectives. For eleven detectives to investigate 2,149 cases
(215 cases each per year) would be a heavy workload. ICMA recommends that a manageable
caseload for detectives conducting investigations should be in the range of 120 to 160 per year.
Investigations
page 46
Close inspection of the cases assigned to the major case teams reveals the same pattern uncovered
in the case assignments of the general case teams. Detectives in the major case teams appear to be
assigned frivolous and unworkable cases that have no solvability factors and are for informational
purposes only. The actual, workable caseload of GRPD detectives, therefore, is not 215 cases per
year, but something far lower.
Furthermore, the GRPD engages in a substantial amount of investigative specialization (see below).
The result of this specialization is that the major case teams are assigned primarily to murder,
aggravated assault, and robbery offenses, many of which are closed by patrol officers with
summary arrests on the scene of these incidents. The end result is a limited number of cases
actually requiring investigation.
Additionally, detectives in the GRPD work the equivalent of “business hours” (weekdays from 8:00
A.M. to 6:00 P.M.). Detectives need to be present and working during the hours when violent crime is
the most prevalent in order to respond to the crime scene and begin the investigation immediately.
Violent crime occurs predominately at night and on the weekends, and not having detectives
assigned during these times is a major shortcoming of the GRPD investigative staffing.
Under patrol operations a recommendation was offered to consolidate service areas from four to
two. This patrol consolidation offers an opportunity to consolidate investigative resources as well.
Recommendations:

Develop and implement a more efficient case management system that uses solvability
factors to assign cases. All other incidents should be used as information and processed into
intelligence for investigations and patrol enforcement operations.

Merge the general case teams and major case teams and create two new investigative teams
assigned to each one of the new service areas. These teams should consist of one sergeant
and eight investigators and report to a lieutenant and would be responsible for all criminal
investigations in Grand Rapids.

Restructure the work schedule to ensure detectives are working and available at night and
during the weekends. Each team should cover at least one weekend day, and team shifts
should not overlap by more than three hours.
Family Services Team
The Family Services Team has one sergeant and nine detectives assigned to investigate all sexual
assaults, domestic violence, and child abuse offenses. In 2010 this unit investigated 2,285 cases of
domestic assault. Detectives also investigated 403 sexual assault cases. This highly trained and
experienced group of investigators has contributed significantly to the identification and
prosecution of sex offenders.
Here again, the case management and assignment process in the GRPD makes the evaluation of
actual caseload of these investigators difficult. However, given the size of the Grand Rapids
population and the number of reported forcible rapes and domestic violence incidents, the
assignment of six detectives and a supervisor appears justified.
Investigations
page 47
Recommendation:

Maintain current staffing and functions of the family services team.
Combined Auto Theft Team
The Combined Auto Theft Team (CATT) investigates all of the auto theft cases that occur within
Grand Rapids and the surrounding metropolitan area. There are three Grand Rapids detectives
assigned to the team, along with one detective from the Kentwood Police Department and one
detective from the Wyoming Police Department. This operation is partially funded by the State Of
Michigan’s Auto Theft Prevention Authority. This funding is used to pay for fifty percent of all of the
participating agency’s detective’s salaries and for vehicles and other equipment.
Case assignment data provided by the GRPD indicates that the CATT investigates motor vehicle
thefts and larcenies of property from vehicles. Inspection of the crime rate of these two categories
of crime since the inception of this unit shows a substantial decrease from 2007 to 2011. Motor
vehicle thefts and larcenies from vehicles have decreased almost 50 percent during this time
period. Undoubtedly, the creation and work of the CATT contributed to this decline.
Recommendations:

Considering the caseload and the fact that auto-related crime has decreased 50 percent
from previous levels, a reduction of one detective in this unit is possible.

Coordinate with the patrol division officers assigned to LPR equipped vehicles.
Metropolitan Fraud and Identity Theft Team
This unit is comprised of one Grand Rapids Police Department detective, one Wyoming Police
Department detective, and one Kent County Sheriff’s detective. This unit’s office is located within
the Wyoming Police Department.
Unfortunately, fraud and identity theft are increasingly common crimes. They are also crimes that
are difficult to investigate and require extensive training and experience. Committing one detective
from the GRPD to this team is a worthwhile investment that should be continued.
Recommendation:

Maintain current staffing and functions of the MFITT.
Kent Metropolitan Major Case Task Force
All Kent County law enforcement agencies are members of this organization. This team is activated
in the event a member agency becomes involved in a major protracted case or cases that involve
multiple jurisdictions. The member departments share resources and commit them for extended
periods of time in an effort to solve these major cases in a timely manner that benefits the entire
county.
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page 48
The major case task force is currently involved in a multijurisdictional violent crime investigation
that is utilizing office space within the Grand Rapids Police Department. There are currently
members of the Kent County Sheriff’s Department, the Wyoming Police Department, the Kentwood
Police Department, and the Grand Rapids Police Department assigned to the operation. There is an
operation currently in progress targeting street gang members involved in a series of violent
crimes where firearms were used by the offenders. This investigative unit is activated for a specific
period of time unless the members agree to extend the operation. There are also two prosecutors
assigned to the investigation. A Kentwood Police Department civilian analyst is also assigned to the
investigation.
Recommendation:

Continue commitment to the Kent Metro Major Case Task Force with the same levels of
personnel and function.
Alcohol, Tobacco, and Firearms Investigative Unit
One officer and one ATF agent review all cases in which a firearm is used. The case is then reviewed
by the United States Attorney’s Office to determine if the case meets the criteria for federal
prosecution. The officer and the ATF agent utilize an off-site office, and also have an office inside
the Grand Rapids Police Department’s Detective Division. There is one Grand Rapids police officer,
one Kent County Deputy Sheriff and three or four FBI agents involved in this unit. This unit
continually works on the apprehension of wanted persons in both federal and state cases.
Recommendation:

Continue commitment to the ATF Task Force with the same levels of personnel and
function.
Specialized Investigative Personnel
In additional to discrete investigative units, the GRPD also staffs numerous positions that support
the major investigative effort. Police officers are assigned to the city attorney, housing enforcement,
as well as to prepare and delivery subpoenas, execute warrants, and conduct cyber forensic
investigations. The GRPD currently staffs one police officer in each of these functions and one
sergeant to supervise their activities. Undoubtedly, these positions serve a critical function and
should be maintained. Completely eliminating personnel in any of these areas would adversely
impact the investigative capacity of the agency. As conditions permit, consideration should be given
to adding personnel and providing additional support to the activities of specialized investigators.
Recommendation:

Maintain existing function and staffing of specialized investigative personnel assigned to the
city attorney, housing enforcement, subpoenas, warrants, and cyber forensics.
Vice Unit
The vice unit is staffed by one lieutenant, three sergeants, and fourteen officers. This allows one
sergeant and five officers to be assigned to the day shift and one sergeant and six officers to be
Investigations
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assigned the night/evening shift. One officer is assigned to the Drug Enforcement Administration
(DEA) and one sergeant and two officers are assigned the metropolitan enforcement team (along
with a Michigan State Police officer). Officers assigned to the unit may stay in the assignment as
long as they desire or until the chief of police elects to rotate them to another division. There are
currently three officers who have been in the unit for more than seventeen years. The vice unit
staffing level has been reduced from thirty-seven officers in the early 1990s to the present staffing
level of eighteen. There is also one civilian office assistant assigned to the unit. This position is
funded through asset forfeiture funds.
The vice unit is responsible for the investigation of all vice crimes, including drug crimes,
prostitution, gambling, and liquor and tobacco law violations. The unit also actively pursues
prescription pill cases and processes liquor licensing for the city. The unit utilizes a variety of very
effective enforcement and investigative techniques to identify and arrest persons involved in these
criminal activities.
The vice unit also manages an asset forfeiture process. In 2011 there were more than 300 cases
that involved an asset forfeiture issue. The unit saw more than $450,000 in seizures this year,
including $200,000 in cash. The unit handles all of these investigations and the follow-up legal
filings with the assistance of an attorney employed by the city.
The vice unit routinely assists the detective division with violent crime investigations. The unit
members provide investigative assistance and intelligence information that often aid in the
identification of offenders.
The city of Wyoming does not have an active vice unit, so the Grand Rapids vice unit assists with
cases involving prostitution and gambling when requested.
The vice unit operates out of a building located away from the police station. It is located within the
city limits and is easily reached by department members and those who need to visit the facility.
The office is modern and has covered parking for vehicles and equipment. During the site visit the
facility was visited by a member of the analysis team. The building is well maintained and
equipped. There is office space sufficient to allow all officers assigned to the unit to have a work
space, along with meeting rooms. All of the officers interviewed regarding the facility had very
positive comments.
All of the officers assigned to the vice unit have take-home cars that are to be used only for official
duty purposes. All of these officers are provided a Sig Sauer model P229 as a duty weapon.
Radios, surveillance equipment, vehicles, computers, and other necessary equipment are readily
available and are replaced as needed.
The vice unit has a secure evidence storage room within its building. An evidence custodian
maintains the evidence room and evidence stored there. There is only property-type evidence
stored in this facility. All guns, jewelry, cash, and drugs are stored at the main headquarters
evidence storage facility. The facility and its contents appear to be orderly and maintained in a
manner that is consistent with department policy.
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All records for the vice unit and intelligence files are safely and securely stored in accordance with
department policy.
The city of Grand Rapids has made a strong commitment to the investigation of drug and vice
crimes within the city. It has also committed to assisting other local agencies in working street-level
vice crimes within those jurisdictions. The vice unit also assists state and federal agencies in the
investigation of drug crimes that affect areas in and around the city. The vice unit continues its
contributions to all kinds of investigations by supplying intelligence information. This contribution
has added immeasurably to the success of not only drug and vice crime investigations but also the
identification of suspects in many other property offenses and violent crimes.
Recommendation:

Maintain personnel and functions of the vice unit.
Forensic Services Unit
The Forensic Services Unit is staffed by a manager, two latent print examiners, and seven crime
scene technicians. This unit provides response twenty-four hours a day, seven days a week to crime
scenes within the city limits. The crime scene technicians respond to all crime scenes that require
processing, photographing, and evidence gathering. The department’s responding officers and
detectives are not responsible for processing crime scenes.
The crime scene technicians and latent print examiners have excellent equipment and are provided
excellent training opportunities that provide them with the necessary professional skills. Evidence
is either processed at the scene or within the department’s laboratory facility. This includes latent
print examination, serial number restoration, preliminary examinations of footwear and tire tread
evidence, and analysis of video evidence. All collected DNA evidence is forwarded to the Michigan
State Police Crime Laboratory for analysis.
The department utilizes a Cartridge Electrostatic Recovery and Analysis (CERA) system that
develops and photographs fingerprint images on cartridge casings. This is an example of the Grand
Rapids Police Department’s commitment to making certain that it utilizes available advanced
technology to advance and improve case resolution.
The forensic services unit has digital cameras issued to all members of the unit. The unit has the
ability to enhance photographs within the unit.
The forensic services unit’s effective use of the Automated Fingerprint Identification System (AFIS)
has continually led the state of Michigan in fingerprint identifications. In 2010 the unit’s latent print
examiners identified 1,916 fingerprint submissions and linked 739 of these prints to active case
investigations. The latent print examiners within the unit are often called upon to assist other
departments in the verification of fingerprint identifications. Each of the unit’s crime scene
technicians responded to approximately 600 calls for service in the study year.
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The forensic service unit’s members are well trained. The department utilizes grant opportunities
for advanced training through Michigan State University, the Michigan State Police, the National
Center for Victims of Crime, West Virginia University, and the Midwest Forensic Resource Center.
The forensic services unit is a highly effective part of the Grand Rapids Police Department. The
members of the unit are well supervised and managed. They understand their mission and are
dedicated to the department’s overall goals. The members of the unit and the supervisors utilize
best practices that are recognized in their profession. The utilization of highly trained, motivated
personnel at crime scenes is highly desirable and will continue to provide clearance rates that are
much higher than those agencies that choose to utilize personnel with less experience and training.
In these difficult economic times local governments continue to look for ways to reduce costs to
meet budget objectives. Often, operations such as forensic services are examined for possible
reductions in personnel or services to reduce costs. ICMA would strongly caution against any
reduction of personnel to achieve these goals. This is an excellent operation that provides excellent
results and any reduction in personnel will have a negative impact on case resolution.
It is obvious that the Grand Rapids Police Department’s forensic unit is the best equipped and best
staffed forensic operation of the three departments examined in the ICMA study. This unit has the
expertise and resources to assist other agencies in their forensic programs. There have been many
occasions in the past when Grand Rapids has assisted Wyoming and Kentwood in investigations.
The possibility of combining their resources is very real and should be considered seriously.
Recommendations:

Maintain current staffing and function of the forensic services unit.

Explore merger/consolidation of forensic services with regional law enforcement agencies.
Multi-agency Operations
The Grand Rapids Police Department has taken the leading role in specialization of services and
multi-agency operations within Kent County. The department contributes significant resources in
terms of personnel, equipment, and facilities. The department’s specialized units also contribute
significantly to the investigations of crime throughout the county. Grand Rapids units routinely
share information and involve other agencies in their investigations by sharing intelligence and
other information that assists other agencies with cases in their own jurisdictions. This positive
department-wide attitude and culture is a testament to the forward-thinking leadership that is
evident throughout the Grand Rapids Police Department.
The Grand Rapids Police Department must continue to monitor and manage these programs to
make certain that they are run efficiently. As the pressure of the current economic situation
becomes even more challenging these commitments will have to be justified continually.
Recommendation:

Continuously track multi-agency operations. Specialized multi-agency operations are
infrequently conducted, yet bear a high readiness cost to the agency that supports the
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primary units. Accurate tracking would enable the GRPD to assess the cost/value of services
provided to other agencies in the region and recoup the investment made in staffing these
units.
Table 13 provides a summary of the new division staffing based on the recommendations provided.
TABLE 13: Recommended Investigations Division Staffing
Captain Lieutenant
Sergeant
Patrol
Officer
Total
1
Detective Unit
1
2
Major Case 1
1
8
Major Case 2
1
8
Family Services
1
9
Cyber Forensics
1
Kent Metro Cold Case TF
2
Federal TF
2
CATT
2
MFITT
1
Warrants
1
Subpoena Delivery
1
City Attorney
1
Housing Enforcement
1
Subtotal
1
5
37
Vice
1
3
14
2
8
51
Total
1
62
As can be seen from this table the staffing and functions remain essentially the same. But with
better case management and the elimination of superfluous investigations, the general case team
can be eliminated and the personnel assigned redeployed into more robust major case teams.
Additionally, ICMA considers the staffing levels in all of these units and positions as minimums.
Eliminating any positions remaining in Table 13 will have an adverse impact on the investigative
capabilities of the GRPD. Conversely, the essential investigative functions are represented and
adding personnel to these functions as conditions warrant is recommended.
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Support Services Division
The department should undertake a comprehensive review of the entire Support Services Division,
with an eye towards identifying any positions or functions performed by uniformed personnel that
can be performed by civilians.
Special Services, Special Events, and Assignments
The Special Services Unit is staffed by one sergeant, seven police officers, and one civilian. This unit
is responsible for several special units and functions, such as: the warrant unit; sex offender
registration; the property management unit; the traffic unit; fleet maintenance; etc. Personnel
assigned to the support services division are being cross-trained. This unit provides investigative
support and routinely partners with the detective division to make arrests. Traffic unit employees
respond to and investigate fatal and serious personal injury vehicle and boating accidents, conduct
operation while intoxicated (OWI) enforcement, and manage the fleet safety program. Warrant unit
employees conduct and verify sex offender registrations, obtain warrants, and serve as liaisons
between the department and the courts.
The department has a special events unit, staffed by one lieutenant, one sergeant, and one police
officer. Local businesses compensate the department for police services delivered at “special”
events.
The department has a canine unit, staffed by one sergeant and six canine teams. Unit members
function as patrol officers or supervisors while on patrol, and perform traditional canine functions
(e.g., locating criminals, explosives, and narcotics) as necessary. This is an essential function in the
GRPD and the staffing and deployment of the officers and canines must be maintained.
The Office of Film, Music and Special Events is responsible for planning, coordinating and
permitting special events held at Van Andel Arena, De Vos Place Convention Center and
Performance Hall, the Rapid Transit Center, and throughout the city of Grand Rapids.
The department does not have a community affairs unit, or designated community affairs officer.
The department also does not have a full-time grant writer. However, the department has received
a number of federal grants in recent years. A 2009 grant from the COPS office, which enabled the
department to hire nine officers for three years, is due to expire. An additional application is
pending.
Two officers are permanently assigned to the city’s Boys’ and Girls’ Clubs (one at each center), and
the ICMA team questions whether this is an appropriate use of resources. The department should
record and carefully track all work performed by these officers to =consider whether these duties
could be performed equally well by one officer for both clubs, two officers assigned part-time, or
civilian volunteers or officers volunteering on their off-duty time.
Recommendations:

Maintain current staffing and functions of the Special Services, Special Events and K-9 units.
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
Eliminate full-time assignments to the Boys’ and Girls’ Clubs and replace them with civilian
or sworn volunteers.
Property and Evidence
The property and evidence storage facility is staffed by two sworn police officers. They are
responsible for the storage and security of all evidence and found property turned over to them by
the police officers and the public. These two officers also are responsible for issuing and
maintaining uniforms/ equipment and preparing copies of CDs from the in-car video systems for
court hearings.
At present, there are approximately 15,000 pieces of evidence and found property stored within
the facility. The system utilizes a bar code system to catalogue the items. Property audits are
conducted regularly. The department regularly audits 100 percent of all vouchered weapons, cash,
and narcotics. Approximately 10 percent of all other (i.e., bulk) items are audited pursuant to a
regular schedule.
A review of the facility and interviews with officers assigned to the facility revealed a professionally
run, well-managed operation. A random review of cases showed that all of the documentation
selected was in order and up to date. The facility was neat and free from unnecessary clutter. It is
obvious that the two officers assigned to this unit are highly motivated and experienced. They
undoubtedly take great pride in their work, as is expected from professionals with their level of
experience.
This area, like the forensic services unit, is providing excellent service to the department. It appears
that the two officers assigned are able to handle the responsibilities efficiently and effectively.
Recommendation:

In the future, management should consider the option of placing civilian personnel in these
positions if openings occur through attrition.
Communications Bureau
The Communications Bureau is responsible for receiving and dispatching police and fire calls to the
cities of Grand Rapids and Wyoming. The communications center is one of two public safety
answering points within Kent County.
In 2010 the center received 123,695 calls via 911. There were also 172,944 administrative calls.
Calls for police service totaled 102,707 and calls for fire service totaled 19,684. In 2011 the center
received 212,498 calls via 911 for the cities of Grand Rapids and Wyoming. There were 281,532
administrative calls. Calls for police service totaled 231,422 and calls for fire service totaled 29,380.
The city of Grand Rapids began to dispatch for the city of Wyoming’s police and fire departments in
September of 2010, which explains the large increase in calls for police and fire service from 2010
to 2011.
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The bureau is managed by a civilian manager who is in her second year as manager. She possesses
a great deal of experience and is recognized as a professional manager in the emergency
communications field.
The operations budget for the center is $6.3 million. The costs are distributed among the users
through a cost sharing formula that is based on calls for service.
There are three police consoles and two fire consoles. Each of the dispatch consoles has one
dispatcher at each position.
Communications Staffing
The bureau is staffed by one manager, five supervisors, and forty-five emergency communication
operators (ECOs), as well as four part-time ECOs and three radio technicians. Each of the bureau’s
five consoles is operated by one emergency communication operator (ECO). The three police
positions are staffed by police operators and the two fire positions are staffed by fire operators. The
ECOs have one of three classifications: trainees are classified as ECO 1, the police dispatchers are
classified as ECO 2, and the fire dispatchers are classified as ECO 3.
In addition to the five emergency operators working each shift, there are two to four call takers.
The number of call takers varies with the time of day and day of the week. There is also a shift
supervisor for each shift who can relieve for breaks and provide additional assistance when
necessary. There are also law enforcement information network (LEIN) operators available to
provide assistance with entering warrants, performing second-party checks, and answering phones
within the communications center.
Fifteen employees have been hired since September 2010. During a period of layoffs in 2010, sworn
police officers were assigned as call takers to avoid layoffs. Subsequently, these officers were
reassigned to patrol duty and six new emergency operators were hired. There were a total of seven
new emergency communication operators hired to accommodate the police and fire partnership
with the city of Wyoming.
Communications Training
All new emergency communications operators must attend a two-week basic training program.
They are then assigned to a communications training officer. The training begins with a 25- to 50day assignment to query the law enforcement information network or to answer telephones.
Trainees rotate shifts every three weeks to obtain experience on each shift. A trainee must become
proficient in the utilization of the LEIN system, phone protocols, and dispatching.
The fire emergency communication operators have a similar training program, working phones and
dispatching fire and EMS calls. The fire ECOs are paid higher wages that the police ECOs. There are
fifteen fire emergency communication operators, with five assigned to each eight-hour shift. The
fire ECOs dispatch both police and fire calls and the police dispatchers dispatch only police calls.
The pay difference is 15 percent more for the ECO 3 position.
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The ongoing attrition of personnel assigned to emergency communications and hiring replacement
personnel have a substantial impact on communications operations. Training requirements,
overtime costs, and related staffing issues can have a negative impact on operations. This must be
examined very carefully by GRPD communications management. It is recommended that the
Support Services Division explore mechanisms to support efficient communications through
appropriate staffing, training, and other means.
Communications Equipment/Facility
The ICMA team visited the Grand Rapids Communications Center. The facility is located within the
Grand Rapids Police Department. The facility was located in a secure area of the department with
very limited access to authorized persons only. The facility was spacious, orderly, and has
appropriate lighting. The equipment currently in use is functioning well with few issues from the
dispatchers.
The equipment located in the center was purchased by the Kent County Dispatch Authority.
Radios—both hand-held and mobile units used by Grand Rapids police officers and Wyoming police
officers—are paid for by their respective cities. The city received a $2.5 million grant, with a grant
match of 20 percent by the Kent County Dispatch Authority that would provide funds to purchase
new consoles to replace older, outdated “Command Plus” equipment that is no longer
manufactured. The city of Grand Rapids would receive fourteen new consoles, as would the Kent
County Sheriff’s Department, for a total of twenty-eight consoles. Connection equipment or
backroom equipment as it is commonly called would also be included.
The upgrading of the consoles would make the county’s two public safety answering points
redundant; this would allow for emergency operations to be handled by either system in the event
of an equipment failure. The ability of the centers to back up one another by using identical systems
is highly desirable.
Consolidation Results
The recent reduction in public safety answering points in Kent County from five to two seems to
have been received very positively. The joint communications operation now in place between
Grand Rapids and Wyoming is working well, with very few issues. The joint communications
operation between the Kentwood Police Department and the Kent County Sheriff’s Department also
seems to be working well. The Michigan State Police public safety answering point has ceased
operations, with communication operations now assigned to the state police-operated location in
the city of Gaylord.
The integration of the city of Wyoming’s communication operation into Grand Rapids
communications center has been completed. Both cities involved worked diligently to make the
merger as seamless as possible. The city of Grand Rapids was only able to hire three emergency
communication operators from Wyoming’s staff of fifteen. This required Grand Rapids to hire new
personnel to fill theses vacancies. This was accomplished with the assistance of Wyoming in the
selection and hiring.
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The city of Wyoming and the city of Grand Rapids have developed a good working relationship
since the merger. A dispatch tracking form has been created and is now being utilized to track and
review citizen complaints. The Wyoming Police Department’s has monthly meetings with the Grand
Rapids Police Department’s Communications Bureau. Both agencies work together on operational
issues, staffing, planning, and other matters of mutual concern.
The new Motorola PremierOne Computer Aided Dispatch and PremierOne Mobile systems are
being prepared to go live in December of this year. The Kent County Dispatch Authority has been
working with the Grand Rapids Communications Unit to improve the 911 system throughout the
county. The Grand Rapids telephone center received the software upgrade that will allow all 911
calls to automatically roll over to Kent County Sheriff’s 911 Center and also will allow the sheriff’s
calls to be forwarded to Grand Rapids. This further improves the redundancy of the two systems in
the event of storms or system failure.
The next step in the consolidation process is exploring the merger of all emergency
communications in Kent County. With the transition of Wyoming and Kentwood communications
and dispatch functions merged and operating effectively, the communities should look to continue
with this merger process and transition all communications function and staffing to the Kent
County Dispatch Authority. It could be possible to maintain staffing, equipment, and facilities as
they appear now, and transfer the management of this operation to the county. Although this is
beyond the scope of the study, further consolidation of communications could generate substantial
cost savings for Grand Rapids.
Recommendations:

Explore consolidation and/or transfer of emergency communications to Kent County.
Response/Dispatch Times
A priority code is assigned to each call by the dispatch center. Priorities range from 1 to 9 with 1 as
the highest priority. Some calls do have a priority of 0, used primarily for out-of-service events.
Table 14 shows the average response times by priority. These averages included nonzero-on-scene,
other-initiated calls from November 2010 to October 2011. There were 20,239 other-initiated calls
with valid response times. All of these calls were assigned a priority.
In order to calculate the response times to accidents, we used all the other-initiated calls classified
as “PI” (personal injury accident). Most of these were classified as priority 2 calls. Priority 1 calls
were primarily calls classified as “crime-persons.”
The data in Table 14 indicate a deficiency in dispatching CFS. The column labeled “Dispatch”
presents the average length of time in minutes to dispatch a CFS (time from call received to time
call assigned to a patrol unit) for the different priority levels of CFS. Overall, the GRPD has an
average dispatch time of 11.0 minutes for the 32,052 CFS where response times were calculated.
This is high, and indicates a protracted time between call and response. In addition, for Priority 1
calls (crimes in progress, officer needing assistance, etc.) the dispatch time is almost six minutes.
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TABLE 14: Average Dispatch, Travel, and Response Times, by Priority
Response
Total
Calls
1
5.6
4.5
10.1
126
2
7.2
5.3
12.5
18,419
3
15.7
7.5
23.2
8,918
4
17.1
6.9
24.0
4,570
5-7
26.2
7.6
33.8
19
Total
11.0
6.2
17.1
32,052
5.2
6.5
11.7
235
Priority
Dispatch
Injury accidents
Travel
Note: The total average is weighted according to the number of calls within each priority level.
The city of Grand Rapids and the city of Wyoming’s merging of emergency dispatch operations is an
example of what can be accomplished when jurisdictions cooperate with one another. The forward
thinking of these two cities is to be commended. Both agencies agreed that the primary goal of the
merger of the systems was to improve service delivery and to reduce costs. The future plan for two
identical systems within the county which can communicate with one another and offer
redundancy could become a model program for other communities to note.
Since the merger in September of 2010 the Grand Rapids Communication Bureau has worked
diligently to continue to upgrade and improve emergency communication services. The merger of
these two systems required much consideration and study. Decisions related to staffing, equipment,
supervision, policy development, shift scheduling, and implementation were given very diligent
consideration. The managers and emergency communications operators all agree that the system is
working as planned. The system and its operations continue to be reviewed and monitored. There
is no hesitancy by managers to take action to continue to improve the effectiveness and efficiency
of the communications operations.
ICMA would not recommend changing the current staffing levels. Due to the recent implementation
of the system there is insufficient data to make any such recommendations at this time. A review of
the communications staffing would be appropriate during the next budget cycle. This will allow for
sufficient time to review the effectiveness of the current operations.
The system is working as planned. According to system managers there have been very few
complaints about the operation of the system. There is a complaint tracking process that allows
managers to review and investigate complaints about the system or personnel. This complaint
review seems to be effective in the handling of these matters.
Recommendation:

It is strongly recommended that call-taking and dispatch procedures be reexamined by the
GRPD to uncover the contributing factors behind the current high dispatch times and that
steps be taken to reduce these delays where possible. Dispatch times for high priority calls
should be less than two minutes.
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Facility/Fleet
The Grand Rapids Police Department is located in the center of the downtown business district. It
occupies a high-visibility location that offers two public entrances (Fulton Street and Monroe
Street). The Fulton Street entrance is manned 24 hours a day, 7 days a week. During business hours
Monday through Friday, a sworn officer is posted inside the police facility in a “kiosk” near the
Monroe Street entrance to the building.
The building has 54,870 square feet of parking and office facilities within the parking level. There
are five additional floors within the building that contain 34,117 square feet of space on each level
for offices, training facilities, meeting rooms, workout rooms, evidence/property storage, forensic
laboratory facilities, and a very large communications center. There are also 346 lockers for male
officers and 105 lockers for females.
Due to the size of the building and its central location there is no current need for substations or
district offices. This building can best be described as an excellent facility that meets the needs of
the police officers, civilian employees, and the general public that visits and uses the facility. Police
interns perform a variety of administrative functions within the building. This police facility adds
much to the well-being of the police department employees and their ability to perform at a very
high level.
The department fleet consists of the following vehicles:

44 patrol vehicles

25 SRT/K-9 vehicles

36 detective unit vehicles

18 support service vehicles

19 nonpool vehicles.
The department has a formal policy for retiring and replacing police vehicles. Typically, vehicles
must have 100,000 miles of service before being replaced.
The Grand Rapids Police Department has an excellent police facility. However, its current layout
and design needs to be reevaluated. Twenty-four hour public access to the police facility should be
curtailed. Also, the ground floor of the building needs to be reconfigured. Staffing of a sworn
officer to the “kiosk” should be eliminated. Public access should be curtailed to normal business
hours, with after-hours access changed to emergency services only. The “front desk” area should be
relocated from its current position to a position across the main lobby facing Monroe Street. This
area should then be reconstructed to provide physical security measures to the police interns and
records personnel that service the public.
Recommendations:

Curtail 24-hour public access to the police headquarters facility.
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
Reconfigure the present space to limit access to the building from the Monroe Street
entrance only, with a secure front desk area facing this entrance.
Information Technology and Records Management
While a comprehensive analysis of the entire department’s IT systems was not performed, ICMA
identified and reviewed the following systems:

The department’s records management system (RMS)

The department’s computer-aided dispatch (CAD) system

The department’s property management system.
The department is currently exploring the development of a 311 system.
The department’s comprehensive records management system (RMS) is known as EMPOWER. This
system was first developed and implemented by department personnel (that is, it was not
purchased from a commercial vendor) through the FileMaker program in 2000. This has resulted in
a considerable ongoing savings in terms of annual licensing fees.
This RMS is an extremely agile and user-friendly system. It integrates easily with the department’s
CAD system. The CAD system captures data, assigns an incident number, and exports data out to
FILEMAKER and EMPOWER every fifteen minutes. Field reports are prepared in mobile terminals
in patrol vehicles and are merged with EMPOWER. Interestingly, EMPOWER was intended
originally only to be a field reporting system. It has evolved into the department’s comprehensive
RMS.
The EMPOWER system has been described as “organic,” as it has continually been updated and its
development is ongoing. Department personnel serve as the development team. Department
personnel described this process as “developing our own business solutions.”
The department’s IT team also helped to convert the department’s radio environment to a 3G
wireless system. The team is currently testing a 4G system.
EMPOWER’s modules and capabilities include, but are not limited to, the following:

Investigations

Internal affairs

Citations

Field reporting

Daily activity logs

Use of force tracking

Vehicle pursuit tracking

Risk management
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
Electronic citations

Warrant management

False alarm management

Off-duty employment tracking

Online reporting by members of the community (via the department’s website).
A commercially designed program is used to track weapons, narcotics, and currency. EMPOWER
interfaces with the department’s CAD and property management systems. The department’s
payroll and purchasing functions are administered through citywide systems. The IA unit uses a
secured record management system (ACCESS) that is linked to EMPOWER.
Video cameras are installed in all patrol vehicles. GPS tracking capability will be available with the
implementation of the new CAD system.
The department has access to crime mapping via ARCMap. Citizens are able to access crime maps
via the department’s website. The system refreshes all fields every 24 hours. The department’s
website indicates that the crime mapping program “provides public access to crime information for
the City of Grand Rapids. The crime data is preliminary information from reports made by officers
of the Grand Rapids Police Department. Future investigation and analysis may change crime
classification and other information. The mapping database contains data from the past 90 days.”6
Detectives are able to prepare their own crime maps, as necessary. Squad sergeants can perform
specific searches, such as “my team, for the month of April.”
The department utilizes a number of fixed cameras situated in public places throughout the
community. Personnel and investigators can access images via their hand-held devices (i.e.,
telephones, PDAs). Additional cameras can be set up as necessary.
The records unit is staffed by two full-time civilian clerks and one part-time civilian clerk. The
records unit processes gun permits and gun registrations and performs fingerprinting.
Recommendations:

6
The department should establish an internal technology task force, which would serve as a
standing committee to perform the analysis described above. This body should be
comprised of supervisors, line officers, and civilian members of the department, should
meet regularly, and should: (1) identify the department’s current technology needs; (2)
identify any deficiencies in the department’s current communications and records
management systems; (3) revise and update the department’s website (which should be
designated as a priority); (4) identify technology training needs and recommend additional
training; and (5) make specific recommendations for improvement, where necessary. This
task force would report directly to the chief.
City of Grand Rapids, http://grcity.us/police-department/Pages/Crime-Mapping.aspx.
Support Services
page 62

The department should designate one ranking officer to serve as chief information officer
(CIO). This individual would be responsible for creating, maintaining, and retrieving data
from the police department’s various databases, files, and records. The CIO would serve as
chair of the technology task force.
Training
The training unit is commanded by a lieutenant and is staffed by four full-time, uniformed officers.
A sergeant’s position was eliminated previously from this unit. These individuals are assisted by
one intern, as well as scores of uniformed officers who deliver training on a part-time basis as field
training officers (FTOs), firearms instructors, use of force/defensive tactics instructors, general
topics instructors, etc.
The training division was merged with the Special Services Unit and therefore currently has
responsibility for: recruiting and testing; conducting background investigations for new employees;
the hiring of interns; and background checks for civilian access to the headquarters building. ICMA
was advised that there were approximately 300 background investigations conducted in a one-year
period. ICMA was advised that the department delivers approximately 20,000 total hours of
training annually.
The training lieutenant is, among other things, charged with the following duties and
responsibilities: identification of the training needs of the department; curriculum development;
management of the training budget; management of the department’s recruitment programs;
maintenance of training records; tactical training critiques and debriefs; command and supervisor
training; and review of use of force reports and vehicle pursuits.
Uniformed personnel receive all required recertification training (such as firearms and HAZMAT
training) and also attend a considerable amount of off-site or outside (i.e., commercial) training.
The required training is mandated by the Michigan Commission on Law Enforcement Standards.
Training encompasses a broad array of topics, such as latent prints, child abuse investigations, etc.
The department currently receives funding of approximately $60,000 per year from the Michigan
Commission on Law Enforcement Standards for training.
ICMA was informed by several sources outside the department that the Grand Rapids Police
Department has a “very pro-training culture.” Multiple site visits and a review of training records
and materials confirm this conclusion.
The training division is responsible for delivering required recertification training, in-service
training, and field training (for probationary officers). The majority of training is delivered on-site
(that is, in training facilities located in the headquarters building). On training days, officers are
rotated through various training stations for approximately four hours, and then are rotated out to
complete their scheduled shift on patrol. Training is delivered over various shifts. Firearms training
takes place at an off-site range facility.
At one time, the training division was also responsible for a high school cadet program, a youth
academy, and a citizens’ police academy.
Support Services
page 63
The department’s headquarters training facilities are spacious and well equipped.
The department’s training is described as “proactive.” There is an emphasis on the teaching and
development of integrated skills. In other words, lessons are not delivered or understood as
discrete topics. The lessons themselves are very well designed and dynamic, blending traditional
classroom instruction with practical and tactical skill development. For example, a “use of force”
lesson is not delivered simply via traditional lecture method. All related topics are taught
simultaneously. Therefore, lecture is combined with hands-on tactics and practical exercises
regarding room entries, etc. This type of learning strategy is quite sophisticated and has been found
to be a particularly effective means of instructing adult learners, such as police officers.
The training division provides updates regarding law and departmental rules and regulations.
The department’s training division is well integrated into the overall organizational framework of
the department and works closely with the city’s risk manager and human resources office.
The department’s training officer receives a copy of all line-of-duty injury reports filed in the field.
Copies are also received by appropriate parties in city hall and the captain who supervises the
Support Services Division. The training officer also receives and reviews all use of force reports. Lt.
Lind indicated that he receives them as they are prepared, even prior to a supervisor’s review. The
lieutenant related a story about an incident where the city’s risk manager came to the department
to view an in-car video of a particular incident in order to determine whether a particular use of
force was appropriate. There is apparently very good rapport between the department and the
city’s civil litigation team (city attorney’s office and risk manager). ICMA was informed that the
department recently enacted new policies regarding the operation of police vehicles and noticed
that the total number of driving-related claims dropped. This is a very proactive, collaborative, and
integrated approach to both training and risk management.
The department reports that its efforts have led to a considerable reduction in the total amount
paid out in settlement/judgments for vehicle accidents over the past ten years. It has similarly
helped to reduce significantly the amount paid out in 18 U.S.C. 1983 claims over an eleven-year
period.
The training officer participates in critical incident reviews and performs a tactical debrief for all
critical incidents. The primary purpose of tactical debriefs is to determine “what can be learned”
from these incidents. For example, the training officer will examine the scene of officer-involved
shootings. Other units, such as Internal Affairs, will perform a similar review. The training officer
indicated that “these reviews will drive what our [future] training scenarios will be.” The training
officer reports that he has received significant input from the police officers’ union.
The department develops and follows an annual training plan that sets forth particular training
goals. The department utilized a training committee at one time, but it has been dissolved. The
training officer develops training goals with the input of other members of the department. For
example, ICMA was advised that the Support Services Division requested ethics training. The
training officer indicated that he has an “open door policy” with regard to his training officers. A
Support Services
page 64
great deal of the department’s overall training is related to the development of core competencies
and critical skills.
All supervisors attend a first-line supervisors’ training course. The training division delivers
periodic in-service training to supervisors. For example, sergeants and lieutenants receive legal,
procedural, and manual updates approximately two to three times per year. Supervisors also
receive continuing training regarding the proper completion of annual performance reviews for
their subordinates. Additional supervisor training has been delivered off-site on the topics of
proactive leadership, radio communications, etc.
The department also sponsors the Grand Rapids Police Department Leadership Institute, which is
intended to support professional development of sworn and civilian personnel. This is a valuable
program that should continue to be developed.
The department has the ability to deliver brief training updates at roll calls (i.e., at the beginning of
shifts) and the training officer has delivered roll call training from time to time. That period has
generally not, however, been reserved for training.
The training division has the ability to send electronic training bulletins or updates to all members
of the department. For example, an e-mail was forwarded to the entire department regarding an
important safety issue (the possible degradation of the material used in department-issued bulletresistant vests).
The training division properly maintains all training records, materials, and lesson plans (from
approximately 1980). Lesson plans contain necessary information, such as specific learning
objectives.
The training officer attends and participates in all command staff meetings.
The training division is very well integrated into the overall operations of the department. This selfreflective approach to training is indicative of double loop learning and greatly enhances the
department’s ability to engage in proactive operations.
In July 2010, the department conducted a survey of the education levels of its sworn personnel.
That study found that 54 percent of the department’s sworn personnel held a Bachelor’s degree, 7
percent held a Master’s degree, and 27 percent held an Associate’s degree. Overall, the department
should be considered to have a fairly well-educated cohort of officers.
Recommendations:

The department should enhance the quantity and quality of training delivered at roll calls.
This training should be recorded properly.

All police departments must have the ability to monitor the amount of training delivered via
field training, in-service training, etc. and to determine the amount of personnel costs (in
terms of overtime salaries) expended in connection with these vital functions. In light of the
significant fiscal concerns facing the department in the foreseeable future, ICMA
recommends that the department create a process for proactively monitoring training costs
Support Services
page 65
and clearly communicating this data to city administrators on a monthly basis. Rather than
simply tallying past training conducted, or current training, the department must now be
expected to provide accurate estimates of future training costs. The department and the city
must work together to identify and actively monitor the correlation between training and
overall overtime costs.
Support Services
page 66
Administration
Professional Responsibility
The Internal Affairs (IA) Unit is presently staffed by one lieutenant, a sergeant, and a civilian office
assistant. Apparently, several of the department’s captains have served previously in this capacity.
This indicates an informal career path in apparent recognition of the need for senior managers to
understand and appreciate the IA function. At the time of the ICMA study there were no instances of
serious misconduct or corruption and the GRPD appears to enjoy a high level of integrity among its
officers. The following observations and recommendations are offered to improve the current
system of internal affairs and professional responsibility.
There appears to be somewhat of a high turnover rate, however, in the lieutenant’s position. ICMA
was informed that the civilian assistant has been in place for some time and serves as the unit’s
“institutional memory.”
The IA commander indicated that the bulk of the unit’s investigations in recent years have been
relatively minor issues of malfeasance or nonfeasance of duty by its officers. ICMA was informed
that there have been “no real corruption cases in recent years.”
ICMA was informed that the IA unit works closely with the training division. Frequently, complaints
are identified as training issues because the dispositions “have a training component to them.”
Officers are assigned for additional training, as necessary.
All use-of-force reports are forwarded to the IA lieutenant for review. The IA unit does not utilize a
formal early warning system to detect malfeasance or nonfeasance of duty on the part of its
personnel. The IA unit does not utilize any form of integrity tests. The IA unit does review officerinvolved motor vehicle accidents, in an effort to identify patterns or problems.
The department appears to utilize standard procedures for the receipt, review, and disposition of
both internal and external complaints (GRPD Manual of Procedures, 3-8.2 E (2)). The procedures
are clear and consistent with those of similarly-sized police organizations. Informational brochures
are available for civilians wishing to make a complaint. The information contained therein is clear
and comprehensive. Complaints can be received via e-mail, can be made by third parties, etc. Offsite meetings can be held with complainants, as necessary. Department guidelines provide that “no
complaint will be received by any employee except an employee of the internal affairs unit.”
Complainants have the option of appealing any not sustained, unfounded, or exonerated
dispositions to the Civilian Appeal Board.
IA tracking numbers are assigned to those cases that will be investigated by the IA unit or an
outside investigative body. Complaints regarding “minor rule or policy violations” may be assigned
to an employee’s supervisor for investigation and disposition. Dispositions for complaint
investigations include: unfounded; exonerated; not sustained; and sustained. Civilian complainants
and employees receive written notification of disposition.
Investigations
page 67
Five types of corrective action may be recommended for sustained cases:

Training

Counseling

Written reprimand

Suspension without pay

Discharge from the department.
The department has a clear appeals process for written reprimands, suspensions, and discharges of
sworn and civilian members of the service.
Performance Appraisals
ICMA was informed by several different sources that there is a great deal of internal dissatisfaction
concerning the annual performance appraisal system currently in use. An earlier system of
personal performance appraisal was challenged successfully by the officers’ union and was
abandoned. ICMA was informed that the union agreed to a trial system of annual appraisals, but
apparently “pulled out of the agreement two years ago.” ICMA was informed from several sources
that annual performance appraisals have not been prepared for personnel for almost two years.
This is unacceptable from an operational standpoint. Failure to perform annual performance
reviews for all members of the department is inconsistent with standard police practice and
represents a significant liability risk for the city, the department, and its employees. This situation
should be corrected immediately.
ICMA was informed that any future system would have to be negotiated as part of the collective
bargaining process.
Procedures
The department regularly performs property and evidence audits. The last audit was performed by
a lieutenant assigned to a patrol service area. No proactive audits or inspections are performed to
assess compliance with internal rules and procedures.
The department’s RMS allows patrol supervisors to review field reports that are prepared by patrol
officers. ICMA was advised that not all such reports receive a supervisor’s review. Supervisors’
review of field reports is not mandated by the department and only a very small portion of such
reports receive a supervisor’s review, typically at a later date. “Red flags” are sent to patrol as
necessary, also typically at a later date. ICMA views this as a quality control concern that is easily
rectified. Patrol supervisors should be directed to review all, or perhaps some selected, field
reports (such as arrest reports, vehicle accident reports, etc.) for accuracy and completeness. They
should also be directed to review forms to ensure that narrative sections of reports are consistent
with offense categories and disposition codes. The department’s RMS can be used to require and
track such review by patrol supervisors. Once persistent problems are identified, patrol personnel
can be identified for additional training and supervision.
Administration
page 68
The IA unit holds meetings every two weeks to review new cases and all case files. These meetings
are attended by the IA lieutenant and sergeant, the chief, the assistant city attorney, and a
representative from the city’s office of labor relations. The training lieutenant does not attend these
meetings. ICMA was informed that this is generally for confidentiality purposes (as these matters
are investigatory in nature) and because ‘training’ is typically a case disposition. The training
lieutenant does however receive a case action report that provides information for determining the
type of retraining required.
IA personnel have performed some training in the past, but this is not regularly scheduled. IA
supervisors have presented at the department’s citizens’ police academy.
The Internal Affairs unit provides a comprehensive recapitulation of its handling of complaints by
type and origin (i.e., internal vs. citizen complaints) in the department’s annual reports. ICMA was
advised that the IA unit handles approximately 300 to 400 cases per year.
The policies for the receipt, custody, and disposition of property are clear, comprehensive, and
generally consistent with industry standards.
Several civil rights lawsuits have been filed against the department in recent years.
Recommendations:

ICMA agrees that it is generally wise to rotate senior managers through the Internal Affairs
Unit, making this part of a recognized career path. It is also imperative that the uniformed
members of this unit be assigned long enough to develop all requisite skills and knowledge
associated with those positions. This serves a clear training purpose while at the same
removing the stigma generally associated with IA operations. ICMA recommends the
continuation of this approach to managing the internal affairs unit.

The department should develop and use an early warning system to detect and respond to
malfeasance and nonfeasance of duty on behalf of its personnel. This system would
electronically track data and certain activities that could be suggestive of integrity breaches,
such as use of force reports, civilian complaints, etc. The department should examine the
systems of similarly-sized police agencies and customize a system for its own purposes.

The department should consider authorizing any supervisor to initially receive a civilian
complaint. Due to the relatively small size of the IA unit’s staff, it is wise to allow other
supervisors to initially record and refer such civilian complaints.

The annual reports prepared by the IA unit should contain more comprehensive
information. At a minimum, these reports should actively track incidents and issues that
may be related to police misconduct, such as: the type and relative number of use-of-force
reports, civilian and internal complaints (and dispositions), department vehicle accidents,
weapons discharges and use, arrest and summons activity (particularly charges relating to
disorderly conduct and resisting/obstructing arrest), line of duty injuries, etc. that originate
within the department. Rather than simply presenting aggregate numbers of such things as
use-of-force reports or complaints, the reports should include a breakdown of type, place of
occurrence/origin, etc. These reports should utilize a standard template and be used as a
Administration
page 69
primary means of establishing baselines and tracking progress towards stated
organizational goals. The IA lieutenant should report these figures at monthly command
staff meetings and via monthly reports that can be distributed as the chief sees fit. .

The department should consider a process for periodically performing a citizen satisfaction
survey. This could be used to gauge the public’s views regarding the overall quality of
service delivery, as well as specific interactions or encounters with the public (such as
vehicle traffic stops).

Patrol supervisors should be required to review patrol officers’ field reports for
completeness and accuracy. Patrol supervisors could be required to “sign off on” such
reports before they are merged with the RMS. The department can identify exactly which
reports should be reviewed in this manner.

The department should develop, follow, and document a program of systematic and random
audits and inspections of critical operations (calls for service response and dispositions,
property receipt and safeguarding, line of duty and sick leave, etc.). One ranking officer (the
IA lieutenant) should be designated to plan, conduct, and regularly report the results of
such audits and inspections. These reports should be conveyed via the IA unit’s monthly
reports and the department’s annual reports. This individual would also perform regular
checks or audits for proper case/call dispositions. The department should also utilize a
process to randomly check routine reports (such as the narrative sections of arrest and
accident reports) for accuracy and completeness.

The department must take all necessary steps to quickly implement and regularly use an
acceptable performance appraisal system for all members of the department (both sworn
and unsworn).

The personal performance evaluations that are now being used must include a process for
providing and documenting useful performance feedback to those being evaluated.
Individual performance targets/goals must be linked logically to unit and department goals.

Personal development plans should be developed and regularly tracked for employees of all
ranks.

It is also imperative that all supervisors who are charged with preparing performance
evaluations of their subordinates receive ongoing training in an evaluator’s responsibilities
and proper evaluation procedures. From both a supervisory and morale standpoint, all
members of the department must understand that performance evaluations are an
important and necessary part of police operations.

The department must establish clear guidelines for addressing officers who receive an
“unsatisfactory” performance rating. This would include, among other things, additional
monitoring and mentoring and would require an express “action plan” and time line for the
correction of any noted deficiencies.

IA supervisors should periodically deliver in-service training to department personnel.
Administration
page 70
Rules, Regulations, Policies, and Procedures
ICMA reviewed the GRPD’s rules, regulations, policies, and procedure manuals and found that the
documents provide direction and guidance to the police officers and civilians in the department. An
extensive review of each procedure is beyond the scope of this report. Examination of the most
critical and frequent police policies and procedures reveals that the GRPD has thorough and
comprehensive policies in these critical areas that are consistent with respect to acceptable
industry standards in these areas.
ICMA reviewed GRPD policies on the use of force, domestic violence, vehicle pursuits, prisoner
processing, and complaints against police officers. In general, these policies are current and
accurately reflect current laws and accepted industry standards for dealing with these critical
areas. The GRPD should be commended for adhering to such high standards and promulgating
appropriate and relevant policies in these areas.
Administration
page 71
Summary
It is ICMA's opinion that the GRPD is a highly professional, well-managed police agency. The
information management system developed and implemented in the department is beyond
compare in contemporary law enforcement. The department’s response to the challenging
economic environment in Grand Rapids appears to have been handled professionally and
appropriate measures were taken to deal with budget and personnel reductions while still
maintaining core services.
In general, the GRPD is an impressive organization. Members of the department of all ranks and
positions demonstrated a high degree of professionalism and dedication to the agency and the
community. The recommendations offered are viewed by ICMA as opportunities to improve an
already high-performing and well-managed organization.
The recommendations provided here seek to streamline operations and identify efficiencies in
order to reduce costs and still maintain the level of police service now enjoyed in Grand Rapids.
Merging patrol service areas, consolidating investigative assignments, and enhancing the
performance management and administrative functions of the organization will undoubtedly
streamline operations and improve efficiency. Embracing all of the recommendations in this report
will allow the GRPD to operate with a sworn personnel headcount of 270 officers. The proposed
table of organization is provided below to summarize the personnel recommendations. Deployed in
the manner recommended herein, the GRPD will be able to maintain current services and
experience similar outcomes in public safety.
Appendix
page 72
Executive
Internal Affairs
SRT
LT Military
Chief
1
1
Deputy
Chief
0
Support Division
IT
Special Services
Training
Special Events
B&GCGRYC
1
1
1
3
Sergeant
1
2
3
1
1
0
Patrol Division
East-South
ES-CPO
North-West
NW CPO
Appendix
0
1
Lieutenant
1
0
Investigations
Division
Detective Unit
Major Case 1
Major Case 2
Family Services
Cyber Forensics
Kent Metro TF
ATF
CATT
MFITT
Warrants
Subpoena
City Attorney
Housing
Vice
Total
Grand Total Sworn
Captain
1
1
1
1
1
3
3
1
2
1
1
1
1
1
2
3
8
1
2
1
2
8
1
8
1
2
4
17
1
4
12
31
Patrol
Officer
16
1
17
2
7
4
1
2
16
8
8
9
1
2
2
2
1
1
1
1
1
14
51
1
1
60
10
60
7
137
220
270
page 73
Appendix A
Crime Rates Reported by Grand Rapids Police Department, 2001–2010
Larceny
theft
Motor
vehicle
theft
1298.5
3379.1
340.5
4555.8
1154.3
3061.6
340
739.5
4729.9
1038.7
3331.6
359.6
286.4
702.2
4802.9
1098.2
3328.2
376.6
33.8
345.2
621.7
5000.7
1043.7
3610.3
346.7
11.4
34.1
362.1
588.2
5236
1286.1
3589.3
360.6
975.2
10.4
36.9
347.8
580.1
5276.6
1366.6
3603.9
306.2
193,096
1028.5
7.8
43.5
398.2
579
4789.8
1188.5
3366.7
234.6
2009
192,901
831.5
4.7
40.4
301.2
485.2
4580.1
1272.2
3115.6
192.3
2010
188,040
859
Violent
Crime
Robbery
Aggravated
assault
Property
crime
26.7
277.6
719.7
5018.1
4
37.5
254
793.9
1049.8
5.6
34.5
270.3
196,234
1037
6.1
42.3
2005
195,274
1006.8
6.1
2006
193,297
995.9
2007
192,376
2008
Year
Population.
Murder
2001
198,842
1030
6
2002
200,029
1089.3
2003
197,173
2004
Rape
Burglary
4051
Source: FBI, Uniform Crime Reports, prepared by the National Archive of Criminal Justice Data.
Appendix
page 74
Appendix B
GRPD Deployment Analysis
Workload
February
August
Time Weekday Weekend Weekday Weekend
12:00 AM
9.6
14.1
14.3
17.5
1:00 AM
9.0
15.5
13.5
16.7
2:00 AM
9.8
15.4
13.0
16.8
3:00 AM
10.2
16.7
12.2
17.0
4:00 AM
7.0
13.1
10.4
16.0
5:00 AM
3.0
7.1
5.8
9.5
6:00 AM
2.1
5.2
3.7
4.6
7:00 AM
5.1
5.3
6.3
3.9
8:00 AM
8.4
4.5
8.7
5.6
9:00 AM
9.2
6.5
11.0
6.8
10:00 AM
8.9
9.2
9.8
6.4
11:00 AM
8.7
9.9
10.8
7.5
12:00 PM
11.4
12.2
12.1
10.9
1:00 PM
12.8
13.3
14.7
11.5
2:00 PM
12.2
12.6
13.5
11.2
3:00 PM
12.6
13.2
11.4
12.0
4:00 PM
11.3
11.4
12.2
10.4
5:00 PM
10.0
9.9
10.8
8.2
6:00 PM
9.9
11.6
10.9
9.6
7:00 PM
12.3
12.6
15.2
12.7
8:00 PM
11.6
11.2
15.7
13.8
9:00 PM
12.9
13.6
14.6
15.2
10:00 PM
12.7
12.6
15.4
14.5
11:00 PM
12.2
12.2
15.8
13.9
13.9
13.7
13.8
14.0
11.6
6.3
3.9
5.1
6.8
8.4
8.6
9.2
11.6
13.1
12.4
12.3
11.3
9.8
10.5
13.2
13.1
14.1
13.8
13.5
13.9
13.7
13.8
14.0
11.6
6.3
3.9
5.1
6.8
8.4
8.6
9.2
11.6
13.1
12.4
12.3
11.3
9.8
10.5
13.2
13.1
14.1
13.8
13.5
Peak Workload
17.5
16.7
16.8
17.0
16.0
9.5
5.2
6.3
8.7
11.0
9.8
10.8
12.2
14.7
13.5
13.2
12.2
10.8
11.6
15.2
15.7
15.2
15.4
15.8
Peak
60% 75% Staff
Peak
Current Deployment Deviation from Peak
29.1
39
31
-8
27.9
37
30
-7
28.0
37
28
-10
28.3
38
27
-11
26.7
36
27
-9
15.8
21
25
4
8.7
12
24
13
10.5
14
25
11
14.5
19
32
13
18.3
24
33
8
16.3
22
35
13
18.0
24
35
11
20.3
27
35
8
24.5
33
35
3
22.5
30
35
5
22.0
29
35
5
20.3
27
35
7
18.0
24
35
11
19.3
26
30
4
25.3
34
31
-3
26.2
35
31
-4
25.3
34
31
-3
25.7
34
31
-3
26.3
35
31
-4
Total Manpower
Manpower per hour
Total Personnel Required
Appendix
691
29
116
746
31
124
55
2
8
page 75
Appendix
page 76
Appendix
page 77
Midnights
Days
Evenings
1
2
3
1
2
3
1
2
3
13
13
13
13
13
13
13
13
13
13
13
13
13
26
26
13
13
13
13
26
26
13
13
13
13
26
26
13
13
13
13
26
13
26
13
26
13
13
13
13
26
13
26
13
26
13
13
13
13
26
13
26
13
26
13
13
26
13
13
26
13
13
26
13
13
26
13
13
26
13
13
26
13
13
13
13
26
26
13
13
13
13
26
26
13
13
13
13
26
26
13
13
13
39
13
13
13
26
13
26
13
13
13
39
13
13
13
26
13
26
13
13
13
39
13
13
13
26
13
26
13
13
26
13
13
26
13
13
26
13
13
26
13
13
26
13
13
26
117
Appendix
0
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
Needed Modified Deviation
39
26
-13
37
26
-11
37
26
-11
38
26
-12
36
26
-10
21
26
5
12
26
14
14
26
12
19
26
7
24
26
2
22
26
4
24
26
2
27
26
-1
33
26
-7
30
26
-4
29
26
-3
27
26
-1
24
26
2
26
26
0
34
26
-8
35
26
-9
34
26
-8
34
26
-8
35
26
-9
Needed Current Deviation
31
39
-8
30
37
-7
28
37
-9
27
38
-11
27
36
-10
25
21
4
24
12
12
25
14
11
32
19
13
33
24
9
35
22
13
35
24
11
35
27
8
35
33
2
35
30
5
35
29
6
35
27
8
35
24
11
30
26
4
31
34
-3
31
35
-4
31
34
-3
31
34
-3
31
35
-4
Total Dev.
-67
P.O. Surplus-2.79167
55
2.30
page 78
Sgt
4 1300x2300
4 2300x0900
4 0900x1900
4 1900x0500
Weak
Strong
Strong
Appendix
1300x2300
4 fss
4 ssm
4 smt
4 mtw
4 twh
4 whf
4 hfs
28 #officers
2300x0900
4 fss
4 ssm
4 smt
4 mtw
4 twh
4 whf
4 hfs
28
0900x1900
4 fss
4 ssm
4 smt
4 mtw
4 twh
4 whf
4 hfs
28
M
T
4
4
4
4
4
4
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
4
4
16
4
4
4
4
16
4
4
4
4
16
W
4
4
4
4
H
4
4
4
4
4
4
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
F
4
4
Sa
4
4
Su
4
4
16
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
4
4
4
4
16
page 79
TOTAL PO:
112
Example
Tour
1100x2100
2100x0700
0700x1700
1700x0300
Appendix
# PO
16
16
16
16
Hour ==>
0
1
2
3
4
5
6
7
8
16
16
16
16
16
16
16
16
16
16
32
16
32
16
32
16
32
16
32
16
16
16
16
9
10
11
12
13
16
14
16
15
16
16
16
17
16
18
16
16
16
16
16
16
16
16
16
16
16
19
16
20
16
21
16
22
16
16
32
16
32
16
32
16
32
23
16
16
16
16
16
32
32
32
32
32
32
16
32
page 80
0
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
Needed Staffed
39
37
37
38
36
21
12
14
19
24
22
24
27
33
30
29
27
24
26
34
35
34
34
35
32
32
32
32
32
16
16
16
16
16
16
16
16
32
32
32
32
32
32
32
32
32
32
32
Total Dev.
P.O. Surplus
Surplus
Variance
Appendix
Deviation
-7
-5
-5
-6
-4
-5
4
2
-3
-8
-6
-8
-11
-1
2
3
5
8
6
-2
-3
-2
-2
-3
-51 59.36232
-2.125
-8.5
23.94
Needed Current Deviation
31
39
-8
30
37
-7
28
37
-9
27
38
-11
27
36
-10
25
21
4
24
12
12
25
14
11
32
19
13
33
24
9
35
22
13
35
24
11
35
27
8
35
33
2
35
30
5
35
29
6
35
27
8
35
24
11
30
26
4
31
34
-3
31
35
-4
31
34
-3
31
34
-3
31
35
-4
55
2.30
9
64.95
page 81