justice administration · managing special operations: strategies and tactics 141 crowd and riot...
TRANSCRIPT
JUSTICEAdministrationPolice, Courts,
and Corrections Management
Kenneth J. PeakDepartment of Criminal Justice
University of Nevada, Reno
Prentice HallEnglewood Cliffs, New Jersey 07632
Contents
PREFACE XXI
• PART I: JUSTICE ADMINISTRATION: AN INTRODUCTION
CHAPTER 1: THE STUDY AND SCOPE OF JUSTICE ADMINISTRATION 2
Why Study justice Administration? 2
Purpose of the Book 3Organization of the Book 4
Chapter Introduction 4
A True "System" of Justice? 5
A Criminal Justice "Process"? 5A Criminal Justice "Network"? 6A Criminal Justice "Nonsystem"? 8Or True Criminal Justice "System"? 11
The Foundations of justice and Administration: Legaland Historical Bases 12
The Consensus versus Conflict Debate 12Crime Control through Due Process 14
Public-versus-Private Sector Administration 14
Policymaking in Justice Administration 16
Summary 18
Questions for Review 18
For Further Reading 18
Notes 19
CHAPTER 2: ORGANIZATION AND ADMINISTRATION: PRINCIPLESAND PRACTICES 21
Introduction 21
Defining Organizations 22
Organizational Theory and Function 22Elements of an Organization 22Organizational Inputs/Outputs 23
Organizational Structure 25
Managing the Organization 27
What Is "Management"? 28Analects of Confucius and Machiavelli 29
Communication Within the Organization 30
Communication Defined 30Barriers to Effective Communication 31
Historical Approaches to Management 32
Scientific Management 32Human Relations Management 32Systems Management Approach 34
Primary Leadership Theories 34
Trait Theory 34Style Theory 35Situational Leadership 37
The Managerial Grid 38
Types of Leadership Skills 39
Management Fads 42
Motivating Employees 43
The Hawthorne Studies 44Maslow's Hierarchy of Needs 45McGregor's Theory X/Theory Y 47Herzberg's Motivation-Hygiene Theory 48Expectancy and Contingency Theories 49Extrinsic and Intrinsic Rewards 50
Summary 50
Questions for Review 51
For Further Reading 51
Notes 52
vi Contents
CHAPTER 3: THE REFORMERS: EVOLUTION OF JUSTICE ADMINISTRATION 55
Introduction 55
Professional Policing Comes to America 55
Leonhard F. Fuld 56August Vollmer 57Raymond B. Fosdick 58Bruce Smith 59O.W. Wilson 59
Development of Court Administration 60
Arthur T. Vanderbilt 61A. Leo Levin 63Edward C. McConnell 64Ernest Friesen 65
Development of Corrections Administration 66John Howard 66ElamLynds 67Zebulon Brockway 68Mary Belle Harris 69George Beto 70
Development of Probation and Parole 72John Augustus 72
Alexander Maconochie 73
Summary 74
Questions for Review 74
For Further Reading 74
Notes 75
• PART II: THE POLICE
CHAPTER 4: ORGANIZATION AND OPERATION 80
Introduction 80
Police Agencies as Organizations 81
Missions and Goals 81Specialization in Police Agencies 82
Contents vii
Contemporary Police Organization 83
The Traditional Bureaucratic Model 83Attempts to Reform the Traditional Model 84
A Basic Law Enforcement Structure 86
Policies, Procedures, Rules, and Regulations in Policing 89
The Influence of Research on Police Functions 91
The Mid-1970s: Crises Stimulate Progress 91Re-thinking "Sacred Cow" Traditions 93Other Major Findings 94
Innovation and Values in Police Organizations 95
Community-Oriented Policing and Problem-Solving 97
Why Return to Old Methods 97Defining the Concepts 97The "Devil's Advocate": Concerns with the Concept 100
Summary 101
Questions for Review 102
For Further Reading 102
Notes 102
CHAPTER 5: PERSONNEL ROLES A N D FUNCTIONS 7 06
Introduction 106
Roles of the Police Executive: A Model 107
Applying the Mintzberg Model of CEOs 107The Interpersonal Role 107The Informational Role 108The Decision-Maker Role 109Is There a "Dominant" Style? 110Observable Skills of Good Managers 110
Law Enforcement Executives 111
Promoting and Hiring the Best: The Assessment Center 111
Today's Police Manager 112
Chiefs of Police 114
Political and Community Expectations 114
viii Contents
Qualifications, Selection, and Tenure 116The Departure of Some Reform-Minded Chiefs 118
The Sheriff 119
Contemporary Nature and Functions 119Regional Role Differences 121
Rating Chief Executive Performance 122
Use of Inappropriate Criteria 122Appropriate Measures and Traits 123
Middle Management: Captains and Lieutenants 125
The Role of Patrol Sergeant 127
Seeking the "Gold Badge" 127Getting that First Promotion 127Assuming the Role 128
Distribution and Deployment of Patrol Forces 129
Evaluating Numbers of Officers Needed 129
Summary 130
Questions for Review 131
For Further Reading 131
Notes 131
CHAPTER 6: ISSUES AND PRACTICES 134
Introduction 134
"What Works": Community Policing and Problem-Solving in Action 135
Supervising the Legitimate Use of Force 138
Violence in Our Society 138Levels of Force 138Warning Shots, Weapons, and Pursuits: Policy and Procedure 139
Managing Special Operations: Strategies and Tactics 141Crowd and Riot Control 141Hostage Negotiation 141Special Weapons and Tactics 143Disaster Planning 144Unity of Command 144
Contents ix
Sanctioning and Enhancing Police Methods 145
An Agency "Report Card": Accreditation 145Technological Developments: The Camcorder Era 146Other Technological Progress 149
Measuring Patrol Officer Performance 14 9
A Not-To-Be-Overlooked Staple: Training 153Liability and Negligence 153
Contributions of the Recruit Academy 154
Administrative Responses to Stress and Burnout 155
Treatment for Police Officers 155
Summary 155
Questions for Review 156
For Further Reading 157
Notes 157
CASE STUDIES 160Intruding Ima and the Falsified Report 160"Racin' Ray," the Graveyard-Shift Gadabout 161Dismal City P.D.'s Command to "Do More with Less" 162
• PART III: THE COURTS
CHAPTER 7: ORGANIZATION AND OPERATION 7 66
Introduction 166
Courts as Organizations 167
Court Decor and Decorum 170
Justice Processors or "Seekers of Truth "? 171
The Influence of Courts in Policymaking 173
A Diversion: Our New National Pastime—"Hair-Trigger Suing" 174An Overwhelmed Legal System 174
Our Frivolous Tendencies 175
Contents
Effects on Business and the Economy 176Possible Solutions 177
Citizens in Court 178
Court Administration and Reform 179
Summary 181
Questions for Review 181
For Further Reading 182
Notes 182
CHAPTER 8: PERSONNEL ROLES A N D FUNCTIONS 185
Introduction 185
Defining Judicial and Court Administration 186
Judges As Administrators 187Socialization of Judges 187Judges As Court Managers 189Holding Judges Accountable 190
Court Clerks 191
Court Administrators 192Development and Training 192General Duties 194Successful or Merely Surviving? 194
Conflict Between Judicial Administrators 196A Difficult Dichotomy 196Sources of Disagreement 198
How Judges Evaluate Administrators 200
Court Administration Reform: A Model Program 202
Summary 204
Questions for Review 204
For Further Reading 205
Notes 205
Contents xi
CHAPTER 9: ISSUES AND PRACTICES 209
Introduction 209
Court Innovations That Succeed 210
Programs Involving New Technology 210Other Notable Programs 211Court Performance Standards 211Contributing Elements of Court Organization 212
The Dilemma of Delay 213
Consequences of Delay and Possible Solutions 214
Case Scheduling 216
Individual Calendar System 216
Master Calendar System 217
Which System is Best? 217
Managing Notorious Cases 218
A Historical Phenomenon 218Administrative Problems 218Changes Wrought by Notorious Cases 220
Interpreters in the Courtroom 221
The Legal Basis 221
The Court Administrator's Role 222Appeals Due to Error 222
Rural Courts: The Forgotten Majority 223
A World Apart from Urban Counterparts 223More Than a "Job at the Courthouse" 224
Courts' Struggles 225
Gender Bias 225The Struggle with Scientific Testimony 227The Practical Effects of Delay 228Courts "On the Precipice" 229
Stress on the Bench 229
Summary 230
Questions for Review 231
For Further Reading 231
Notes 232
xi i Contents
CASE STUDIES 235
The Court Administrator and the Prudent Police Chief 235Chief Judge Cortez's Embattled Court 236An Unmanageable Case-Management Quandary 237
• PART IV: CORRECTIONS
CHAPTER 10: ORGANIZATION AND OPERATION 240
Introduction 240
Correctional Organizations 241
Unique Features 241Open Systems 242
Levels of Correctional Administration 242
Prisons as Organizations 245
Managing the Prison Boom Bust 247
Administrative Approaches to the "Kept" 248
Jails as Organizations 251
A Profile 251Population Densities in U.S. Jails 251Spatial and Social Densities 253A Shift in Design and Philosophy: The "New Generation" Jail 253Making Jails Productive 255
Research in Corrections 256
Obstacles to Correctional Research 256Recent Research Findings 257
Summary 260
Questions for Review 261
For Further Reading 261
Notes 262
CHAPTER 11 : PERSONNEL ROLES AND FUNCTIONS 268
Introduction 268
Prison Administration for the 1990s 269
Wardens and the "New Old Penology" 269
Contents xiii
Governing Prisons 269Other Contemporary Challenges 271"Death Work": Carrying Out Executions 273Staff—Inmate Relationships 274Possible Approaches to Crowding 276Dealing with Prison Rule Violators 277Use of the Snitch System and Confidential Information 278Administrative Use of the Inmate Self-Help Movement 279
"Thy Brother's Keeper": Correctional Officers 280Stereotypes and Duties of the Job 280
What Makes an "Effective" Correctional Officer 281Professional Orientation 282
Jail Administration 283Prisoners and Philosophy 283Career Paths and Training 285
Administrative Strategies to Alleviate Jail Crowding 286
Summary 286
Questions for Review 287
For Further Reading 287
Notes 287
CHAPTER 12: ADMINISTERING COMMUNITY CORRECTIONS: PROBATIONAND PAROLE 293
Introduction 293
"Making a Case" for Alternatives to Imprisonment 294
Caseloads 295
Probation Administration 295Administrative Systems: Types and Related Issues 295Needs, Problems, and Concerns 298
Parole Administration 300Models for Providing Services 300The Demise of Federal Parole 302
Training for Probation and Parole Administrators 302
Intermediate Sanctions 303A Burdened Corrections Subsystem 303
xiv Contents
The Search for Alternative Methods 304Intensive Supervision 306Electronic Monitoring/House Arrest 308
Shock Probation 310
Summary 311
Questions for Review 311
For Further Reading 312
Notes 312
CHAPTER 13: ISSUES A N D PRACTICES 3 7 6
Introduction 316
"What Works": Institutional Programs 317Intermediate Sanctions 317Coed Prisons 317Smoke-free Jails 317
The "Pains" of Incarceration: Sex and Violence 319
Sexual Victimization 319Institutional Violence 321Administrative Approaches to Violence 323
Drug Interdiction and Treatment in Prisons 324
Trends in Inmate Civil Litigation 326
The Resurgence of the Hands-Off Doctrine 326The Litigation Explosion Continues 327The Due Deference Doctrine 328
Prison Gangs 328
Inmate Classification 329Implications for Institutional Management 330
Calculating Correctional Costs 331
The Move toward Privatization 333
Emergence of the Concept 333Arguments Pro and Con 334
Corrections Accreditation 335
Contents xv
Stress: Consequences and Coping Strategies 336
The Problem 336Probation and Parole Officers 337
Summary 338
Questions for Review 338
For Further Reading 339
Notes 339
CASE STUDIES 345
Prisons, Politics, Poverty, and the Rebellious Rurals 345The Prison Director versus the Irate Inmate 347"Out of Town Brown" and the Besieged Probation Supervisor 348"Cheerless Chuck" and the Parole Officer's Orientation Day 350The Wright Way 352
• PART V SPANNING THE SYSTEM: ADMINISTRATIVEPROBLEMS AND PRACTICES
CHAPTER 14: RIGHTS OF CRIMINAL JUSTICE EMPLOYEES 356
Introduction 356
An Overview 357
The Employment Relationship 359
Recruitment and Hiring 359Disparate Treatment 359How Old Is "Too Old" in Criminal Justice? 361Criminal Justice and Affirmative Action 361Property Rights in Employment 363Discipline and Discharge 364Pay and Benefits 366Criminal Justice and a Safe Workplace 367
Constitutional Rights of Criminal Justice Employees 368
Free Speech 368Searches and Seizures 371Self-Incrimination 372Religious Practices 372
xvi Contents
Other Job-Related Problems 373Sexual Misconduct 373Residency Requirements 374Moonlighting 375Misuse of Firearms 375Alcohol and Drugs in the Workplace 376
Drug Testing 377
Summary 378
Questions for Review 379
For Further Reading 379
Notes 380
CHAPTER 15: SHARED ISSUES AND INFLUENCES 380
Introduction 384
Is the Justice System Racist? 385
Studies Pointing to a Nonracist System 385Research Intimating a Racist System 386Race and the Death Penalty 386Rand Corporation Findings 387Conclusions 388
Civil Liability in Justice Administration 389
Early Use of Section 1983 Legislation 389Liability of Police Supervisors 390Liability of Corrections Personnel 391
Politics and Justice 392
Criminal Justice and Politics, Generally 392Political Exploitation of the Police 393Politics and the Judiciary 393Juries and Politics 395Politics in Corrections 396
Unionization and Job Actions 396
The Movement Begins: Law Enforcement 397Corrections Follows the Precedent 398Unionization in the Courts 399
Contents xvii
Summary 400
Questions for Review 400
For Further Reading 400
Notes 401
CHAPTER 16: FINANCIAL ADMINISTRATION 405
Introduction 405
A Working Definition of Budget 406
A Diversion: Exigency and Politics 407
"Slashing to the Bone" 407Law Enforcement: Cutting Services, Altering Priorities 409User Fees in the Courts? 410
Elements of a Budget 410
The Budget Cycle 410Budget Formulation 411Budget Approval 414Budget Execution 414The Audit 416
Budget Formats 417
The Line-Item Budget 417The Performance Budget 423The Program Budget 425"PPBS" and "Zero-Based" Budgeting Formats 427
Potential Pitfalls of Budgeting 428
Flexibility in Budgeting 428Common Cost and Waste Problems 429
Strategies for Augmenting Criminal Justice Budgets 430
Summary 431
Questions for Review 431
For Further Reading 431
Notes 432
xviii Contents
• PART VI CHALLENGES OF THE FUTURE
CHAPTER 17: "PEEKING OVER THE RIM": WHAT LIES AHEAD 436
Introduction 436
How to Predict the Future 437
The Changing Face of America 437
A Changing Nature of Crime 438
Policing and Technology in the Future 439
Future Adaptations by the Courts 441
Major Modifications on the Horizon 441Suggestions for Reform 442How to Approach Reform 442
The Future and Corrections 443Continuing the "Boom Industry" 443Prisons: To Reform or Not to Reform 444Building More Prisons: Large, Small, or None at All? 446
Can Administrators "Reinvent" Criminal Justice? 448Casting Off Old Ways 448Some Success Stories 448A Shift in Governance 450
Computer Applications in Criminal Justice 450An Information Technology Revolution 450Harnessing Computers in Justice Agencies 451
AIDS and Related Problems 452
The Police: Handling Infected Persons and Evidence 454AIDS in Corrections 454
Summary 455
Questions for Review 456
For Further Reading 457
Notes 457
INDEX 461
Contents xix