U.S. Department of Justice 

Office of Community Oriented Policing Services 

by 

Deborah Spence 

Barbara Webster 

Edward Connors 

Prepared for the Office of Community Oriented Policing Services 

U.S. Department of Justice 

If you are considering starting a new 

police department, the following COPS 

publications may be useful: 

Law Enforcement of Tech Guide for Small and Rural Police Agencies: a 

Guide for Executives, Managers, and Technologists. www.cops.usdoj. 

gov/Default.asp?Item=1619. 

Innovations in Police Recruitment and Hiring: Hiring in the Spirit of 

Service. www.cops.usdoj.gov/Default.asp?Item=1655. 

Community Policing in Action! A Practitioner’s-Eye View of 

Organizational Change. www.cops.usdoj.gov/Default.asp?Item=893. 

Problem-Solving Tips: A Guide to Reducing Crime and Disorder 

through Problem-Solving Partnerships. www.cops.usdoj.gov/Default. 

asp?Item=441. 

Collaboration Toolkit: How to Build, Fix, and Sustain Productive 

Partnerships. www.cops.usdoj.gov/Default.asp?Item=334. 

PTO Training Materials. www.cops.usdoj.gov/Default.asp?Item=1710. 

The School Safety Tookit. www.cops.usdoj.gov/default.asp?Item=1588. 

To have these or any other COPS publication mailed to you, please 

call the COPS Response Center at 800.421.6770 or visit COPS Online 

at www.cops.usdoj.gov. 

by 

Deborah Spence 

Barbara Webster 

Edward Connors 

Prepared for the Office of Community Oriented Policing Services 

U.S. Department of Justice 

TABLE OF CONTENTS 

Acknowledgements ............................................................................................... vii 

Purpose and Overview: Guide at a Glance .......................................................... ix 

Chapter 1: Should We Have Our Own Police Department?............................... 1 

This Could Get Complicated .................................................................................................................... 1 

Doing It for the Right Reasons ................................................................................................................ 2 

Options for Meeting Your Community’s Policing Needs ..................................................................... 4 

Chapter 2: Conducting a Strategic Analysis ........................................................ 9 

Overview of the Task ................................................................................................................................ 9 

Who Will Conduct the Analysis? .......................................................................................................... 12 

Involving the Community ........................................................................................................................ 13 

Assessing Current Services and Demand .......................................................................................... 14 

Current Services: Staffing, Deployment, Style, and Response Times ..................................... 14 

Crimes and Calls for Service .......................................................................................................... 15 

Projecting the Impact of Future Growth .............................................................................................. 17 

Getting a Handle on Costs ..................................................................................................................... 18

 Summary ................................................................................................................................................... 20 

Chapter 3: Laying the Groundwork ................................................................... 21 

Deciding to Go Forward ......................................................................................................................... 21 

Setting the Scope of Services............................................................................................................... 21 

Negotiating the Transition Period ......................................................................................................... 22 

Hiring a Chief............................................................................................................................................ 23 

First Steps for the New Chief ................................................................................................................ 25 

Promoting the New Department ........................................................................................................... 26 

Chapter 4: Handling the Details .......................................................................... 27

 Administrative Decisions ....................................................................................................................... 27

 Hiring ......................................................................................................................................................... 31 

Before You Hire ................................................................................................................................. 31 

Recruiting and Selecting Officers .................................................................................................. 32 

Other Considerations ....................................................................................................................... 33

 Facility Decisions .................................................................................................................................... 33

 Equipment ................................................................................................................................................. 34

 Training ..................................................................................................................................................... 35

 Operational Plans .................................................................................................................................... 35

 Support Functions ................................................................................................................................... 37 

Lock-ups ............................................................................................................................................. 37 

Communications and Dispatch ...................................................................................................... 38 

Records Management ..................................................................................................................... 39 

Chapter 5: Summary Checklist ........................................................................... 41 

Reference and Resources for Law Enforcement ................................................ 45 

Acknowledgments 

This project received extensive support and guidance from Carl R. Peed, 

director of the Office of Community Oriented Policing Services (COPS); 

Pam Cammarata, deputy director; Matthew Scheider, assistant director; 

and Rob Chapman, senior policy analyst. We especially appreciated Rob’s 

extensive time and effort on the project. 

Project team members included the following Institute for Law and Justice staff: 

Deborah Spence, Barbara Webster, and Edward Connors. 

The project was also assisted by an excellent group of knowledgeable 

consultants whose participation included reviewing the draft guide in detail and 

providing valuable comments for improving it: 

• Dr. Gary Cordner, Department of Criminal Justice and Police Studies, 

Eastern Kentucky University (former police chief, St. Michaels, 

Maryland) 

• Dale Hamilton, chief of police, Duck, North Carolina (founded the 

department) 

• Michael Scott, clinical assistant professor, University of Wisconsin 

Law School (founding police chief, Lauderhill, Florida, Police 

Department). 

In addition, we thank all the professionals who gave of their time and expertise 

to provide information for this guide. 

vii 

This guide will help public officials and citizens decide whether to start 

their own police departments and—if they decide to go forward—to offer 

guidance on how to do it efficiently and effectively. The guide is relevant 

for rural, suburban, and urban communities of all sizes. It is not meant to be a 

manual for managing and operating all aspects of a police agency because the 

decisions and issues discussed require a great deal of additional consideration 

and work. But the guide can be a valuable tool to assist communities in 

thoughtfully considering the major issues involved in starting a police 

department. 

Although starting a new police agency is a complex and expensive undertaking, 

very little has been written about it. In creating this guide, the Office of 

Community Oriented Policing Services (the COPS Office), U. S. Department 

of Justice, wanted to help fill the void by providing practical advice from 

communities that have navigated the process successfully. The planning tips and 

lessons learned included in this guide come from several sources: 

• One hundred sixty-five police and other community leaders who 

responded to a national survey of jurisdictions that recently started 

new police departments with support from COPS grant funding 

• An advisory group that included experienced police officials who have 

led start-up agencies, as well as researchers and consultants who 

had experience as police chiefs and officers 

• Publications and resources that can help communities work through 

the critical issues involved—strategic planning, contracting options, 

policies and procedures, staffing, training, and facilities planning, 

to name a few. Selected resources appear in the References and 

Resources section at the end of the guide. 

We recognize that each local jurisdiction has different needs, legal requirements, 

potential funding sources, and political environments. In fact, individuals within 

the community may well have different visions at this stage for what police 

ix 
x Purpose and Overview: Guide at a Glance 

services ought to be like. But despite these differences, there are certain major 

decisions, as well as many details, that every community will need to address to 

be successful. The guide focuses on this common ground. 

• Chapter 1, “Should We Have Our Own Police Department?” begins 

by examining the pros and cons of forming a department. For 

example: 

– Are you interested for the right reasons in having a police 

department? 

– What are some other options for achieving your goals? 

• Chapter 2, “Conducting a Strategic Assessment,” assumes there is 

still a strong enough interest—although not necessarily communitywide agreement—to more closely examine the issues involved in 

starting a department. For example: 

– What kind of information do you need to make an informed 

decision? 

– Who should gather and analyze the information? 

– Why is it so important to involve citizens in the process, and what 

are some effective ways to do that? 

• Chapter 3, “Laying the Groundwork,” is for communities that have 

completed their assessments and have decided to move forward 

with starting a new department. At this stage, some of the questions 

to answer include the following: 

– What types of services can the department reasonably be 

expected to provide? 

– Can you afford enough officers to schedule them 24 hours a day, 

7 days a week to respond to calls and provide patrol coverage? If 

not, who will provide these basic services in the off hours? 

– How will you handle complex investigations and other police 

functions? How will you respond to critical incidents and provide 

public safety at special events? 

– Will your officers have time to do proactive work with youth and 

other community members to prevent crime and solve problems? 

– Are you ready to hire a police chief? Are you prepared to give the 

chief enough time—usually at least 6 months—to get ready to 

open the doors? 
Purpose and Overview: Guide at a Glance xi

• Chapter 4, “Handling the Details,” covers the transition period 

between hiring the chief and starting patrol operations. It reviews 

many of the details the chief will need to address—from major policy 

and hiring decisions to relatively minor ones like where to purchase 

office supplies. It also suggests continuing roles for legal, financial, 

and other experts, as well as citizens. For example: 

– Which policies and procedures must the chief develop before 

patrol service can begin (e.g., a use-of-force policy)? Which ones 

can wait until later? 

– Will citizens be involved in the policy development process? In the 

officer hiring process? If so, how? 

• Chapter 5, “Summary Checklist,” highlights the critical action steps 

discussed in the guide, along with some final thoughts from several 

jurisdictions about the obstacles they have encountered and the 

benefits they have enjoyed. You might want to read this chapter 

before you read the entire guide. 

Chapter 1 

I

f you are reading this guide, most likely some local government and 

community leaders have already answered this question affirmatively. You 

may be just starting to investigate the possibility, or you may feel you are 

well on the way toward making a decision. In either case, you will want to be 

sure you have conducted a thorough, objective review of three critical factors 

discussed in this chapter: 

1. Rational and cost-effective reasons for having your own police 

department. 

2. Current level of citizen support (not just political support) for operating 

the department. This includes a willingness to devote time to 

supporting the department, a commitment to seeing the process 

through, and funding. 

3. All available options for meeting the community’s policing needs, 

including alternative ways to provide all or selected policing services, 

as well as resources available to the jurisdiction that might be 

converted for use by a new police department (e.g., cars, equipment, 

buildings). 

This Could Get Complicated 

As you may already know, operating a police department is definitely complicated, 

whether you employ one officer or a chief and many officers. This is simply a fact 

and is not meant to be discouraging because the benefits can be substantial: 

you can gain greater control over the way in which basic policing services are 

provided. But with this control comes greater responsibility: 

• It will be time-consuming. The planning and transition phases alone 

can easily take a year. And the time commitment does not end when 

the department opens its doors. The department will need not only 

oversight but also ongoing support from the local government and 

community as a whole. 

1 
2 Chapter 1: Should We Have Our Own Police Department? 

• It may be more expensive than other options. Even if you can 

manage the start-up costs, can you sustain the department over the 

long term? A number of communities that received COPS grants for 

police department start-up costs could not find a way to continue 

once the grant period ended. Policing costs draw significantly from 

a municipal budget, and creating a department could seriously affect 

funding for other services. 

• The end result may not be substantially better than what you 

have now. It’s about money, but it isn’t all about money. What 

unique value will the department bring to the community? Will you be 

able to attract a highly qualified chief and police personnel to work in 

your community? Can you offer benefits that will encourage them to 

stay? 

Doing It for the Right Reasons 

The first step toward starting a new department is to examine the justifications: 

Why does this option seem attractive? Some of the main reasons given by other 

communities are listed below. Consider which of these apply in your community. 

Dissatisfaction with Current Services or Costs 

• Slow response times to calls for service 

• Unsatisfactory quality of personnel or services 

• Frequent rotation of different sworn personnel in and out of the 

community 

• Lack of police visibility (e.g., seldom seen on patrol, don’t walk a beat) 

• Unacceptable style of policing (e.g., impersonal, bureaucratic) 

• Dissatisfaction with increasing costs of services (e.g., sheriff has 

raised fees) 

• Local government wants more control over the officers 

• Local government and community want more services 

• Local government and community want unique services (e.g., officer 

in school, bike patrol) 

• Local government and community want more personalized services 

(e.g., problem solving, community policing). 

Recent and Continuing Population Growth 

• Growing suburb of a growing city 

• Increase in tourism bringing more people and more traffic 

• Annexation 

• New incorporation planned, provision of municipal police services 

required. 
Chapter 1: Should We Have Our Own Police Department? 3

In analyzing current service levels, it is important to use a data-driven, decisionmaking model. Does the community have reliable data about the actual level of 

as well, but the bottom line is this: the community will need a growing tax base 

to support its own police department. If you cannot identify solid indicators 

of development and growth, give serious consideration to the police service 

alternatives discussed in the next section. 

Finally, while there is no one right reason for starting a department, there are 

several wrong reasons. For example: 

Elected official has a personal issue with the sheriff. 

Current police service provider has mishandled a single event. 

Existing sheriff has arrested, investigated, or enforced the law against 

• 

• 

• 

Survey Results: Reasons for 

Starting a Department 

Among communities responding 

to the national survey on startup police departments, the 

major reasons cited for forming 

a department were desire for 

quicker response times (68 

percent), dissatisfaction with 

current services (65 percent), 

and desire for more local 

accountability (45 percent). 

services provided, crime, crime trends, 

and noncall for service activity? Does it 

have a context for interpreting the data? 

For example, are response times to 

nonemergencies extraordinarily slow, or 

are they acceptable compared with most 

efficient and effective agencies? 

There is no single correct justification for 

having your own department, but if you 

have checked one or more items under 

“population growth,” then it may be a 

realistic option for your local jurisdiction. 

Community desires for more services, 

more personalized services, or lower 

costs are legitimate reasons for change 

an influential local person. 

• A major crime, such as a kidnapping or homicide, has elevated fear of 

crime among residents. 

• A new police department is the pet project of a single, influential 

community member. 

Political support for change is essential, but this is not the same as one or two 

public figures seeking to “punish” the current police service provider. Another 

political factor to consider is whether policing services provided by an elected 

sheriff may change after a new election. Concern over the mishandling of 

incidents is a different matter, but one mishandled incident does not necessarily 

mean the agency has widespread problems. It will be important to consider 

what is being done to correct the wrong (e.g., developing new policies, 

disciplining the involved personnel, intensifying training). 
4 Chapter 1: Should We Have Our Own Police Department? 

In short, if one of the justifications above is the only or primary impetus for 

change, you may not have a strong enough foundation to sustain a police 

department. An objective, independent analysis would be useful in preventing 

personal agendas or inexperience from clouding the final recommendation. 

Options for Meeting Your Community’s Policing Needs 

Whether or not you anticipate the type of economic stability and growth that 

might support operating a police department, the next step should be to 

carefully review all available options for police services. These are discussed 

briefly below, but with a note of caution: become familiar with the relevant laws 

in your own state, as well as any opinions the state attorney general may have 

published about interpreting the laws governing jurisdiction of law enforcement 

agencies. The general information provided below does not constitute legal 

advice. 

Continue to rely on current services (not a contract). In most jurisdictions, 

the county sheriff, county police, or state police have a general duty to enforce 

criminal laws in local jurisdictions. Some legal distinctions depend on whether 

the local jurisdiction is in an incorporated or unincorporated area. This service is 

supported by taxes that citizens already pay and in all likelihood will continue to 

pay. The sheriff or other agency, however, is not obligated to provide cities and 

towns with a specific number of sworn officers or a specific type or quality of 

service. As a result, limited services may be a key source of your community’s 

dissatisfaction with the status quo. Even so, you may be able to improve on the 

situation. Consider the following questions: 

• Have you exhausted all means to negotiate changes in the amount, 

quality, or type of services you currently receive? 

• Is there room for compromise? For example, can you offer office 

space (storefront), equipment (vehicles, computers), or supplies as a 

tradeoff to help the current provider dedicate more deputy or officer 

time to your community? 

Contract with an existing agency (sheriff, county police, state police). Some 

local jurisdictions enter into contracts with existing law enforcement agencies 

to receive dedicated policing services; for example, a specific number of officers 

assigned to work in their communities for a stated number of hours. These 

arrangements can provide the advantages of greater police coverage for crime 

prevention and more rapid response times to emergency calls. The drawback 

is that local government control over the assigned officers is limited. Various 

departments, however, are able to offer a variety of contracting options. Two 

of the most experienced in this matter are the Los Angeles County (California) 

Sheriff’s Department (LASD) and the King County (Washington) Sheriff’s Office 

(KCSO). 
Chapter 1: Should We Have Our Own Police Department? 5

The LASD, for example, began providing contract police services in 1954 to the 

city of Lakewood. State law mandated that Lakewood provide municipal law 

enforcement services upon incorporation, but the city wanted an alternative to 

the cost of operating its own department. Today, 40 of Los Angeles County’s 

88 cities contract with the LASD for 

local police services. The cities range 

in population from 700 to 150,000. The 

KCSO offers three contract models, 

which are described in terms of both cost 

effectiveness and degree of local control. 

The KCSO’s “shared supervision model,” 

for example, is characterized as “very cost 

effective, excellent local control” and the 

“most popular model.” Under this model, 

the city has dedicated patrol and can choose to have a supervisor serve as 

“chief”. In contrast, the “city model,” which comes closest to having a standalone department that receives specialized services from the sheriff’s office, 

is described as offering the most control but as being only “reasonably” cost 

effective. The most cost-effective model is known as the “flex model”, though 

it offers the least amount of local control. Under this model, the sheriff’s office 

responds to all calls and patrols the area as if it were unincorporated. Although 

your police service provider may not have the same contracting capabilities as 

these large sheriff’s departments that receives specialized services from the 

sheriff’s office, you may be able to adapt arrangements you discover in other 

counties and states to fit local needs and resources. Key questions for your 

community to address include the following: 

For more information on these 

examples, see the LASD web 

site at www.lasd.org/divisions/ 

hqtrs/contract_law.html 

and the KCSO web site at 

www.metrokc.gov/sheriff/ 

partners/contract_program/ 

details.aspx. 

• Is it possible to negotiate a contract with the county sheriff, county 

police, or state police to obtain the services your local government 

now desires or anticipates needing soon? 

• How would the costs of such an arrangement compare to those of 

starting and operating your own agency? 

• Is the control you may gain through one of the more expensive 

contracting options worth 

the tradeoff in costs? 

Consolidate police services or 

agencies. Pooling police resources 

with other cities or towns can be 

a complex undertaking, but some 

communities have been able to take 

advantage of the economies of scale 

that various consolidation options 

provide without sacrificing too much 

local identity and control. Although 

consolidation is most relevant if 

One community that consolidated 

two small police departments 

described these advantages: 

By combining forces into one, we 

have been able to provide 24-hour 

coverage 7 days a week, provide 

more training, and obtain better 

equipment. Two officers are on at all 

times, which provides a back-up unit. 

National Survey Respondent 
6 Chapter 1: Should We Have Our Own Police Department? 

your community already operates its own department and is concerned about 

sustaining it, the International Association of Chiefs of Police (IACP) looks at 

consolidation as “a matter of degree” in its guide, Consolidating Police Services: 

An IACP Planning Approach. The IACP discusses the pros and cons of seven 

consolidation options, ranging from combining only certain functions (e.g., 

dispatch, records management), or cross-deputizing city and county officers, 

to the most complex options of combining entire city and county police 

departments. 

Contract with private security. This may be an option for your community if 

one of your main concerns is a need for 

heightened security in the downtown 

business district, at an industrial park, 

or at a local school. The Woodlands in 

Texas, for example, is an unincorporated, 

master-planned community whose 

resident population exceeds 50,000. 

Public safety and law enforcement 

services are provided by the Montgomery 

Public Safety Departments: One Form of Consolidation 

A concept that gained some popularity in the 1970s was to combine police, 

fire, and emergency medical services (EMS) under the umbrella of a public 

safety agency, with police officers cross-trained as firefighters and EMS 

technicians. One community that responded to the national survey—Marco 

Island, Florida—originally planned to do that but then decided in favor of 

creating a police department. It became clear that the extensive training 

needed to acquire and maintain certifications in all three specialties would 

have meant taking police officers off the streets for extended periods. 

About 30 percent of their work time would have been devoted to training. 

Jurisdictions that have public safety departments typically have either 

modified the original concept, or they have the funds and personnel needed 

to provide for extensive training, retraining, and recertification without shortchanging patrol coverage. 

Start with the bare minimum 

services. It is easy to overextend 

your resources on technology 

and equipment. People are your 

most valuable asset. 

National Survey Respondent 

County Sheriff’s Department through a combination of assigned and contracted 

deputies, private security firms, and other arrangements. 

Create a new limited-service agency. This is often the only workable and 

affordable option for communities that do not wish to pursue any of the 

options described above and, instead, want to create their own stand-alone 

agency. Basic call response and crime prevention include responding to calls 

for police service, handling other patrol responsibilities, conducting followup investigations of minor crimes, and providing other specialized services 
Chapter 1: Should We Have Our Own Police Department? 7

of importance to the community (for example, crime-prevention programs, 

community policing activities). Reliance on other law enforcement agencies will 

still be critical for such functions as the 911 call center and dispatching, complex 

investigations, specialized tactical units, crime lab services, and others (see 

Chapter 4). 

Most respondents to the survey of COPS-supported start-up agencies 

depend on other departments for specialized support, although some are now 

expanding their in-house capabilities in various areas. Consultations with newer 

departments, including site visits if possible, provide valuable opportunities to 

learn from the experience of other jurisdictions. 

Create a new full-service agency. For the majority of communities, it is not 

practical or economically feasible to begin with a full-service agency. The staffing 

and equipment costs of operating a call dispatch center alone would exceed 

some local governments’ entire policing budgets. Of course, in high-growth 

communities, a successful new local police department may evolve to take 

on more responsibilities as it increases staffing and expertise. Some growing 

communities have imposed public safety developers’ fees to fund services or 

facilities (an example is Brentwood, California); and it may be possible to require 

specific public safety enhancements with all new development (e.g., wireless 

access points, cameras linked to wireless access points). But few departments 

can afford to start out with full-service operations. Neither the expertise nor the 

money is likely to be in place at start-up. 

Chapter 2 

This chapter will help community decisionmakers who want to invest more 

time in analyzing whether the jurisdiction should have its own police 

department. Conducting a strategic analysis is the next essential step 

toward determining the best police service option for a community. To assist 

with the process, this chapter addresses the following questions: 

• What does a strategic analysis entail? 

• Who should conduct the analysis? 

• What information is needed, and where can it be found? 

• What role should the community play in this process? 

Overview of the Task 

The purpose of conducting a strategic analysis is straightforward: to prepare 

officials and the community to make an informed decision. Areas to examine 

more closely include the following: 

• Current police services 

• Demand for police services (crime trends, calls for service) 

• Plans and projections for future growth 

• Community needs, desires, expectations, and support for various 

options 

• Fiscal resources and the impact of funding a new department on 

other city/county services 

• Existing resources (e.g., facilities, vehicles) that might be made 

available to a new department. 

The assessment is essentially a three-stage process: (1) gather as much 

information and data as possible from a variety of sources, (2) analyze and 

interpret the information, and (3) translate the findings into decisions about 

the nature and scope of police services the community needs. Jurisdictions 

responding to the national survey on start-up police agencies offered several key 

pieces of advice to consider before setting up a police department. 

9 
10 Chapter 2: Conducting a Strategic Analysis 

overwhelming task. As one survey respondent stated, it comes down to this: 

“Research and ask questions to find out what you don’t know.” 

Obtain legal advice. Before proceeding, you will need legal advice about the 

conditions under which a community in your state and county can start its own 

police department and the jurisdiction that such a police department would 

have. Legal advice (e.g., provided by your jurisdiction’s attorney) will be critical 

at other points along the way regarding liability, employment law, and other 

issues. It is important at an early stage for elected officials to understand that 

taking responsibility for the actions of police officers carries the potential of 

costly liability. Beyond interactions of officers with citizens, liability can reach to 

the adequacy of their hiring, training, retention, and supervision, as well as to 

departmental policies. 

Work through the assessment 

A priority for communities is to process. Only about one-fourth of 

implement a needs assessment survey respondents said that their 

and a strategic plan of how they jurisdiction had conducted a formal needs 

are going to absorb salaries once assessment before moving forward with 

the original funding sources start-up plans. Some realized this was 

run out. My city is now saying a mistake when they found themselves 

they cannot afford a police short of funds to continue the department 

department because the funding after their seed money had been spent. 

is gone. They knew before they Be leery of claims that “we already 

started the funding was limited know” what’s needed. Most people have 

to the short term and did nothing never paid much attention to what it takes 

to prepare for the adjustment. to operate a police department. 

National Survey Respondent The assessment will be timeconsuming, but it does not have to be an 

Expect potential difficulties obtaining some of the data. Ideally, the current 

provider of police services will be able to generate useful data about crimes and 

calls for service in your community. Nevertheless, you may encounter obstacles 

related either to politics or to records management systems. 

• Political obstacles. What is the working/political relationship 

between local government and other surrounding municipal and 

county leaders? Does the sheriff or county want to maintain a current 

contract or oppose formation of a new local police department for 

other reasons? If so, getting cooperation with your data-collection 

efforts may require some negotiations. If you do start your own 

department, you will still be dependent on call-taking, investigative, 

and other services from current providers. While most of the 

information required for analysis should be readily accessible public 

information, the existing service providers should be included as 

stakeholders in the planning process. This will encourage a more 

cooperative atmosphere. 
Chapter 2: Conducting a Strategic Analysis 11

• Records management. The current police service provider may be 

cooperative but may not have an information management system 

that can easily produce breakdowns on crime, arrests, or calls for the 

jurisdiction(s) that would be covered by a new agency. In situations 

like this, you can do the following: 

– Review breakdowns for the smallest geographic area that includes 

your jurisdiction. 

– Create a small sample of ongoing calls for service, arrests, etc. Ask 

the existing provider to track data applying to your jurisdiction for a 

specified time for use in your future decision-making. 

– Have someone on your assessment team manually extract data on 

your jurisdiction from available records. 

– Obtain estimates based on interviews with experienced personnel 

or similar communities. 

Not all demands for police services are captured in official logs of calls for 

service or crime reports. An accurate assessment of the public demand 

for police service must extend beyond the review of public records. There 

may be other political or community pressures, public discussions, or other 

considerations that contribute to the demand for change in police services. 

Involve the community. A recurring theme among national survey respondents 

was the importance of grassroots community support. This support—critical 

once a department begins operation—is much more likely to be forthcoming if 

the community is involved in the assessment and planning phases. Community 

engagement activities such as town hall meetings and focus groups also 

present strategic opportunities for local government to inform and educate the 

public. 

Get help from people who know police work. This is particularly important 

when it comes to interpreting the data you collect on crime, calls for service, 

and officer workloads. Consulting with nearby police chiefs—individually or by 

involving them on an expert panel or steering committee—will help ensure 

that cost estimates take into consideration the less obvious administrative, 

operational, and equipment costs as well as the “big ticket” items such as 

salaries and benefits or vehicles and maintenance. Other options include 

contracting with an association of policing professionals, experienced 

policing consultants or academics, or a retired police chief for assistance with 

assessment and planning. 

Consider the impact on other components of the criminal justice system. 

Establishing a police department will require changes in relationships and, 

potentially, changes in procedures with the courts, prosecutor’s office, jail, 

community corrections (probation, parole), and defense attorneys (e.g., public 

defenders). In some jurisdictions, the new officers’ work may significantly affect 
12 Chapter 2: Conducting a Strategic Analysis 

the workloads of these other agencies (e.g., the community wants greater 

enforcement of drug laws). You’ll also need to consider how the department will 

work with programs that serve people who come to police attention but are not 

arrested (e.g., delinquent youth, victims of domestic violence, people who are 

intoxicated in public). 

Who Will Conduct the Analysis? 

There are several possibilities for who would conduct the analysis, depending 

on the jurisdiction’s government structure and resources. Whoever leads 

the assessment should maintain a broad and objective perspective of the 

community’s public safety needs and economic interests. For example, any of 

the following might take the lead: 

• City or town manager 

• Mayor and city/town council 

• Council public safety committee 

• Consultant (e.g., a local college professor) 

• Volunteers from the community. 

Most incorporated jurisdictions will probably turn to the city/town manager 

(or an incorporation committee if the change is still in progress). Outside 

consultants were retained by only about 10 percent of communities responding 

to the national survey, but this could be money well spent because, for example, 

Survey Results: Conducting the Strategic Analysis 

In addition to the city/town manager and council members/committees, 

respondents to the national survey on start-up police departments 

mentioned the following people or organizations as leaders in the 

assessment process: 

State or regional development and planning commission 

Retired state police official 

Former mayor 

Tribal council administration 

Sheriff 

School superintendent/board (for school system police 

departments) 

Special assessment committee. 

Community leaders interested in having a retired law enforcement officer 

lead the strategic analysis should look to those with at least 5 years of 

management-level experience. A law enforcement background alone does 

not necessarily mean an individual will have acquired the special skills 

needed for such an analysis. 

• 

• 

• 

• 

• 

• 

• 
Chapter 2: Conducting a Strategic Analysis 13

community leaders cannot devote the time, or the effort would benefit from 

a knowledgeable neutral party. The least likely of these options would be an 

entirely citizen-volunteer effort, although individual citizens can make important 

contributions. 

Involving the Community 

Key to conducting a productive assessment is determining the political and 

community desire for improved police services and the level of support for the 

options under consideration. Deliberate efforts to involve the community should 

be made in one or more of the following ways: 

• Council input (e.g., direct the assessment and/or actively participate 

in data collection and analysis, review the findings) 

Public hearings 

City/town hall meetings 

Surveys of residents and businesses 

Focus groups 

Interviews 

Formal referendum. 

• 

• 

• 

• 

• 

• 

Survey Tips 

A survey of citizens and businesses can be done by mail, door-to-door, 

telephone, or e-mail, but the objective is to be as inclusive as possible. 

Check with other police departments for sample citizen questionnaires. 

Many departments publish these on their web sites. 

Mail or paper surveys offer the advantage of letting people respond 

anonymously, but the response rate may be low. Boost the return rate by 

emphasizing the importance of participating; wording the questions clearly; 

making the questionnaire brief; offering multiple choice, rating scales, or 

other nonnarrative response options; and including stamped, addressed 

return envelopes. 

The questionnaire should ask about crimes and problems of concern, 

experience and satisfaction with current services, changes desired, and 

level/type of support the respondent might provide for a new department 

or other contemplated change. Citizens can also be asked about their 

willingness to spend more money (raise taxes) for enhanced police services. 

Enlist an organization or person who is widely perceived as objective to 

conduct the survey. The local community college might provide survey 

assistance. 

Conducting Community Surveys: A Practical Guide for Law Enforcement Agencies by 

Deborah Weisel, 1999. www.ojp.usdoj.gov 

• 

• 

• 

• 

• 
14 Chapter 2: Conducting a Strategic Analysis 

Town hall-style meetings, although structured less formally than public hearings, 

still need to be well planned and managed to encourage attendance and to allow 

all participants a fair opportunity to be heard. Here are some tips for making 

these meetings productive: 

• Enlist a skilled, neutral facilitator 

• Hold meetings in the evening or on a Saturday 

• Provide hospitality (food/beverages, child care, transportation) 

• Encourage diverse participation. 

Assessing Current Services and Demand 

Two objectives are part of the assessment: 

1. Accurately describe the police services currently provided. 

2. Identify trends in the demand for police services. 

Current Services: Staffing, Deployment, Style, and Response Times 

Staffing and Deployment. For the purpose of this assessment, main staffing 

and deployment questions will be related to call response, patrol, and crimeprevention services: 

• How many patrol deputies or officers are currently assigned to cover 

your local jurisdiction? How large are their beats (geographic area 

they are assigned to cover)? 

• When are the officers present in your local jurisdiction (days of 

the week, hours of the day)? How is coverage of your jurisdiction 

provided at other times? 

• Are the same deputies/officers regularly assigned to your jurisdiction, 

or do many different officers frequently rotate in and out of this duty? 

What happens when an assigned officer is sick, on vacation, or in 

training? 

• How does the current provider handle large events (e.g., annual art 

festival), both planned and unplanned? 

• Do any deputies/officers walk a beat in your jurisdiction? Do they 

have bicycles, motorcycles, horses, boats, or other means of 

transportation? 

• What public services do the deputies/officers provide in addition to 

handling calls and patrolling (e.g., attend community meetings, work 

with youth, conduct crime-prevention or public-education activities)? 
Chapter 2: Conducting a Strategic Analysis 15

Compare your findings to your current vision. If your local jurisdiction had its 

own department, would you want an officer on duty 24 hours a day, 7 days 

a week? If so, you would need to hire at least six to eight officers to allow 

for regular days off, vacation and sick leave, and training. Special events and 

specialized enforcement situations must also be considered. For example, does 

your community host large festivals or other public events that require additional 

coverage to ensure public safety? Unplanned events (e.g., a hostage situation, 

a methamphetamine lab discovery) will also affect current and planned service 

levels and your department’s mutual-aid agreements with other agencies. 

Style of Policing. Assessing a policing style is more subjective than counting 

the number of hours on duty. Even so, the concept can be clarified and defined 

at both a department and an individual officer level. Is the current sheriff or 

county police chief an advocate of community policing? If so, how does that 

translate into action in your local jurisdiction—do deputies or officers have 

time for crime-prevention work? Is the community prepared to do its part to 

prevent crime and disorder, or is it looking for the police to do it all? Does the 

department place a priority on training and physical fitness? Are managers and 

supervisors approachable, responsive, and knowledgeable? What do citizens 

typically say about their encounters with officers (e.g., officers were helpful, 

informative, decisive, fair versus abrupt, bureaucratic, rude)? The next chapters 

discuss policing style in the context of hiring a chief whose style—philosophy, 

personality, priorities, approach to the job—is in line with community desires 

and expectations. 

Response Times. One tragic incident resulting in injury or death is all that 

most communities need to begin calling police response times into question. 

Providing rapid response times to emergencies is a major logistical issue when 

departments must cover broad geographic areas with a limited number of 

officers. 

Obtaining information about response times is discussed in the next section 

on crimes and calls for service. The important thing to remember, though, is to 

analyze response times by type of call. True emergencies, of course, require 

a rapid response (e.g., crimes in progress, accidents with injury). But citizens 

must also understand that few police agencies today can afford to dispatch 

an officer immediately to every call, or even to every crime-related call. For 

example, a resident comes home from vacation to discover her shed has been 

burglarized, possibly 2 weeks earlier. Police need to follow up and take a report, 

but there is little to be gained by a “lights-and-siren” response. The police should 

handle this example with an appropriate response and good communication. 

Few citizens will be upset about a delayed response to a nonemergency if they 

feel their situation is being taken seriously and are informed of what response to 

expect and why. 
16 Chapter 2: Conducting a Strategic Analysis 

Crimes and Calls for Service 

To identify patterns and trends in crime incidents and calls to the police, you will 

need to obtain data going back at least 3 years. Key information sources include 

the following: 

• Reported crime (Uniform Crime Reports submitted to the Federal 

Bureau of Investigation) 

• Arrest records (number of arrests by type of charge) 

• Calls-for-service records 

• Interviews with experienced police personnel. 

Today’s computer-assisted dispatch (CAD) and records management systems 

(RMS) can capture a tremendous amount of data from calls for service. CAD/ 

RMS can provide not only information about the types of calls received, but 

also a great deal of detail about time, including response times (time when call 

comes in, officer is dispatched, officer arrives on scene, officer clears scene) 

as well as time away from patrol duty because of court, meals, training, car 

maintenance, community meetings, and other self-initiated activities. The 

amount of detail is related to the sophistication of the CAD/RMS serving a 

particular area. 

Analyzing these data is not simple, which is why the assessment team should 

include someone with a strong knowledge of police work. Some of the issues 

to keep in mind include the following: 

• Not all 911 calls to the police are about crimes. Some calls (for 

example, burglary alarms) may be “false” and caused by human error 

or faulty equipment. But because the calls are placed to 911, they 

represent situations on which call takers and police officers must 

spend time responding in some way, whether by sending a patrol 

car, taking a report over the telephone, or simply answering a routine 

question or making a referral. 

• Some types of crimes go unreported. Some domestic violence and 

sexual assault incidents, for example, never come to police attention. 

In addition, police computer call systems may not use a separate 

code for domestic violence and reported incidents may be included 

under “assault” or “simple assault”. 

• Calls listed on a CAD printout may not have been updated to 

reflect actual findings. For example, a call taker enters “burglary” 

based on available information, but the responding officer or a 

detective later determines that the incident was a minor theft, or that 

no crime occurred. The computer record may or may not reflect this 

new information. 
Chapter 2: Conducting a Strategic Analysis 17

These are just a few of the issues involved in analyzing CAD/RMS data. In 

addition, these data alone do not give a complete picture of what officers do 

(investigations, community policing activities, etc.). Policing experts can help you 

interpret the data. 

Projecting the Impact of Future Growth 

Certain signs of growth are obvious to almost everyone (visible new 

construction, increased traffic, new industry and jobs), but because a stable and 

growing tax base is critical for sustaining a police department, you will need 

additional data. Information sources include the following: 

• Building permits issued 

• New business incorporations 

• Census data (including income, age, and other breakdowns) 

• School enrollment data 

• County/city, regional, and state planning and economic development 

reports 

• Reports on recent annexation 

• Chamber of commerce, real estate and other business associations, 

board of tourism, convention and visitors bureau. 

If such reports and data show a downward trend, it raises questions about 

the jurisdiction’s ability to sustain a police department, even if it could find the 

means to establish one. 

If the community is in fact growing, the nature of the growth could influence 

both the number of officers needed and the types of police services to provide. 

For example, the following are some scenarios from the national survey: 

• Jurisdiction or nearby area is becoming an increasingly 

popular recreational or tourist destination. For example, Ontario, 

Wisconsin has a year-round population of 500, which during the 

summer exceeds 2,000. Similarly, the Lac Courte Oreilles Tribal 

Police Department, also in Wisconsin, noted that while 3,000 people 

currently live on the reservation, “with tourism and non-Indians 

residing within the boundaries, population can triple in the summer 

months.” 

• Jurisdiction or area has become a desirable retirement 

destination. Marco Island, Florida, for example, has become home 

to many retirees from states where city and town police departments 

are common. It has a year-round population of 14,000 and more 

than 30,000 residents from January through March. Many of these 

residents were not accustomed to or comfortable with being served 

only by a large county sheriff’s department. In this case, a healthy 

economic base and strong public sentiment combined to justify 

incorporation and creation of a municipal police department. 
18 Chapter 2: Conducting a Strategic Analysis 

• Nearby college or city is undergoing expansion. If the surrounding 

area is growing there may be spillover into your jurisdiction. An 

example of this is in Prosper, Texas. Prosper, currently home to 

about 3,100 people, is not far from Frisco, one of the fastest growing 

towns in the country. The area expects 15 to 25 percent increases in 

population annually. 

• Jurisdiction or area is in the middle of a major commuter route. 

Royalton, Minnesota has a population of 900 but estimates that 

roughly 20,000 vehicles pass through each day. The Elko Band Indian 

Colony has 2,000 residents; however, the tribal land is completely 

surrounded by the city of Elko, Nevada. Daily through-traffic of 

nonresidents is estimated at 7,000. 

Getting a Handle on Costs 

Labor costs are the most significant part of a police department’s budget. As 

a start toward projecting the costs of running a department, you’ll need to 

examine the personnel costs of current services: What salaries are deputies/ 

Future increases in population and 

Be aware that your competitors for traffic should be factored into your 

good officers are the big, higher estimates for police staffing and 

paying agencies in your area. If services. Each of these types of 

you are not prepared to pay a good growth raises questions for your 

wage, do not expect to be able to assessment. For example, if you 

hire qualified applicants. employ enough officers to handle huge 

seasonal differences in population, 

National Survey Respondent what kind of productive work would 

the officers do during the off-season? 

officers and supervisors paid? What are their “fully loaded” hourly rates (salary, 

fringe benefits, department overhead)? What benefits are provided (health 

care, disability insurance, life insurance, retirement pension, vacation time, sick 

leave, personal leave, and training)? If you are not able to match the salaries and 

benefits of surrounding agencies, you can anticipate problems attracting and 

retaining experienced personnel. If the state sponsors a regionwide pension 

system, officers may be able to transfer their pension rights to your agency. 

You will need some experienced police officers to staff your department right 

away; and while some officers will join a new agency because they want new 

opportunities or a better organizational culture, many will not leave their current 

agencies unless the wages and benefits are better. 

Of course, costing out police services involves much more than simply 

calculating labor costs. Chapters 3 and 4 provide more detailed information 

about specific budget items for a police department and various alternatives 

for keeping costs under control. Review those chapters before making a final 
Chapter 2: Conducting a Strategic Analysis 19

decision about the affordability of starting and operating your own department. 

In addition to salaries and benefits, you are likely to incur costs in the following 

areas: 

• Increased cost of liability insurance for the local jurisdiction 

• Equipment costs: acquisition, maintenance, and replacement 

(vehicles, computers, radios, weapons, body armor) 

• Facility, including potential remodeling costs of an existing facility to 

bring it up to code, ensure a suitable and safe working environment, 

and provide for public access 

• Training costs 

• Administrative costs, including background investigations 

• Office equipment and supplies. 

When asked what they would advise other communities about starting a 

new agency, a majority of survey respondents emphasized sufficient funding 

and a realistic budget. One noted how misjudging government revenue had 

caused drastic service reductions: 

Be sure forecasts of future city/town revenue are accurate. We anticipated 

more revenue, did not get it, and the decrease in services and accountability 

is . . . acute. 

Others respondents also emphasized careful budgeting: 

Plan really well, budget, and find out what you will need for your cops. 

Be prepared to spend money. Do each project right and do not shortchange 

it along the way. 

You will need more money than you think. 

Revenue sources in addition to the general fund may include federal and state 

grants, fees and forfeits, and private donations. The communities participating in 

the national survey had received COPS Universal Hiring Program grants to help 

pay salaries; however, there are no guarantees that these or any other grants 

will be forthcoming in the future. To help support their start-up agencies, about 

18 percent of survey respondents raised taxes, 16 percent received state funds, 

15 percent used private funds, and 7 percent issued special bonds. 
20 Chapter 2: Conducting a Strategic Analysis 

Summary 

Operating a police department affects the safety of residents, businesses, 

visitors, and the officers the jurisdiction employs. Start a new department for 

the right reasons. Conduct a strategic assessment and involve experienced law 

enforcement experts in the assessment process. Be sure you have both political 

and grassroots community support, and make sure your community can afford 

to sustain a department over the long term. The next chapter provides additional 

guidelines for translating the results of your strategic analysis into final decisions 

about starting a new department and the scope of services that the department 

realistically can offer. 
Chapter 3 

Once a strategic analysis is complete and all the available options have 

been reviewed, a decision can be made about whether to start a new 

agency. But deciding yes or no is just the beginning of the decisionmaking process—the starting point for a whole new set of questions, some of 

which need to be answered by public officials, some by the citizens, and some 

by the chief of the new department. This chapter looks at the first steps to 

take after deciding to start a new police department, up through the hiring and 

installation of a police chief. Chapter 4 addresses the many additional details that 

must be handled by the new chief before a department can begin operations. 

Deciding to Go Forward 

Simply because the elected officials have the authority to create a new police 

department, the role of community members in the decision-making process 

should not be overlooked. Community support is essential for the long-term 

viability of the department, and citizens should feel they have a stake in the 

agency from the earliest planning phases. Chapter 2 discussed several ways 

in which citizens can participate in the strategic analysis process. In some 

communities, it may also be important to hold a referendum on the creation 

of the department so that citizens do not feel that the mayor or a few council 

members are imposing it on them. Other communities may not feel it is 

necessary to hold a formal vote outside of the council vote but will still need to 

solicit community opinion on the type of department that will be created. 

Setting the Scope of Services 

The strategic analysis you conduct (see Chapter 2) should enable you to 

determine the scope of services and style of police department the community 

needs, wants, and can afford. At the most basic level, this means deciding if 

the department should provide 24-hour-a-day, 7-day-a-week patrol coverage. This 

may not be necessary in your community as long as peak times are covered and 

provisions are made for emergency response during off-duty hours. 

21 
22 Chapter 3: Laying the Groundwork 

The community needs to be well informed about the size and scope of the 

future department. If residents and businesses are expecting highly visible, 24-

It also means drafting a rough budget plan for both the start-up phase and 

projections for the first year or two of operations. While most decisions about 

department operations cannot be made until a chief is hired, guidelines for 

scope of services and budgeting should be ready to give to the chief, providing a 

framework within which the new chief will set the tone and work out the details. 

It can be challenging to make these sorts of decisions if you do not have a law 

enforcement background. How many officers are necessary if the community 

wants 24-hour patrol? How much do patrol cars cost? What other equipment 

is indispensable to police 

Survey Results: Patrol Service Hours operations? Sometimes it 

may be necessary to make 

Patrol service covering 24 hours a day, 7 a best guess, but it helps to 

days a week is not what defines a police talk to other communities 

department as an independent entity. Of of a similar size in the 

the start-up agencies that participated in the region that have police 

survey, only 38 percent said they provide departments. The chiefs and 

services in their community 24 hours a day, community leaders in these 

7 days week. Calls for service that come jurisdictions can advise 

in when the department is not on duty you on potential costs 

were handled in a variety of ways. Some associated with operating 

departments have calls diverted to other a department in your 

agencies, and some have officers on call who area. They will also have 

can be reached by dispatchers or even directly experience in coordinating 

by citizens. services with various county 

and state police agencies. 

hour-a-day patrol coverage, but the council is budgeting for one chief and one or 

two additional officers with ongoing support from your current service provider, 

the community may be disappointed in the new department. Make sure that 

everyone understands and buys into the same plan now to prevent these 

misunderstandings. 

Negotiating the Transition Period 

You will also need to develop a timeline for the planning phase and begin 

negotiations for police services during the transition. If the existing service 

provider is not enthusiastic about the prospect of the new department (maybe 

because it is losing a contract), try to cultivate cooperation by emphasizing 

your vision for a working relationship that can benefit everyone in the long run. 

If your local jurisdiction is incorporating, and the incorporation will take effect 

before the police department is operational, be sure that current police services 

will continue until the new department is ready. It is possible that the county’s 

responsibility to provide police services may end the day the local jurisdiction is 

formally incorporated. 
Chapter 3: Laying the Groundwork 23

In calculating a timeline for transition, remember that most of the detailed 

planning will not be possible until after a chief is hired. Time must be allotted 

up front for recruiting, screening, and selecting the chief. The new chief should 

also be allowed adequate time between his or her starting date and the date the 

agency is expected to be operational. Successful start-up departments advise 

that this should be 6 months at the minimum. 

Hiring a Chief 

Selecting the department’s first chief is perhaps the most critical decision your 

local government will make. Resources are available to help guide communities 

through the selection of a chief, and several aspects of the process (discussed 

below) are of particular importance to new agencies. 

Form a search committee. In addition to the city, town, or county manager 

and other officials, someone with substantial law enforcement experience, such 

as a local police chief or sheriff, should 

be included on the search committee. One resource for helping His or her experience will be extremely communities choose the right 

valuable both for recruiting candidates police chief is Selecting a Police 

and evaluating their credentials. Chief: A Handbook for Local 

(Some jurisdictions use a professional Government. Published in 1999, 

executive search firm to conduct the this handbook was part of a joint initial advertising and screening and effort of the Police Executive 

present a list of candidates to the search Research Forum (PERF) and 

committee.) Also consider including on the International City/County the search committee representatives of Management Association. It can 

the local business community and citizens be purchased through the PERF 

groups. This will help create a sense of web site: www.policeforum.org. ownership of the new department in the 

community. 

Decide what kind of experience is needed. The selection process should 

place high importance on the individual’s management experience and 

style of policing. Consider how those qualities match with your community, 

the proposed scope of the agency, and the environment in which it will 

operate (rural, suburban, urban). It is possible that candidates from large city 

departments (with lots of support personnel) would be overwhelmed in a 

smaller department where the chief needs to personally take on tasks that 

would be delegated in larger organizations. 

The new chief needs to have not only police management experience but also 

the aptitude and energy to develop a new department from the ground up. The 

chief will be making decisions about everything for the first few months, from 

policies to equipment purchases to the color of uniforms. Not everyone is good 
24 Chapter 3: Laying the Groundwork 

at making these sorts of detailed decisions; some people prefer to work within 

an existing structure while others thrive on the opportunity to create something 

new. 

The prospective chief candidates should also know to whom they will report 

in the city or town organization. This relationship will be a major factor in a 

candidate’s decision to accept the job. 

Conduct a background investigation. Choose the candidate the committee 

feels is going to develop the right department for the community. Make a 

provisional, confidential verbal offer to your best choice—contingent on a 

successful negotiation, background check, and medical examination. Make 

sure the offer is confidential so that the other finalists remain interested in 

the position in case your first selection doesn’t work out. Once the individual 

indicates that he or she will accept your offer, conduct a thorough medical 

and psychological examination (most agencies don’t impose a polygraph 

examination on an experienced police manager) and a background investigation. 

The state police, sheriff, or police agency in a neighboring jurisdiction, a city or 

town attorney, or a reputable private investigator might handle the background 

investigation. The investigation should be more thorough than just reviewing 

historical records; the investigator should interview officials and review in person 

applicable personnel files from the candidate’s previous agency and city or 

county. So much authority and trust will be placed in the chief’s hands that it is 

critical to know the person you are hiring. 

Review training credentials. The chosen candidate’s training credentials should 

be reviewed against state standards, especially if the candidate is coming from 

another state. One chief in our study noted that because he was hired from 

out of state, he had to complete 95 hours of training and pass a 300-question 

exam in the new state before he could start working. Even if the candidate 

is hired from within the state, there still may be mandatory training or some 

other requirement, and your community should be prepared to cover related 

expenses. Another chief transferring from within state, for example, was 

required by state law to retake a personality test before the hiring process could 

be completed. 

Negotiate terms of a contract. Jurisdictions in some states have a practice of 

hiring top city or town officials, such as a police chief, to work “at will;” other 

jurisdictions prefer using contracts. If the local jurisdiction’s laws and policies 

permit, it is helpful to hire the chief for an established period of years with 

specified terms—and put it all in writing. Some of the important terms include 

salary, benefits, severance package, and performance expectations. 

Let the chief get to work. The new chief should be provided with a basic plan 

outlining the desired scope of the department, available budget, decision-making 

authority to hire officers and staff, a timeline to establish the department, and 

the trust of local government leadership that he or she can get the job done. This 
Chapter 3: Laying the Groundwork 25

is the time to step back and let the chief assume leadership in creating the new 

department. The city/town manager should expect open communication and 

provide support but should also give the chief the freedom to exercise authority 

and handle responsibilities. 

First Steps for the New Chief 

Armed with the community’s vision, the chief is now responsible for creating a 

detailed implementation plan for the new department. A recurring theme among 

many survey respondents was not to underestimate the variety and complexity 

of the many administrative tasks that 

need to be done before operations can Budgeting Resources begin. Along with the implementation 

plan, a detailed budget is needed for Police Executive Research Forum: the transition phase as well as for the Police Department Budgeting: first few years of operation. Three-year Guide for Law Enforcement Chief budget forecasting is recommended. If Executives. grant funds are being used to start the 

department, the council and finance International Association of officer must work with the chief to Chiefs of Police: Police Chiefs identify funding sources that will replace Desk Reference: Guide for Newly the grants in the future. In addition 

to anticipating increases in the cost Appointed Police Leaders. 

of salaries and benefits, fuel costs, 

officer, the new chief will need time to recruit and hire additional officers and 

nonsworn staff. A phased approach is recommended over trying to hire the 

entire staff at once. It will be important to the chief to get at least one additional 

person on board as quickly as possible to help with the planning process and 

initial administrative tasks. Additional staff could be brought on incrementally as 

training schedules and workload permit. 

equipment replacement, and other operating expenses, budget forecasts may 

also need to account for capital outlays for facility expansion or acquisition. 

If your local government planned for a police department with more than one 
26 Chapter 3: Laying the Groundwork 

Promoting the New Department 

From the beginning, local government 

leaders and the chief should promote 

the new department to the community. 

It should not come as a surprise to 

anyone the first time a new patrol car 

drives through the community. Once the 

new chief is in place, marketing the new 

department can begin to ramp up in 

intensity as the countdown to the start 

of patrol operations begins. 

Keep the community informed 

throughout the planning and 

implementation phases. Newsletters, articles in local papers, community 

meetings, briefings of government and community leaders, and web sites are 

excellent ways of letting the community know about completed and remaining 

tasks. The COPS-funded communities that responded to the national survey on 

start-up agencies used a variety of promotional techniques, from hosting crimeprevention seminars to conducting fundraisers for equipment purchases. The 

common theme was that the agencies constantly worked to introduce their staff 

and their services to the community. This is important so that on the day the 

“lights are turned on” in the new department, citizens are aware that services 

have begun. 

Marketing Ideas 

Ideas for promoting a police 

department are discussed in the 

September 2004 issue of Police 

Chief. The article, “Marketing the 

Smaller Agency,” addresses the 

ability of agencies to maintain 

good public relations through 

ongoing marketing efforts. 

Finding full support from local city councils and communities is essential. 

Keeping everybody informed on progress and upcoming events is also very 

important. Inform the community about programs and services the police 

department is providing and the benefits of each. 

Steps should be taken to involve the public from the beginning of the 

planning phase, through the funding and to actual start-up. Early community 

involvement helps to ensure community support. 

National Survey Respondent 
Chapter 4 

There are hundreds of details to address during the transition phase—the 

time between when the chief is hired and when the department begins 

patrol operations. This chapter does not cover them all or tell what 

decisions to make, but it does point out critical areas for decision-making, with 

the goal of helping the community and the new agency ask the right questions. 

References to other guides that analyze various options are included to further 

aid in the decision-making process. 

The order in which tasks should be undertaken will not be the same for every 

department. Once you know what decisions must be made before starting 

operations, key personnel can create an implementation timeline identifying 

when each item should be addressed. 

Administrative Decisions 

Vision/Mission Statements. This is the time to translate the community’s 

vision for the new department into a mission statement that reflects the 

department’s philosophy and values. It should not state how the department will 

Creating a Mission Statement 

A mission statement might broadly address the following: 

Department’s constituencies 

Department’s responsibilities to its constituencies and their 

responsibilities 

to the department 

Department’s role in the criminal justice system 

Department’s role in the community. 

The mission statement used by the Marco Island Police Department: 

The mission for each member of the Marco Island Police Department is to 

consistently seek and find ways to affirmatively promote, preserve, and deliver 

a feeling of security, safety, and quality services to all persons within the City of 

Marco Island. 

• 

• 

• 

• 

• 

27 
28 Chapter 4: Handling the Details 

function or even its goals and objectives, but it is more than a framed piece of paper 

hanging on the wall. It should convey a commitment to the community’s desire for 

a certain style of policing. When it captures both the department’s and community’s 

visions, it serves as a constant reminder of that vision and provides a framework 

for developing goals, policies, and strategies. In creating a mission statement for 

the department it may be helpful to look at examples from other agencies. Many 

departments prominently place their mission statements on their agency websites. 

Some examples of mission statements include: 

The mission of the Department is to work in partnership with the residents 

and businesses of the community to provide a safe and secure environment 

through the delivery of fair and impartial police services, proactive problem 

solving, and increased community partnerships.1 

We, the men and women of the...department, are dedicated to providing 

excellent service through partnerships that build trust, reduce crime, create a 

safe environment, and enhance the quality of life in our community. We are 

committed to these principles: Integrity, Respect, Fairness, and Service.2 

The...Department, in cooperation with the residents of the Town...strive 

to preserve the Quality of Life which all of its citizens presently enjoy. The 

Department is committed to providing law enforcement services, along 

with Education and Prevention programs that assist and are related to the 

prevention of crime and safety of its citizens.3 

Strategic plan. It also is important to develop a strategic plan for the department. 

It does not have to be overly complex, but it should be developed with community 

input, committed to writing, state how and when major milestones are expected to 

be achieved, and reflect the values and priorities implicit in the vision and mission 

statements. Even a very basic strategic plan will help all new department members 

better understand their roles and responsibilities. In addition, an organization chart 

will clarify lines of supervision and accountability for agency personnel and the 

community. The International Association of Law Enforcement Planners (www.ialep. 

org) can provide examples of strategic plans and job descriptions. 

1. “Police Department.” City of Fairhope, Alabama. 06 July 6, 2006. www.cofairhope.com/index.html. 

2. “Mission Statement.” Dudley (Connecticut) Police Department. 2002. 06 July 2006. www.dudleypolice.com/index.htm. 

3. “The Town of Freedom Police Department.” Town of Freedom, Wisconsin. July 6, 2006. www.townoffreedom.org/index.htm. 
Chapter 4: Handling the Details 29

Job descriptions. Recruitment and 

hiring cannot be done effectively 

without written job descriptions. 

The chief will need to determine 

the key duties, responsibilities, 

expectations, and minimum 

qualifications for each position in 

the department. Related to this, 

written rules of conduct should be 

developed that clearly state the 

expected behavior of all personnel. 

Policies and procedures. One 

of the major tasks to complete 

before the department becomes 

operational is the creation of certain 

critical policies and procedures. 

During the transition phase, the 

chief should take responsibility for 

writing policies that involve highrisk operations and activities (where liability for improper actions can be costly), 

such as standards of professional conduct, use of force, vehicle pursuit, arrest 

processing, property and evidence control, internal investigations, and others. 

Additional policies and procedures more administrative in nature can be phased 

in during the first year with the participation of officers as they are hired. 

A number of resources and model policies are available to help the chief in the 

drafting process, including the state’s police standards and training commission, 

which can usually provide state-specific model policies. The policies and 

procedures of neighboring jurisdictions, as well as those developed by national 

Police Policies 

The IACP National Law Enforcement Policy 

Center helps develop and refine policies and has 

produced a wide variety of model policies. Each 

policy is created by experts, incorporates findings 

from research, and is written for practitioners. 

For more information: www.theiacp.org/pubinfo/ 

PolCtr.htm. 

The Commission on Accreditation for Law 

Enforcement (CALEA) administers a voluntary 

accreditation process that includes professionally 

recognized criteria for excellence in management 

and service delivery. For more information about 

developing the new agency within the framework 

of accreditation: www.calea.org. 

police professional organizations, are also excellent resources. 

Report forms. The department will also need to create or adopt a number 

of critical forms such as for reporting incidents, arrests, investigations, field 

contacts, and traffic citations and accidents. In some instances, common forms, 

such as traffic accident reports, may be available from the county or state. 

Depending on agreements made with county or state police for handling certain 

incidents, it may be necessary for your agency to create or adopt forms that are 

compatible with those of the other agencies. Report forms should be designed 

in conjunction with development of the agency’s proposed records management 

system. 
30 Chapter 4: Handling the Details 

Our biggest problem encountered is 

having a court system in place with 

court days two times per month. Prior 

to [our department’s creation], 2 days 

a month might have been adequate, 

but we are currently 4 months behind 

in arraignments. Make sure your court 

system is ready to handle an increased 

load of criminal matters. 

National Survey Respondent 

near the state line) agencies in other states. These agreements will help ensure 

that assistance is readily available and that the lines of authority are clear in the 

event of emergencies and in other situations, such as vehicle pursuits across 

geographic borders, investigations of complex crimes, and public safety at large 

events. Issues relating to the jurisdictional authority of the new agency’s officers 

in the county also should be resolved. Some sheriffs grant full law enforcement 

authority throughout the county to municipal officers; others may not. 

Working relationships and agreements also need to be established between the 

new department and other criminal justice system agencies. How will incidents 

from the new department affect the prosecutor’s office or court dockets? Is the 

county jail prepared to book and process suspects brought in by your officers? 

How will the new agency receive interjurisdictional teletypes or other forms of 

communication? Have the state and the Federal Bureau of Investigation formally 

recognized the agency for purposes of filing or accessing criminal records? Are 

Example: New Tribal Department Develops Agreements with Sheriff 

Working relationships with neighboring jurisdictions can quickly become 

valuable for all involved agencies, not just the new department. The 

Pokagon Tribal Police Department (Michigan) is responsible for tribal lands 

spread over 10 counties in two states. With only six officers, coordination 

with county agencies is essential for providing services to those living 

on tribal lands, but the new agency has also proved beneficial to other 

communities. The officers are cross-deputized with county sheriff deputies 

in three Michigan counties and are regularly called to provide back-up for 

those agencies. 

Pokagon noted that with the new police department, “the tribal community 

is definitely better off, and so are the surrounding counties...these agencies 

are thankful that we exist.” The department is also negotiating mutual-aid 

compacts with counties in Indiana. 

Interagency agreements. Effective 

policing requires the cooperation of 

many agencies. The new chief will 

need time to develop relationships 

with other departments within the 

jurisdiction and agencies in the 

region, and to establish policies 

and protocols for how incidents will 

be handled and which department 

will have primary responsibility. 

Mutual aid and voluntary 

cooperation agreements should be 

developed with neighboring police 

departments, the sheriff’s office, the state police, and (if your community is 
Chapter 4: Handling the Details 31

you planning special enforcement actions that potentially could increase the jail 

population or court docket (e.g., crackdown on underage drinking)? 

Protocols are also needed for working with fire/EMS, animal control, and code 

enforcement. Occasions will also arise when police need to work with children 

and family services, probation and parole, and the local school system. Officers 

will need a list of the appropriate personnel at various agencies and contact 

information. 

If parts of the community are located on private roads, arrangements must be 

made to give officers access so that they can enforce certain laws (e.g., issue 

parking citations); and geographical jurisdiction and boundaries need to be 

researched and verified. On roads that border other communities, is it important 

to know where your jurisdiction ends. 

Department identity. This also is the time 

to make decisions about the department’s 

badge and insignia or logo. This might 

seem minor, but the emblem will appear on 

officer uniforms, cars, and other identifying 

items. The police emblem will often include 

a preexisting city or town logo. It has to 

be unique so that it can be distinguished 

from that of the sheriff’s office or another 

local police department. Many jurisdictions 

purposely choose to make their cars and 

uniforms look different from those of 

the past law enforcement providers for a 

sharper, obvious distinction. The emblem 

will be a source of pride for the officers and 

will help establish the department’s identity within the community. Once the 

emblem has been adopted, use it in marketing the new department. 

Developing an Identity 

An emblem is a very identifiable part 

of a police department’s image and the 

symbol of the image the department 

wants the public to see. Creating 

this image starts with the mission 

statement, but it is an ongoing process 

that is discussed further in an April 2004 

Police Chief magazine article, “Branding 

Your Agency: Creating the Police 

Department’s Image.” 

Keeping the public informed. To sustain community support beyond the 

transition phase, it is important to continue to communicate with the public. 

Here are some ideas for communication in the implementation phase: 

• Create a department web site—usually a section on the local 

government’s web site. 

• Distribute information cards that include the department’s telephone 

number. 

• Hold community meetings to update citizens on progress and give 

them a chance to meet officers. 

• Negotiate with the local newspaper for space for a monthly column. 

Until patrol operations begin, the column can be used to keep readers 

informed of how plans are progressing. 
32 Chapter 4: Handling the Details 

Hiring 

Unless the plan calls for a one-person department, human resources activities 

will include recruiting and selecting additional personnel. Before operations 

begin, the chief should decide what positions must be filled and when the 

people should be hired. Phased-in hiring is recommended, rather than trying 

to fill all positions at once. Taking the time to carefully screen and select all 

candidates will benefit the department in the long term. A good fit between the 

officers and the community will result in longer lasting officer retention. 

Before You Hire 

As noted earlier, before recruiting new officers and civilian staff, the chief 

needs to develop position descriptions detailing the duties and responsibilities 

of each position, along with job titles, ranks, and pay grades. State mandates 

may require a civil service process. A fringe benefits package also needs to be 

developed, which alone could prove time-consuming unless there is an existing 

plan for local government employees that police officers can join. Another 

consideration is whether the department will assign take-home cars, which 

many officers consider an attractive benefit. 

Decisions must also be made about shift work; for example, will officers work 4 

days a week and 10 hours a day or 5 days a week and 8 hours a day? How will 

overtime be compensated consistent with Fair Labor Standards Act mandates? 

If the chief hires officers during the transition phase, funds for these salaries 

must be accounted for in the transition budget, not just as part of the ongoing 

operational budget. Finally, background investigations will be needed for each 

new employee and, although they can cost a few thousand dollars per person, 

they are well worth it. 

Give consideration to whether your jurisdiction will impose a residency 

requirement on new officers. While there are arguments both in favor of and 

against residency requirements, the requirement might restrict your potential 

applicant pool. 

Recruiting and Selecting Officers 

Recruiting officers for a new department 

may be more difficult than it would be for 

an established department, particularly in an 

environment where there are more positions 

than there are qualified candidates to fill them. 

Consider why someone would want to join 

a new department. What opportunities will 

they have if they take a position? In joining a 

Selecting Officers 

Not sure how to select the 

best candidate for the job? A 

review of existing research 

on methods for selecting 

police personnel is in Law 

Enforcement Selection: 

Research, available at: 

www.policeforum.org. 
Chapter 4: Handling the Details 33

new department, new officers are being asked to risk whether that agency will 

still exist in a few years. They are also being asked to join an organization that is 

just developing its “corporate culture.” This can be an advantage, but potential 

candidates may conclude that working for an established department has fewer 

risks and will give them better experience. Be prepared to answer their concerns 

and to highlight advantages, such as the chance to help create an organization 

from the ground up and work directly with the executive decision maker, rather 

than going through layers of supervisors. 

For the department’s start up, it is 

desirable to focus recruiting efforts on 

individuals with prior law enforcement 

experience. In particular, your agency 

should try to target individuals who have 

current law enforcement certifications 

within the state. This will greatly reduce 

recruit training costs. Certain precautions 

should also be taken, however, in hiring 

veteran officers. Ask about reasons for 

leaving their current employer. Verify their 

responses with the employers and check 

their history of interpersonal relationships, 

performance, and other records related to 

the job. 

Selecting candidates for a new department 

involves other unique considerations. There 

will be many tasks in starting a department 

that officers in long-established agencies never 

face, so qualities like initiative, flexibility, and 

problem-solving skills will be important. Like the 

chief, these initial officers will set the tone for 

the department. All hires should understand the 

community’s expectations of the department and 

be willing to support the style of policing that the 

leadership has chosen to pursue. 

Survey Results: Hiring 

The Marco Island (Florida) Police 

Department found that there were 

many benefits to hiring officers 

with previous experience. Budget 

limitations left little time or money 

for recruit training, so new hires 

had to be already trained. These 

experienced officers were also able 

to assist in drafting policies and 

procedures and in the selection of 

equipment and supplies. 

Survey Results: Retention 

Retention is a concern not just 

when it comes to line officers. 

The police departments surveyed 

for this guide had been in 

existence an average of 5 years 

and indicated that, on average, 

they had already had two chiefs. 

Other Considerations 

Officer retention should be a concern from the outset. Are the compensation 

packages reasonable compared to neighboring agencies? What sort of pay raise 

and promotional system will the department have? A great deal of time and 

money is needed to train and certify each new officer and orient him or her to 

the community. How will the department handle vacancies when hired officers 

leave the new agency? Keeping turnover to a minimum represents a significant 

cost savings to the department. 
34 Chapter 4: Handling the Details 

Depending on your state, it might also be necessary to work with an existing 

employees union during the implementation of the department. 

Facility Planning 

For more information on police 

facilities, see the International 

Association of Chiefs of Police’s 

Police Facility Planning Guidelines. 

The document can be found 

under “Research Reports” 

at: www.theiacp.org/pubinfo/ 

researchcenterdox.htm.

Facility Decisions 

Early in the planning stages, the 

department’s facility needs and 

options for available space must be 

assessed. Most new departments 

start by sharing a facility with another 

government agency. Whether the 

department takes over a currently 

unused space or has budgeted for 

new construction, many of the same 

considerations need to be addressed. 

For example, the facility should do the following: 

• Comply with building, health, and zoning codes. 

• Be accessible and hospitable to the public. This includes compliance 

with Americans with Disabilities Act standards. 

• Be easy to secure. 

• Provide suitable working space and furniture for all employees. A 

substandard working environment may have a negative effect on staff 

retention. 

• Include appropriate space for interviews; secure, fireproof records 

storage; lockers for armory and equipment storage; and lunch or 

coffee breaks. 

• Provide parking space for fleet vehicles, employees, and visitors. 

• Provide a secure room for evidence storage. Within the secure 

room, there should be 

a locked safe for storing 

confiscated weapons, drugs, 

and money. Some states have 

legal mandates concerning 

evidence storage and evidence 

transport. 

• Have sufficient infrastructure 

to support telephone lines, 

computer networks, electricity, 

and HVAC. 

• Make arrangements for 

maintenance and cleaning. 

Survey Results: Facilities 

Most start-up police agencies that 

responded to the survey were not 

in a newly-built facility. More than 

70 percent made use of existing 

office space shared with other local 

government departments, typically in 

the city or town hall, although other 

locations included the volunteer fire 

department, post office, and library. 

Finally, there should be room to grow: factor into decision making the 

department’s long-range plans for staffing and anticipated expansion. 
Chapter 4: Handling the Details 35

Equipment 

To be ready to begin operations, equipment must be procured during the 

planning phase. Vehicles, radios (including radio frequencies and coverage), 

uniforms, computers, gear (flashlights, belts, body armor, helmets), and 

weapons (guns and less lethal weapons such as chemical spray and tasers) 

must be acquired before the department can operate safely and efficiently. The 

types of guns and less lethal weapons must be consistent with community 

needs, officers must receive adequate training in their use, and technical 

support should be available (rangemasters/armorers). 

A number of decisions must be made before acquiring vehicles. Will the 

local government buy or lease the fleet vehicles? If buying, will the vehicles 

be new or used? Once acquired, an experienced mechanic must equip the 

vehicles for police use (prisoner restraints, mounts for special weapons, radios, 

computers, light bars). Can the local government save money by participating 

in a multiagency purchasing plan? Will the cars be part of a pool, or will officers 

take their cars home? Does the jurisdiction’s geographic setting require different 

kinds of transportation (boats, four-wheel drives, bicycles, motorcycles)? 

If the community experiences flooding or has many unpaved roads, for 

example, vehicles with higher ground clearance may be needed. In addition, 

timelines need to anticipate delays in the procurement process. Trade shows 

and conferences sponsored by state or national police associations provide 

opportunities to see available technologies and interview multiple vendors. 

The budget must provide funds to replace consumables as they are used 

(office supplies, gasoline for the fleet, and ammunition [for practice required to 

maintain firearms certification]). The budget also must include calculations for 

ongoing fleet maintenance costs (engine maintenance, body and equipment 

repair, cleaning) and must differentiate among one-time expenses, yearly 

recurring expenses, and those with a fixed replacement time span. 

Training 

The department’s training needs will affect both the budget and day-to-day 

operations. Often, police budgets do not adequately account for the time 

that officers need for the training that enables them to stay current with law 

changes, acquire specialized skills, or maintain certifications in areas such as 

firearms, CPR, impact weapons, and hazardous materials requirements. The 

time required for this training is time not spent on patrol; therefore, will training 

occur during scheduled work hours or on an overtime basis? Managing work 

schedules when officers are away at training is a challenge for any department. 

During start-up, hiring experienced veterans is an efficient way to reduce recruit 

training costs; but all officers, regardless of experience, will still require some 

level of in-service and specialized training. State-mandated in-service training 
36 Chapter 4: Handling the Details 

requirements must be reviewed and plans developed for all officers to complete 

the necessary hours. At the beginning, the department may have to rely on 

outside resources, such as a regional police academy or sheriff’s department, for 

in-service training. Cultivating relationships with other agencies in the area can 

help manage training costs. As department officers become certified trainers in 

specialized areas, more training needs can be met in house, reducing the time 

and financial burdens on the department. 

Operating Plans 

In addition to policies and procedures, the department needs operating 

plans that explicitly state how it will function day by day, and how adequate 

supervision will be provided—to prevent crime, respond to calls for service, 

assist crime victims, and address other public safety goals of the department. 

This includes emergency preparedness plans because a major emergency 

(flood, hurricane, tornado, terrorist attack) could occur at any time, and the public 

will expect a competent response from its police department. 

Developing work schedules and shift assignments is only one part of creating 

an operating plan. For example, what will officers be doing when they are 

not responding to calls or fulfilling other obligations like court appearances? 

Residents and business managers appreciate police visibility, but patrolling 

randomly is seldom effective in preventing or solving crime. Questions related to 

developing operating plans include the following: 

• In what areas should directed patrol and special enforcement efforts 

be concentrated? 

• Will officers be required to “stop and walk” or “stop and talk” as part 

of their routine duties? 

• What priority concerns were identified through community 

participation and data analysis during the assessment and planning 

processes and how should officers address those concerns each day 

or every week? 

• Will officers be assigned to permanent geographic areas (i.e., beats) 

and be expected to identify and address the chronic crime and 

disorder problems on those beats? 

In short, your operating plan should include a community policing plan, because 

community policing does not just happen, even when “everybody knows 

everybody.” It involves deliberate efforts on the part of police and residents to 

solve problems together. It does not have to involve creating special programs, 

but it does require planning, specific actions, and time. Thus, the chief’s 

operating plan will need to include (1) guidance and direction for officers in using 

community policing strategies to accomplish public safety goals, and (2) blocks 

of time in which officers can actually use those strategies. 
Chapter 4: Handling the Details 37

The operating plan also needs to ensure that there is enough support for major 

incidents, such as traffic fatalities, chemical spills, or bomb threats; and that 

additional resources will be available to provide public safety at special events 

(festivals and fairs, sporting events, July 4th celebrations). Determine the 

procedure for calling in support from other agencies that have the appropriate 

resources (see discussion on mutual aid agreements). Creating operating 

plans also entails arranging support for complex cases, including cases that 

require specialized training and time-consuming follow-up investigations, such 

as homicide, arson, computer crimes, fatal traffic accidents, or serial sexual 

assaults. Procedures should be in place so that everyone knows when to call 

other agencies and which agencies to call under different circumstances. 

Measuring performance. How will the department and community know if the 

operating plans are effective? An important part of operational planning includes 

documenting what has been done and with what results. This may include—but 

should go beyond—easy-to-count things that measure police activity such as the 

number of speeding tickets, number of arrests, and number of calls for service. 

Early on, the new chief should make every effort to develop baseline crime 

statistics for each neighborhood in the community to document improvements 

and trends. 

If officers spend time working with community members to solve problems and 

prevent crimes, the department should document and describe those efforts 

and measure their effectiveness. Quantitative measures are valuable—number 

of block watch groups formed, number of school presentations, number of 

business security surveys—and so are success stories. If a community survey 

was conducted as part of the planning process, a follow-up survey could be 

administered (e.g., after a full year of operation) to help document changes in 

public perceptions of policing services, crime, and fear of crime. 

Performance measures are an excellent way of continually assessing how 

well the department is meeting its goals. They provide accountability to the 

community and are essential for demonstrating the department’s worth and 

effectiveness when the city or town council considers the department’s budget. 

Support Functions 

This section discusses several essential functions that new or smaller 

departments may handle themselves but that are more frequently outsourced 

to other agencies, such as the county police or sheriff’s department or a regional 

service. In some instances, it might be necessary to contract for these support 

functions. 
38 Chapter 4: Handling the Details 

Lock-ups 

Even if the department’s long-range plan includes maintaining a secure facility (a 

lock-up) to house arrested persons until they can be transported to the county 

jail, this function should not be included in the initial operating plan. Adequate 

and appropriate space is needed, which can further complicate the selection of 

space for the department’s facility. Also, the numerous requirements and state 

mandates associated with maintaining a lock-up would be difficult for a new 

department to manage. In addition, maintaining a lock-up imposes significant 

liability concerns that otherwise would not be a factor for the local government 

(e.g., suicide in the lock-up). A major consideration is the strain that lock-up 

supervision requirements would place on the patrol schedule. The department 

will need to consider the travel time required to process arrested persons into 

the county jail and factor this into scheduling arrangements. For example, if the 

only person on patrol at certain hours makes an arrest that requires booking at 

the county jail, the travel and processing time could result in a significant period 

when no officer is available to respond to calls for service. 

Communications and Dispatch 

Survey Results: 

Communications and 

Dispatch 

Sixty percent of the surveyed 

agencies said they participate 

in a regional 911 system for 

dispatch services, and that they 

do not pay a fee for this service. 

About 20 percent contract 

for dispatching services. The 

remaining 20 percent run their 

own dispatch, although not 

necessarily full time or with 

the help of a computer-aided 

dispatch (CAD) system. 

Communications and dispatch 

equipment requires a significant 

capital investment that is out of reach 

for many local governments that are 

starting up police agencies. In addition 

to purchasing hardware equipment and 

software, staffing a dispatch center adds 

significantly to the total costs. Receiving 

services from an existing communications 

center run by the county police or sheriff 

or a regional service is the most efficient 

option. Often, the services are provided 

at no charge beyond the equipment 

purchases necessary to link to the existing 

system. In other instances, the dispatch 

services may be provided for a fee. Make 

these determinations early enough in 

the planning process so that any service 

fees can be properly accounted for in the 

operating budget. 
Chapter 4: Handling the Details 39

Other issues, such as the following, also must be addressed before a new 

department can participate in an existing communications center: 

• What kind of technology is required to link to the communications 

system (for radio, voice, and data communications)? Will you install 

laptop computers in the police vehicles? 

• Will the communications center have an advisory board that will allow 

representation from your local government? 

• Will your new chief have any input regarding dispatching policies? 

• Can dispatching priorities and policies be customized for your police 

department? 

Another critical communications issue is interoperability. The expectation in 

policing today is that radio and data systems will be able to talk to each other 

counties should work on these issues. 

A 911 communications center is not the 

only way in which citizens can contact the Call Response Strategies 

police. For nonemergencies, your agency 

will need a general telephone number Discussions of alternative call 

and a system to route calls to officers in response strategies—such 

the field when the office is not staffed. as telephone and Internet 

To prevent potential delays, especially in reporting—are found in Call 

redirecting 911 calls to the appropriate Management and Community 

agency, the chief will need to coordinate Policing: Guidebook for Law 

early on with the local telephone company Enforcement, available from the 

and cell phone service providers. The chief COPS Office. 

and community leaders will also need to 

consider developing and advertising various 

in real time in the field. Appropriate communications officials in the states and 

alternative call response and reporting strategies (e.g., telephone or Internet 

reporting for certain kinds of nonemergencies) and consider staffing a reception 

desk for walk-in complaints, service requests, and queries. 

Records Management 

The local government also must determine how the new police department 

will store and manage records—how officer incident reports will be entered 

into a computer system and accessed when needed. It would be more efficient 

to integrate the police department’s records management into an existing 

local government computerized network, instead of purchasing a stand-alone 

system for the police. Certain information security considerations, however, may 

require that police have a separate records management system. A number of 

resources are available to help guide local governments in purchasing computer 

systems, as well as grant programs through both the COPS Office and the 

Department of Homeland Security that can assist in funding. 
40 Chapter 4: Handling the Details 

Resources on technology 

procurement: 

SEARCH Group’s Law Enforcement 

Technology Guide: How to Plan, 

Purchase and Manage Technology 

(Successfully!), available from the COPS 

Office. 

Institute for Law and Justice’s Managing 

the Risks: Guide for Improving RFP 

and Procurement Practices in Justice 

Technology Acquisitions, available at 

www.ilj.org/publications. 

The local government may also 

consider interfacing records 

management with the county 

police, sheriff, or other regional 

system. Tying into existing records 

networks may be particularly 

advantageous for departments 

that will not have full-time patrol 

operations and will have to rely on 

assistance from other agencies 

during certain hours. In this 

case, be sure that the equipment 

and software purchased are 

compatible with the other systems 

and resolve data retrieval issues. 
Chapter 5 

This guide will assist communities in developing police departments by 

highlighting important considerations and providing guidance on how 

to accomplish the task efficiently and effectively. Because of the great 

variation among communities, their needs, and their resources, no single plan 

will apply to all, but certain principles and practices are relevant across the 

board. Key questions that communities need to answer are summarized here. 

1. Conduct a Strategic Assessment 

The process of carefully documenting community needs should be 

the first step in deciding whether to create a new department. What 

are the crime problems and public safety needs of the community? 

Are they changing? Has the local government experienced an 

increase in population, or is it planning to incorporate as a new 

city or town? The strategic assessment should also include citizen 

input through community meetings, focus groups, or surveys. 

2. Review the Existing Service Plan and Develop Options 

Most local governments currently receive police services from 

either a county or state agency. Given the findings of the needs 

assessment in step one, above, how is the current agency meeting 

or not meeting community needs? Your analyses should include 

assessing data on current service demand and delivery, including 

response times, style of policing, and other issues. 

You need to review a range of options for policing your community. 

Perhaps meeting with the current police service provider to voice 

community concerns would be sufficient to start addressing those 

concerns. Establishing a contract for dedicated patrol services may 

be another feasible solution. If a service contract exists, perhaps it 

can be revised to meet changing needs. The advantage these county 

and state agencies have over a new, local police department is the 

availability of support services. After reviewing the options and 

discussing them with the existing service provider, you may decide 

that your best alternative is to start your own police department. 

Make sure you have community support for this decision. 

41 
42 Chapter 5: Summary Checklist 

3. Hire a Chief 

If the decision is to create a new police department, one of the first 

steps will be to recruit and hire a chief. Throughout the planning 

phase, the chief will provide valuable assistance with the mission 

statement, policies, procedures, equipment procurement, officer 

hiring, and budgets. Having the chief on board early will help the 

community avoid major pitfalls in the planning process, particularly 

in how the police department should operate day to day and 

what is needed to ensure that the department can sustain itself. 

4. Prepare a Budget 

The local government should create the overall budget so the 

new chief knows what scope of services is expected for initial 

start-up and for the first years of operation. The chief, however, 

should review and refine this plan. A new department will not 

be able to do everything at once, but with a sound multiyear 

budget plan, it can set priorities and anticipate important issues. 

5. Negotiate Agreements with Other Agencies 

Negotiating agreements applies both to other police agencies and the 

rest of the criminal justice system because a new police department 

will have an impact on a number of agencies, such as the jail, courts, 

and various social services. The new department may provide 

comprehensive patrol services, for example, but agreements are 

needed for other services such as dispatching, investigative support, 

crime scene processing, and training. Many new departments may 

be unable to provide 24-hour service, 7 days a week; therefore, 

arrangements must be negotiated with other agencies to respond 

to calls for service during off-hours. In addition, it is essential for 

public and officer safety to have agreements in place that ensure 

appropriate coverage for both planned special events (e.g., large 

festivals) and unplanned events (e.g., hostage situations, natural 

disasters). 

6. Establish Critical Policies and Procedures 

Policies, procedures, and operating plans for daily operations are 

essential and must be in place at the outset so that the department 

and community understand exactly what the department’s duties and 

responsibilities are. The chief is a valuable asset for drafting these 

policies and procedures and will also establish a style of policing for 

the department. Resources and examples from other departments 

can be used to assist in developing policy. 

Related to this, and before recruitment and hiring can begin, the chief 

must create a job description for each position in the department, 

along with an organization chart and rules of conduct. 
Chapter 5: Summary Checklist 43

7. Hire Officers and Support Staff 

All key personnel should be hired before operations officially begin 

to allow time for them to familiarize themselves with the department 

and community, complete required training, and obtain necessary 

certifications. The larger the department, the longer this recruitment 

process may take, and it may be prudent to hire in phases. 

Departments need to carefully consider the qualifications that 

candidates should meet, including the particular skills needed to help 

ensure the new department’s success. Adequate wages and benefits 

are essential to recruit quality personnel, and while inexperienced 

officers can be hired for lower wages, experienced officers require 

significantly less training time. Finally, thorough background checks of 

all candidates must be conducted. 

8. Acquire Office Space, Equipment,Vehicles, and Supplies 

Before a new department can start patrol services, the basics should 

be in place: office space, furniture, telephones, office supplies, 

radios, record-keeping systems, uniforms, weapons, computers, and 

patrol cars. Equipment and supplies are itemized budget items and 

should be clearly stated as one-time, start-up expenses or ongoing 

expenses. 

9. Promote the Department 

Once the department is ready for operations, the focus will turn to 

providing police services. It is not safe to assume, however, that 

all citizens either will know the department exists or support it. 

Promotion is important both before and after the department begins 

operation. Officers should be visible, accessible, and work to educate 

the community on the services the agency provides. Community 

support can be encouraged through talks at schools and community 

group meetings, bike and foot patrols, crime-prevention programs, 

and other events that provide for two-way communication. Many 

of the activities that generally are grouped together as community 

policing activities are also excellent promotional tools for a new 

department. 
44 Chapter 5: Summary Checklist 

Conclusion 

Regardless of the size of the community, creating a new police department will 

be a major undertaking. While most COPS-funded start-up agencies found that 

the effort was worthwhile, most of the agencies interviewed felt there is no 

such thing as too much planning. 

As you prepare to create your police department, take the time to really think 

through all the steps before you start. Plan the budget carefully, talk to other 

local governments about how their departments operate, and work with 

community members throughout the process. Starting a new police department 

will likely take longer, be harder, and cost more than most people think, but it 

certainly is a way of ensuring that the policing needs of your community are met 

with the style and level of attention that the community desires. 

Some final thoughts from chiefs who have started police 

departments: 

Very expensive and time-consuming, but made a tremendous positive 

impact on the streets. Put a dent in drug activities. Made the town a 

more quiet and safe place. 

Plan ahead for maintaining the operation past the [financially] 

supported years. Once established, nothing can beat it. 

Keep the focus on the future and baby-step your way forward. And 

network. We all need help and our [network of police contacts] is 

always willing [to assist in providing guidance, support, and feedback]. 
Many of the publications and web sites listed here are intended for law 

enforcement professionals, but community members should also find 

them valuable in understanding the issues involved in planning and 

operating a police agency. 

Community Policing 

Perkins, Matt, Scott Phillips, Tammy Rinehart, Karin Schmerler, and Meg 

Townsend. Problem-Solving Tips: A Guide to Reducing Crime and Disorder 

through Problem-Solving Partnerships. Washington, D.C.: Office of Community 

Oriented Policing Services, U.S. Department of Justice, 1998. 

Rinehart, Tammy, Anna T. Lazlo, and Gwen O. Briscoe, Ph.D. Collaboration Toolkit: 

How to Build, Fix, and Sustain Productive Partnerships. Washington, D.C.: Office 

of Community Oriented Policing Services, U.S. Department of Justice, 2005. 

Center for Problem-Oriented Policing. www.popcenter.org 

Schneider, Andrea, et. al. Community Policing in Action! A Practitioner’sEye View of Organizational Change. Washington, D.C.: Office of Community 

Oriented Policing Services, U.S. Department of Justice, 2003. 

Scott, Michael S. Problem-Oriented Policing: Reflections on the First 20 Years. 

Washington, D.C.: Office of Community Oriented Policing Services, U.S. 

Department of Justice, 2000. 

Ethics and Integrity 

Ethics Toolkit: Enhancing Law Enforcement Ethics in a Community Policing 

Environment. Arlington (Virginia): The International Association of Chiefs of 

Police. 

Walker, Samuel Ph.D. Early Intervention Systems for Law Enforcement. 

Washington, D.C.: Office of Community Oriented Policing Services, U.S. 

Department of Justice, 2003. 

45 
46 Reference and Resources for Law Enforcement 

Walker, Samuel, Ph.D., Stacy Osnick Milligan, and Anna Berke. Supervision 

and Intervention within Early Intervention Systems: A Guide for L.E. Chief 

Executives. Washington, D.C.: Office of Community Oriented Policing Services, 

U.S. Department of Justice, 2005. 

Equipment and Facilities 

Bulletproof Vest Partnership/Body Armor Safety Initiative, Office of Justice 

Programs, U. S. Department of Justice. www.ojp.usdoj.gov 

International Association of Chiefs of Police. Police facility planning guidelines: 

A desk reference for law enforcement executives. Alexandria (Virginia) 

International Association of Chiefs of Police, 2002. 

Marketing 

Margolis, G. and N. March. “Creating the Police Department’s Image,” Police 

Chief 71:4 (April 2004): pp 25–27, 29,30, 33–34. 

Sprafka, H. “Marketing the Smaller Agency,” Police Chief, 71:9 (September 

2004): pp 20–25. 

Personnel, Leadership 

Aamodt, M.G. Law enforcement selection: Research summaries. Washington, 

D.C.: Police Executive Research Forum, 2004. 

Police Executive Research Forum. and International City/County Management 

Association. Selecting a police chief: A handbook for local government. 

Washington, D.C.: Police Executive Research Forum, 1999. 

International Association of Chiefs of Police. Police chiefs desk reference: A 

guide for newly appointed police leaders. Alexandria (Virginia): International 

Association of Chiefs of Police, 2004. 

International Association of Chiefs of Police. Leadership in Police Organizations 

(LPO) Program. www.theiacp.org 

Scott, M. Managing for success: Police chief’s survival guide. Washington, D.C.: 

Police Executive Research Forum, 1985. 

Scrivner, Ellen, Ph.D. Innovations in Police Recruitment and Hiring: Hiring in 

the Spirit of Service. Washington, D.C.: Office of Community Oriented Policing 

Services, U.S. Department of Justice, 2006. 
Reference and Resources for Law Enforcement 47

Policing Organizations (Web Sites) 

Commission on the Accreditation of Law Enforcement Agencies: 

www.calea.org 

International Association of Chiefs of Police: www.theiacp.org 

The National Organization of Black Law Enforcement Executives: 

www.noblenational.org 

National Sheriffs’ Association: www.sheriffs.org 

Office of Community Oriented Policing Services, U. S. Department of Justice: www. 

cops.usdoj.gov 

Police Executive Research Forum: www.policeforum.org 

Police Foundation: www.policefoundation.org 

Center for Problem-Oriented Policing. www.popcenter.org. Problem-oriented 

policing is designed to identify and remove the causes of recurring crime and 

disorder problems that harm communities. This website offers free publications 

and other resources to law enforcement practitioners and others interested readily 

accessible information about ways in which police can more effectively address 

specific crime and disorder problems. 

Strategic Planning, Policy Development 

Contracting for police services. Examples noted in this guide:

 Los Angeles Sheriff’s Department: www.lasd.org/divisions/hqtrs/ 

contract_law.html 

King County Sheriff’s Office: www.metrokc.gov/sheriff/partners/ 

contract_program/details.aspx 

International Association of Chiefs of Police. Legal Officers Section. www.theiacp. 

org (Resources regarding police agency liability can be accessed, including model 

policies, membership benefits, and current and previous columns of the Chief’s 

Counsel in Police Chief magazine.) 

International Association of Chiefs of Police. National Law Enforcement Policy 

Center: www.theiacp.org/pubinfo/PolCtr.htm 

International Association of Chiefs of Police,. Consolidating police services: An IACP 

planning approach. Alexandria (Virginia): International Association of Chiefs of Police, 

2003. 
48 Reference and Resources for Law Enforcement 

International Association of Law Enforcement Planners: www.ialep.org 

Kelling, G. and M. Wycoff, Evolving strategy of policing: Case studies of strategic 

change. Washington, D.C.: National Institute of Justice, U.S. Department of 

Justice, 2001. 

Police Executive Research Forum, Police department budgeting: A guide for 

law enforcement chief executives. Washington, D.C: Police Executive Research 

Forum, 2002. 

Technology 

Harris, K. and W. Romesburg,. Law enforcement technology guide: How to plan, 

purchase, and manage technology (successfully!). Washington, D.C.: Office of 

Community Oriented Policing Services, U.S. Department of Justice, 2002. 

McEwen, T., D. Spence, R. Wolff, J. Wartell, and B. Webster, Call management 

and community policing: A guidebook for law enforcement. Washington, D.C.: 

Office of Community Oriented Policing Services, U.S. Department of Justice, 

2003. 

McEwen, Tom, et al., Case Studies on Acquisition of Information Technology for 

Law Enforcement. Fourteen case study reports on IT acquisition in the areas 

of CAD/ RMS, crime analysis and crime mapping, Intranet, criminal justice 

information systems, and wireless mobile data communications. Institute for 

Law and Justice, 2001. www.ilj.org/publications.htm 

Romesburg, William H. Law Enforcement Tech Guide for Small and Rural Police 

Agencies: a Guide for Executives, Managers, and Technologists. Washington, 

D.C.: Office of Community Oriented Policing Services, U.S. Department of 

Justice, 2005. 

SEARCH: The National Consortium for Justice Information and Statistics. 

www.search.org 

FOR MORE INFORMATION: 

U.S. Department of Justice 

Office of Community Oriented Policing Services 

1100 Vermont Avenue, N.W. 

Washington, DC 20530 

To obtain details on COPS programs, call the 

COPS Office Response Center at 800.421.6770 

Visit COPS Online at www.cops.usdoj.gov. 

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