June 1990 FACILITY PLANNING IN COLORADO: FORM VS.FUNCTION By James D. Munger Chief, Colorado Springs Police Department Colorado Springs, Colorado and Edward Spivey, Ph.D. Supervisor, Research and Development Section Colorado Springs Police Department Colorado Springs, Colorado What determines the manner in which a police department operates--form or function? Surprisingly, this question appears in any number of contexts in any department--policy formulation, equipment selection, values orientation, or the design of the training curriculum. Whatever the case, the form/function issue influences decisively the nature of the organization and the agency's mission and goals. The Colorado Springs, Colorado, Police Department wrestled with this form/function question during the past few years in a number of ways, but particularly with regard to police facilities. This article will discuss how this police department recognized the relationship between its physical accommodations and its role in the community and how the department has been changed in the process. Of course, this process is not unique to this department, but examining it may help other agencies involved in self-assessment and future planning. THE PROBLEM Until the end of World War II, Colorado Springs was a rather sleepy, small town whose major claims to fame were its spectacular setting and its reputation as a health resort. But, the establishment of several permanent military facilities after the war led to rapid community growth. By the early 1960s, the police department outgrew its accommodations in the basement of city hall. A separate police headquarters was built next door, but agency functions remained relatively unchanged. As often happens with municipal facilities, budgetary constraints limited construction to immediate needs. And, no one was forewarned of the rapid population growth and the fourfold increase in area size that would take place within the next 3 decades. Within 6 years after it was built, the police building could no longer house the police department. Leasing and occupying portions of several city-owned structures gained additional space in a piecemeal fashion. The physical fragmentation of the police department caused problems in communications and led to diffused supervisory responsibilities. At this time, form determined function. As a result, ``turf'' issues began to interfere with operational effectiveness, while the department's operating budget eroded because duplicate equipment needed to be purchased or additional support personnel had to be hired for units in remote locations. By the early 1980s, it became clear that organizational effectiveness could only be preserved by adequate facilities. The relocation of patrol services in temporary facilities on opposite sides of town alleviated the most pressing problems. This made it possible to reallocate office and parking space at headquarters. Patrol officers and sergeants were moved to the two ``outpost'' stations but continued to report to a single command structure at headquarters. Administrators recognized that this fragmentation posed organizational problems. Numerous attempts were made to reorganize the existing facilities and to redefine operational responsibilities more functionally. Planning for new facilities continued, and by 1984, the department was committed to the construction of permanent patrol substations. Up to this point, any recommended changes were consistent with the department's mission and remained within the department's traditional centralized structure. THE PROCESS OF CHANGE The appointment of a new chief of police in 1985 coincided with the national awakening of interest in redefining law enforcement missions in terms of community involvement. The department's new administration began an assessment of all agency divisions. Task forces, composed of civilians and officers, evaluated all aspects of the department both structurally and functionally in light of these new ideas. After approximately 3 months of study, the task forces recommended a major reconfiguration of the department, along with a schedule to phase in the changes. An essential element of the reconfiguration was to decentralize line operations through three divisional substations, while keeping a centralized component for citywide functions, such as major crime investigations and support services. After city authorities accepted the concept, the department initiated major planning efforts on several fronts. Budgeting was, of course, the first priority. In the past, the department made few funding requests for capital improvements; therefore, the municipal authorities were more easily persuaded of the need for major investments in police facilities. Because of additional appropriations and departmental economizing measures, the construction of two substations began. The long-range strategy was to put these substations into operation, coordinate new service delivery methods with a strong emphasis on community policing, and then propose a bond referendum to finance a police operations center that would include a third substation. During the interim, the third patrol division occupied temporary quarters that became available when the new substations were opened. Simultaneously, the department created another captain position to serve as station commander, thus permitting the reassignment of an experienced captain as a full-time facilities planner. The facilities planner and the department's civilian Director of Management Services shared the overall responsibility of the project, but worked under the direction of the Deputy Chief of Administration. Early in the process, the department contracted for services with an architectural and engineering firm experienced in designing law enforcement facilities. The resulting combination of operational experience, conceptual innovation, fiscal prudence, and technical expertise proved beneficial. Departmental planners also took care to coordinate closely with the city's administrators and technical agencies to ensure that all processes worked smoothly. COMMUNITY-ORIENTED OPERATIONS New facilities were the glamorous part of the process, but laying the groundwork for a decentralized and community-oriented operational mode proved more arduous. Computer programs and hardware had to be modified so that the transition could be smooth. Months before the physical relocation, reporting systems were reconfigured to the new geographical patterns. This allowed employees to become familiar with the new technical foundations. This ``camping out'' period was sometimes hectic and required patience from operations personnel and administrators alike, but its inconveniences were repaid by the smooth physical transition that resulted. With the advent of community-oriented policing and decentralized service delivery, the department's written directives had to be thoroughly revised. The need to redesign policies and procedures had become critical because the department had also made a philosophical commitment to seek national accreditation. Now, facing a complete restructuring, this process could not be avoided. Therefore, considerable effort was devoted not only to revising manuals for policies and procedures but also to reviewing the process for ensuring accountability. A task force went through existing directives line by line to check for accuracy and adequacy, removing obsolete passages and outlining items to be added. The manual was then rewritten to bring it into accord with accreditation standards and to express policies and procedures more logically. Matters that were strictly procedural and subject to frequent change were removed from the manual entirely and given to a task force of patrol officers, who developed a code of standard operating procedures tailored to the new functional configuration. By doing so, authority for revising this type of directive was moved closer to the operating level. THE FINAL PHASE Actual construction of the stations began in 1988, after exhaustive planning that involved not only administrators and the consulting firm but also task forces of patrol officers who would be using the new facility. In March 1989, the new stations were opened and public tours were conducted for several days. Each station contained a large community room, which was open to the public for scout meetings, homeowners' association meetings, and similar events. Opening the stations to nonpolice activities helped to quickly integrate the stations into the neighborhoods, and this nonthreatening contact between citizens and officers improved significantly the public's view of law enforcement. More surprisingly, officers welcomed this contact with law-abiding citizens as a healthy influence on their perspectives. During the final months of construction, the department prepared a bond issue proposal to build a police operations center, which was approved by the city council for a referendum. A ``Police Bond Action Plan'' was developed to saturate the community with facts about the importance of the operations center to the delivery of effective police services. The plan included a comprehensive media awareness effort, coordinating presentations to the general public and to community service groups, and the development of a citizens' support group, which added ideas and raised money for campaign publicity. THE RESULTS The results of the police department's movement toward community policing became evident when a better than two-to-one majority of voters approved the police operations center bond. The department interpreted these results to be a resounding endorsement of a winning combination: Good service delivery, thorough and innovative planning, and a strong effort to recognize and satisfy the needs of citizens. The Colorado Springs Police Department is now moving toward developing the operations center. As with the substation development, a task force approach again has been adopted and an experienced architectural consulting group has been retained. This close involvement during the design and construction stages, as well as continued involvement by other branches of municipal government, provides facilities and services that foster other program innovations. The most difficult part was not putting the bricks and beams into place but initiating the operating structure. Although the new facilities and operations services have been shaped, the human and organizational engineering will never be completed. The department's role in the community has already changed to such an extent not believed possible several years ago, and it is anticipated that this change will continue as a result of intensified community involvement. This process has brought about new ways of thinking, acting, and achieving the department's mission and goals among all levels of personnel. New programs have been implemented, and more are on the way a number of them arising from the line units. Having worked through the fear and discomfort of escaping traditional molds, the department has found a dynamic concept of police work that is both stimulating and enjoyable. Indeed, the focus must be on function rather than form. As long as a police agency is locked into traditional molds, innovation is limited to merely rearranging things. Law enforcement will always be tasked with necessary chores, such as manpower scheduling and allocating vehicles, from which there is no escape. And, although a certain sort of creativity is involved in these activities, focusing on the overall mission brings much more into play. It is essential, however, that the definition of mission be derived from the interaction of the agency with the community. A definition arising completely from within a department is usually less comprehensive. Finally, the process can be done only through action. References to planning have been made often in this article and with good reason. In one sense, everything is a part of planning. However, planning consists of much more than academic exercises. It must include proper execution, as well as reintegrating the results of execution. CONCLUSION What the Colorado Springs Police Department has learned throughout the last few years was certainly aided by research. But learning came more by putting the results of the research into practice. This requires an organization to work toward a major goal. This department's goal was to develop more adequate police facilities, but other goals would serve as well, providing that they are challenging and can involve the whole organization or at least a major part of it. The elements within this department that benefited most from this reorganization were patrol and planning personnel. Form and function, product and process, are dull and rather abstract terms that are certainly not the everyday topics of police discourse. Even though there is no guarantee that another agency would reap the same rewards and benefits, enormous gains can be made, even at the cost of some psychological and physical comfort. The Colorado Springs, Colorado, Police Department has shaped its new facilities and will shape those to come. More importantly, however, it is also shaping itself in the process.