U.S. Department of Justice Office of Justice Programs Bureau of Justice Statistics ------------------------------------------------------ This file is text only without graphics and many of the tables. A Zip archive of the tables in this report inspreadsheet format (.csv) and the full report includingtables and graphics in .pdf format are available on BJSwebsite at:http://www.bjs.gov/index.cfm?ty=pbdetail&iid=5279 This reports is one in series. More recent editions may be available. To view a list of all reports in the series go to http://www.bjs.gov/index.cfm?ty=pbse&sid=35 ------------------------------------------------------ Local Police Departments, 2013: Personnel, Policies, and Practices Brian A. Reaves, Ph.D., BJS Statistician Highlights Local police departments employed about 477,000 full- time sworn personnel in 2013, 35% more than in 1987. About half (48%) of departments employed fewer than 10 officers. More than half (54%) of local police officers were employed in jurisdictions with 100,000 or more residents. About 1 in 8 local police officers were female, including about 1 in 10 first-line supervisors. About 27% of local police officers were members of a racial or ethnic minority, compared to 15% in 1987. From 2007 to 2013, the number of Hispanic or Latino local police officers increased by 16%. Departments in larger jurisdictions were more diverse than those in smaller ones, but diversity has increased in all population categories since 1987. Nearly 1 in 4 local police officers worked for a department that required entry-level officers to have at least a 2-year college degree. A majority of departments serving 25,000 or more residents maintained problem-solving partnerships or agreements with local organizations. Most departments with 100 or more officers had full-time specialized units to address child abuse, juvenile crime, gangs, and domestic violence. As of January 1, 2013, the more than 12,000 local police departments in the United States employed an estimated 605,000 persons on a full-time basis (figure 1). This total included about 477,000 sworn officers (those with general arrest powers) and about 128,000 nonsworn employees. Since 1987, the number of full-time local police employees has increased by about 156,000 (up 35%). The increase includes about 122,000 (up 34%) more local police officers. Findings are based on the 2013 Law Enforcement Management and Administrative Statistics (LEMAS) Survey sponsored by the Bureau of Justice Statistics (BJS). The LEMAS Survey, conducted periodically since 1987, collects data on a range of topics from a nationally representative sample of state and local law enforcement agencies. Prior to the 2013 survey, the most recent LEMAS Survey was conducted in 2007. This report uses selected variables from the 2013 LEMAS data to describe the personnel, policies, and practices of local police departments. Comparisons are made with prior years where appropriate and when data are available. To facilitate the comparison of police departments with others serving similarly sized jurisdictions, the statistics in this report are presented mainly by categories of population served. Because most departments employ small numbers of officers and serve small populations, overall agency-based percentages tend to reflect smaller departments more than larger ones. To adjust for this effect, the text and selected figures present additional overall percentages weighted by the number of officers employed. About two-thirds of state and local law enforcement officers worked for local police departments In 2013, the 605,000 local police employees nationwide represented a majority (58%) of the full-time personnel working for general purpose state and local law enforcement agencies (table 1). The 477,000 full-time local police officers nationwide accounted for about two-thirds (66%) of all state and local officers working for general purpose agencies. About 68% of local police officers were assigned to patrol operations, and about 16% worked in the investigations area. The 128,000 full-time nonsworn (or civilian) personnel in local police departments accounted for 21% of all full-time employees. Nearly all departments with 100 or more officers (99.6%) reported that their nonsworn employees performed administrative support functions. A majority of these departments also reported that their nonsworn employees performed duties related to research and statistics (81% of departments), accounting (79%), dispatch (72%), information technology (57%), forensics (56%), and human resources (54%) (not shown). In addition to full-time employees, local police departments employed about 57,000 persons on a part-time basis. While more than three-quarters (79%) of full-time local police employees were sworn officers, less than half (47%) of part-time employees were sworn. About a third (32%) of local police departments also used unpaid reserve (or auxiliary) officers as needed (appendix table 1). Nationwide, there were more than 29,000 local police reserve or auxiliary officers. About half of local police departments employed fewer than 10 officers As in prior LEMAS Surveys, about half (48%) of local police departments employed the full-time equivalent of fewer than 10 officers in 2013 (table 2). Collectively, these departments employed about 4% of all full-time local police officers. In 1987, 53% of departments employed fewer than 10 officers. A total of 645 (5%) local police departments employed 100 or more officers in 2013. These departments employed 63% of all full-time officers. In 1987, 4% of departments employed 100 or more officers. The New York City Police Department (NYPD) remained the largest local police department in 2013, with 34,454 full-time officers. The NYPD was 1 of 43 local police departments that employed 1,000 or more full-time officers (appendix table 2). More than half of local police officers were employed in jurisdictions with 100,000 or more residents In 2013, 71% of departments served fewer than 10,000 residents (table 3). These 8,700 departments employed 13% of all full-time local police officers. About 3% (329) of departments served a resident population of 100,000 or more and employed 54% of all officers. Comparatively, about 8,800 (73%) local police departments served fewer than 10,000 residents and employed 14% of all officers in 1987. During the same year, 222 (2%) local police departments served a population of 100,000 or more and employed 49% of all officers. Municipal and township police departments employed an average of 2.1 officers per 1,000 residents Municipal and township police departments, which compose 98% of local police departments, employed an average of 2.1 full-time officers per 1,000 residents in 2013. This average was less than that observed in the 2007 (2.3 per 1,000) and 2003 (2.5 per 1,000) LEMAS Surveys. Departments serving 25,000 to 249,999 residents had the lowest average ratio in 2013 (about 1.7 per 1,000) (figure 2). In both 2007 and 2013, county police departments employed an average of 1.7 full-time officers for every 1,000 residents served. About 12% of local police officers were female In 2013, about 58,000 (12%) of the full-time sworn personnel in local police departments were female (table 4). From 2007 to 2013, female representation remained about the same (figure 3). In 1987, there were 27,000 females (8%) serving as local police officers. Since the inception of the LEMAS Survey in 1987, the employment of female officers has increased in all population categories, but larger jurisdictions have continued to employ females at a higher rate. In 2013, the percentage of female officers in jurisdictions with 250,000 or more residents (17%) was more than twice that in jurisdictions with fewer than 25,000 residents (7%). About 1 in 10 of first-line supervisors in local police departments were female For the first time in 2013, the LEMAS Survey collected data on the representation of females in supervisory and managerial positions. The percentage of females working in first-line supervisory positions (9.5%) was less than that among sworn personnel overall (12.2%). The percentage of female first-line supervisors was more than twice as high in departments serving 250,000 or more residents (15%), compared to departments serving fewer than 50,000 residents (6%) (figure 4). An estimated 3% of local police chiefs were female, including about 7% of the chiefs in jurisdictions with 250,000 or more residents. About 27% of local police officers were members of a racial or ethnic minority In 2013, more than a quarter (27%) of full-time local police officers were members of a racial or ethnic minority (table 5). About 130,000 minority local police were employed in 2013. The total represented an increase of about 11,000 (up 11%) since 2007, and an increase of about 78,000 (up 150%) since 1987. From 2007 to 2013, minority representation among local police officers increased from 25.3% to 27.3%. Minorities made up 14.6% of officers in 1987 (figure 5). About 58,000 black or African American officers were employed by local police departments in 2013. This was about 3,000 (up 5%) more than in 2007. From 2007 to 2013, the percentage of black officers remained at about 12%. About 9% of officers were black in 1987. About 55,000 Hispanic or Latino officers were employed by local police departments in 2013, which was about 8,000 (up 16%) more than in 2007. From 2007 to 2013, the percentage of Hispanic officers increased from 10.3% to 11.6%. In 1987, 4.5% of officers were Hispanic. In 2013, about 14,000 officers were members of other minority groups (Asian, Native Hawaiian, or other Pacific Islander; or American Indian or Alaska Native). These groups accounted for 3.0% of local police officers in 2013, about the same as in 2007 (2.7%) and about 4 times more than in 1987 (0.8%). Departments serving larger jurisdictions were more diverse than departments serving smaller jurisdictions Consistent with prior LEMAS Surveys, departments in larger jurisdictions were more diverse than those in smaller ones. In 2013, more than 2 in 5 officers in jurisdictions with 500,000 or more residents were members of a racial or ethnic minority, compared to fewer than 1 in 5 officers in jurisdictions with a population of less than 50,000. Since 1987, diversity has increased in all population categories. In 1987, about 6% to 7% of the officers in each population category below 50,000 were minorities. In 2013, the lowest percentage in population categories below 50,000 was 11% (2,500 to 9,999 residents). The inflation-adjusted average starting salary for entry-level local police officers in 2013 was unchanged from 2003 The overall average starting salary for entry-level local police officers in 2013 was $44,400, about the same as in 2003 after controlling for inflation (figure 6). This amount represented a 7% increase from 1993, when newly hired entry-level officers earned the 2013 equivalent of about $41,500. Salaries in departments serving 250,000 or more residents, where about 2 in 5 officers were employed, remained stable from 2003 to 2013. Salaries in departments serving fewer residents increased slightly during this period. In 2013, the average base starting salary for entry- level local police officers was at least $45,000 in all population categories of 25,000 or more (table 6). The average starting salary was highest in jurisdictions with 100,000 to 249,999 residents ($50,700) and lowest in jurisdictions with fewer than 2,500 residents ($30,900). The base starting salary for first-line supervisors averaged more than $70,000 in jurisdictions with 50,000 or more residents, compared to less than $40,000 in the smallest jurisdictions. Salaries for local police chiefs started at an average of $161,500 in the largest jurisdictions, compared to $45,000 in the smallest. These salary comparisons do not take into account variations in cost of living. Starting salaries for officers were about 19% higher in departments with a collective bargaining agreement for sworn personnel, compared to departments without a collective bargaining agreement. In 2013, a majority of the local police departments serving a population of 10,000 or more residents had an active collective bargaining agreement (appendix table 3). In some departments, officer salaries could be supplemented by certain types of special pay related to educational achievement, special skills, special duty assignments, and other circumstances (appendix table 4). Overtime compensation was available to sworn personnel in 90% of local police departments, employing 99% of all officers. Nearly all officers worked for a department in which they could be compensated for overtime work related to extended shifts, investigations, emergency response, court testimony, special events, or increased patrol. About a third (34%) of departments placed a limit on the amount of overtime an officer could earn (not shown). An estimated 81% of local police departments, employing 94% of all officers, offered sworn personnel a defined benefits (pension) plan. Nearly half (47%) of departments, employing about two-thirds (68%) of officers, offered a defined contributions plan, such as a 401(k) (not shown). Overall, the operating costs for local police departments in 2013 were about $131,000 per sworn officer, $102,000 per employee, and $279 per resident. Operating costs per resident ranged from about $230 in the smallest jurisdictions to nearly $400 in the largest (appendix table 5). Previous LEMAS Surveys have shown that personnel costs, including salaries and benefits, are typically 80% to 90% of a department’s operating expenditures. Nearly 1 in 4 local police officers worked for a department that required entry-level officers to have a 2-year college degree In 2013, the percentage of local police officers employed by a department with a college requirement for new officers (32%) was similar to that reported in 2003 (34%), and about twice as high as in 1993 (16%) (figure 7). In 2013, about 23% of officers were employed by a department that required new entry-level officers to have a 2-year degree, compared to 7% in 2003. In 2013, all local police departments serving a population of 100,000 or more, and nearly all departments in smaller jurisdictions, had a minimum education requirement for new officers (table 7). The most common requirement (84% of departments) was a high school diploma. An estimated 15% of departments had some type of college requirement, including 10% that required a 2-year degree and 1% that required a 4-year degree. An estimated 54% of departments with a degree requirement considered military service as an alternative (not shown). Departments serving a population of 1 million or more (29%) were most likely to require a degree. In smaller population categories, the percentage of departments with a degree requirement ranged from 9% in jurisdictions with fewer than 2,500 residents to 20% in jurisdictions with 25,000 to 49,999 residents. Local police departments were more likely to have a mission statement that included a community policing component in 2013 than in 2003 In 1997, the LEMAS Survey began tracking community policing personnel, activities, and policies in response to Department of Justice (DOJ) funding programs that were impacting local law enforcement agencies. DOJ’s Office of Community Oriented Policing Services (COPS) defines three major components of community policing: (1) collaborative police-community partnerships; (2) support from agency management, structure, personnel, and information systems; and (3) a problem-solving process that develops and rigorously evaluates effective responses. (For more information on community policing, see the COPS website at http://www.cops.usdoj.gov.) In 2013, about 7 in 10 local police departments, including about 9 in 10 departments serving a population of 25,000 or more, had a mission statement that included a community policing component (table 8). Departments with a community policing component employed 88% of all local police officers in 2013. Since 2003, significant increases in the percentage of departments with a community policing component occurred in all population categories (figure 8). The largest increase was among departments serving fewer than 10,000 residents, from 39% in 2003 to 61% in 2013. Large increases were also observed in other population categories. A majority of the local police departments serving 25,000 or more residents reported that they had one or more problem-solving partnerships or agreements with local organizations in their community in 2013. Departments serving a population of 1 million or more (86%) were the most likely to have a problem-solving partnership. Overall, departments with a problem-solving partnership employed 63% of all local police officers. The 2003 LEMAS Survey found these partnerships and agreements were typically with other law enforcement agencies, school groups, neighborhood associations, local public agencies, business groups, advocacy groups, youth service organizations, senior citizen groups, or faith-based organizations. Most departments serving 50,000 or more residents encouraged officer involvement in problem-solving projects Most departments serving 25,000 or more residents, including more than 90% of those serving a population of 100,000 or more, used geographic beat assignments for patrol officers (table 9). A majority of the departments serving 50,000 or more residents actively encouraged patrol officer involvement in problem-solving projects, and most departments serving 100,000 or more residents included such projects in the officer’s performance evaluation. Overall, about 4 in 5 (79%) local police officers were employed by a department that used geographic patrol beats. About half (51%) were employed by a department that actively encouraged patrol officer involvement in problem-solving projects. A majority of the departments serving 10,000 or more residents trained all new recruits for 8 hours or more in community policing skills, such as problem-solving and developing community partnerships. About half of the departments serving a population of less than 10,000 provided such training to at least some recruits. A majority of the departments in all population categories provided community policing training to in-service officers (appendix table 6). A majority of larger departments had full-time specialized units to address child abuse, juvenile crime, gangs, and domestic violence Many local police departments had personnel designated to address crime-related problems and tasks in their community. In some instances, these issues were addressed by a specialized unit with full-time personnel. Larger departments were more likely than smaller ones to have the personnel and budgetary resources necessary to operate such units. In 2013, about 9 in 10 local police departments employing 100 officers or more had personnel designated (whether part of a specialized unit or not) to address child abuse (90%), and about 8 in 10 had personnel designated to address gangs (83%), juvenile crime (82%), and domestic violence (81%) (table 10). A majority of these larger departments had full-time specialized units to address child abuse (62%), juvenile crime (58%), gangs (55%), and domestic violence (54%). A majority of local police departments with 100 or more officers also had designated personnel to perform special operational tasks related to tactical operations (95%), terrorism or homeland security (71%), and fugitives or warrants (68%) (appendix table 7). Compared to 2003, the greatest increases in larger local police departments with designated personnel were for impaired driving (from 56% in 2003 to 75% in 2013), cybercrime (from 59% to 76%), and gangs (from 68% to 83%) (figure 9). For full-time specialized units, the greatest increases also occurred for impaired driving (from 28% in 2003 to 39% in 2013), cybercrime (from 25% to 39%), and gangs (from 42% to 55%). Nearly all departments serving a population of 100,000 or more were participating in a drug task force Many local police departments reported participating in one or more multiagency task forces. These task forces allow agencies from various jurisdictions and governmental levels to pool their resources to address complex problems, such as drug trafficking, gangs, and human trafficking. In 2013, about half of departments were participating in a multiagency drug task force, including more than 9 in 10 departments serving a population of 100,000 or more (table 11). About 8 in 10 departments serving 25,000 to 99,999 residents and 7 in 10 departments serving 10,000 to 24,999 residents were participating in a drug task force. Overall, 13% of departments were participating in a gang task force, including a majority of the departments serving 100,000 or more residents. An estimated 4% of all departments were participating in a human trafficking task force, including a majority of those serving 250,000 or more residents. METHODOLOGY Survey overview The LEMAS Survey periodically collects data from more than 3,000 general purpose law enforcement agencies, including state police and highway patrol agencies, local police departments, and sheriffs’ offices. The survey includes all agencies that employ 100 or more sworn officers and a nationally representative sample of smaller agencies. Previous LEMAS data collections occurred in 1987, 1990, 1993, 1997, 2000, 2003, and 2007. A limited data collection that focused on community policing was conducted in 1999. These past surveys obtained data on functions performed, operating expenditures, job functions of sworn and nonsworn employees, officer salaries and special pay, demographic characteristics of officers, education and training requirements, types of weapons authorized, body armor policies, computers and information systems, types of vehicles operated, the use of special units, task force participation, and community policing activities. Survey questions are updated with each iteration to reflect emerging issues in the field of law enforcement. Publications based on prior LEMAS Surveys can be accessed on the BJS website. Sampling frame The sampling frame used for the 2013 LEMAS Survey was the 2008 BJS Census of State and Local Law Enforcement Agencies (CSLLEA) (the most recent available). At the time of the 2008 CSLLEA, nearly all of the more than 12,000 police departments were operated at the sub- county level by individual municipal (85%) or township (13%) governments. The remainder were operated by tribal governments, multiple local governments (regional or joint departments), or county governments. The agency universe represented by the CSLLEA is more inclusive than that of the FBI’s Uniform Crime Reporting (UCR) program. Some agencies are excluded from the UCR counts because they do not have an Originating Agency Identifier (ORI) assigned by the FBI. (Some agencies without an ORI are still included in the UCR employee counts (but not in the agency counts) because they report their data to another agency, which reports it to the FBI.) The CSLLEA data include all officers with full arrest powers regardless of function, while the UCR data exclude officers not paid out of police funds. This exclusion generally pertains to officers working exclusively for jails or courts. The CSLLEA definition excludes many of these officers, but not all of them. The UCR program defines law enforcement officers as individuals who ordinarily carry a firearm and a badge, have full arrest powers, and are paid from governmental funds set aside specifically for sworn law enforcement representatives. The CSLLEA definition relies exclusively on whether the officer possesses full arrest powers. Regardless of the arrest powers of their officers, agencies included in the CSLLEA that do not have a primary jurisdictional area for which they provide law enforcement services are considered out of scope for the LEMAS Survey because of its policing focus. In 2008, the CSLLEA counted 765,246 full-time sworn officers, which was about 57,000 (or 8%) more than the 708,569 reported by the UCR. A similar difference was observed for the 2004 and 2000 CSLLEA collections. Although the CSLLEA counts are larger than those of the UCR, the employment growth trends recorded by the CSLLEA over time have been consistent with those recorded by the UCR. Sample design and selection Local police departments and sheriffs’ offices are chosen for the LEMAS Survey using a stratified sample design based on number of sworn personnel. The original 2013 LEMAS sample included 3,336 state and local law enforcement agencies. It was designed to be representative of all general purpose state and local law enforcement agencies in the United States, with separate samples drawn of local police departments and sheriffs’ offices. All 50 primary state law enforcement agencies (state police and highway patrol) were included. Agencies serving special jurisdictions (such as schools, airports, or parks), or with special enforcement responsibilities (such as conservation laws or alcohol laws), were considered out of scope for the survey. The 2013 LEMAS sample design called for 2,353 local police departments, divided into 7 strata based on number of sworn officers employed, to receive the survey. During the initial contact phase, it was determined that 26 of these departments had closed since the 2008 CSLLEA and were dropped from the sample. Of the remaining 2,327 departments, the sample design called for all 659 departments employing 100 or more full-time sworn personnel to be self-representing (SR) and receive the survey. It was later determined that 29 of these SR departments did not receive the survey because of inaccurate contact information. As a result, the base weight for SR departments is 1.046 instead of the expected 1.000. The 6 remaining strata and their corresponding base weights are 50 to 99 officers, 2.572; 25 to 49 officers, 4.225; 10 to 24 officers, 6.260; 5 to 9 officers, 7.288; 2 to 4 officers, 14.611, and 1 officer, 31.302. Agency response rate Of the 2,327 eligible local police departments that received the survey, 2,059 completed it, for a response rate of 88%. By size, the response rate ranged from 91% for agencies with 50 or more officers to 84% for those with fewer than 10 officers. An adjustment factor unique to each stratum was used to account for nonresponse. These nonresponse adjustments and the resulting final analytical weights for each stratum are included in appendix table 8. Item nonresponse and imputations All departments, regardless of size, were asked to complete the 80-item CJ-44 Survey questionnaire. A majority of the responses were received electronically through a survey website. For the 2,059 departments completing the survey, item nonresponse rates due to omission or invalid data were low for the data elements used in this report (appendix table 9). When a department did not supply a response to a numerical item, a ratio imputation method was used. The ratio imputation used the value of the ratio of the numerical variable to the number of full-time sworn personnel for departments that provided the numerical data. This ratio was computed for each population category and applied to the number of full-time sworn personnel in departments with the missing data to produce the imputed value. Imputations were not used for categorical variables. Accuracy of the estimates The accuracy of the estimates presented in this report depends on two types of error: sampling and nonsampling. Sampling error is the variation that may occur by chance because a sample was used rather than a complete enumeration of the population. Nonsampling error can be attributed to many sources such as the inability to obtain information about all cases in the sample, inability to obtain complete and correct information from the administrative records, and processing errors. In any survey, the full extent of the nonsampling error is never known. The sampling error, as measured by an estimated standard error, varies by the size of the estimate and the size of the base population. Because the LEMAS data were collected from a sample, the results are subject to sampling error. Variance and standard error estimates for the 2013 LEMAS were generated using the SUDAAN® statistical software package. The Taylor linearization method for a “stratified without replacement” design was used for these calculations. See appendix tables 10 through 29 for the standard error estimates. These standard error estimates may be used to construct confidence intervals around percentages in this report. For example, the 95%-confidence interval around the percentage of local police departments with a mission statement that includes a community policing component is 68% ± 1.96 × 1.5% (or approximately 65% to 71%). These standard errors may also be used to test the significance of the difference between two sample statistics by pooling the standard errors of the two sample estimates. For example, the standard error of the difference between departments serving fewer than 2,500 residents and those serving 2,500 to 9,999 residents for participation in a drug task force would be 3.9% (or the square root of the sum of the squared standard errors for each group). The 95%-confidence interval around the difference would be 1.96 × 3.9% (or 7.7%). Since the observed difference of 16% (47% minus 31%) is greater than 7.7%, the difference would be considered statistically significant. Standard error estimates may also be used to construct confidence intervals around numeric variables such as personnel counts. For example, the 95%-confidence interval around the number of full-time sworn personnel is approximately 477,317 ± (1.96 × 16,470), or 445,036 to 509,958. Dollar amounts adjusted for inflation For the salary comparisons presented in figure 6, the salary data for the prior survey years of 1993 and 2003 were converted to 2013 dollars. This conversion was accomplished using Consumer Price Index data published by the Bureau of Labor Statistics available at www.bls.gov/inflation_calculator.htm. ************************************************ The Bureau of Justice Statistics of the U.S. Department of Justice is the principal federal agency responsible for measuring crime, criminal victimization, criminal offenders, victims of crime, correlates of crime, and the operation of criminal and civil justice systems at the federal, state, tribal, and local levels. BJS collects, analyzes, and disseminates reliable and valid statistics on crime and justice systems in the United States, supports improvements to state and local criminal justice information systems, and participates with national and international organizations to develop and recommend national standards for justice statistics. William J. Sabol is director. This report was written by Brian A. Reaves. Andrea M. Burch verified the report. Data were collected and processed by the Urban Institute. Irene Cooperman, Jill Thomas, and Lynne McConnell edited the report, and Barbara Quinn produced the report. May 2015, NCJ 248677 ************************************************ Office of Justice Programs Innovation * Partnerships * Safer Neighborhoods www.ojp.usdoj.gov ************************************************ ************************ 5/13/PMF/12:00pm ************************