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    {       U  E    U  E   ZRp'j?0*:i +00             U     2 2  'A   `   " M S   S a n s   S e r i f         
    !     _        JUSTICEEXPENDITUREANDEMPLOYMENTSERIES(_        CJEE_        )METHODOLOGYANDDEFINITIONSI.Historicaloverviewofthe_        BJS_        ԀJusticeExpenditureandEmploymentSeriesII.Comparabilityissuesbetweenthe_        CJEE_        ԀSurveyandthe_        CJEE_        ԀExtractsprogramsIII._        CJEE_        ԀExtractsmethodologyIV._        CJEE_        ԀExtractsdefinitionsoftermsandconceptsI.HISTORICALOVERVIEWOFTHE_        BJS_        Ԁ̀JUSTICEEXPENDITUREANDEMPLOYMENTSERIES̀̀TheBureauofJusticeStatistics(_        BJS_        )beganthecollectionof̀justiceexpenditureandemploymentdatawithfiscal1971,using̀aspecialsampledrawnbytheU.S.BureauoftheCensus̀especiallyforthispurpose.TheannualSurveyofCriminal̀JusticeExpenditureandEmployment(_        CJEE_        ԀSurvey)provided̀comparabletrenddatafrom1971to1979.Thatsurveywasthèsourceofdetailed,comprehensivestatisticsonthejusticèactivitiesoftheFederal,State,andlocalgovernments.Each̀annualsurveyresultedinapreliminaryreportor_        BJS_        ԀBulletin,̀apublicationofdetailedtabulationsofnationaland̀State-localestimatesaswellasindividualgovernmentdata,àvolumedisplayingtrendssince1971,andadditionaldatàaccessibleonmagnetictape.̀̀In1980,_        BJS_        Ԁdiscontinuedthe_        CJEE_        ԀSurveyforbudgetaryreasons̀followingthecollectionof1979data.Thecancellationofthè_        CJEE_        ԀSurveyleftagapinnationalcriminaljusticestatistics,̀whichthe_        CJEE_        ԀExtractsseriesisdesignedtofill,albeitonàlimitedbasis.Insteadofpresentingdatabasedonaseparatèsurvey,the_        CJEE_        ԀExtractscontainsjusticeexpenditureand̀employmentdatafromtheCensusBureau'sannualsurveys̀ofgovernmentfinancesandpublicemployment.̀̀ThoseCensusBureausurveyshavetraditionallyprovidedlimited̀dataonthejusticesectorsofpoliceprotection(from1902)̀andcorrections(from1954),withslightlymoredatabeing̀collectedforStategovernmentsandthelargestlocal̀governments.Beginningwith1982thesesurveysbegan   	 @-(,   Ѐcollecting"judicialandlegalservices"dataasaseparatècategory,allowingestimationoftotaljusticeexpenditureand̀employmentfromtheCensusBureausurveys,whichisdonebythè_        CJEE_        ԀExtractsprogram.Thisisdoneby"extracting"criminal̀justicedatafromtheCensusBureau'sannualgovernmentfinancèandemploymentsurveys;hencethenameoftheseries,_        CJEE_        ԀExtracts.̀̀Special_        CJEE_        ԀSurveyscollected1985,1988,and1990_        CJEE_        ԀSurveỳdatathatarecomparabletodatafor1971to1979.Thecurrent̀Extractsmethodologyproducesconsiderablylessdetailed̀informationthanisavailablefromthosespecial_        CJEE_        ԀSurveys.̀Anothersignificantdifference,whichisnotasnoticeable,̀relatestothecomparabilityofthe_        CJEE_        ԀExtractsvariablestòthevariablesinthose_        CJEE_        ԀSurveys.Inmanyinstances,̀variablesbythesamenamearenotcomparablebetweenthetwòprograms.Whilegreatcarewastakentoadjustthesourcedatàtomaximizecomparabilitywiththe_        CJEE_        ԀSurveydata,̀irreducibledifferencesremain.Thesearedetailediǹthefollowingsectionofthisfile("Comparabilityissuesbetweenthe_        CJEE_        ԀSurveyandthe_        CJEE_        ԀExtractsprograms").̀̀Inmakingtrendcomparisons,usersshouldlimittheiranalysis̀tooneofthetwosources:̀--long-termtrendsfor1971-79,1985,1988,and1990fromthè_        CJEE_        ԀSurveyseries̀--morerecenttrendsfrom1980usingthe_        CJEE_        ԀExtractsdata.̀̀Only_        CJEE_        ԀExtractsdataareavailablefromthe_        BJS_        Ԁ_        website_        ;̀_        CJEE_        ԀSurveydataareavailableonlyin_        hardcopy_        Ԁorondatàtape.̀II.COMPARABILITYISSUESBETWEENTHE_        CJEE_        ԀSURVEYANDTHE_        CJEE_        Ԁ_        EXTRACTS_        ԀPROGRAMSInlate1980theannualSurveyofCriminalJusticeExpenditureandEmployment(_        CJEE_        ԀSurvey)wascanceledforbudgetaryreasons.Beginningin1980_        BJS_        Ԁbegan"extracting"justicedatafromtheon-goingCensusBureausurveysandpublishingthemintheJusticeExpenditureandEmployment_        CJEE_        ԀExtractsseries,whichistheonlysourcethatsumsthethreecategoriesofpoliceprotection,judicialandlegalservices,andcorrections,anddisplaysthemtogether.TheCensusBureausurveyshavetraditionallyprovidedlimiteddataonthejusticeactivitiesofpoliceprotection(since1902)and   	 @-(,   corrections(since1954),withslightlymoredatabeingcollectedforStategovernmentsandthelargestlocalgovernments.Beginningwith1982thesesurveysbegancollecting"judicialandlegalservices"dataasaseparatecategory,allowingestimationoftotaljusticeexpenditureandemploymentfromtheCensusBureausurveys.Adoptinganalternatestatisticalsourcenecessarilyresultsindifferencesbetweenthe_        CJEE_        ԀSurveyandthe_        CJEE_        ԀExtractsdata.Thesecanbeclassifiedintofivebroadgroups:--differencesincoverage--differencesindetail--differencesinsampledesign--differencesinsurveyprocedures--differencesinoperationaldefinitions.Thesedifferencesaredescribedbelow.DIFFERENCESINCOVERAGEFederalGovernment.Forthe_        CJEE_        ԀExtractsseries,onlylimiteddataareavailableonthejusticeactivitiesoftheFederalGovernment--majortotalsforpoliceprotection,judicialandlegal,andcorrectionsfromtheBudgetoftheUnitedStatesGovernmentandtheU.S.OfficeofPersonnelManagement.For1971-79the_        CJEE_        ԀSurveycollectedFederaldatathroughamailcanvassthatallowedtheinclusionofsomeagencies'datanotavailableseparatelythroughthesourcedocumentsusedforthe_        CJEE_        ԀExtractsseries.Stategovernments.ForStategovernments,_        CJEE_        ԀExtractsdataarenotavailableontheactivitiesofuniversities,includingcampuspolice(seethe_        BJS_        Ԁpublication CampusLawEnforcementAgencies,1995")anduniversity-basedmedicalexaminersandlegalaidclinics.NojusticedataarereportedontheCommonwealthofPuertoRico,lastpublishedinthe1978_        CJEE_        ԀSurveyreport.Localgovernments.Justiceexpenditureandemploymentdatawereavailablefromthe1971-79annual_        CJEE_        Ԁsurveysforconsiderablymoreindividuallocaljurisdictionsthanfromthe_        CJEE_        ԀExtractsseries,orfromtheperiodic1985,1988,and1990_        CJEE_        Ԁsurveys.Whereas,by1979datawerepublishedfor349largecountiesand415largecities(andavailableonmagnetictapesforallcountiesregardlessofsizeandforallcitiesover10,000population),the_        CJEE_        ԀExtractsproductspresentdataforonly68   	 @-(,   largecountygovernmentsand49largecitygovernments.Dataforabout800localjurisdictionsisavailableontherawdatafiles.DIFFERENCESINDETAILThe_        CJEE_        Ԁsurveyscollecteddataseparatelyforcourts,prosecutionandlegalservices,andpublicdefense,whichinthe_        CJEE_        ԀExtractsseriesarecombinedinasinglecategoryof"judicialandlegalservices.The_        CJEE_        Ԁsurveysfurtherseparatedcourtdataintovarying_        subfunctional_        Ԁcategoriesdependingonthelevelandsizeofgovernment.Nocourt_        subfunctional_        Ԁdataareavailableinthe_        CJEE_        ԀExtractsseries.The_        CJEE_        ԀSurvey_        subfunctions_        Ԁofcourtsare:Stategovernments:̀Appellatecourts̀Courtsoflastresort̀Intermediateappellatecourts̀CourtsofgeneraljurisdictioǹCourtsoflimitedjurisdictioǹMiscellaneousLargecountygovernments:̀CourtsofgeneraljurisdictioǹCourtsoflimitedjurisdictioǹMiscellaneous.The_        CJEE_        ԀSurveyprogramalsopresentedmore_        subfunctional_        Ԁdetailforcorrections.Inthe_        CJEE_        ԀExtractstheonly_        subfunctional_        ԀdetailisforStategovernmentcorrectionalexpenditureforinstitutionsversusallothercorrections.The_        CJEE_        ԀSurveycorrections_        subfunctions_        Ԁare:Stategovernments:̀Institutionsfor̀MeǹWomeǹJuveniles̀Other/combined̀CorrectionsadministratioǹProbationandparolèMiscellaneousLargecountygovernments:̀Institutionsfor̀Juveniles̀Other/combined   	 @-(,   ЀProbationandparolèMiscellaneousLargecitygovernments:̀Institutions̀ProbationandparolèMiscellaneous.The_        CJEE_        ԀSurveyprogramincludedaresidual"other"categorynotavailableinthe_        CJEE_        ԀExtractsseries.Thiscategoryincludesexpenditureandemploymentdatathatarenotelsewhereclassified,thatcutacrossmorethanonecategory,orthatwerenotallocabletoseparatecategories,suchasoperatingStatecriminaljusticeplanningagenciesandcrimecommissions.MuchofthedataincludedinthiscategoryreflectedblockgrantsfromtheFederalgovernment.Inthe1990_        CJEE_        Ԁsurvey,thiscategoryaccountedfor1.3%oftotaljusticeexpenditureandlessthan0.5%ofemploymentandpayroll.Inthe_        CJEE_        ԀExtractsseries,activitiesincludedinthe_        CJEE_        ԀSurvey"other"categoryareclassifiedunderoneofthethreemajorcategorieswhereverpossible.The_        CJEE_        Ԁsurveypublicationsdisplayexpenditurecategoriesmoredetailedthanthoseinthe_        CJEE_        ԀExtractsproducts:--Capitaloutlaysaresubdividedintoequipment,construction,andpurchaseoflandandexistingstructuresinthe_        CJEE_        ԀSurvey.Thesebreakdownsarenotavailablefromthe_        CJEE_        ԀExtractsexceptforconstructionoutlaysforcorrectionalactivitiesoftheStateandlargelocalgovernments,andthere"equipment"and"purchaseoflandandexistingstructures"arecombinedinan"other"category.--IntergovernmentalexpendituresaredividedintopaymentstoStategovernmentsandtolocalgovernmentsinthe_        CJEE_        ԀSurvey,whicharecombinedinthispublication.DIFFERENCESINSAMPLEDESIGNUnlikethe_        CJEE_        ԀSurvey,thesamplethatisused(foryearsinwhichacensusisnotconducted)toproducethe_        CJEE_        ԀExtractsestimatesofjusticeexpenditureandemploymentdatawasnotdesignedspecificallytoprovidedataonanyparticularfunction(s).The_        CJEE_        Ԁsurveysampleswerelargerthanthesamplesusuallyusedinthe_        CJEE_        ԀExtractsprogram.Approximately12,000generalpurposelocalgovernmentscomprisedthe_        CJEE_        ԀSurveysamples,whiletheregularsampleusedfortheCensusBureau's1992governmentfinanceand   	 @-(,   employmentsurveyshadabout10,000counties,cities,andtownships.Subsequentsamplecutsreducedthesamplesizefurtherinthe1990s.In1997,theExtractsweredrawnfromaCensusofgovernments.DIFFERENCESINSURVEYPROCEDURESNofieldvisitstoStateandlocalgovernmentsweremadespecificallyforthe_        CJEE_        ԀExtracts.Inthe_        CJEE_        ԀsurveysspeciallytrainedfieldrepresentativesvisitedeveryStategovernment,thelargestcounties,andthelargestmunicipalitiestocompilejusticedatafromthegovernments'ownrecords.Noseparatemailcanvassformswereusedforthe_        CJEE_        ԀExtracts.Each_        CJEE_        ԀSurveyhaditsowncomplementofquestionnaires.TheCensusBureau'sregularsurveysexpendlessefforttoallocatedatathanthe_        CJEE_        ԀSurvey.The_        CJEE_        ԀSurveyoftenreliedonproratingtheexpenditureandemploymentofagenciesoractivitiesamongjusticeactivities(forexample,sheriffofficeswhichoftenhavepolice,judicial,andcorrectionsfunctions)orbetweenin-scopeandout-of-scopeactivities(forexample,specialpoliceforcesof_        nonjustice_        Ԁagencies).Incaseswheretheregularsurveysdoallocatedata,theallocationfactorsmaynotbeidenticaltothoseusedin_        CJEE_        ԀSurvey.Theregularsurveysfocusmoreonthegovernmentalfunctionthanontheagencyinvolved.Forinstance,expendituremaybeclassifiedbyfunction(forexample,generalcontrol)ratherthanbyagency(forexample,districtattorney,formerlyclassifiedasageneralcontrolactivity).Inthe_        CJEE_        ԀSurveysCensusBureaufieldrepresentativesweretrainedtoallocatethatportionofgeneralgovernmentservices(forexample,buildingmaintenance,computerservices,andcommunications)attributabletojusticeactivities.IntheCensusBureau'sregularfinanceandemploymentsurveys,theseitemsaremorelikelytobeaggregatedintomiscellaneouscategories.TheCensusBureau'spublicemploymentsurveyisconductedmainlybymailcanvass,includingStategovernmentsandlargelocalgovernmentswhosefinanceswerecompiledbyBureaustaffinboththefinanceand_        CJEE_        ԀSurveys.(SomeStategovernmentsprovidespecialemploymenttabulationsfortheiragenciesfromwhichthenecessarydataareextractedbyCensusBureaustaff.)   	 @-(,   ЇComparedtoindividualcompilation,themailcanvassapproachhassomelimitations:--itlimitstheamountofinstructionsthatcanbeprovided.--respondentsarelesslikelytoseparatepoliceprotectionemploymentbetweenswornand_        nonsworn_        Ԁpersonnel.--juveniledetentionfacilitiesarelesslikelytoberecordedinthecorrectionssector,whilecourt-operatedprobationmaybeleftinthejudicialandlegalsector.Someoftheseproblemshaveabatedsincethe1980-81financeandemploymentsurveysbychangesinthesurveyinstrumentsandreviewprocedures.DIFFERENCESINOPERATIONALDEFINITIONSAlthoughthe_        CJEE_        ԀSurveydefinitionsarebasedlargelyonthoseusedintheCensusBureau'sgovernmentalfinancesandemploymentstatisticsprograms,somesignificantdifferencesoccurinhowthedefinitionsareoperationallyappliedinthecollectionandclassificationofdatabetweenthe_        CJEE_        ԀSurveyand_        CJEE_        ԀExtracts.Inreviewingthesedifferencesonemustbearinmindthepurposeofeachsource.Thefunctionalapproachofthe_        CJEE_        ԀSurveycenteredonanarrowrangeofjustaportionoftheactivitiesofthiscountry'sgovernments.Incontrast,theCensusBureau'sgovernmentalstatisticsprogram(whichproducesthe_        CJEE_        ԀExtractsdata)isdesignedtoproducegeneralpurpose,"global"statisticsonthefinances(includingrevenue,expenditure,indebtedness,andcashandsecurityholdings)andemploymentofallgovernments,classifiedalongbroadfunctionallines.Asdescribedlater,this"global"approachissometimesatoddswithafunctionalscope,suchasthe_        CJEE_        ԀSurvey's.Beforelistingthedifferencesinfunctionalcategories,certaingeneralstatementscanbemade.First,theregularCensusBureauprogramsoftenclassifytheentireexpenditureandemploymentofacriminaljusticeagencyoractivityaccordingtoitsmajorpurpose,whensomeoftheexpendituresandemploymentmaybepartiallyexcludedina_        CJEE_        ԀSurvey.Forinstance,theregularsurveysmayclassifyallofahighwaypatrolaspoliceprotection,fromwhich_        CJEE_        ԀSurveyexcludesexpendituresandemploymentrelatedtodriverlicensing.Second,andconversely,theregularprogramsgenerallydonotrequirethattheminorportionofanoncriminaljusticeagencyallocatedtoajusticesectorina_        CJEE_        ԀSurveybeseparatelyidentified,suchasparkrangersofaparksdepartmentoralawlibraryconnectedtoa   	 @-(,   largerfacility.Third,inthe_        CJEE_        ԀSurveyscertainactivitiesareclassifiedforjusticepurposesonlywhenperformedbyajusticeagency,suchaschildsupportenforcement.Classificationintheregularprogramsmaybemorevariable.Asseeninthetextthatfollows,thedifferencesbetweentheCensusBureau'sregularprogramsthatproducethe_        CJEE_        ԀExtractsdataandthe_        CJEE_        ԀSurveysresultinaneteffectonthedata,withsomedifferencesforcingthedatainonedirectionbeingoffsetbythosemovingthedataintheoppositedirection.Thefinaleffectdependsonsuchfactorsas:--theorganizationalstructureofagovernment(forexample,whethercourtclericaloperationsarehandledbythecourtitselforacountyclerk'soffice)--theassignmentofresponsibilityfor_        nonjustice_        Ԁactivities(forexample,whetherdriverlicensingisassignedtoapoliceormotorvehicledepartment)--Stateandlocallaws(forexample,whetherregularorspecialpolicehaveauthoritytomakearrestsonparkproperty)--thedetailavailableinfinancialrecords(forexample,whethercourtprobationexpendituresarelistedseparately)--thefiscalstructureofaState(forexample,whetherlocalemployeesbelongtoaState-orlocally-administeredretirementsystem).SomeofthedifferenceswerenarrowedduringtheintensereviewoftheStateandlargelocalgovernmentdataforthe_        CJEE_        Extracts.Also,theregularsurveyssince1980havereducedthedifferencesfurther(forexample,byrevisinginstructionsonsurveyforms),butthedifferenceswouldstillaffecttrendanalysesofthe_        CJEE_        ԀExtractsdata.Asaservicetousers,theeffectofeach_        definitional_        Ԁdifferenceisindicatedwithaplussign(+),anegativesign(-),orasterisk(*).Thesignindicatesthegeneraldirectiontowardwhichthedifferencetendstopushthedatain_        CJEE_        ԀExtracts;(+)meansthedifferencegenerallymakesthe_        CJEE_        ԀExtractsdatahigherthaninthe_        CJEE_        ԀSurvey;(-)meansthatitmakesthedatalower;and(*)indicatesthateithereffectislikelyornotapplicable.Forexample,exclusionofspecialpoliceforcesintheCensusBureau'sregularprograms'policeprotectioncategoryreceivesaminussign(-)becauseitresultsinthe_        CJEE_        ԀExtractsdatabeinglowercomparedtothe_        CJEE_        ԀSurveydefinition.Policeprotection   	 @-(,   Ї(+)TheregularCensusBureauprogramsincludeunswornschoolcrossingguards,parkingmeter-readers,andanimalwardensifemployedbyapoliceagency,whomthe_        CJEE_        ԀSurveyexcludedunlesstheypossessedgeneralarrestpowers.However,theexpenditureandfull-timeequivalentemploymentfortheseprobablyarenotsubstantial.(+)Theregularprogramsincludemotorvehicleinspectionanddriverlicensingactivitiesofpoliceagencies,whichwereexcludedfromthe_        CJEE_        ԀSurvey.Theeffectofthisdifferencewoulddependoneachgovernment's(primarilyState)divisionofresponsibilityforthoseactivities.(+)Thepoliceprotectiondefinitionintheregularsurveysincludes"trafficcontrolandtrafficsafetyincludingrelatedtrafficengineeringactivities(butnothighwayplanningandengineering),"whichwereoutsidethescopeofthe_        CJEE_        ԀSurvey.Theimpactofincludingtheseactivitieswouldvaryamonggovernments.(+)Intheregularemploymentmailsurvey,respondentsareinstructedtoincludeconstables,whichthe_        CJEE_        ԀSurveymayhaveclassifiedasjudicialemployeesinsomeStates.(+)Thejudicialemployeesofsheriffoffices(bailiffsandsoforth)werefrequentlyreportedunderpoliceprotectionintheregularemploymentsurveybecausethedataaregatheredentirelybymailsurveyandthegeneralquestionnairedidnotexplicitlystatetoreportthemelsewhere.(Beginningin1983thespecialsupplementformsenttosheriffofficesincertainStatesdidaskforamoredetailedbreakdown.)The_        CJEE_        ԀSurveyreportedthemunderthejudicialcategory.(-)Theregularsurveysgenerallydonotincludeas"police"thosespecialpoliceforcesthatareorganizationallypartofa_        nonjustice_        Ԁagency,althoughthecountiesandcitiesonthefinancesurveymailpanelwereinstructedtoincludethem.Thesewerepickedupinthe_        CJEE_        ԀSurveyiftheypossessedgeneralarrestpowers.Theeffectofthisdifferencewouldvaryaccordingtothegovernmentinvolved,beingonthewholegreaterforStategovernmentsthanforlocalities.(Theregularsurveyformswererevisedin1984toincludethesepoliceforces.)Judicialandlegalservices(+)Althoughnotstrictlyadifferenceindefinitions,theregularprograms'judicialdatamayincludeprobation(especiallyjuvenile)whenitisanunrecognizablepartofthecourtsinsourcedocumentsusedtocompilethedata.Again,thisappliespredominantlytothemailpanel.   	 @-(,   (+)Theregularprogram'sdefinitionofjudicialactivitiesincludes"registerofwillsandsimilarprobatefunctions,"whichmayhavebeenpartlyorentirelyexcludedbythe_        CJEE_        ԀSurveyprograminsomeStatesdependingonwhetheritwasacourtactivity(included)oranadministrativeactivity(excluded).(-)Theregularemploymentandfinanceprogramsgenerallywouldnotincludethejudicialactivitiesoflocalsheriffofficesinthejudicialcategoryunlesstherecordsusedseparatedoutthisactivity.(Thisappliesmostlytothesmallermailpanelunits.Beginningin1983thespecialsupplementfinanceformsenttosheriffofficesincertainStatesdidaskforamoredetailedbreakdown.)Inthe_        CJEE_        ԀSurveymucheffortwasmadetoallocatetheactivitiesofsheriffofficesamongthepoliceprotection,corrections,andjudicialcategories.Corrections(-)TheregularprogramsdonotincludeStatehospitalsforthecriminallyinsaneinthecorrectionscategoryunlessoperatedbyacorrectionalagency.Inthe_        CJEE_        ԀSurveythesewerecoveredevenifpartofamentalhealthagency.(-)Thescopeofcorrectionalfacilitiescoveredintheregularprogramsisnotasbroadasinthe_        CJEE_        ԀSurvey.The_        CJEE_        ԀSurveyincludedeverypublicinstitutionidentifiedbythebiennialCensusofJuvenileDetentionandCorrectionalFacilities.Thiscensuslistsafacilityifithadatleastonejuvenilewhowasacommittedordetaineddelinquentorstatusoffender,thebalanceofitspopulationconsistingofdependent,neglected,abused,emotionallydisturbed,ormentallyretardedjuveniles.Intheregularprograms,someofthesefacilitiesareclassifiedaswelfareinstitutions.(-)Untilfiscal1982thefinancesurveymailformsformunicipalitiesandtownswithlessthan300,000populationdidnotlistprobationandparoleundertheinstructionsforreportingcorrectionsexpenditure.Thisactivitycomprised14%ofallmunicipalcorrectionsoutlaysinfiscal1979(thelastyearthesedatawerecollectedseparatelyformunicipalities)andprobablyevenlessaproportionoftheexpenditureofsmallerplaces.(*)Theregularfinancesurveyincludesallthecostsofprisonindustriesotherthanthosegoodsandservicespurchasedbythegovernment.The_        CJEE_        ԀSurveyincludedonlythesupervisioncosts.Financecategories   	 @-(,   (*)Theregularfinancesurvey'sfunctionaldataincludeemployercontributionsforallemployeebenefitsexcepttoself-administeredretirementsystems,whichare,ineffect,_        interfund_        Ԁtransfers.(Stateandlocalgovernmentscontributed$22.8billiontoallsuchretirementplansinfiscal1994).Inthe_        CJEE_        ԀSurveyseries,paymentsforsuchfringebenefitsasemployercontributionstoretirementplansandforhealth,hospital,disability,andlifeinsuranceswereexcluded.ThisdifferenceprobablyaffectsthedataforStategovernmentslessthanlocalonesbecauseStatesadministeremployeeretirementsystemsaccountingforover85%ofthetotalmembershipinsuchplans(whichoftenincludelocalemployees).Thus,inboththe_        CJEE_        ԀSurveyandregularfinancesurveysthedataformostStatesexcludethesinglelargestemployeebenefit.Ontheotherhand,moremembersofpolicepensionfundsbelongtolocallyadministeredsystemsthantoStatesystems.(*)Inthe_        CJEE_        ԀSurvey,paymentsbyStates,counties,andmunicipalitiestoschooldistricts,specialdistricts,andtheFederalGovernmentweretreatedasdirectexpenditureratherthanintergovernmentalexpenditure.Complicatingthisdifferenceisthatintheregularfinanceprogramunusualorrarefinancialtransactionsaresometimestreatedas"impossiblecodes."Forinstance,paymentstotheFederalGovernmentforboardingStateprisonersfallunderanimpossiblecodecategoryandwouldbeclassifiedasamiscellaneousintergovernmentalexpenditure,notcorrections.Thenumberofsuchtransactionsinthejusticefield,however,isprobablyquitesmallandwasinvestigatedduringthespecialreviewprocedures,describedelsewhere.Forpurposesof_        CJEE_        ԀExtracts,paymentstotheFederalGovernmentforjusticeactivitiesareincludedwithdirectcurrentexpendituresforthatfunction(usuallycorrections).(*)Compilationoftheentirefinancesofagovernmentissometimesatoddswithastudyfocusingonspecificfunctionsoractivities.Forexample,a"global"compilationnecessarilydeductsinteragencyreimbursementsfromanexpendituretoavoidduplication.Toillustrate,expensesofacountycounselmaybeshowninfiscalreportsasbeingthenetofreimbursementsfromotheragenciesforwhomtheagencyprovideslegaladvice.ThisisalsoacommonoccurrencewithStatecorrectionalagencies(andnotlimitedtoprisonindustries).FortheStategovernmentsandlargecitiesandcountiesshownindividuallyin_        CJEE_        ԀExtractsproducts,aspecialeffortwasmadetoaddbackintheseinteragencyreimbursements.   	 @-(,   III._        CJEE_        ԀEXTRACTSMETHODOLOGYSAMPLEDESIGNThe_        CJEE_        ԀExtractsdataareassembledfromdatacollectedthroughtheU.S.BureauoftheCensus'annualsurveysofgovernmentfinancesandpublicemployment.Thelocalgovernmentsforthosesurveysaredrawnfromthe_        Quinquennial_        ԀCensusofGovernments,whichlastoccurredin1997.On_        intercensal_        Ԁyears(suchas1993,1994,1995,1996),samplesoflocalgovernmentsaredrawnbasedonthepreviousCensus.Thesamplesconsistofalllargelocalgeneralpurposegovernmentsaboveacertainpopulationthreshold(certaintyunits)plusasamplebelowthecertaintylevel.Thesamplesalsoincludecertainindependentschooldistrictsandspecialdistricts,forwhichjusticedataarenotcollected.Fordetailedinformationaboutthesampleforanygivenyear,contactaskbjs@ojp.usdoj.gov.THESURVEYPERIODTheFederalGovernmentexpendituredataareforthefiscalyear,whichendedonSeptember30oftheyearindicated;forexample,1997dataarefortheperiodOctober1,1996,toSeptember30,1997.TheStateexpendituredatapresentedcoverfiscalyearsendingJune30forallStatesexceptfourwhosefiscalyearsendedasfollows:NewYork,March31;Texas,August31;andAlabamaandMichigan,September30oftheyearindicated.Forlocalgovernments,thefiscalyearsreportedarethosethatclosedbetweenJuly1andJune30.MostmunicipalitiesandcountiesendtheirfiscalyearsonDecember31orJune30.Thus,somelocaljurisdictionsthatendedtheirfiscalyearonDecember1992areincludedinthe1993spreadsheets.ThefiscalyearsreportedforWashington,D.C.,endedonSeptember30,oftheyearindicated.Tables14and15indicatethemonththefiscalyearclosedforthelocalgovernments.Someagenciesoperateonadifferentfiscalyearbasisfromtherestoftheparentgovernment.Insuchinstances,figuresincludedarefortheagency'sfiscalyearthatendedwithintheparentgovernment'sregularfiscalyear.TheemploymentdataareforOctoberoftheyearindicatedifpriorto1997;in1997thereferencemonthchangedtoMarch.   	 @-(,   ЇDATACOLLECTIONThe_        CJEE_        ԀExtractsdataarefromaspecialcompilationofdataandsourcesavailablefromtheCensusBureau'sregularsurveysofgovernmentfinancesandpublicemployment.Therecurrentsurveyofgovernmentfinancesandpublicemploymentprovidedataonexpenditureandemployment,byfunctionoftheFederal,State,andlocalgovernments(counties,cities,townships,independentschooldistricts,andspecialdistricts).Thedatacollectionproceduresofthesesurveysfortheexpenditureandemploymentdataaredescribedbelow.AnnualGovernmentFinancesSurvey:FederalGovernmentfinancialdatawereobtainedfromactualdatapresentedinTheBudgetoftheUnitedStatesGovernmentforeachfiscalyeardisplayed.CertainadjustmentsweremadeinFederaldatatoarriveatCensusBureau"expenditure"amounts.StatefinancestatisticsaswellasthoseforlargecountiesandcitieswerecompiledbyCensusBureaurepresentativesfromofficialreportsandrecords,withtheadviceofStateandlocalofficersandemployees.Thedatawerecompiledfromstategovernmentaudits,budgets,andotherfinancialreports,eitherinprintedorelectronicformat.ThecompilationgenerallyinvolvedrecastingthestatefinancialrecordsintotheclassificationcategoriesusedforreportingbytheCensusBureauTheinitiallocalgovernmentdatacollectionphaseusedtwomethodstoobtaindata:mailcanvassandcentralcollectionfromStatesources.Inabout30states,allorpartofthedataforlocalgovernmentswasobtainedfromcooperativearrangementsbetweentheCensusBureauandaStategovernmentagency.Theseusuallyinvolvedadatacollectioneffortcarriedouttomeettheneedsofbothagencies--theStateagencyforpurposesofaudit,oversight,orinformation,andtheCensusBureauforstatisticalpurposes.Dataforthebalanceoflocalgovernmentsintheannualsurveyswereobtainedviamailquestionnairessentdirectlytocounty,municipal,township,specialdistrict,andschooldistrictgovernments. ThemailcanvassinvolvedtheuseofdetailedCensusBureauscheduleswithrelatedreportinginstructions.CensusBureauexaminersreviewedthemailreportsintenselyandusedextensivecorrespondencetosupplementandverifyincompleteand   	 @-(,   questionableinformation. Aswithmailcanvassquestionnaires,centrallycollectedfinancialdatasometimesneededsupplementationforsuchitemsasdebt,assets,orparticularfunctionalexpendituresorrevenueitems.CensusBureaustaffobtainedthesesupplementarydatafromspecialtabulationsinotherStateoffices,printedreports,secondarysources,orfrommailrequestsdirectlytothecounty,municipal,ortownshipgovernments.Throughtheseefforts,currentyearexpenditureinformationwasobtainedfortheFederalgovernment,allStategovernments,andalllargecountyandcitygovernments.Small_        nonrespondent_        Ԁlocalgovernmentshadeithertheprioryear'sdata,dataimputedforthem,   	 @-(,   orwereleftblankinthetables.Seethe_        Nonrespondent_        ԀJurisdictionssectionbelowforadescriptionofhowthiswasdone.AnnualPublicEmploymentSurvey:FederalGovernmentcivilianemploymentdatawereobtainedfromrecordsmaintainedbytheU.S.OfficeofPersonnelManagement.TheserecordsdidnotprovidetheinformationnecessarytocomputeFederalfull-timeequivalentemployment. StategovernmentdatawerecollectedthroughamailsurveyofallStatedepartments,agencies,andinstitutions.InapproximatelyhalfoftheStatesemploymentdataarecollectedcentrallyfortheStategovernment.Insomecasesadditionalmailsupplementationisnecessary.AswiththeFinanceSurveytheseStateschangefromyeartoyear.Asampleoflocalgovernmentsalsowassurveyedbymailquestionnaire.Stateagenciesandlocalgovernmentsthatdidnotrespondbythecloseoftherequestperiodreceivedfollowuprequests.Secondrequestmailconsistedofpostcardreminders.Thirdrequestmailwasasecondmailingoftheoriginalrequestwithasurveyform.MailreturnedtotheCensusBureaubecauseofaddressproblemswasreaddressedand_        remailed_        .Inaddition,largegovernmentsthathadnotrespondedforseveralyearswerecontactedbytelephonetoidentifytheappropriateofficeorindividualtoreceiveandcompleteforms.Afterextensive_        nonresponse_        Ԁfollowup,useablereplieswerereceivedfrommorethan70%ofthesamplecanvassedforthe1993SurveyofPublicEmployment,andsimilarresponselevelswereachievedinotheryears.Small_        nonrespondent_        Ԁlocalgovernmentshadeithertheprioryear'sdata,dataimputedforthem,   	 @-(,   orwereleftblankinthetables.Seethe_        Nonrespondent_        ԀJurisdictionssectionbelowforadescriptionofhowthiswasdone. DATAREVIEWANDADJUSTMENTSOncethedataarecollected,intensivecomputereditingofthedataatvariousstagesofprocessingminimizeserrorsthatmaybeintroducedduringprocessingintheannualfinanceandemploymentsurveyprograms.Forthemailportionofthesurveys,figuresreportedbygovernmentofficialsaregenerallyacceptedasbeingsubstantiallycorrect.Insomecasesvaryinginterpretationsoftheinstructionsordeficienciesintherespondinggovernments'recordsmaymakeitdifficultforofficialstorendercompleteandaccuratereportsfortheirgovernments.Thesedifficultiesarehandledby:--carefuldefinitionoftermsanddetailedinstructionsindifficultcases--supplementalcorrespondenceandtelephonefollowuptoofficials--intenseexaminationofdatacollectedthroughverificationofinternalconsistencyandcomparisonwithpreviousreportsandothersourcesofdata.ThedataextractedfromtheregularCensusBureauprogramsforthe_        CJEE_        ԀExtractsreceivedadditionalexamination.AftercompilationforthegeneralfinancesurveyaspecialreviewerexaminedindetailtheexpendituredataforStategovernmentsandlargelocalgovernmentsandinvestigatedspecialdatacompilationproblemsandadjustedthedataasneeded.Thelocalgovernmentexpenditureandemploymentestimateswerereviewed,potentialproblemsinvestigated,anddatawererevised,wherenecessary.DataforeachoftheStatesandlargecountiesandcitiesdisplayedindividuallyinthe_        CJEE_        ԀExtractstablesandspreadsheetswerescrutinizedandcomparedtoprioryears'data.Aseparatecomputereditwasthenperformed.Wherepossible,bothexpenditureandemploymentdatawereadjustedtocorrecterrors,reclassifyactivities,andnarrowdifferenceswiththe_        CJEE_        Surveys.Specificproceduresincludedreferringtoalternate   	 @-(,   sourcesofdata,estimatingmissingdata,andrefiningdatathroughproration(forexample,sheriffoffices,wheresomeemployeesperformpolicefunctions,othersperformjudicialfunctions(bailiffs),andothersperformcorrections(jail)functions.)_        NONRESPONDING_        ԀJURISDICTIONSPriorto1994,_        nonrespondent_        Ԁjurisdictionshadtheprioryear'sdataimputedforthemforpurposesofestimatingNational,Stateandlocal,andlocaltotals.For1994andsubsequentyears,dataforsimilarjurisdictionswereusedtodevelopapercapitafigure,andthatwasusedtoimputedatafor_        nonrespondent_        jurisdictionsforthepurposesofestimatingNational,Stateandlocal,andlocaltotals.Imputeddataforindividualunitsofgovernmentarenotdisplayedonanypublishedtablesnoronthespreadsheetsonthe_        BJS_        Ԁ_        website_        ,although only tehthelocaltotals,which may  useincludeimputeddataaredisplayed.DATALIMITATIONSThesurveysampleforthelocalgovernment_        CJEE_        ԀExtractsjusticeexpenditureandemploymentestimateswasnotdesignedspecificallytoproducedataontheseactivities.Thus,in_        intercensal_        years,thereisasamplingvariability,or"standarderror,"whichforthejusticeextractsisapttobelargerthanforthemajorcategoriesintheCensusBureau'sregularsurveysandforthesamefunctionsinthe_        CJEE_        ԀSurveyseries.The"standarderror"isameasurementofvariationamongtheestimatesfromallpossiblesamples,ofwhichthisisone,havingthesamesizeandselectedusingthesamesamplingdesign.Estimatesderivedfromthedifferentsampleswouldvaryfromeachother(andalsofromacompletecensususingthesamedatacollectionprocedures).Thestandarderror,therefore,measurestheprecisionwithwhichanestimatefromoneofthesesamplesapproximatestheaverageresultofallthepossiblesamples.Coefficientsofvariation(_        CVs_        )expressedas_        percents_        ,areavailableontheCensusBureau'sGovernmentsDivision_        website_        (                `   X X    
  3v   ` http://www.census.gov/govs/www/estimate.html       :   # 
  Xh X 
 3vJ  # #   X}  X X
 Xhi  # )alongwith   	 )$(   instructionsonhowtousethem.Intervalestimateswithaprescribedconfidencelevelcanbecalculatedforeachstatisticbyusingthesampleestimateand   	 @-(,   thestandarderrorasestimatedfromthesample.Forexample,a90%confidenceintervalcanbeconstructedbyadding1.6timestheestimatedstandarderrortotheestimateandsubtracting1.6theestimatedstandarderrorfromtheestimate.Ifintervalswereconstructedinsuchamannerforallpossiblesamplesofthesamedesignandsize,about90%ofthemwouldincludethecompleteenumerationstatistic.   	 @-(,   Inreviewingthesample-basedestimates(forexample,19931996reports),bearinmindthat,becauseStategovernmentfiguresarenotsubjecttosamplingvariation,theState-localaggregatesshownforindividualStatesaremorereliable(onarelativestandarderrorbasis)thanthelocalgovernmentestimatestheyinclude.Conversely,thesamplingvariabilityforsmallercomponents,suchastypeoflocalgovernmentdetail,islikelytobegreaterthanthatfortheStateandlocaltotalestimates.BecausethenationalestimatesoflocalgovernmentexpenditureandemploymentarebasedonsummationsofindividualStatedata,theyaremorereliablethantheState-areadata.̀Thedataalsoaresubjecttopossibleinaccuraciesinclassification,response,andprocessing.Everyeffortwasmadetokeepsucherrorstoaminimumthroughcareinexamining,editing,andtabulatingthedatasubmittedbygovernmentofficials.Follow-upprocedureswereusedextensivelytoclarifyinadequateandinconsistentsurveyreturns.ReadersshouldbegenerallycautiousincomparinggovernmentsbecausedifferencesamongStatesandlocalgovernmentsinfunctionalresponsibilities,governmentalstructure,degreeofurbanization,andpopulationdensitycanaffectthecomparabilityofexpenditureandemploymentdata.Forexample,someStategovernmentsdirectlyadministercertainactivitiesthatelsewhereareundertakenbylocalgovernments,withorwithoutfiscalaid,andthesamevariationinthedivisionofresponsibilitiesexistsforcountiesandcities.DATADIFFERINGFROMOTHERPUBLICATIONSThe_        CJEE_        ԀExtractsdatadifferinsomecasesfromthosefromtheCensusBureau'sannualfinanceandemploymentsurveysbecauseofthemoreextensivereviewproceduresusedforthisspecialcompilation,therefinementsofdatainvolved,andthe_        definitional_        ԀdifferencesdiscussedintheComparabilityIssuessectionofthisfile.The_        CJEE_        ԀExtractstrenddatafor1985,1988,and1990alsodifferfromthosepublishedby_        BJS_        Ԁinits_        CJEE_        ԀSurveyseries.Those_        CJEE_        ԀSurveydatashouldonlybeusedintrendanalyseswithother_        CJEE_        ԀSurveydatafor1971-79.The1985,1988,and1990_        CJEE_        ԀExtractsdatainthespreadsheetshereshouldbeusedintrendanalysesonlywithother_        CJEE_        ԀExtractsdata.̀   	 @-(,   IV._        CJEE_        ԀEXTRACTSDEFINITIONSOFTERMSANDCONCEPTSFollowingisaglossaryoftermsandconceptsusedinthe_        CJEE_        Extractsprogramandcommentsregardingtheirlimitations.ThesedefinitionsarebasedlargelyonthoseusedintheCensusBureau'sgovernmentalfinancesandemploymentstatisticsprogram.ThejusticefunctionaldefinitionsweredevelopedfortheoriginalsurveysofJusticeExpenditureandEmployment(_        CJEE_        ԀSurveys)and,asdescribedinthe"Comparabilityissuesbetweenthe_        CJEE_        ԀSurveyandthe_        CJEE_        ԀExtractsprograms"sectionofthisfile,thejusticedefinitionscannotalwaysbefullyoperationallyimplementedinthe_        CJEE_        ԀExtractsseries.̀Thesetermsaregroupedintofivecategories:--governmentalunitsandtypesorlevelsofgovernment--population--governmentalexpenditure--governmentalemployment--governmentalfunctions.GOVERNMENTALUNITSANDTYPESORLEVELSOFGOVERNMENTAgovernmentisanorganizedentitywhosegovernmentalcharacterisevidencedbypopularelectionoftheofficialsortheirappointmentbypublicofficials,ahighdegreeofpublicaccountability,andthepowertoraiserevenuetoprovideauthorizedservices.Inaddition,agovernmentalunitmusthavesufficientdiscretioninthemanagementofitsownaffairstodistinguishitfromtheadministrativestructureofanyothergovernmentalunit.Fordetailedinformationconcerningtheidentificationandclassificationofgovernments,seeU.S.BureauoftheCensus,"GovernmentOrganization,1997CensusofGovernments,"Vol.1,No.1,GC97(1)-1,1999,orathttp://www.census.gov/govs/www/index.html.FederalGovernment.ThetermFederalencompassesallactivitiesoftheUnitedStatesGovernmentotherthanemploymentoftheArmedForces.DistrictofColumbiadataareexcludedfromthiscategoryandincludedwithdataformunicipalities.Stategovernments.Thiscategoryreferstothegovernmentsofthe50StatesthatconstitutetheUnitedStates.   	 @-(,   Localgovernments.TheBureauoftheCensusclassifieslocalgovernmentsbyfivemajortypes:--county--municipality--township--independentschooldistrict--specialdistrict.Counties.OrganizedcountygovernmentsarefoundthroughouttheNationexceptinConnecticut,theDistrictofColumbia,RhodeIsland,andlimitedportionsofafewotherStates.Thesegovernmentsarelegallydesignatedas"boroughs"inAlaskaand"parishes"inLouisiana.Excludedfromcountygovernmentstatisticsandincludedwithmunicipalitiesortownshipsarecertainlocalgovernmentsthatcombineareaandgovernmentalcharacteristicsofbothcountiesandmunicipalitiesortownships.Municipalitiesandtownships."Municipalities"asusedinthe_        CJEE_        ԀExtractsprogramincludestwooftheCensusBureau'sseparateclassesoflocalgovernments--"municipalities"and"townships."Amunicipalityisapoliticalsubdivisionwithinwhichamunicipalcorporationhasbeenestablishedtoprovidegenerallocalgovernmentservicesforaspecificpopulationconcentrationinadefinedarea.Amunicipalitymaybelegallytermedacity,village,borough(exceptinAlaska),ortown(exceptintheNewEnglandStates,Minnesota,NewYork,andWisconsin).Includedinthiscategoryarecertaincitiesthatarecompletelyorsubstantiallyconsolidatedwiththeircountygovernments,operateoutsidethegeographiclimitsofanycounty,orforotherreasonshavenoorganizedcountygovernmentoperationswithintheirboundaries.Intheindividualcitytables,certaincitiesdisplayedareeitherindependent,beingwhollyoutsideanycountyarea,oroperateentirelyorinpartasaconsolidatedcity-countygovernment.ThesegovernmentsareclassifiedasmunicipalitiesbytheCensusBureauandareincludedasmunicipalitiesinthetablespresentingdatabytypeofgovernment.Ingeneral,thesecitiesaremoresimilartolargecountiesthantootherlargecitiesinthescopeoftheirjusticeresponsibilities;thatis,inadditiontopoliceprotection,whichistheprimaryjusticefunctionofmostmunicipalities,thesecitiesalsooperateextensivejudicialandcorrectionalsystemsandmayhavesignificantpublicdefenseexpenditures.   	 @-(,   ЇTheannual_        CJEE_        ԀExtractstables15-17and20displaydatafortheindependentcitiesofWashington,D.C.(whichalsohasState-typeresponsibilities);Baltimore,Md.;andSt.Louis,Mo.,andfortheconsolidatedcity-countygovernmentsofSanFrancisco,Calif.;Denver,Colo.;Jacksonville,Fla.;Honolulu,HI;Indianapolis,Ind.;BatonRougeandNewOrleans,La.;Boston,Mass.;NewYorkCity,N.Y.;Philadelphia,Pa.;andNashville-Davidson,Tenn.Townships,asdistinguishedfrommunicipalities,arecreatedtoserveinhabitantsofareasdefinedwithoutregardtopopulationconcentration.Thisclassificationisappliedtolocalgovernmentsin20States,includinggovernmentunitsofficiallydesignatedas"towns"inthe6NewEnglandStates,NewYork,andWisconsin;some"plantations"inMaine;andsome"locations"inNewHampshire.InMinnesotatheterms"town"and"township"areusedinterchangeably.Datafortownshipsareincludedunderthe"municipalities"category.Independentschooldistricts.Thesegovernmentsareorganizedlocalentitiesprovidingpublicelementary,secondary,and/orhighereducation,which,underStatelaw,havesufficientadministrationandfiscalautonomytoqualifyasseparategovernments.Excludedaredependentpublicschoolsystemsofcounty,municipal,township,orStategovernments.Justicedataarenotcollectedfortheseindependentschooldistrictsbecausethesegovernmentsgenerallyperformnojusticefunctions.However,dataforthesegovernmentsareincludedinthedenominatorwhenjusticeexpenditureispresentedasapercentageofallgovernmentexpendituretoallowcomparisonsacrossStatesandgovernmentsthatmakevaryinguseofthesedistricts.Specialdistricts.Theseareorganizedlocalentities(otherthancounties,municipalities,townships,andschooldistricts)authorizedbyStatelawtoprovidealimitednumberofdesignatedfunctionsandwithsufficientautonomytoqualifyasseparategovernments.Theyareknownbyavarietyofnames,includingdistricts,authorities,boards,andcommissions.Justicedataarenotcollectedforthesedistrictsbecausethesegovernmentsgenerallyperformfewjusticefunctionsandthenonlyasanadjuncttotheirprimarypurpose(forexample,policingairportsorparks).However,dataforthesegovernmentsareincludedinthedenominatorwhenjusticeexpenditureispresentedasapercentageofallgovernmentexpendituretoallowcomparisonsacrossStatesandgovernments   	 @-(,   thatmakevaryinguseofthesedistricts.POPULATIONThe"residentpopulation"datausedareforJuly1ofeachyearfromtheU.S.BureauoftheCensus,CurrentPopulationReports.Theyareconsistentwiththe1980and1990decennialenumerationsandtheydonotincludeadjustmentsforcensuscoverageerrors.Theyarethemostcurrentestimatesavailablewhenthetableswereassembled.Thedatainthetrendtablesmaydifferfrompopulationdatausedinsingleyeartablesearlierinthisseriesandinothersourcesthatusedestimatesavailableatthetimetheywereprepared.GOVERNMENTALEXPENDITUREExpenditureisallamountsofmoneypaidout(netofrecoveriesandanycorrectingtransactions)otherthanforretirementofdebt(includinginterest),investmentinsecurities,extensionsofloans,oragencytransactions.Itincludesonlyexternalcashpaymentsandexcludesany_        intragovernmental_        Ԁtransfersandnoncashtransactions,suchastheprovisionofmealsorhousingofemployees.Italsoincludesanypaymentsfinancedfromborrowing,fundbalances,intergovernmentalrevenue,andothercurrentrevenue.Inseveralinstances,twoormoregovernmentssharetheexpenseofmaintainingacourtorajusticeagency.Inthesecases,theallowabledirectexpenditureamountisreportedforeachgovernmentintheappropriatecategory.Whenagovernmentpayspensionsdirectlytoretiredemployeesfromappropriatedfunds,suchpaymentsareincludedasexpenditureofthegovernmentconcerned.However,Stateandlocalgovernmentcontributionstoretirementsystemstheyoperatearenotincludedinexpendituredatabecausemanygovernmentsmakelump-sumcontributionstoplanscoveringallgovernmentemployeesandcannotreportseparatelyforjusticeemployees.Neitheringovernments'basicaccountingrecords(fromwhichcriminaljusticeexpenditurefiguresaredrawn)norintherecordsoftheirgeneral-coverageemployeebenefitsystemsisthereusuallyanybreakdownofamountscontributedintermsofthevariousagenciesorfunctionsinvolved.Norhasanadequateprocedureforcalculatingtheproportionofsuchcontributionsallocabletojusticeemployeesbeendevelopedbecauseofthewidevariationinthecoverageofvariousplans,employeestatusrequirements,benefitrates,andsoforth.   	 @-(,   Expenditureisdividedintomajorcategoriesbycharacterandobjectasfollows:Directexpenditureisallexpenditureexceptthatclassifiedasintergovernmentalandisfurtherdividedintotwocategories:--Directcurrentincludessalaries,wages,fees,commissions,andthepurchaseofsupplies,materials,andcontractualservices.--Capitaloutlayincludesexpenditureforthethreeobjectcategoriesofconstruction,equipment,andpurchaseoflandandexistingstructures.Dataarepresentedseparatelyinthe_        CJEE_        ԀExtractsprogramforStateconstructionofcorrectionalinstitutions;the"other"categoryinthosetablesincludesequipmentandthepurchaseoflandandexistingstructures.Construction:Productionoffixedworksandstructuresaswellasadditions,replacements,andmajoralterationstheretoundertakeneitheronacontractbasisbyprivatecontractorsorthroughforceaccountconstructionbytheemployeesofthegovernment.Includedaretheplanninganddesigningofspecificprojects;grading,landscaping,andothersiteimprovement;andprovidingequipmentandfacilitiesthatareintegralpartsofthestructure.Equipment:Purchaseandinstallationofapparatus,furnishings,officeequipment,motorvehicles,andthelikehavinganexpectedlifeofmorethan5years.Thisincludesbothadditionalequipmentandreplacements.Rentalsforequipment,includingrentalpaymentsthatmaybecreditedonthepurchasepriceifpurchaseoptionsareexercised,areclassifiedasdirectcurrentexpenditure.Equipmentandfacilitiesthatareintegralpartsofconstructedstructuresareclassifiedunderconstruction.Purchaseoflandandexistingstructures:Purchaseoftheseassetsassuch,purchaseofrights-of-way,titlesearch,andsimilaractivitiesassociatedwithpurchasetransactions.Expenditureforinterestongeneraldebt,assistanceandsubsidies,andinsurancebenefitsarenotappliedtospecificfunctionsbecausetheyarenotordinarilyavailableonafunctionalbasisfromgovernmentfinancialreports.Ininstanceswherebondedormortgagedgeneralindebtednessis   	 @-(,   identifiedforspecificpurposes,theinterestpaymentsareaggregatedwithotherinterestexpenditures,whichmakesreliableandconsistentbreakoutsofsuchdataoveralongperiodoftimeimpossible.Intergovernmentalexpenditurecomprisespaymentsfromonegovernmenttoanother,includinggrants-in-aid,sharedrevenues,fiscalassistance,andamountsforservicesperformedbyonegovernmentforanotheronareimbursableorcost-sharingbasis(forexample,paymentsbyonegovernmenttoanotherforboardingprisoners).Itexcludesamountspaidtoothergovernmentsforpurchaseofcommodities,property,orutilityservices;anytaximposedandpaidassuch;andemployercontributionsforsocialinsurance(forexample,contributionstotheFederalGovernmentforold-age,survivors',disability,andhealthinsuranceandlocalgovernmentpaymentstoState-operatedretirementsystemsonbehalfoftheiremployees).Totalexpenditureisdirectandintergovernmentalexpenditureofagovernmentortypeofgovernment.Intheexpendituretables,certaintotalshavebeenadjustedtoexclude_        duplicative_        Ԁintergovernmentalexpenditureamounts.Forexample,moneypaidbyaStategovernmenttoacountygovernmentwithinthatStateisreportedbytheStategovernmentasanintergovernmentalexpenditureandbythecountygovernmentasadirectexpenditurewhenthemoneyisspent(forsalaries,wages,equipment,andsoforth).Therefore,toarriveatacombinedState-localgovernmenttotalthatdoesnotduplicatethesetransactions,intergovernmentalexpenditureamountsaredeductedfromtheState-localtotalbecausethoseamountsalsoarereflectedinthedirectexpenditureoftherecipientgovernment.ThesametreatmentisusedforintergovernmentalpaymentsbetweencountiesandmunicipalitieswithinthesameStatewhencomputinglocaltotals.Totalsreportedfor"allgovernments"alsoareadjustedtoexclude_        duplicative_        ԀintergovernmentalexpenditureinvolvingtheFederalgovernment.Thecolumnlabeled"totaldirectexpenditure"inthe_        CJEE_        ԀExtractstable3presentsdataforallgovernmentfunctions,includingjusticeandnonjusticeactivities.Thecomparabletablesforthe1971-79_        CJEE_        ԀSurveyreportslimitedthesecolumnsto"generalexpenditure,"whichexcludedutilitysystemexpenditure,liquorstoreexpenditure,andinsurancetrustexpenditure.Thechange   	 @-(,   totheall-inclusive"totalexpenditure"categorywasmadein1982toallowcomparisonofjusticeexpenditurewithallgovernmentspending.ComparabledataforallyearscanbefoundinannualCensusBureauGovernmentalFinancesreports,Series_        GF_        ,No.5.CharacterandobjectaretwostandardgovernmentalaccountingclassificationsofexpendituredatausedbytheCensusBureauasasingleentityinthepresentationofexpendituredata.Characterreferstotheperiodoftimetheexpenditureispresumedtobenefit.Thefourcharactergroupingsare:(1)currentoperatingexpenses,presumedtobenefitthecurrentfiscalperiod;(2)capitaloutlays,presumedtobenefitthecurrentandfutureperiods,(3)intergovernmental,whenonegovernmenttransfersresourcestoanother;and(4)debtservice,presumedtobenefitpriorfiscalperiodsaswellascurrentandfutureperiods.Debtserviceisnotapplicabletoavailablejusticeexpendituredata.Objectappliestothearticlepurchasedortheserviceobtained,forexample,personalservices,contractualservices,equipment,andconstruction.(DefinitionsadaptedfromGovernmentFinanceOfficersAssociation,"GovernmentAccounting,Auditing,andFinancialReporting,"pages319and343,Chicago:1994,asprovidedbytheU.S.BureauoftheCensus.)Variablepass-throughexpendituredatawerecollectedthroughthe_        CJEE_        ԀSurveys.ThosedataweredevelopedtocomplywiththeOmnibusCrimeControlandSafeStreetsActof1968,asamended,whichrequiredthatblockgrantsmadebytheLawEnforcementAssistanceAdministration(_        LEAA_        ),andlaterbytheBureauofJusticeAssistance(_        BJA_        ),toeachStatebeallocatedbetweentheStateandlocalgovernmentsonthebasisoftheratioofState-to-locallawenforcementexpenditurefromtheir"ownrevenuesources."TheJusticeSystemImprovementActof1979changedthedistributionformulaandbasedthenewoneonexpenditurefrom"generalpurposerevenuesources."TheJusticeAssistanceActof1984returnedtothevariablepass-throughformula.Justiceexpendituredatacannotbeproducedoneitherbasisfromthislimited_        CJEE_        ԀExtractsprogram.GOVERNMENTALEMPLOYMENTEmploymentandemployeesrefertoallpersonsgainfullyemployedbyandperformingservicesforagovernment.Employeesincludeallpersonspaidforpersonalservices   	 @-(,   performed,includingpersonspaidfromfederallyfundedprograms,paidelectedofficials,personsinapaid-leavestatus,andpersonspaidona"permeeting,"annual,semiannual,orquarterlybasis.Unpaidofficials,pensioners,personswhoseworkisperformedonafeebasis,andcontractorsandtheiremployeesareexcludedfromthecountofemployees.Underthisdefinitionaretwoclasses:Full-timeemployeesincludethosepersonswhosehoursofworkrepresentfull-timeemploymentintheiremployergovernmentduringonepayperiodinOctoberoftheyearspecifiedinthetablefor1980to1996,oronepayperiodinMarchfor1997.Generally,itincludesfull-timetemporaryorseasonalworkersemployedduringthatpayperiod.Part-timeemployeesarethosepersonswhoworklessthanthestandardnumberofhoursforfull-timeworkintheiremployergovernmentduringtheOctoberorMarchpayperiodoftheyearspecifiedinthetableandpersonspaidbymorethanonegovernment.Full-timeequivalentemploymentisastatisticalmeasurethatestimatesthetotalworkforceaccountingforthelessthanfull-timeemploymentofpart-timeemployees.Priorto1986,theformulaforcomputingfull-timeequivalentemploymentwaspayroll-based;specifically,itwascalculatedbydividingthetotalpayrollamount(full-timepluspart-time)bythefull-timepayrollamountandmultiplyingtheresultantquotientbythenumberoffull-timeemployees.Beginningin1986,itiscomputedbydividingthepart-timehourspaidbythestandardnumberofhoursforfull-timeemployeesintheparticulargovernmentandthenaddingtheresultingquotienttothenumberoffull-timeemployees.Inbothformulae,thecalculationisperformedseparatelyattheindividualfunctiontypeforeachrespondentgovernment.Consequently,summariesbyState,typeofgovernment,andfunctionareaggregatesofindividualcalculations.Theformulawaschangedbecausethepreviouslyusedpayroll-basedformulanecessarilyassumedthatthereislittleornodifferencebetweenaveragewageratesforfull-timeandpart-timeworkers--however,thisisseldomthecase.Part-timepayscalesaregenerallybelowthoseforfull-timeworkers,thusresultinginanunderstatementoffull-time   	 @-(,   equivalentemployment.Theunderstatementwasestimatedatbetween2.8%and3.8%atthenationallevel.Thepreviouslyusedpayroll-basedmethodologymayalsoproducea"trendbias"iftherateofchangeinpart-timeemploymentisdifferentfromthatinfull-timeemployment.Usersshouldkeepinmindtheexpectedunderstatementof_        FTE_        Ԁinyearspriorto1986whenmakingtrendcomparisons.Onemonthpayrollsrepresentgrosspayrollsforthe1-monthperiodofOctoberorMarchoftheyearspecified,andcomprisethegrosspayrollbeforedeductions.Itincludesallsalaries,wages,fees,orcommissionspaidtoemployeesduringtheonemonthpayperiodoftheyearcitedinthetable.Payrollamountsreportedforaperiodotherthan1monthwereconvertedtorepresentanamountfortheentiremonth.Averagemonthlysalariesareforfull-timeemployeesonlyandarecalculatedbydividingfull-timeemployeepayrollsbythenumberoffull-timeemployeesforOctoberorMarchoftheyearindicatedinthetable.GOVERNMENTALFUNCTIONSORACTIVITIESGeneralgovernmentfunctionsincludeallactivitiesotherthanthoseclassedaspublicutilities(watersupply,electricpower,gassupply,andtransitsystems),liquorstores(dispensariesoperatedby17Stategovernmentsandbylocalgovernmentsof6States,asof1992),andinsurancetrustsystems(noemploymentdataareassociatedwithinsurancetrusts).Allgovernmentfunctionsincludethelatter.Justiceisthecombinedfunctionsofpoliceprotection,judicialandlegalservices,andcorrectionsasdefinedindetailbelow.Asnotedbelow,itconsistentlyincludesciviljusticeactivitiesaswellascriminaljusticeactivitieswherecriminalfunctionscannotbesegregatedinavailablesourcedocuments.Policeprotectionisthefunctionofenforcingthelaw,andpreservingorderandtrafficsafetyandapprehendingthosewhoviolatethelaw,whethertheseactivitiesareperformedbyapolicedepartment,asheriff'sdepartment,oraspecialpoliceforcemaintainedbyanagencywhoseprimaryresponsibilityisoutsidethejusticesystembutthathasapoliceforcetoperformtheseactivitiesinitsspecializedarea(geographicor   	 @-(,   functional).However,seethesection Comparabilityissuesbetweenthe_        CJEE_        ԀSurveyandthe_        CJEE_        ԀExtractsprograms"inthisfileforareaswherethisdefinitionisdifficulttoapplyinthe_        CJEE_        ԀExtractsseries.Thiscategoryincludes:--regularpoliceservices--policepatrolsandcommunications--crimepreventionactivities--temporary lockuplockupsand"holdingtanks"--trafficsafetyandengineering(butnothighwayplanningandengineering)--vehicularinspectionandlicensing--buildingsusedexclusivelyforpolicepurposes--themaintenanceofbuildingsusedforpolicepurposes--medicalexaminersandcoroners--lawenforcementactivitiesofsheriffs'offices--unswornschoolcrossingguards,parkingmeterreaders,andanimalwardens,ifemployedbyapoliceagency.Privatesecuritypoliceareoutsidethescopeofthesurvey.Thespecialpoliceforcesincludedinthedataareonlythosethatarepartofageneralpurposegovernment.Thosespecialpoliceforcesthatarepartofindependentschooldistrictsorspecialdistrictsarenotincludedinthedata,inasmuchasthesedistrictsarenotgeneralpurposegovernments.Policeprotectionemploymentdataarefurtherdividedbetween:--swornemployees,whichrepresentpersonswiththepowerofarrest--_        nonsworn_        Ԁemployees,whichareallothers.InmostStates,sheriff'sdepartmentsare_        multifunctional_        agenciesprovidingpoliceprotection,judicial,and/orcorrectionalservices.Inordertoallocateexpenditureandemploymentdatatotheproperactivity,thedataforsheriffdepartmentsareprorated,resultingindifferencesinotherpolicereportingprogramssuchasthe_        BJS_        ԀLawEnforcement,Management,andAdministrativeStatistics(_        LEMAS_        )programandtheFBI'sUniformCrimeReporting(_        UCR_        )program,whichreportthenumbersofemployeesinlawenforcementagenciesregardlessoffunctionsperformed.Short-termcustodyanddetentionareconsideredpartofthe   	 @-(,   policeprotectionfunction.Datafor lockuplockupsor"tanks"holdingprisonerslessthan48hoursareincludedinthepoliceprotectioncategory.Dataforinstitutionswithauthoritytoholdprisoners48hoursormoreareincludedinthecorrectionscategory.Judicialandlegalservicescoversallcivilandcriminalactivitiesassociatedwithcourts,includingprosecutionandpublicdefense.However,seethe"Comparabilityissuesbetweenthe_        CJEE_        ԀSurveyandthe_        CJEE_        ԀExtractsprograms"sectioninthisfileforareaswherethisdefinitionisdifficulttoapplyinthe_        CJEE_        ԀExtractsseries.The"judicialandlegalservices"categoryinthe_        CJEE_        ԀExtractsseriesincludesthefollowingcourtfunctionscoveredasaseparatecategoryintheperiodic_        CJEE_        ԀSurvey:--civilandcriminalfunctionsofcourtsatalllevelsoflegaljurisdiction:appellate(lastresortandintermediate),generaljurisdiction,andlimitedjurisdiction--activitiesassociatedwithcourts,suchaslawlibraries,grandjuries,petitjuries,andmedicalandsocialserviceactivities(exceptprobation,whichisclassifiedascorrectionswhereseparatelyidentifiable)--courtreporters,judicialcouncils,bailiffs,and"registerofwills"andsimilarprobatefunctions,court("civil")activitiesofsheriffofficesinsomejurisdictions.Also,includedinthe"judicialandlegal"categoryareallcivilandcriminaljusticeactivitiesofprosecutionandlegalserviceagencies.Itincludesthefollowingprosecutionandlegalserviceactivitiescoveredasaseparatecategoryintheperiodic_        CJEE_        ԀSurvey:--attorneysgeneral,districtattorneys,State'sattorneys,andtheirvariouslynamedequivalents--corporationcounsels,solicitors,andlegaldepartmentswithvariousnamesincludingthoseprovidinglegaladvicetothechiefexecutivesandsubordinatedepartmentalofficers,representationofthegovernmentinlawsuits,andtheprosecutionofaccusedviolatorsofcriminallaw--variousinvestigativeagencieshavingfullarrestpowersandattachedtoofficesofattorneysgeneral,districtattorneys,ortheirvariouslynamedequivalents.Theseactivitiesareincludedwhetherperformedbyoneofficeorseveralbecauseinsomejurisdictionsasingleoffice   	 @-(,   providesalllegalservices,whereasinothersaprosecutor'sofficehandlesonlycriminalmattersandaseparateattorney'sofficeperformsallcivillegalservices.Alsoincludedinthe"judicialandlegal"categoryarethecivilandcriminaljusticeactivitiesofpublicdefenders,otheragenciesthatprovidelegalcounselandrepresentationineithercriminalorcivilproceedings,andothergovernmentprogramsthatpaythefeesofcourt-appointedcounsel.Itincludesthefollowingpublicdefenseactivitiescoveredasaseparatecategoryintheperiodic_        CJEE_        ԀSurvey:--court-paidfeestoindividuallyretainedcounsel--feespaidbythecourttocourt-appointedcounsel--governmentcontributionstoprivatelegalaidsocietiesandbarassociation-sponsoredprograms--activitiesofanestablishedpublicdefenderofficeorprogram.Thiscategoryexcludes:--monetaryjudgmentsandclaimsorotherpaymentsofagovernmentasadefendantinjudicialoradministrativeproceedings--legalunitsofnoncriminaljusticeagencies,whosefunctionsmaybeperformedbyalegalservicedepartmentinotherjurisdictions(suchasacountycounsel).Correctionsisthatfunctionofgovernmentinvolvingtheconfinementandrehabilitationofadultsandjuvenilesconvictedofoffensesagainstthelawandtheconfinementofpersonssuspectedofacrimeandawaitingadjudication.However,seethesection"Comparabilityissuesbetweenthe_        CJEE_        ԀSurveyandthe_        CJEE_        ԀExtractsprograms"inthisfileforareaswherethisdefinitionisdifficulttoapplyinthe_        CJEE_        ԀExtractsseries.CorrectionsdirectexpenditureforStategovernmentsisfurtherdividedintotwosubcategories:--correctionalinstitutions--othercorrections.Correctionalinstitutionsareanyfacilitiesfortheconfinementandcorrectionofconvictedadultsorjuvenilesadjudicateddelinquentorinneedofsupervisionandforthedetentionofthoseadultsandjuvenilesaccusedofacrimeandawaitingtrialorhearing.(Datafor lockuplockupsor"tanks"   	 @-(,   holdingprisonerslessthan48hoursareincludedinthepoliceprotectioncategory.)̀Correctionalinstitutionsinclude:--prisonsandpenitentiaries--reformatories--jails--housesofcorrection--othervariouslynamedcorrectionalinstitutions,suchascorrectionalfarms,workhouses,industrialschools,andtrainingschools--institutionsandfacilitiesexclusivelyfortheconfinementofthecriminallyinsane--institutionsandfacilitiesfortheexamination,evaluation,classification,andassignmentofinmates--facilitiesfortheconfinement,treatment,andrehabilitationofdrugaddictsandalcoholics,iftheinstitutionisadministeredbyacorrectionalagency.Whenaninstitutionmaintainsaprisonindustryoragriculturalprogram,dataonthecostofproductionorthevalueofprisonlaborusedbyagenciesofthesamegovernment,ifidentifiable,areexcluded(andclassedasexpenditureforthefunctionusingtheproductorservices).Expenditureforthemanufacture,production,sale,anddistributionofgoodsproducedforsaleoruseoutsidethegovernmentisincludedunderthisheading.Itexcludesthecostofmaintainingprisonersininstitutionsofothergovernments,whichareclassifiedasanintergovernmentalexpenditureforwhichthe"institutions"vs."othercorrections"distinctionsarenotapplied.Othercorrectionsconsistsofallnoninstitutionalcorrectionalactivities,including----paroleboardsandprograms--pardonboards--nonresidentialresettlementorhalfwayhousesforthosenotinneedof_        institutionalization_        _        --_        Ԁprobationactivitiesandprograms,evenifadministeredbyacourt(butseesection"Comparabilityissuesbetweenthe_        CJEE_        ԀSurveyandthe_        CJEE_        ԀExtracts Pprograms" )onthisfile ziparchiveforareaswherethisdefinitionisdifficulttoapplyinthe_        CJEE_        ԀExtractsseries.)--correctionaladministrationnotdirectly_        connectable_        Ԁtoinstitutions--paymentstoanothergovernmentforboardingprisonersare   	 @-(,   classifiedas"intergovernmentalexpenditure"forwhichthe"institutions"and"othercorrections"distinctionsdiscussedabovearenotapplied.Inpractice,intergovernmentalpaymentsofthistypearedifficulttodetectforinsignificantamountsbetweenlocalgovernments.--miscellaneousitemsthatcannotbedirectlyrelatedtoinstitutionalcare.