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Law Enforcement

Running head: LAW ENFORCEMENT WORK GROUP

Governor Elect Rick Scott’s Law and Order Transition Team

Law Enforcement Work Group

An Examination:

The Florida Department of Law Enforcement (FDLE)

The Department of Environmental Protections (DEP)

The Division of Alcoholic Beverages and Tobacco (ABT)

Law and Order Transition Team Chairman

Bob White, Sheriff of Pasco County

Law Enforcement Work Group Members

Jim Coats, Sheriff of Pinellas County

Angela B. Corey, State Attorney for the Fourth Judicial Circuit

Dr. Kathleen Kiernan

Dr. Jeffrey Harrington, New Port Richey Chief of Police

12/16/2010

Table of Contents
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Executive summary

A macro review of state law enforcement

Proposal for FDLE, DEP and ABT

ABT review 12

DEP review 14

FDLE review

16

List of Tables

ABT organizational chart

19

DEP organizational chart

21

FDLE organizational chart

25

Department of Public Safety (DPS) organizational chart

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Executive Summary

Overview

State law enforcement in Florida has historically been accomplished through

a number of different law enforcement agencies that focus very narrowly on
a specific type of enforcement activity. According to the latest Criminal
Justice Agency Profile (CJAP) report published by the Florida Department of
Law Enforcement (FDLE), there are 36 separate and distinct law enforcement
agencies that receive their primary funding from the State of Florida. The
various agencies have a total sworn population of 4,364 (FDLE-CJAP, 2009).

Background

FDLE’s primary mission is to help solve and prevent crime in Florida. As

authorized by 943.03, F.S., the department provides assistance to over 500
federal, state, and local criminal justice agencies. The recommendations of
this work group are consistent with this mission and the statutory authority.

Project Approach

The law enforcement work group consists of four professionals with

experience in law enforcement, organizational analysis, and performance
improvement in public sector organizations.

Governor Elect Rick Scott’s Law Enforcement transition work group is

responsible for performing an independent assessment to review law
enforcement activities within the Florida Department of Law Enforcement
(FDLE), the Division of Alcoholic Beverages and Tobacco (ABT), and the
Department of Environmental Protection (DEP). The goal is to optimize
performance, improve quality, promote the effective and efficient use of
resources, and assist in the identification of future resource needs as well as
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identifying ways to reduce costs and maximize law enforcement service
delivery.

The work group collected the data for this project by conducting interviews
with members of the top management teams for the various law
enforcement agencies. The work group asked each of the Chief Executives of
the organization for information that depicted organizational structure,
budget, and personnel allocations. The group also asked for answers to
questions posed in the transition team assessment templates. In addition,
visits to the FDLE and ABT headquarters in Tallahassee were conducted to
speak with staff and view facilities.

Interview findings were supported by collection and analysis of the data

provided to the work group and further supplemented by comparative data
that were obtained from other states.

Organizing state law enforcement

The work group is of the position that the current model of law enforcement
lacks cohesion and in the current environment it is appropriate to restructure
law enforcement in Florida in fundamental ways that call for a complete
paradigm shift in state delivery of law enforcement.

State law enforcement operations in Florida are fragmented across 36

different agencies and are hampered by bureaucratic complexity and
redundancy across the various agencies performing law enforcement
functions independently of one another. This discontinuity creates inefficient
chains of command that hamper decision making and information sharing. In
the current state law enforcement model, information capacities and
capabilities are scattered throughout the agencies. Such a service delivery
model is inherently incapable of optimal effectiveness and efficiency.

Key recommendations

• Combine the investigative functions of the FDLE, ABT, and DEP under
the overall authority of the FDLE
• In this re-organization, the FDLE regional/area of operation approach to
service delivery would include the specialized services provided by DEP
and ABT
• Conduct a management assessment to re-define roles and
responsibilities
• In areas where local capacity and capability are sufficient, the FDLE
can re-allocate resources to meet the needs of agencies requiring
support
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• Implement cohesive and consolidated information and communication
systems
• Create a comprehensive and realistic pay plan that replaces the
current broad band system
• Create accurate and appropriate job descriptions for the consolidated
FDLE
• Create and update career paths for both sworn and non-sworn
personnel
• Create flexible resource planning, allocation, and deployment models
for all divisions
• Create a comprehensive human resource/business function that takes
full advantage of economies of scale in purchasing
• Manage organizational change after the consolidation
• Enhance business processes by improving linkage in:
o Expenditures, logistics, purchasing, and strategy
o New programs and performance measures
o Current state budget conditions and strategic budgeting issues
o The finance function and strategic planning
o Investments and outcomes for capital spending, training, or new
programs

Further recommendations

The law enforcement work group of the Law and Order Transition Team was
tasked with evaluating the FDLE, the ABT, and the DEP in terms of
opportunities to gain efficiency and cut cost. The basic theory behind the
recommendations of the work group can be extended to all of law
enforcement in the state of Florida. Using the same theoretical approach, the
state of Florida could experience enhanced service delivery and cost savings
through economies of scope and scale by moving to a Department of Public
Safety (DPS) model of state law enforcement delivery. Such models can be
found in Texas, Alabama, and Georgia.

In a DPS model of law enforcement service delivery, all state functions (with
the possible exception of FWC which is discussed in the Florida Constitution)
would fall under a single Director of the DPS. The Florida Department of
Public Safety would consist of two divisions. One of the divisions would
assume oversight of all investigative activities in the state. This would be an
enhanced version of the FDLE. The second division would consist of a patrol
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function and would consist of all uniformed law enforcement personnel (to
include the Capital Police that would be moved in the re-organization).

By moving to a DPS model of state law enforcement, we would consolidate

the various disparate agencies under one entity. The current geographical
areas of operation currently used by the FDLE would serve as the template
for the geographic approach to state law enforcement. Once the DPS is
created, management assessments would be necessary to further define
organizational focus and mission. At this point, the top management team
and the elected leadership would develop policy guidance in respect to the
levels of service that are required for state law enforcement.

The creation of a DPS would streamline the bureaucratic nature of our

current service delivery model while providing for more operational
personnel and by theoretically cutting costs by re-allocating managers within
the newly created department and taking advantage of economies of scope
and scale.

Law and Order Transition Team

POLICY GROUP TEMPLATE

Name of Department: A macro review of state law enforcement

Approach

The work group collected the data for this project by conducting interviews
with members of the top management teams for the various law
enforcement agencies. The work group asked each of the Chief Executives of
the organization for information that depicted organizational structure,
budget, and personnel allocations. The group also asked for answers to
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questions posed in the transition team assessment templates. Interview
findings were supported by collection and analysis of the data provided to
the work group and further supplemented by comparative data that was
obtained from other states.

Proposal

The current model of Florida law enforcement recognizes the constitutional

role of the various Sheriffs as the Chief Law Enforcement Officer of their
respective counties. This proposal does not contemplate any change to that
position. This proposal seeks to assess state law enforcement in Florida and
to make recommendations to improve service delivery, explore cost saving
opportunities, and to support local efforts. The proposal is beyond the scope
of the original review. It takes a macro view of state law enforcement.

State law enforcement in Florida is fractured and lacks cohesion. There are
currently 36 separate law enforcement agencies that receive their primary
funding through the state. The officer population of those agencies is 4,364
(CJAP 2008/2009). The range of sworn personnel in those agencies is 1-1572.
The average number of sworn personnel in those agencies is 121.22 (CJAP
2008/2009).

The law enforcement work group recommends consolidating state law

enforcement functions into a Department of Public Safety model consistent
with Texas, Georgia, and Alabama. In such a model, state law enforcement
functions would fall under the authority of a single Director or Commissioner
of Public Safety. The organization would consist of two separate sub-units.
One sub-unit would consist of all investigative functions. The second sub-unit
would consist of all uniform patrol personnel. The FDLE currently employs a
regional approach to service delivery. As such, the framework is currently in
existence. State law enforcement would benefit from economies of scale,
economies of scope, clarity of mission and function, and the budgeting
process would be streamlined.

Three Key Elements of Proposal

• Cost savings are achieved through economies of scope and scale

• Consolidation combines similar services and eliminates redundancy
• Clarity of mission creates greater organizational effectiveness,
efficiency, and improved service delivery

Fiscal Impact
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• Cost savings through economies of scope and scale
o Human resources
o Purchasing
o Sharing infrastructure and faculties
o Information technology
o Data sharing
o More efficient and effective business practices
• Cost savings by merging and consolidating management and
supervision
o Elimination of redundant functions
o Elimination of bureaucracy spanning multiple agencies
o The creation of a new leadership framework to enhance decision
making

Operational Impact

• Clarity of mission is defined by one top management team

• Manpower allocation would have to be reviewed
• The process requires restructuring the agency to better align with
organizational functions
• Elimination of cumbersome chains of command across organizations
o Creates an opportunity to streamline management
o Creates an opportunity to deploy more operational personnel
• Enhanced communication across the entire spectrum of state law
enforcement
• Improved morale among the employees due to potential career
patching diversity

Legislative Requirements

The FWC is discussed in the Florida Constitution. Re-organization may

require legislative review and or action. The legislature may have to take
action regarding mandates for particular agencies in respect to funding and
mission.

Legislative Opposition

The current state model of law enforcement service delivery has been in
existence for a significant period of time. Legislators may have philosophical
opposition to a consolidation of state police service. Constituents of the
various legislators may raise their opposition to such a paradigm shift in
service delivery.
Pros:
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• Business integration
• Vertical integration
• The potential to have significant cost savings
• Clarity of the state law enforcement mission and focus
• Enhanced service delivery by creating an agency with greater capacity
and capability than the current model allows
• Increased efficiency

Cons:

• Legislative reluctance to accept a new model of service delivery

• Organizational conflict upon the creation of the new agency
o Organizational change must be managed and supported
o Organizational change must be institutionalized
• Hidden cost or liabilities

Future Research

A fundamental change to the current model of state law enforcement

delivery will require buy-in from a number of different stakeholders. It would
be beneficial to further explore the opportunities associated with merging or
consolidating state law enforcement with key players in the process. Prior to
implementation, financial and legal due diligence as well as a management
assessment would be appropriate to determine alignment with gubernatorial
vision, goal, and objectives. Once the benefits and costs can be fully vetted,
other state models can be examined in terms of how well they apply to the
State of Florida.
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Law Enforcement
Law and Order Transition Team
POLICY GROUP TEMPLATE

Name of Department(s): Florida Department of Law Enforcement (FDLE)

Department of Environmental Protection (DEP)
Alcoholic Beverages and Tobacco (ABT)

Proposal

The current model of Florida law enforcement recognizes the constitutional

role of the various Sheriffs as the Chief Law Enforcement Officer of their
respective counties. This proposal does not contemplate any change in that
position. This proposal seeks to assess state law enforcement in Florida and
to make recommendations to improve the service, explore cost saving
opportunities, and to support local efforts.

The law enforcement work group was given the task of reviewing the FDLE,
ABT, and DEP (law enforcement) to evaluate law enforcement service
delivery and to identify opportunities to cut costs. The work group
recommends consolidating the law enforcement functions of ABT and the
DEP under the FDLE. The FDLE currently employs a regional approach to
service delivery. As such, a framework to assimilate the investigative
functions is currently in existence. The consolidated agency would benefit
from economies of scale, economies of scope, clarity of mission, and
function. In addition, the budgeting process would be streamlined. The
regulatory functions would remain with the former organizations.

Three Key Elements of Proposal

• Cost savings are achieved through economies of scope and scale

• Consolidation combines similar services and eliminates redundancy
• Clarity of mission creates greater organizational effectiveness,
efficiency and improved service delivery

Fiscal Impact

• Cost savings through economies of scope and scale

o Human resources
o Purchasing
o Sharing infrastructure and faculties
o Information technology
o Data sharing
o More efficient and effective business practices
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Law Enforcement
• Cost savings by merging and consolidating management and
supervision
o Elimination of redundant functions
o Elimination of bureaucracy spanning multiple agencies
o The creation of a new leadership framework to enhance decision
making

Operational Impact

• Clarity of mission is defined by one top management team

• Manpower allocation would have to be reviewed
• The process requires restructuring the agency to better align with
organizational functions
• Elimination of cumbersome chains of command across organizations
o Creates an opportunity to streamline management
o Creates an opportunity to deploy more operational personnel
• Enhanced communication
• Improved morale among the employees due to potential career
patching diversity
• A merging of lab capabilities

Legislative Requirements

Re-organization may require legislative review and or action. The legislature

may have to take action regarding mandates for particular agencies in
respect to funding and mission.

Legislative Opposition

The current state model of law enforcement service delivery has been in
existence for a significant period of time. Legislators may have philosophical
opposition to a consolidation of state police service. Constituents of the
various legislators may raise their opposition to such a paradigm shift in
service delivery.

Pros

• Business integration
• Vertical integration
• The potential to have significant cost savings
• Clarity of mission and focus
• Enhanced service delivery by creating an agency with greater capacity
and capability than the current model allows
• Increased efficiency
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Cons

• Legislative reluctance to accept a new model of service delivery

• Organizational conflict upon the creation of the new agency
• Hidden cost or liabilities

Future Research

A fundamental change to the current model of state law enforcement

delivery will require buy-in from a number of different stakeholders. It would
be beneficial to further explore the opportunities associated with merging or
consolidating state law enforcement with key players in the process. Prior to
implementation, financial and legal due diligence as well as a management
assessment would be appropriate to determine alignment with gubernatorial
vision, goals, and objectives. Once the benefits and costs can be fully vetted,
other state models can be examined in terms of how well they apply to the
State of Florida.
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Law Enforcement

Law and Order Transition Team

DEPARTMENT REVIEW TEMPLATE

Name of Department: Division of Alcoholic Beverages and Tobacco

(ABT)

Overview

2010-2011 Department budget

2010-2011 Division budget Enforcement $16,026,645
Licensing $ 4,237,619
Tax $ 6,515,375
total $26,779,639 (operating
budget)

$1,626,565,524 (non-operating budget) is composed of AB&T Trust Fund

(TF), Tax Collection (TF) and Federal Equity (TF)

A Listing each Division of the Department:

• 4 units within the above 3 budget entities
- The Director’s Office
- The Bureau of Law Enforcement
- The Bureau of Licensing
- Tax Collection

• Total personnel:
Sworn Non-sworn
- Enforcement 156 34.75
- Licensing 63
- Tax ________ 87_____
Total
156 184.75
340.75
Total number of physical offices and locations by city:
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13 offices located within 3 regions
- North Florida (5) - Central Florida (4) - South
Florida (4)
Tallahassee Orlando West Palm Beach
Pensacola Tampa Margate
Panama City Daytona Beach Miami
(Doral)
Gainesville Ft. Pierce Ft. Myers
Jacksonville

Department summary:

ABT is responsible for licensing and regulating the sale of alcoholic

beverages and tobacco within Florida and investigating the crimes
associated with the above. ABT is part of the Florida Department of Business
and Professional Regulation.

• Director’s Office
- Provides division-wide management
- Budgetary oversight
- Represents Division in administrative hearings and
license discipline/denial cases
• The Bureau of Law Enforcement
- Investigative and enforcement actions against alcohol
and tobacco
license violators
• The Bureau of Licensing
- Reviews license applications before issuing/maintains
licenses and permits
• Tax Collection
- Reviews product movement reports
- Conducts Tax Audits
- Prepares revenues for distributions

Overlapping duties with other agencies:

• Criminal investigations within concurrent jurisdictions and with mutual

aid agreements

Private sector overlap:

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• (none identified)

Short term issues:

• Maintaining staffing levels and replacing vehicle fleet

Long term issues:

• Reducing staff turnover and replacing vehicle fleet

Law and Order Transition Team

DEPARTMENT REVIEW TEMPLATE

Name of Department: Department of Environmental Protection (DEP)

-Law Enforcement Division-

Overview

2010-2011 Department budget $1,487,586,014

2010-2011 Division budget $ 28,333,218

List each Division of the Department:

1 - Director’s Office
2 – Bureau of Park Police (BPP)
3 – Criminal Investigations Bureau (CIB)
4 – Bureau of Emergency Response (BER)
5 – Training Center
6 – Bureau of Operational Support and Planning (BOSP)

Total personnel (include organizational charts for the Department and each
Division)
SWORN NON-SWORN TOTAL
1- 2 5 7
2- 87 3 90
3- 43 1 44
4- 28 28
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5- 5 1 6
6- 6.5 6.5____
181.5

Total number of physical offices and locations by city:

• 16 District offices and 160 State Parks

REGULATORY (11 offices in 6 Districts) STATE PARKS (5

District offices)
NW District - 3 NW District –
Panama City
Pensacola
Panama City
Tallahassee
NE District - Jacksonville NE District -
Gainesville
Central District - Panama City Central District –
Apopka
SW District – Temple Terrace SW District – Osprey
South District – 3
Ft. Myers
Sebring
Marathon
SE District – 2 SE District – Hobe
Sound
West Palm
Port St. Lucie

Department summary:

The DEP Division of Law Enforcement pursues violations of Florida’s

environmental laws and regulations while providing public safety services
within DEP managed properties as well as responding to HAZMAT incidents.
The roles of the 5 Bureaus of the Division are:

• Bureau of Park Police – Serve as Law enforcement/Public safety officers

for all DEP managed properties to include State Parks, Greenways,
Trails, Coastal and Aquatic Managed Areas and State Lands

• Bureau of Criminal Investigations – Enforces violations of the state’s

air, drinking water and natural resource laws, aids the BPP in criminal
investigations

• Bureau of Emergency Response – Coordinates the Division’s HAZMAT

response and supports the State Emergency Operations Center (EOC)
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• Bureau of Operational Support and Planning – Handles the Division’s
budget and purchasing

• Office of Training and Professional Standards – Maintains the Division’s

training, office inspections and accreditation

Overlapping duties with other agencies:

• Enforcement of Florida State Statutes in concurrent jurisdictions with

mutual aid agreements

Private sector overlap:

• Physical security roles on managed lands

Short term issues:

• Providing and maintaining basic service levels

Long term issues:

• Providing and maintaining basic service levels

Law and Order Transition Team

DEPARTMENT REVIEW TEMPLATE

Name of Department : FLORIDA DEPARTMENT OF LAW ENFORCEMENT

(FDLE)

Overview

2010-2011 Department budget

General Revenue Trust Fund Total

Total operating appropriation $88,891,786 267,189,655
356,081,441
Non FDLE (pass through) (232,461) (146,856,577)
(147,089,038)
Total $88,659,325 120,333,078
208,992,403

2010-2011 Division budget (N/A)

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Division Personnel

Sworn Non-Sworn
Total
- Executive Direction and Business Support Program 4 28.5
32.5
- Criminal Investigations and Forensic Science Program 346 680
1,026
- Criminal Justice Information Program 3 394
397
- Criminal Justice Professionalism 5 90.5
95.5
- Florida Capitol Police 81 24 105

Total personnel:
See above

Total number of physical offices and locations by city:

- Pensacola
- Tallahassee
- Jacksonville
- Orlando
- Tampa
- Ft. Myers
- Miami

Department summary:

• The FDLE is the lead criminal investigative agency for the state and
provides security for the Capital, the Governor’s Mansion, and his
immediate family. FDLE establishes and monitors training and
certification standards for law enforcement officers. FDLE provides
support to state and local Law Enforcement Agencies (LEA) through its
agents, the FDLE Crime Lab and the Florida Crime Information Center
(FCIC).

- Executive Direction and Business Support Program: Manages the

agency and includes the Inspector General, Legislative Affairs,
External Affairs, Executive Investigations and General Counsel,
General Services, Finance and Accounting, Human Resources as
well as Budget and Criminal Justice Grants.

- Criminal Investigations and Forensic Science Program: Provides

investigative and forensic services to other state and local agencies
through:
 Crime Lab Services
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 Investigative Services
 Statewide Intelligence and Domestic Security (Program
Office)
 Public Assistance Fraud Services

- Criminal Justice Information Program: Is the central repository of

criminal justice information in state databases which are accessible
to all criminal justice agencies through:
 Prevention and Crime Information Services
 Network Services

- Criminal Justice Professionalism: Establishes training and ensures

standards for all Florida Law Enforcement Officers are met through
the CJSTC and by coordinating disciplinary actions. Divided into:
 Standards and Compliance
 Training and Certification

- Florida Capitol Police: provide public safety and security services for
the Capitol Complex, the Mansion and surrounding grounds, along
with the Governor and their immediate family. Comprised of:
 Operations Unit
 Special Operations Unit
 Protective Operations Section

Overlapping duties with other agencies:

• Investigative duties within concurrent jurisdictions with mutual aid

agreements.
• Forensic services provided by Sheriff’s offices and police departments

Identify private sector overlap for areas under review:

• Physical security services to buildings and structures

Short term issues:

• Expanding and Implementing Programs

o Expanding DNA Database to Include Felonies
o Launching New Domestic Security Awareness Campaign
o Implementing the Florida Methamphetamine Precursor
Electronic Monitoring System
o Transition to an Online Officer Certification Exam
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o Transition to a Standardized Online Basic Abilities Test
• Ensuring the Security of Florida’s Seaports

Long term issues:

• Budgetary issues based on a decline in revenue to the states CJSTC

Trust Fund which projects a zero cash balance at the end of FY 11-12.
• Securing exemption from legislation requiring consolidation of selected
data centers scheduled to take effect 06/30/2013.
• Extending the Florida Law Enforcement exchange (FLEX) program from
the three regions not currently sharing the data.

Division of Alcoholic Beverages and Tobacco

Organizational Chart

Director’s Office Detail

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