If you have issues viewing or accessing this file contact us at NCJRS.gov. ~ j CONSOLIDATION OF POLICE SERVICES CASE STUDY JACKSONVILLE, FLORIDA d k ~ Koe2sell-Girard and Associates, Ir.,c. t ! ! "I i CONSOLIDATION OF POLICE SERVICES CASE STUDY ! Jacksonville, Florida ! i prepared for Office of the Sheriff I Consolidated City of Jacksonville, Florida | I by Koepsell-Girard and Associates 210 E. Broad Street I Falls Church, Virginia The preparation of this report was financed, in part, through B a LEAA Discretionary Grant Number 71-DF-1075 to the Office of the L| Sheriff, Consolidated City of Jacksonville from the Florida Governor's Council on Criminal Justice, under the provisions of Title I of the Omnibus Crime Control and Safe Streets Act of 1968, as amended. | Copyright, Koepsell-Girard and Associates, Inc., 1973 ! ! i Ac kno wle dg e me nt s The Consolidation of Police Services Case Study was undertaken ! by an interdisciplinary team brought together by Koepsell-Girard and Associates, Inc. , of Falls Church, Virginia. Working under the direction of Dr. Charles M. Girard, who served as Project Manager for the study, ! were: Terry W. Koepsell, Dr. Lanny E. Streeter, and Dr. Robert H. Terpstra, who together with Dr. Girard, conducted the research, developed necessary analytical techniques, and prepared the research papers and i case study reports. Mr. Damon C. Miller and Ms. Suzanne Frank provided valuable support to the team in their role as research assistants. i Special acknowledgement is given to Mr. Miller who, as a student of the Jacksonville consolidation, offered many valuable insights. Portions ! of his 1968 thesis on the history of the Jacksonville consolidation movement were used, with modifications made by the author and other members of ! the project team, in part of this report. Special acknowledgement is also extended to Ms. Frank who, with urffaltering energy and patience, typed the many draft and final ! materials which comprise the results of this research. The study, of course, could not have been completed without the ! cooperation and assistance of the Office of the Sheriff, Jacksonville, Florida; the Governor's Council on Criminal Justice, State of Florida; and, the Law Enforcement Assistance Administration, U.S. Department of Justice. In this regard, special thanks is extended to Sergeant Eddie Bratburd, I who coordinated the project for the Office of the Sheriff; Mr. Tim Crowe, who served as project coordinator for the Governor's Council on Criminal Justice; and, to Mr. William Sprecher of the Law Enforcement Assistance I Administration, whose interest and energies helped shape the intent of this effort froma concept to a federally-supported research project. i The research team also wishes to extend its appreciation to the following members of the Office of the Sheriff whose time, interest and | assistance aided significantly intheconduct of the study: Sheriff Dale Carson; Undersheriff D. K. Brown; Director John Riley Smith; Director I 0 I i John C. Nelson; Deputy Director John Harnlin; Deputy Director W.F. Whitehead; Deputy Director Robert E. Page; Chief C. L. "Rip" Raines; Chief M. P. Richardson; Sergeant T. C. Simms; and, Patrolman John A. I Sharkey. Special thanks is also extended to Mr. Harold Baker, News Director of Channel WTLV-TV for his assistance in conducting an area- wide survey of citizen opinions on the quality of police services in the I Consolidated City of Jacksonville. i I I I I I I I i I I i P I I I TABLE OF CONTENTS I I Section B CHAPTER I: A STUDY OF EVENTS LEADING TO I THE JACKSONVILLE CONSOLIDATION i THE SETTING .................. 2 Population Growth and Distribution ......... 2 i The Government of the Old City of Jacksonville 4 i The Government of the Old County of Dural ..... 6 II HISTORICAL UNDERPINNINGS OF GOVERNMENT i REORGANIZATION IN JACKSONVILLE ....... 9 I Charter Revisions: 1917 ............. 9 Recommendations to Consolidate: 1918 and 1923 . 9 I The Better Government Association: 1931 ...... 10 i The Constitutional Amendment: 1934 ........ I1 The City-County Consolidation League: 1934 .... 11 I A Review of Annexation .............. 12 III PROBLEMS AND CONDITIONS PRECEDING THE I 1965 LOCAL GOVERNMENT STUDY COMMISSION .................. 13 I Suburban Sprawl ................. 13 i The Annexation Efforts of 1963 and 1964 ...... 14 | The School Crisis ..... ......... 15 I I i TABLE OF CONTENTS i (Continued) I Section IV THE LOCAL GOVERNMENT STUDY I COMMISSION ...... ........... 20 I Formation of the Commission .......... 20 The Comrnission's Work .............. 21 I "Blueprint for Improvement" ........... 23 I The Grand Jury Indictments ............ 24 V THE DUVAL LEGISLATIVE DELEGATION ..... 26 I The Public Hearings and Early Consolidation Opposition .................... 26 I Initial Hearing Issues ............ 27 I The Work of the Delegation ............ 28 An Early Referendum on Consolidation ..... 29 Amendments to the Study Commission Plan. 30 I The Backup Plan .............. 32 HB3029 ................... 33 I VI THE CAMPAIGN ................. 35 I Introduction ................... 35 The Proponents .................. 36 I The Opponents .................. 38 i I I I TABLE OF CONTENTS I (Continued) Section .Page I VI Pro-Consolidation Arguments ........... 39 (Continued) I Anti-Status Quo ............... 39 Tax Savings ................ 4O i One Community, Two Governments ...... 4O t i Appeals to Authority ............. 41 Anti-Consolidation Arguments ........... 41 I Big Government .............. 41 I Higher Costs .... ............ 42 I "Rush Job" ................. 4Z Superiority of Other Plans .......... 4Z I Special Appeals ................. 43 I Government Employees ......... 43 Status of the Beaches ............ 43 I The Core City Black Population ........ 44 I The Referendum ................. 44 VII A PERSPECTIVE FOR OTHERS .......... 45 ! Principal Forces Which Prompted the Jacksonville Consolidation Movement ............. 45 i i I I I TABLE OF CONTENTS I (Continue d) Section Page I VII Population and Business Growth ........ 45 (Continued) The Capacity and Quality of Local Government Services ............ 45 I The Old City and County Governments ..... 46 The Nature of Local Government Institutions ................. 47 I Other Movements Toward Government Reorganization ............... 47 I Identifiable Governmental or Political Crises .................. 48 Equitability of the Tax Base .......... 48 I The Grand Jury Indictments .......... 48 Summary ............. ..... 49 I Principal Elements or Conditions Which Led to the Successful Vote for Jacksonville's I Consolidation ................... 5O The Nature and Role of the Dural County Local Government Study Commission ..... 50 I The Role of the State Legislative Delegation 51 Pro-Consolidation Forces ......... : 5E The Media ............... 5Z I Anti-Consolidation Forces ........... 53 The Campaign ................ 53 I Summary .................. 53 CHAPTER II: POLICE SERVICE PRIOR TO I CONSOLIDATION: A POINT OF DEPARTURE l I BRIEF HISTORY OF THE JACKSONVILLE POLICE DEPARTMENT AND THE DUVAL COUNTY I SHERIFF'S OFFICE ................ 56 I I i I TABLE OF CONTENTS I (Continued) Section I I The Jacksonville Police Department ........ 56 {Continued) I The Office of the Sheriff, Duval County ........ 60 II THE ORGANIZATION OF LAW ENFORCEMENT FUNCTIONS IN JACKSONVILLE AND DUVAL I COUNTY PRIOR TO CONSOLIDATION ........ 64 I The Jacksonville Police Department ......... 64 Planning Division ............... 64 Administrative Services Division ........ 66 I Inspection and Control Division .... ..... 66 Operations Bureau .............. 66 I Services Bureau ............... 67 The Office of the Sheriff, Duval County ........ 68 I Civil and Administrative Division ........ 69 Detective Division ............... 69 Traffic Division {Road Patrol) ......... 70 I Jail Division ................. 71 Prison Farms of the City of Jacksonville I and Duval County ................. 71 III THE RECOMMENDATIONS OF THE LOCAL I GOVERNMENT STUDY COMMISSION OF DUVAL COUNTY CONCERNING LAW ENFORCEMENT i AND THE IMPACT OF POLITICS .......... 73 Original Recommendations Conce rning Public I Safety and Police Services Consolidation .... ,. 73 Police Department Housing ......... 74 Prison Farms ................ 75 I Records .................... 75 i i I I I TABLE OF CONTENTS i (Continued) i Section Page III Communications ............... 76 (Continued) Morale ................... 76 i Sign Shop .................. 76 Vehicle Costs ................ 76 Manpower Shortage ............. 77 i Juvenile Delinquency ............ 77 The Final Proposal for the Organization of I Consolidated Law Enforcement ........... 77 Other Recommendations of the Study Commission I That Affected the Operation of the Office of the Sheriff .................... 79 I Motor Pool ................. 79 Data Processing ............... 8O I Purchasing ................. 8O IV A PERSPECTIVE FOR OTHERS .......... 8Z I The History, Status and Organization of Police Operations Prior to Consolidation ......... 8Z I The Proposed Restructuring of Public Safety Operations and the Impact of the Political i Process ..................... 83 CHAPTER III: THE MONTHS PRECEDING i CONSOLIDATION: A TIME OF TRANSITION i THE GENERAL GOVERNMENT MERGER ..... 85 I The Legal Framework Undergirding Transition 85 I I I i i TABLE OF CONTENTS I (Continued) Section I I Organization of the Consolidated Government. 85 (Continued) The Financing of the Transition Period .... 86 The Co-Existence of the Old and New ....