Criminal Justice - OJP

M A N A G E M E N T PROCESSDETERMINE PRESENTSIT"UATION (INTERNAL/EXTERNAL VARIABLES)' EXAMINE AGENCY/PROGRAM/LEADER-,SHIP PARAMETERS, HIt'OA!IDENTIFYDETERMINE PROJECTIONSANDANTICIPATIONS (ENVIRONMENTALAND "ASSUMPTIONS AND VARIABLEANALYZEPROBLEMRESPONSE PLANS) r,t k MONITORANDEVALUATEPROGRESSMODIFY IMPLEMENTATION @'IMPLEMENTPLANS.II rIAelVA I,ESTABLISH PLANS FORIMPLEMENTATION ANDEVALUATIONIA e I--IA e 1 SELECTPREFERREDALTERNATIVESThis Module addresses the aspect(s of the I . , OOI A 01 SELECTALTE.,,,AT,VEST.ATEO,CO0.LSESTABLISH NORMATIVEGOALS AND POLICIESI"SYSTEM FUTURESESTABLISH MISSION, O (D C0NS,OERALTER.T,VEOeeIDENTIFY ALTERNATIVECOURSES OF ACTIONSELECT ALTERNATIVESTRATEGIES THAT BESTADDRESS ALTERNATIVESI-7.lent Process Chart that is (are) highlighted OOO

NOTESI.THE EMERGING DISCIPLINE OF CRIMINALJUSTICE ADMINISTRATION 'During the past decade there has beena growing awareness of criminal justiceadministrationand a concomitantdevelop-ment of a series of courses by LEAA todevelop and enhance capacitiesnal justice administrators.fic capacitiesQThese speci-are functions of:ePlanning Analysis Program Development EvaluationManagersof crimi-at higher levels deal morewith conceptual tasks(Visual I-2).Managers at all levels deal w i t h interpersonal types of tasks.The CriminalJustice Management Course will address anumber of these latter tasks, and willalso stress the practical/conceptualskills of taking the technical productsof the other cources and using them toeffectively perform the managerialfunc-tion.II. OVERVIEW OF THE COURSEA.C o u r s e ThemeThe salient theme of this courseis that criminal justice administratorsVariouslyact in three modes or roles inexecuting their functions.These rolesar :eExercising authority over anddirecting their own agencies or organizazations ;I-3

IVIANAGER ALTOP MANAGERS TAS (SCONCEPTUALT.1: .MIDDLE MANAGERSHUMANFIRST-LINE MANAGERSTECHNICAL1-2/ 00 O

NOTESoManaging programs or activitiesover which they have limited authority;andoExerting leadership or influ-ence in areas over which they have noauthority.As criminal justice administrator carry out their responsibilities,frequently move, imperceptibly,role to another.a foundationtheyfrom oneThis course will providefor criminal justice adminis-trator s to plan, organizeand control pro-grams and activities successfullythis spectrum.It will emphasize,acrossamongother things, how to apply conventionaltechniquesof management to operate with-in this unique environment.B.Course GoalThe goal of this course is to en-hance the capability of criminal justiceadministratorsto plan, organize and con-trol activitiesauthority,and programs under theirand to promote the improvedperformanceand administrationcriminal justice activitiestions.of otherand organiza-This goal will be achieved byteaching the participantsto apply know-ledge, skills and techniques that areparticularlyappropriate to criminaljustice administrators.C.Course ObjectivesThe course goal will be attainedby achievingtives.four overall course objec-These objectives are to enhancethe ability of participantsto:I-5

NOTES Apply sound organizationalpracticesin the development of qualitycriminal justice services; Make decisions using soundprinciples of management; Plan, organize and controlchange within the criminaljustice system;and Apply selected managementtechniques whic can result in improvedcriminal justice system performance.III.ACHIEVING COURSE GOALS AND OBJECTIVES : THE INSTRUCTIONAL APPROACHIV.A.LectureB.IndividualC.The Case Studyand Grou ExercisersTHE MANAGEMENTPROCESSThe General Pianning Process Model(Visual 1-6), the product of the PlanningCourse,serves as the conceptualframe-work for the Management Process Chart(Visual' 1-7).V.THE THREE ROLES OF THE CRIMINALJUSTICE ADMINISTRATORA.Director of an OrganizationalUnit Directline authority andcontrol traditionallymanagementB associated with thefunction.M a n a g e r of Programs Limited managerialover a "set of related efforts,common,authorityunder ageneral authority designed toaddress a particular problem. "T-6

x. Q@0 @@Q- @GENERAL PLANNING PROCESS MODEL(3)PREPARINGFORPLANNINGI.-II,,.,,,,I UATINGPROGRESS@.-t--II IDENTIFYING#IMPLEMENTING,PLANS@II-- CONSIDERINGALTERNATIVESYSTEMFUTURESiSETTING " GOALS"1 SELECTINGPLANNING FORIMPLEMENTATION !AND EVALUATIONH. DETERMININGPROJECTIONSANDANTICIPATIONS@PREFERRED. ALTERNATIVES [4 - @II,JIDENTIFYINGALTERNATIVE "COURSESOFACTION@1-6

MANAGEMENTPROCESSDETERMINEPRESENTSITUATION (INTERNAL/EXTERNAL VARIABLES) Ib.@ CONSIDER ALTERNATIVEEXAMINEAGENCY/@PROGRAM/LEADER-. .SHIP PARAMETERS !SYSTEM FUTURESDETERMINEPROJECTIONSANDIDENTIFY ANTICIPATIONS (ENVIRONMENTALASSUMPTIONSAND VARIABLEANDANALYZE RESPONSEPLANS) rPROBLEMESTABLISH MISSION!5, MONITORANDEVALUATEPROGRESSJ MODIFY MPLEMENTATIONII.,, .AI PLANS l ,,.@ IMPLEMENTe]h i / / @]SELECT ALTERNATIVESTRATEGICGOALSVESTABLISH NORMATIVEGOALSAND POLICIES-[AESTABLISHPLANS FORIMPLEMENTATIONANDEVALUATIONO0OOSELECT PREFERREDALTERNATIVES0(DIDENTIFY ALTERNATIVECOURSESOF ACTIONSELECTALTERNATIVESTRATEGIESTHAT BESTADDRESSALTERNATIVES I-7 -S

NOTESC.Leader in t h e Criminal JusticeS ystem No "managerial"authority, butof great importance to criminal justicesystem.VI.MANAGEMENT RESPONSIBILITIES OF THECRIMINAL JUSTICE ADMINISTRATORA.IntroductionDe finit ions :i.Planning:The orderly,sys-tematic and continuous process of bringinganticipationsof the future to bear oncurrent decision-making.2.Organizing: Establ!shing aframework in which the results developedduring the planning can be achieved.3.Controlling:Insuring thatthe results established during planningare achieved to the greatest extent possible.B.Relationship to the Three Rolesof the Criminal Justice AdministorSee Visuali.i-8.Director of an OrganizationalUnita.organizationalb.Planning for optimumperformance.Organizing to create ano r g a n i z a t i o n a l framework and environmentbest equipped to achieve agency results.c.Controllingthat agency, objectives2.are achieved.Manager of Programsa.programmaticto insurePlanningfor positiveimpact.I-9

M A N A G E M E N T RESPONSIBILITIESOF THECRIMINAL JUSTICE A D M I N I S T R A T O RI ESI'ONSIBlUTT" DIRECTOR OFORGANIZATIONAL UNITMANAGER OFLEADER INPROGRAMSCJ SYSTEMPI ANNINGOPTIMUM ORGANIZATIONAL PERFORMANCEPOSITIVE PROGRAM"MATIC IMPACTCONSTRUCTIVEINFLUENCEORGANIZINGCREATE ORGANIZATIONAL FRAMEWORK AND ENVIRON"MENT BEST EQUIPPEDTO ACHIEVE OBJEC"TIVESDEVELOP CAPACITY INEXTERNAL AGENCIESTO GROUPS,CONSTITUENCIES.INSURE OBJECTIVESARE ACHIEVEDINSURE PROGRAMOBJECTIVES AREACHIEVEDEVALUATEIMPACT OFAGENCY ON ITSENVIRONMENTSAND VICE VERSAHII,--'.oCONTROLLINGINSURE TA ISPROPERLY PROVIDEDOPR EFFORTS,ADVOCACY ACTIVITIES, ETC.,REQUIRED TOCONTRIBUTE TOSUBSTANTIVECHANGE IN CJSYSTEM1-8 jJ

NOTESb.Organizing to develop acapacity in external agencies to successfully implement criminal justice programs.c.Controlling to insurethat (I) program goals and objectives areachieved,(2) technical assistance is pro-perly provided, and (3) evaluations aretimely, relevant, and used.3.Leader in the CriminalJustice Systema.Planning for constructiwinfiuence, e.g., developing a specificplan concerning the development ofcommunity-organized and -run crimeprevention teams.b.Organizing(i)Constituencies,e.g., a task force to advocate increasedstate-level funding support for communitycrime prevention programs.(2)Public informationefforts, e.g., promulgating informationabout the need for state funding of community crime prevention teams.(3)"Advocacy" activi-ties, e.g., coordinating efforts todirectly inform state legislators of theneed for state funding of community crimeprevention programs.(4)Other relevant acti-vities in this area that contribute tosubstantive change in the criminal justic(1system.c.Controlling to evaluatethe impact of the criminal justice agencyI-ll

NOTE Sor organizational unit on its environmentsand vice versa.4.SummaryoVarious functions per-formed by the criminal justice administrator in each of the three roles potentially can impact activities in the othertwo roles.oEach role can impact theother two.] No role exists in a vacuum 1VII. POWER AND THE CRIMINAL JUSTICEADM IN I STRATORThe criminal justice administratorutilizes different types and sources ofpower as he or she moves between andamong the three roles.A.Types of Poweri.Reward Power is based on thenumber of positive rewards that peopleperceive that a manager or leader canmuster.2.Coercive Power is based onthe perceived expectations of people thatpunishment will follow if one does notcomply with the aims of the manager orleader.3.Legitimate Power is based onlinternalized values that dictate that a!leader or manager has a legitimate rightto influence people, activities and events Iand that this influence should be accept-ie .fI1-12

NOTES4.Referent Power is based onthe identificationtentialof subordinatesor po-followers with the manager orleader and with what the manager or leadeJstandsfor.5.!Expert Power resultsfrom amanager or leader having recognized expertise or knowledge in an area that themanager or leader wants to influence.B.Sources of Power - The fivetypes of power can come from two sources:i.Ascribed Power is possessedby a manager or leader by virtue of theposition(s)2.that individual holds.Achieved Power is possessedby a manager or leader by virtue of thePersonalrespect and deference that indi-vidual receivesfrom others based o n a n ypast performance,activitiesand accom-plishments.3.4.Types of Ascribed Power are:a.Rewardb.Coercivec.LegitimateTypes of Achieved Power are:a.Legitimateb.Referentc.ExpertThe way in which power is use ddependson the:O Credibility of the power holdero Personality of the power holderando The Situation.1-13]

Power and the Roles of the CriminalJustice AdministratorRefer to Visual 1-9.i.2.3.Directora.Ascribed:b.Achieved:Manager of Programsa.Ascribed:b.Achieved:Leader in the Criminal JusticeSystema.Ascribed:b.Achieved1-14NOTES

000Q@ 00 -. SOURCES OF POWERAND THE ROLES OF THECRIMINAL JUSTICE ADMINISTRATORPOWER SOURCEIU1ROLEDIRECTOR OFORGANIZATIONAL UNITASCRIBEDPOTENTIALLYAVAILABLE ANDUSEFULACHIEVEDPOTENTIALLYAVAILABLE ANDUSEFULMANAGER OFPROGRAMS POTENTIALLYAVAILABLEBUT LIMITED UTILITYPOTENTIALLYAVAILABLEANDUSEFULLEADER INCJ SYSTEMNOT AVAILABLEPOTENTIALLYAVAILABLEANDUSEFUL1-9O

CASE -STUDY EPISODE ONE: LIFE AS-A CRIMINAL JUSTICE ADMINISTRATOR(GROUP EXERCISE)eIntroductionThe everyday world of criminal Justice administrators is quitea contrast to the average classroom setting in which they areOtaught how to be more effective in their jobs.The tasks theyperform are usually multi-faceted and quite complex.The sit-uations they confront are seldom as simple and clear-cut as onewould desire.Often irrational, subjective factors have a tre-mendous impact on the actions of criminal Justice administrators,despite their most conscientious efforts to create a rational,objective approach to performing their responsibilities.Th scourse attempts to teach criminal Justice administrators how tocope more successfully with this complex environment.Inevitably,most of the management techniques taught in such a course willappear somewhat simplistic when initially addressed in theclassroom setting.This case study is therefore intended to moreclosely approximate the d i v e r s e a n d frequently complicated milieuin which criminal Justice administrators operate.In this context,the potential utility of the concepts and techniques presentedin the course will be demonstrated and/or reinforced.The setting for the case study is Gotham City and PaynelessCounty, which are located in the State of Misery.Gotham Cityis the county seat of Payneless County, and is in fact the onlyincorporated jurisdiction in the county.ulation of 100,210.Gotham City has a pop-Payneless County, whose unincorporated areaoutside Gotham City serves, to a great extent, as a sprawling"bedroom community" for Gotham City, has a population of Just overa quarter of a million.The focus of the case "study is thecriminal Justice planning agency that operates in Gotham City andPayneless County.This planning agency is beset by many of thesame problems that affect other crimlnnal Justice planning agencies:1-16

A rapid increase in crime, vicious local politics, and a certaindegree of intra-organlzational strife.The case study will followthis planning agency from the demise of one director through theinstallation and first year of a new director.During this period,both directors will encounter the challenges and perils inherentin performing the three roles of the criminal justice administratorthat are addressed i n t h i s course.Course participants will sharethe "trials and tribulations" of the two directors.In the coreexercises of the case study participants will directly apply theconcepts and technlques taught in the course to analyzing and formulating ways for dealing with the various stltuations in whichthe directors find themselves.In Episode One, emphasis willbe on the application of information concerning the key conceptsof "roles"and power".T -- I "'tt:

ONOTESVIII.CONCLUSIONA.Management Process Chart asSchematic Guide for CourseB.Three Roles of Criminal JusticeAdministratori.Director of Organizational2.Manager of Programs3.Leader in the CriminalUnitJusticeISystemC.D.E.Three Management gFive T pes of ertTwo Sources of Poweri.Ascribed2.Achieved1-18

MODULE ONE TEXTThe theme of this course centers on the three roles played by thecriminal justice administrator: Director o f an Organizational Unit, Managerof Programs, and Leader in the Criminal Justice system. To our knowledge,this theoretical Construct for dealing with the topic of criminal justicemanagement is unique. Consequently, citing books and articles that reflectthis point of view is most difficult. The books and articles cited on t h efollowing p a g e s present, for the most part, information that supports one ormore of the roles.Throughout this course, the manner in Which criminal justice administrators function in their respective roles is discussed. The article that follows p r o v i d e s an opportunity for participants to gain greater insight intotheir personal approaches to acting in the managerial environment. It buildsa theoretical framework that is compatible with the "Change Agent Questionnaire"presented in Module Two. Participants who are interested in pursuing theChange A g e n t concept into broader management application will find thisarticle and its included self-assessment exercise useful.0 -1.q

Annotated BibliographyI.Title:Author:Source:The Public Administrator as Policy AdvocateNancy G. MoorePublic Administration Review, September-October,468.1978, pp.463-!In each of the three roles played by the criminal justiceadministrator he or she is at times placed in the position of needingto advocate a change in existing policy.This article explores the tremendous institutional pressures that can limit the potential effectivenessof a criminal justice administrator in functioning in the leadership role.It points'out the very real "perils" that can be present in trying to impact the process of change.2.Title:Author:Source:Police Manager - Professional LeadershipR. G. LynchHolbrook Press, 1978, p. 16Skills,2nd EditionThis book includes an overview of the management process and thehistory and philosophy of management, particularly police management.The focus of the work is the role of director of an organizational unit.However, Lynch does allude to the need to play a leadership role.Theorganizational environment facing criminal justice managers is discussedin relation to management techniques.Maslow's Hierarchy of Needs,Herzberg's Motivation-Hygiene Theory, Douglas McGregor's Theory X andTheory Y, and the Likert Management Systems are reviewed to provide aframework against which criminal justice managers may analyze and understand their own organizational behavior.Of special interest to criminaljustice administrators should be the final section which deals with theorganizational development process.Issues such as foundations for o r g a nizational development, management of team building, and the use of rational and psychologica principles in bringing about organizational developments are discussed.3.Title:Author:Source:Changing Police Leadership - Reactive to Anticipatory, Top toBottom!D. T. ShanahanTenth Annual Interagency Workshop-Proceedings, 1975, p. 117Of particular interest in this work is the discussion of helimits on the power of law enforcement administrators to create change.Also discussed are strategies for compensating for this lack of power.4.Title:Author:Source:Management is Management is Management.(Or Is It?)Eleanor LaudicinaPublic Administration Review, March-April, 1978, pp.193-196This article reviews several major books that explore variouspublic and private sector management approaches.The author describesseveral issues concerning the applicability of business managementI- 0

principles to government agencies, and reaches some interesting conclusions in this area. This examination provides an interesting frameworkfor viewing the limitations of power in the roles of the criminal justiceadministrator.Title:Author:Source:Changing Nature of Police Management - Theory in TransitionK. R. McCreedySage Publications, Inc., 1978, p. 44This work describes the management milieu of law enforcement.It discusses many of the concepts used in this course as they directlyrelate to lawenforcement, especially those aspects of external and internal variable analysis. Police departments have traditionallv adopted aparamilitary style of organization and management, and police managershave emerged because of operational crises rather than because of theirmanagerial competence. There is a theoretical dilemma involved in theposition of police manager--they can be seen as public servants subjectto political proce

positions of the Criminal Justice Training Centers, The Law Enforcement Assistance Administration or the United States Department of Justice. ii . Participants' Guide and Text CRIMINAL JUSTICE MANAGEMENT COURSE . criminal justice management is so vast and complex, all that can be accom