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If you have issues viewing or accessing this file contact us at NCJRS.gov. . 1This microfiche was produced from documents received forinclusion in the NCJRS data base. Since NCJRS cannot exercisecontrol over the physical condition of the documants submitted,the ndividual frame quality will vary. The resolution chart onthis frame may be used to evaluate .the ,document quality.I'/1EVALUATION REPORTOF THE1.011111 ri}. f Of"2,5 .t')"J ' ., J\"'- ·"' BUREAUOF INVESTIGATIONSDEPARTMENT OF JUSTICECOMMO EALTH OF PENNSYLVANIAI ,JI1.'1IIIIIIII. Conducted from, '-,' July 10, 1973 to Sept.ember 30, 1973111111.25 111111.4 \\\\\1.6 1MICROCOPY RESOLUTION TEST CHARTL.NATIONAL 80 IEAU Of STANDARDS-1963-A.Microfilming procedures used to crute this fiche comply withthe standards set forth in 41CFR 101-11.504ByCourtney A. Evans1320 19th Street, N. .Washington, D. C. 20036Points of view or opinions stated in this document arethose of the author[sj and do not represent the officialposition or policies of the U.S. D'Jpartmentof Justic!.;U.S. DEPARTMENT OF JUSTICELAW ENFORCEMENT ASSISTANCE ADMINISTRATIONNATIONAL CRIMINAL JUSTICE REFERENCE SERVICEWASHINGTON, D.C. 20531. o "'-- - 11/5/75

"'- "'" -- ---- -".I-- "--TABLE OF CONTENTSPageiSUMMARYSUMMARYINTRODUCTIONProject Description and Status1Evaluation Approach and Methods2Subgrant DS-328-72A in the amount of 100,000was awarded to the Department of Justice, Bureau of Investigations on February 5, 1973.OPERATION OF BUREAU OF INVESTIGATIONSThe ,purpose of this grant isto increase the capacity of the Bureau to handle an increasedHistory and Jurisdictioncase load in fraud, bribery, corruption and related matters.organization,Start up problems delayed implementation of theWork Loadgrant.Facilities and EquipmentBy September 30- the end of the grant period--sixemployees had been hired, automobiles purchased and investi-Personnelgative 'work on de.signated federal cases was underway "Supervisory OperationsLapsedfunds permit-ted an extension of the grant pe:riod.Investigative OperationsThe increased work load envisioned in. polic.ies and programsapplicat ionth granthas materialized and the 30% increase in theADMINISTRATION OF PROJECTGrantProvi ions18capacity of the Bureau is a measurable impact of the grant,funds.other \ impact cannot .be determined at tnis time sinceProgress in Implementation18lImpact of the Grant20;1accomplishments will not be ascertainable until investiga-Cost Effectiveness21;tions,are completed and prosecutive r administrative action t·FINDINGS AND RECOMMENDATIONSCurrent23,.Long Term25-.!:; itaken.The cost of investigations financed by the grailt iscomparable to the cost to the state of regular investigativeoperations.1 "fi

. .------------.---- ,. --------------------. ---------------- "''Findings and recommendations which can be implementedcurrently include--Con'tinue on-the-job training, attendance atspecialized schools in other agencies and plan a formaltraining r.ourse.--codify existing policy memoranda and preparemanuals for investigative and clerical 'employees.--Reduce detailed supervision as employees 'becomebetter qualified and use supervisqry talent on policy andprogram development.--Record Bureau accomplishments in a more organizedProject Description and statusSubgrant DS-328-72A was made to the Department ofJustice, Bureau of Investigations on February 5, 1973.Theperiod of the subgrant was January 1, 1973, to September 30,manner.1973.i./--Obtain dictation equipment and have investigatorsdictate reports.--EmpJ.oy additional clerical employees when fundsare avail ;tble.The 100,000 so granted was intended to finance prin-cipally the compensation, travel, equipment, supplies andclerical assistance necessary to add five investigators tothe Bureau's staff.Three of these investigators were hired--Maintain exact records of investigators' activities.in late March, one in May, and one in August.The principalLong-Term actionequipment required consisted of motor vehicles which were--Establish jurisdic iQn of Bureau by statute.delivered in July 'and. August.--Issue guidelines as to criminal vs. administrativeinvestigati;.ons.--consider giving investigators civil Service status.---Extend coverage to organized crime cases intendedfor prosecutions. .Of the73'c sesopened by the Bureau betweenJanuary, 1 and June 30, 1973, ,56 were designated as casesfal ing w thin.the purview of the subgrant.These are beinginvestigated by Bureau investigators hired under the grant--Enter into agreements to obtain needed technicaland those who.se services were dedicated to the proj ect as aservices'.--Appoint a permanent Director of the Bureau.matching fund requirement supplemented where !:'equired byother regular investigators.ii-1-

.-,------- .- -. . .- --- - - - - ,'.',.As of the time of tlle evaluation, the project wasinterviews with personnel and a review of files incorporatingunderway and in the process of being fully implemented.the results of investigations, both past and present.However the normal time required to investigate casesthoroughness and effectiveness of the Bureau's business hasprecluded complete review of accomplishments of the investi-been analyzed in relation to cost and the standards of othergators employed through grant funds as of the date of tlleinvestigative organizations, both Federal and State.evaluation. al ationTheThisapproach has been necessary in view' of the sketchy nature of .Approach and Methodsrecords of Bureau accomplishments in prior years.Since the objective of this grant is to increaseParticular emphasis has been placed on personnelthe effectiveness of the Bureau of Investigations in dis-and equipment' secured by grant funes and the analysis ofcharging its responsibilities as the investigative arm ofinvestigative cases designated as falling' under this project.the Department of Justice by adding' to its resources, themain thrus't of the evaluation has been tmvard the Bureau asan operational unit.While the Bureau has identified!'this has not been particularly meaningful, however, in viewof the time lag caused by employment and procurement procedures which were not completed until the evaluation wasce.rtain specific ca es as being within the scope of' thealmost finished . The short period of time the additionalgrant, this selection has nece sarily been an arbitraryassets provided by . the grant have been available has pre-one as the major part of the Bureau s work is within thateluded detailed substantiation of theirIcategory of in estigations -- Fraud Against the Government,value The Acting Director of the BureCl.u has been kept\Bribery, Corruption of Local and state Officials, etc.which are covered by the grant.Accordingly, the first task has been to evaluatethe Bureau as a whole.Its organization, workload 6 personnel,informed of evaluation findings as they were developed anddisc ssionshave been held as to revised or additional stepswhich the Bureau should consider in the months and yearsahead.facilities, management, and investigative operCl;tions havebeen examined in detail.This has been accomplished through-2--3-

. , ---:-:-:----r.1i'-----.-: ---. ,: .\ .,.''-History and JurisdictionTheEvaluation of the Bureau requires an understanding/"of its history and jurisdiction.The Bureau actually beganas an investigative capability fmc the Attorney General inFebl:'uary 1956 and was formally created by Executive Boardresolution dated May 28, 1956.This resolution, however,merely authorized a line unit within the Office of theAttorney General and was silent as to what jurisdiction orresponsibility devolved on the new organization.To thepresent date the only jurisdiction '\'lhich the Bureau possessesis that which the Attorney General may elect to delegate onExecutive Board resolution of November 20, 1957At that time, according to memoranda in Justice Departmentfiles, this was a first step in a long-range goal tocentralize all state investigative functions in the Bureau.There is no evidence this goal was ever pursued and ultimatelythe highway investigative responsibility was divorced fromthe Bureau and returned to the Department of Transportatio1"lon July 1 . 1971.:The status of the Bureau thus is the sarnetoday as at the time of its creation more than seventeenyears ago.OrganizationThe Bureau has a headquarters office located inthe building housing the Department of Justice in Harrisburg.added responsibilrty for protection of civil rights to theIt is staffed with an Acting Director;.an AdministrativeBureau's jurisdiction althougp such jurisdiction over allAssistant, a Special Assistant to the DirecJtor who super-civil rights matters other than false arrest, policevises all investigative ,.operations and three clericalbrutality and fraudulent voting practices was subsequentlyemployees who maintain central file operations.trans.ferred to the Human Rights Commission on September '19,three field offices which conduct actual investigations.1961.One is located in Philade,lphia and one in Pittsburgh, which-4-i}unit of the then Department ofHighways was merged into the Bureau on February 6, 1959.the basis of his statutory authority under Section 904 toenforce the laws of the Commonwealth.inves igativecover hoseThere aremetropolitan areas, and one in Harrisburg, whichhandles investigations there and in the middle section oft-5-,

------,-,.u.-.-----.----------.;&r-.- A:-.------1-.,'.r·r---jthe state.As of the dab of the evaluationIsurvey, eleven special investigators were assigned to theHarrisburg Field Office (with one of these on specialdetail to the Crime Commission), seven at Philadelphia andtwo at Pittsburgh.One secretary is assigned to the Phila-delphia office, and a secretary is on duty on a part-timee.agencies is therefore not feasible.The lack of routineinvestigations is a disadvantage since it is sometimesdifficult to keep investigators fully occupied in periodsbetween major cases.This has been no problem for the-Bureau t:o date because of the restricted manpower availableand the need for time for training programs.Continuedefficient operation of the Bureau in the future requiresPittsburgh The' 'a 1signment of personnel and the degree ofsupervision afforded their activities is equitably dividedIaceEach fiel.d office is under the direction of aspecial agent in charge.basis at.Zbthat it. be given more authority over its work load.Ava'ilab1.e records reveal that the Bureau opened142 cases in the calendar year of 1971 , 110 in 1972 andin accord with the "VlOrk load.73 in the first half of 1973,.Work LoadThe decrease in cases in1972 as against 1971 is obviously due to the split off ofIt is difficult to measure the amount of inves-Penn-DOT investigations onJul T1, 1971.The number oftigative ,'lork which the Bureau must perform because of thecases open in the first half of 1973 supports the ir . .creaseddiffer.ences in complexity in individual cases.work toad forecast 'in the grant application.In anyevent, the Bureau has no control over its work load sinceFacilities and Equipmentit .is empowered to investigate those cases and only thosecases which the Attorney General or one of his designatedassistan sinstructs the Bureau to handle.all t e cases are serious and sensitive.PracticallyThe case loadis not enlarged by a volume of routine matters such asapplicant inquiries or sin1ple criminal 'IJ·iolations.Com-parison \,lith case loads of other' investigative organiza-Bursau operations utilize office space in Harrisburgand Philadelphia in government buildings.In Pittsburgh spaceis rente,d in a privat:ely-owned building in conj unction withother .Department of Justice activities.The offices are allfunctional and on a par with those of other units of stategovernment.Th e Y are nea t' ta1ne' d , well organized, andylma1ntions such as the Pennsylvania State'Police or federal. -7-

·."'-appear adequatet but certainly not excessive to the Bureau'sneeds.a serious deficiency in clerical and stenogrclphic pers;onnel.In fact, in all three locations more space could beWhen the ii,eld ratio falls below one clerical to twoefficiently used primarily for interviews and other investigativepurposes.officesp ceinvestigative employees, there is no alterna't.ive to pro-As additional personnel are acquired, morefessional employees performing some clerical duties.must be secured.is hardly efficient for the Commonwealth to pay investiga-The equipment available to the Bureau is minimalconsidering its investigativeresponsib:i.liti( s.tors to spend ,time onItconsistsdo.principally of photographic and automotive facilities andWhat. equipment there is" how-eve.r, is afforded proper care and is kept in aorderly manner.secun IThe automobiles financed by grant fundswere secured duri·ng the course of 1::he evaluation and aresuitabl(· forinvt st'igativeoperations.time It has been an accepted practice for J'ears for investi-Iservices of one or two agen'cs.could travel toheadquarter Such investiga'ti ve employeeson a regular basis and utilizesUPf.'ort services of clerical employees there.On the otherhand I! if tho work load justified more investigators in onearea -- particularly if much travel time to headquartersis irllvolved -- theri fficiency' requires fu:rnishing clericalsupport in that area thus reducing travel time of investiga-PersonnelAs df thea clerk' is fully qualified towhere the vol.'ume of work justified full-ti.me i,nvestigativeCummunications capability, for example,is practically non·-existent.tas7! sgative agencies to utilize resident agents in localitiesis n.ot suffic'ient to support investigative operations of! asophisticated nature.Itof the evaluation :survey, thetors and. increasing their producti vi'ty.This ,is particularly\per onnelBureau had three professional and three clerical employeesdesirable when, as here, proper supervisoryassigned,to headquarters, 24 investigative and 2 full-timedirect the activities of t.he clerical employees and sui·tableplus onepart-tim clerical employee in the field.Theratio of the professional to the clerical st.aff a"i:. head-·, sa t' s f ac t ory.quarters sIn thef eld, hO'ltl! : ver, there isoffice space is available.A:minimum of one additional clerical employee isrequired at Harrisburg and one inPhiladelphi and the part-time stenographer at 'Pittsburgh ,should be full' tim.e if, -·8-toe'fficient use of pe.rsonnel is to be achieved.-9-

"""--Interviews with Bureau personnel plus a eviewof both substantive and'personnel files est.ablish thatpresent employees, with some exceptions of which the Actingfield offices.Director is aware, are fully qualified and performingand clerical employees in the field, Special Agents in Chargetheir tasks efficiently in relation to their experience.often engage directly in investigative operations.Comment on personnel hired to implement the grant beingvaluable, not only from a production point of view, butevaluated is set forth subsequently :in this report.Because of the limited number of agentsalso as a training aid for new investigators.This isAn examinationIt is noted that Bureau investigators have noof case files establishes the substantial amount of investitenure of any kind.This disrupts morale and makes selectionof dedicated career employees difficult.Impartiality of,investigations requires non-partisan personnel.Investigatorshave joined a union composed' of State employees to gain somesort of job protection.excluding theDirect r,Civil Service status for investigators,Forexample, so ar this year SAC Nolan in Philadelphia personallyassigned to himself two particularly sensitive investigations.This is a potential conflict of ,interest since such employees are often the subjects ofBureau investigation.gative work performed by Special Agents in Charge.Case files reveal that supervisors regularly followthe work of their investigators and insist on timely,. competent perfonnance.SAC's and even the Director are obviouslywould be much better and yet wouldso well acquainted with the details of all cases understill make the Bureau responsive to·thepoli ydirection ofcurrent investigation that the lack of .sophisticated adrninis-elected officials.trativeaides can hardly be criticized.SupervisoryOperation \. The Bureau has three supervisory and administrative-Asthe Bureau grows,"supervisory practices will of necessity expand.If anyfault exists at the present time, however, it.falls on the\officials at the headquarters level -- the Acting Director,a Special F.'ssistant to the Director, and an AdministrativeAssistant: plus a Spe9ialAgent in Charge of each of three'11. ' side of too much rather than inadequate supervision.Inmonitoring conferences between investigators and supervisors,it seems that guidance and direction may be so detailed thatindividual ini.tia.tive on the part of the investigator may bestifled.This is not a major deficiency at the present time,but eventually training and 'exP ?rience should expand the-10-11-

.t ----------.----- ----- --- ,A.,fJr. . . . ."---- Q -- ---·· -- -----------------------a. . . . . .abilities of the investigators.This should enable super-'-visors to devote more time to establishment and implementa-crime Commission staff.tion of policies and programs as hereinafter detailed.of 150 cases reveals that each investigator on the averageA review of case files indicates that· the super-. 11Wl.h ave.7 5 c ases.The projected work load for 1973Th).' s compares favorably with the 6.6 visory staff is implementing a planned follow-up systemcases closed per investigator in 1972 assuming an equal.and regularly requires that investigation be conducted andnumber of cases carried over in a pending status from onereports submitted.Results are secured.In 1971 only 29cases were not completely investigated within 90 days;investigated involve complicated factual situations, detailedin 1972 there,''''ere only 22 such cases.examination of books and records and numerous interviews.Considering thecomplexity of the average investigation, this is a satis-IObviously mfu y, if not most, of the casesyear to the next.factory record.In 1972 the, Bureau closed an6.6 cases per investigator.average,o There is no standard againstThese cases tnerefore require the assignment of more thanone investigator.Fraud 'investigations generally fall inthis category and a large percentage of the work load,is' t ype.f th ).sIf a record were maintainedwhich to measure tl1is record but continued maintenance ofmade up of casessuch figures may 'provide some indication of investigativeas to the number of work-days of investigative work per-efficiency.formed on each case as contrasted to work-days devoted toRegular squad conferences are held '\tIlth investigators by field supervisors once a week to cov.er general,administrative and policy matters.0report-writing, adnliI).istrative matters, training, etc., amore meaningful status could'b determined.Under the circumstances, the, evalua ion of\investigative operations has largely been a subjective one.Investigative OperationsOn-site monitoring of actual interviews is not desirableAs has been indicated investigative operations ofand might interfere with the investigation.theBu eauThe resultare handled by 21 investigators, one of whom iswould still be SUbjective.A eview of practically alltemporarily unavailable because of an assignment on thepending cases and a representative number of closed ones-12--13-

"'-.'indicates the following.Reports are written in a clear,concise and professional manner.c.the Bureau has grea'l;- 'difficulty in conducting p1:lYsicalThey compare favorablysurveillances to accomplish this objective, particularly atwith those prepared by Federal investigative agencies andnighttime and in dangerous neighbor11oods because of a lackare superior to those of most state and local law enforce-of proper communications facilities.ment org'ani

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AT MICROFICHE REFERENCE LIBRARY A project of Volunteers in Asia Workshop Exercises Metal, Fundamental Skills, Part A edited by H.N.C. Stam Published by: INTEMS b.v. Available from: TOOL Entrepotdok 68a/69a 1018 AD Amsterdam THE NETHERLANDS Reproduced by permission. Reproduction of this microfiche document in any