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MICHIGAN JUSTICE STATISTICS CENTERSCHOOL OF CRIMINAL JUSTICEMICHIGAN STATE UNIVERSITYDECEMBER2015SMART POLICING AND THEMICHIGAN STATE POLICE:FINAL REPORT

MICHIGAN JUSTICE STATISTICS CENTERSCHOOL OF CRIMINAL JUSTICEMICHIGAN STATE UNIVERSITYDECEMBER 2015SMART POLICING AND THE MICHIGAN STATE POLICE: FINAL REPORT1Edmund F. McGarrell, Ph.D.Gregory Drake, M.S.David Stephens, M.S.Michigan Justice Statistics CenterSchool of Criminal JusticeMichigan State UniversityDecember 20151This project was supported by Award No. 2011-DB-BX-0033, awarded by the Bureau of Justice Assistance, Office of JusticePrograms, U.S. Department of Justice. The opinions, findings, and conclusions or recommendations expressed in thispublication/program/exhibition are those of the author(s) and do not necessarily reflect those of the Department of Justice nor of theMichigan State Police.

MICHIGAN JUSTICE STATISTICS CENTERSCHOOL OF CRIMINAL JUSTICEMICHIGAN STATE UNIVERSITYDECEMBER 2015Michigan Justice Statistics CenterThe School of Criminal Justice at Michigan State University, through the Michigan Justice Statistics Center,serves as the Statistical Analysis Center (MI-SAC) for the State of Michigan. The mission of the Center is toadvance knowledge about crime and justice issues in the state of Michigan while also informing policy andpractice. The Center works in partnership with the Michigan State Police, Michigan’s State AdministeringAgency (SAA), as well as with law enforcement and criminal justice agencies serving the citizens of Michigan.For further information see: tics-center/About the AuthorsEdmund F. McGarrell is Director and Professor in the School of Criminal Justice at Michigan State University.He also is Director of the Michigan Justice Statistics Center that serves as the Statistical Analysis Center for thestate of Michigan. McGarrell's research focuses on communities and crime with a specific focus on violenceprevention and control. Recent articles appear in Crime and Delinquency, Criminology and Public Policy,Journal of Criminal Justice and Journal of Experimental Criminology.Gregory Drake received his Bachelor’s and Master’s degrees in Criminal Justice from the Rochester Institute ofTechnology and is currently enrolled in the Criminal Justice Doctoral program at Michigan State University.Greg’s research interests are the efficacy of public policy in criminal justice and community responses to crimeand justice. His research has appeared in the Journal of Crime and Justice, Journal of Contemporary CriminalJustice, and International Journal of Comparative and Applied Criminal Justice.David Stephens serves as a liaison in outreach in the School of Criminal Justice at Michigan State University toeducate and facilitate the use of the forensic sciences in wildlife, natural resource and environmentalinvestigations and issues.

Smart Policing and the Michigan State Police - Executive SummaryDescription of the Project: The Michigan State Police (MSP) has made a commitment to theadoption of data-driven processes, evidence-based practice (EBP), and the use of strategicplanning and metrics, in order to increase the effectiveness and efficiency of service delivery tothe citizens of the state. To facilitate the adoption of these principles and practices, MSP appliedfor and was awarded a Smart Policing Initiative (SPI) grant from the Bureau of JusticeAssistance. MSP used this grant to engage in a systematic planning process, to supportimplementation of various practices consistent with SPI principles, and to assess progress of theorganizational change process.Summary of Outcomes: This report documents extensive activities that have been undertaken inplanning and implementation of data-driven processes. The key findings are that initial planningled to a new MSP Strategic Plan that clearly endorsed the principles of data-driven processes,EBP, and metrics; that significant training has been conducted to facilitate the adoption of theseprinciples and practices; that new technology systems have been developed and are beingutilized to support this organizational change; and that evidence of data-driven processes existsin numerous divisions and units throughout MSP.Lessons Learned: Consistent with prior research on policing and public bureaucracies generally,broad organizational change is difficult and requires the type of systematic and multiple levelchange process embarked upon by MSP. Leadership’s consistent and firm commitment to thegoals, principles, and processes at the core of the organizational change, as is apparent in thiseffort by MSP, is critical to sustaining the change process. Having said this, leadershipcommitment is essential but not sufficient. Training at all levels of the organization is essentialto develop commitment to these new goals, principles, and processes and to provide theknowledge and skills to carry out these new processes throughout the organization. Similarly,providing the necessary resources, in this case a new sophisticated information system as well asan intelligence center, is critical for organizational change. The findings of this research provideclear evidence of these critical change components: leadership commitment; training; andtechnological resource development.The organizational change process is ongoing. The clearest evidence of change is at theexecutive and middle-management levels and throughout various divisions and units across theorganization. There is also evidence of change at the line level of trooper. However, the linelevel training occurred at the end of this research project without adequate time to accuratelymeasure the actual impact on day-to-day line-level operations.Implications: Significant organizational change takes time. MSP’s processes that includedextensive planning- a new strategic plan; widespread training; and support resources (technologyand intelligence center); provide a model for necessary ingredients of major organizationalchange. This type of organizational change process is ongoing and will need continualcommitment and training. Sustaining the research partnership to provide ongoing assessment ofchange and feedback could support MSP’s internal metrics and provide ongoing measures of thetransformation to data-driven processes, EBP, and the use of metrics of effectiveness andefficiency in service delivery.i

Smart Policing and the Michigan State PoliceSmart Policing (SP) refers to a set of principles that are intended to transform policing throughthe use of data-driven processes and decision-making and the adoption of Evidence-BasedPractices. Adopted in an era when many policing agencies faced significant resource constraints,SP seeks to increase effectiveness and efficiencies through data-driven approaches. The keyprinciples include: “Performance measurement and research partnerships,Outreach and collaboration,Managing organizational change,Strategic targeting, andMaking better use of intelligence and other data and information systems” (SmartPolicing Initiative, 2015)SP builds upon principles of organizational and public administration generally, but alsoconcepts developed under the problem oriented policing (POP) model (Goldstein, 1990). ThePOP model was based on research demonstrating the concentration of crime among people,groups, places and contexts. POP advocated an analytical approach to crime issues by analyzingpatterns of specific crime problems, developing data-driven strategies, and assessing the impactof these strategies and interventions. SP expands the model from data-driven analysis of crimeproblems to data-driven analysis of all organizational processes and a commitment to data-drivendecision-making.In 2011, the MSP decided to adopt the principles of SP throughout the entire organization.Similar to the forces that have led police leaders to the concept of SP, MSP faced externalpressures that suggested new approaches were needed to meet its public safety mission.Specifically, even before the national recession of 2007, the state of Michigan had experiencedsignificant fiscal challenges due to shifts in the global automobile industry, population loss, taxrevenue shortfalls, and related factors. These pressures had resulted in significant losses toMSP’s budget and workforce. Under the direction of Colonel Kriste Kibbey Etue, the leadershipteam within MSP decided that the organization must use data to inform decisions and leveragetechnology in order to increase the effectiveness and efficiency of the organization. Further,rather than view this as an undertaking to change specific processes, tasks, or divisions, theleadership team committed to adoption of data-driven processes and decision-making throughoutthe entire organization. To support this ambitious goal, MSP applied for federal funding tosupport a planning and assessment process under the Bureau of Justice Assistance’s (BJA) SPIprogram.Description of the ProjectThe SPI grant awarded by the BJA to the MSP was intended to support an organizationaldevelopment strategy with the goal of integrating SP principles into the mission, structure andprocesses of the MSP. Specifically, MSP sought to use the grant to support a planned changeprocess to integrate data-driven processes throughout the organization. The adoption of datadriven processes and decision-making was undertaken with the objectives of fostering evidence1

based practices, innovation, and greater efficiency and effectiveness in achieving MSP’s broadpublic safety mission.MethodsDuring the course of the project, two Research Partner (RP) teams from Michigan StateUniversity’s School of Criminal Justice collaborated with MSP to engage in research activities atdifferent stages of the SPI initiative. The initial RP team (RP-I) focused on organizationalplanning and problem analysis as a way of providing an analytical foundation for theorganizational change process and the adoption of data-driven processes and SP principles. Thesecond RP team (RP-II) focused on assessment of organizational change.Both RP teams used multiple research methods. RP-I reviewed MSP organizational documents,conducted interviews and focus groups, and conducted an organizational survey. The presentreport includes reference to findings from these various RP-I research activities. RP-II similarlyreviewed organizational documents and conducted interviews. Additionally, RP-II usedobservational methods to assist with the assessment of the integration of SP principlesthroughout the organization. Thus, meetings with MSP staff involving multiple divisions,functions and personnel (e.g., central administration leadership teams; training academy; forensicscience laboratories; field posts) provided opportunities to observe the use of data-drivenprocesses throughout the organization. The observational strategy benefited by the placement ofresearch team personnel within the Grants and Community Services Division of MSP to work onvarious analytical and research projects. Similarly, members of the research team were involvedin violence prevention and control projects in Detroit and Flint that overlapped with the state’sSecure Cities Partnership and again provided the opportunity to observe MSP on a routine basis.The document reviews, interviews, and observations were also used to conduct a series of casestudies. The case studies were intended to examine both ongoing tasks, such as the operation ofthe training academy and forensic science laboratories, as well as specific problem solvingefforts whereby MSP sought to address a specific crime issue. The intent of the case studies wasto examine whether data-driven processes were apparent in the day-to-day operations of MSPand across various divisions and units of MSP.The report begins by reviewing the key activities and accomplishments following a timelinefrom 2011 through the end of 2015. The next section covers key activities during the planningphase including an organizational survey and the new MSP Strategic Plan. The followingsections focus on the use of data and the “MSP Dashboard” information system as well as thetraining efforts to support the adoption of SP. This is followed by three case studies that providean opportunity to assess whether SP principles were being observed in practice. Finally, thereport concludes with lessons learned and limitations of the present research.2

FindingsActivities and AccomplishmentsAs displayed in a series of timeline figures, MSP embarked on a large number of activities anddemonstrated a number of concrete accomplishments during the years of the SPI. Colonel KristeKibbey Etue was appointed Director of MSP in January 2011. The MSP leadership team wasfamiliar with concepts such as New York Police Department’s COMPuter STATistics(COMPSTAT) and metric driven business processes that, for example, had been employed in themanagement of MSP’s forensic science laboratories. Similarly, they were drawn to the notion ofEBP. The leadership team recognized that confronting the challenges of public safety in an eraof fiscal pressures would require greater reliance on data-driven processes and technology. Theleadership team also made a commitment that these changes would occur throughout the entireorganization as opposed to a specific division or unit.During 2011, MSP had been working on a Regional Community Policing Plan (RPP) that wouldinclude closure of posts in various locations around the state. As noted above, the fiscalpressures that led to the RPP were an impetus for the adoption of SP principles as MSPleadership remained committed to its mission of public safety throughout the state but withrecognition of the need to harness technology for greater effectiveness and efficiency. The RPPhad implications at both the post level and the level of individual troopers. At the post-level,there was recognition of the need to provide quality and timely data so that post commanderscould better understand the crime and public safety needs in the particular region. At theindividual level, there was recognition of the need for more flexible deployment of troopersgiven the wide geographic variation across the state. Thus, MSP coupled the closing of postswith a shift toward “mobile offices” whereby some troopers would be deployed from their policevehicles, using in-car technology in place of the long-standing tradition of reporting to a physicalpost for roll-call and deployment. Additionally, the role of sergeants changed from a largelyadministrative role to a more active role in the deployment of troopers to meet regional needs.Developing the technological and associated human capacity to effectively deploy in this modelwas a cornerstone of the SPI initiative.During this same period, MSP leadership became familiar with the “Data Driven Approaches toCrime and Traffic Safety” model developed by the National Highway Traffic SafetyAdministration (NHTSA) in collaboration with the BJA and the National Institute of Justice(NIJ) (NHTSA, 2009). Known as DDACTS, this approach embodies the SP philosophy as ituses the analysis of crime and traffic crash patterns to more effectively deploy resources with thegoal of reducing crime and enhancing traffic safety. During the final quarter of 2011, MSP hadstaff attend two different workshops on DDACTS in anticipation of building capacity for datadriven approaches in the Field Services Bureau.Early 2012 witnessed two important milestones. The SPI budget was approved and the SecureCities Partnership (SCP) was launched. The SCP involved the deployment of MSP resources toassist local communities and their local law enforcement agencies better address the violentcrime problem. This represented a philosophical and programmatic shift from a primarilyhighway patrol function to an expanded mission including urban, proactive enforcement focused3

on violent crime. The initiative initially focused on four Michigan cities experiencing both fiscalchallenges and high rates of violent crime: Detroit, Flint, Pontiac, and Saginaw. Given that thisremained a period when MSP also faced tight budgets, it became imperative that MSP usesystematic analysis of violent crime patterns and evidence-based strategies to best utilize limitedresources in an effective and efficient fashion. DDACTS offered a model and was initiallyadopted in Flint in spring 2012. Additional training was provided to MSP personnel involved inthese cities in SP and DDACTS during this same period.Another important milestone of SPI was launched during this same period. In an effort todevelop a technological platform that would ultimately be available throughout the entireorganization, MSP decided to deploy a “Dashboard” system that would bring real-time dataanalysis on multiple functions of the organization to its employees. The MSP Dashboardbrought the advantage of a system that could be available on laptops within patrol vehicles aswell as desktop computers. Phase I was launched during spring of 2012 and was limited to theMSP command staff in a beta testing period. The Dashboard provided information based oncrime incident reports from the Michigan Incident Crime Reporting ( MICR) system, crimeclearance data, mapping based on the post boundaries, traffic crashes, and MSP crime mappingand prediction analytics.4

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This time period also witnessed activities conducted by the initial MSU RP team (RP-I). As partof an effort to develop a foundation for the implementation of SP in MSP, an employee surveywas developed and conducted. The survey assessed the level of familiarity with the concept ofSP, the routine use of data, and similar concepts. RP-I also developed a plan with MSP for thedevelopment of several cases studies in order to assess the degree to which MSP personnel wereusing data-driven processes. This summer 2012 period also saw additional rounds of training oftroopers and post commanders on SP and DDACTS.In late summer 2012, RP-I presented results from the employee survey. As will be discussed insubsequent sections of this report, the survey results indicated the need for training on SP, datadriven processes, and the new technological resources to support SP (e.g., Dashboard).During late summer and into the fall, MSP further expanded its crime analysis support to theSCP. Crime hotspot maps and DDACTS maps were regularly developed and disseminated tosupport SCP efforts. Over time more refined and detailed crime analysis products weredeveloped. Finally, the fall of 2012 witnessed continued training of troopers and postcommanders on SP and DDACTS.Early 2013 included the Phase I roll-out of a new MSP Strategic Plan. This was a critical step inthe evolution of SP as it placed a firm commitment on EBP and data-driven processes. The MSPStrategic Plan called for the adoption of EBP and data-driven processes in all daily operations.The MSP Strategic Plan was given emphasis through mandatory meetings conducted by theDirector of MSP throughout the entire state. This provided an opportunity to communicate thecommitment to SP, EBP, and data-driven processes throughout the entire organization.As an additional step to diffuse SP throughout MSP, all post commanders received webinartraining on the Dashboard with the message that all commanders were expected to use data andanalysis to deploy troopers.RP-I worked with MSP to develop a series of interviews with post commanders. The interviewsfocused on having the commanders discuss the problems they considered most significant(“social harms”) within the regions served by their post. The interviews also asked about thecommander’s perception of the technology and data available to support decision-making. Aswith the employee survey, the focus of the research was to assess the use of technology and dataand to provide feedback to MSP on adaptations of technology or training needs. Around thistime an MSP Policy Review Committee was established to consider the status of the SPI grant.This became a forum for which initial research findings could be presented and discussed tosupport further planning of the continued implementation of SPI.The last quarter of 2013 also witnessed expanded refinement and roll-out of the Dashboard. Thisincluded system enhancements such as refined crime mapping as well as an expansion to abroader group of MSP users including field staff.6

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In early 2014, several additional steps reflecting the further organizational adoption of SPoccurred. The Executive Council approved a definition of EBP:Conventional policing has generally been based on random patrol, rapid response,and reactive investigations to 911 calls for service. Evidence based policing(EBP) uses the analysis of accurate crime data to develop strategies to anticipatecrime and proactively deploy resources to reduce the number of calls for serviceand to deter offenders from committing crimes. Effective EBP relies upon the useof proven, research-based techniques to reduce crime through problem solving aswell as the efficient tasking of resources to make maximum use of availableemployee time. This occurs through fiscally responsible enforcement, directedpatrol, education, and the development of partnerships.Additionally, trooper recruit training was modified to include problem solving, EBP, and data driven philosophy throughout the curriculum.In addition to basic training, additional planning focused on a department-wide training programthat would be delivered through webinar technology. The ambitious goal was to train allpersonnel to support the organization-wide implementation of EBP, SP, and data-drivenprocesses. Major efforts occurred throughout 2014 to develop webinar training scripts, collectinformation from the field on what should be included in the training as well as examples ofEBP, and collect photos and videos that could be used in the training materials.This year (2014) also witnessed continued refinement of the Dashboard. Reflective of the SPprinciple of expanded partnerships, the Dashboard was made available to partnering local levellaw enforcement agencies. In this way, MSP demonstrated its commitment to SP and datadriven processes not only within the MSP organization but throughout the law enforcementcommunity of the state.As an extension of the organizational MSP Strategic Plan, the data included in the Dashboardwere required to be used for post shift scheduling and aviation patrols. Indeed, by fall 2014 allposts were required to conduct an analysis of crime and traffic accident patterns and then todevelop a strategic plan for the data-driven deployment of resources and strategies.During this period and into 2015, the second MSU RP-II began to collaborate with MSP.Working with the planning team in the Grants and Community Services Division, several stepswere taken to review MSP official orders to determine if there were any existing orders thatmight be in conflict with the strategic commitment to SP, EBP and data-driven processes. TheRP-II continued to pose questions about potential conflicts involving official orders duringinterviews and interactions with MSP personnel. No such orders were identified.By early 2015, it was evident that significant progress had been achieved in development anddeployment of the Dashboard and in the adoption of SP in many divisions and activities of MSP.Consequently, a major focus of 2015 was the development of the SP training video. Filming ofvarious segments began in early 2015. Additionally, a series of Dashboard scenarios wereplanned and developed to provide concrete examples and “hands-on” quality to the training so8

that participants would gain the skills needed to effectively utilize the Dashboard as atechnological support for SP and EBP. A web-based resource page was also developed. Thismajor training effort included considerable planning and review at multiple levels of theorganization, including the command staff. An additional planning component involvedcollaboration with RP-II to develop a post-training survey to measure the extent to whichtraining participants reported a familiarity with key concepts and an understanding of theresources to support SP, EBP, and data-driven processes.9

Another major development of 2015 involved the expansion of the SCP to an additional sixMichigan cities. The cities were chosen due to their high rates of crime thus reflecting theprinciple of data-driven decision-making.Finally, the commitment of MSP leadership to SP, EBP, and data-driven processes was reflectedin Official Correspondence that required all enforcement employees to complete the SPI trainingwebinar, the Dashboard scenarios, and access the web-based EBP resources.As the timeline figures reflect, the MSP took on the ambitious goal of implementing SP, EBP,and data-driven processes throughout the entire organization. As is evident, a great deal ofactivities, particularly technology development/deployment and training, occurred during theperiod of the official SPI grant. The following sections represent an assessment of the extent towhich these activities have had an impact on various divisions and activities of the MSP.10

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Problem Assessment SurveyDuring summer 2012, RP-I worked with MSP to conduct an employee survey. The surveyfocused on prior training, familiarity with concepts related to data-driven practices and SP, howoften MSP employees engage in activities consistent with SP, and the use of various datasources. Over 800 respondents completed the survey including sworn and civilian employees.The largest group of respondents was from the trooper rank (48.2%), just under one-third wassergeants (30.9%), and the remaining ranked as Lieutenants or higher (20.9%). More completedetails on the survey are presented in Appendix A.The survey provided an assessment of the current state of familiarity and use of SP principles.For example, respondents were asked how frequently they engaged in strategic planning,coordinate with other agencies, use data to identify problems, rely on evidence for what works,and how often they use data to measure organizational practices and outcomes. As would beexpected, higher ranking officials were most likely to report engaging in such practices andsworn employees were more likely than civilians to be involved in such SP practices. Theoverall level of engaging in SP practices fell in the category of a “few times” during the prioryear. The most common activities were coordinating with other agencies and strategic planning.Consistent with other policing research, the least common activities were measuring outcomes(Cordner and Biebel, 2005).As would be expected, the survey revealed that sworn employees were more likely to haveparticipated in training on community policing, problem oriented policing, crime analysis, andEBP. An important finding was that employees who had received training were more likely toengage in SP activities than were those not having received such training. Consequently, a majorfocus of the SPI was to provide training in SP principles as well as in the technology beingdeveloped to drive SP.Strategic PlanAs noted in the timeline, the MSP Strategic Plan was rolled out in early 2013. The MSPStrategic Plan began with the MSP mission: “Provide the highest quality law enforcement andpublic safety services throughout Michigan.” The strategic plan set the foundation for SP throughspecific goals as well as the identification of performance metrics. Sample statements in theMSP Strategic Plan include: “ operational efficiencies through the use of advanced technologies and data-drivenpolicing.”“ ensure future staffing assignments are tied to an operational nexus and based on data.”“Utilizing DDACTS and evidence-based policing strategies, patrol and investigativeresources will be directed to high-crime areas serviced by the MSP to increase presenceand enforcement .”“Conduct monthly statistical analysis of the Secure Cities Partnership (SCP)communities and semi-annual statistical analysis in each post area, to ensure thenecessary coverage is in place based on crime and traffic crash data, economic conditionsof communities, and the availability of other resources.”12

“ every post will develop at least one traffic safety initiative, supported bycrash data, annually.”“The Forensic Science Division will achieve an average turnaround time of 30 days byemploying a diverse set of strategies that bring laboratory capacity into balance withdemand.”“The availability of real-time crime data enables law enforcement to quickly identifycrime trends, deploy resources to combat hot spots of criminal activity, and accessrelevant information that aids in investigations. By increasing the number of lawenforcement officers using the SRMS, more real-time data will be captured and madeavailable to all users on the system, enhancing efficiency and providing for moreinformed decision-making by police administrators.”“By providing access to the Criminal Justice Information Center (CJIC) Dashboard, lawenforcement agencies will further enhance their ability to analyze crime and crash data,and to apply evidence-based policing strategies, such as Data-Driven Approaches toCrime and Traffic Safety (DDACTS), to improve public safety.”“Develop an activity analysis for the department-supervised multijurisdictional drugtask forces to be used to track progress toward meeting the goals of the statewide drugenforcement strategy.”“Currently, there are numerous databases and applications (employee information,equipment inventories, phone lists, etc.) used on a regular basis throughout thedepartment that do not interact with each other. By integrating these sources of data, thequality of information will be enhanced and redundant entry of data will be lessened.”(Michigan State Police, Strategic Plan)As is apparent in these statements, the MSP Strategic Plan continually emphasize

The School of Criminal Justice at Michigan State University, through the Michigan Justice Statistics Center, serves as the Statistical Analysis Center (MI-SAC) for the State of Michigan. The mission of the Center is to advance knowledge about crime and justice issues in the state of Michigan while also informing policy and practice.

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