Performance Profiles of Foot Versus Motor Officers
Dennis M. Payne
Robert Trojanowicz
National Center for Community Policing
School of Criminal Justice
Michigan State University
MSU is an affirmative-action, equal opportunity institution.
This publication was made possible by a grant from the Charles Stewart Mott Foundation to the School of Criminal Justice, Michigan State University. The information contained herein represents the views and conclusions of the authors and not necessarily those of the Mott Foundation, its trustees, or officers.
Copyright © 1985
The National Neighborhood Foot Patrol Center
Sir Robert Peale, the nineteenth-century British reformer, recognized the need for a standardized method of evaluating police performance.(1) During the twentieth century, there have been many attempts to delineate quantitative measures of performance. The development of the Uniform Crime Reports is the most familiar of all such efforts. Today, however, the problem still persists.
The complexity of police interaction with the communities served makes precise quantification of activity difficult. As Spencer Parrat observed in 1937, "Police administration is a composite of many variables, behaviors, states of mind or attitudes and external conditioning factors."(2) The same is true today; communities, and neighborhoods within communities, possess divergent resources, needs, expectations and priorities.
Police performance literature generally discusses evaluation of the innate character of individual officers. Traits such as intelligence, analytical ability, sensitivity and moral character are often used in the evaluation process. Administrators using these criteria frequently ascribe poor police performance to the "...failure to recruit the right types of people, failure of society to instill appropriate values in young people of today, along with the failure of the educational system to develop appropriate skills.(3)"
Some police administrators, those with a more quantitative and less ecological perspective, tend to evaluate performance by reference to activities easily objectified and counted--traffic tickets, arrests, convictions, security checks, and so on. The limits of such a quantitative orientation are obvious: the most easily counted tasks are not always of the greatest benefit to the community. On the whole, efforts to reify police performance through standardized measures lead only to confusion and alienation. Communities and neighborhoods differ immensely; they are not always amenable to larity of patrol cars, and the attendant emphasis on police response time have depersonalized police-citizen interactions. The anomaly is that, as service calls have exploded quantitatively, the quality of policing has devalued and the exchange of useful information has constricted.
Information is the lifeblood of police work. Acquiring, processing and interpreting information are critical elements of any effort to deal with crime and other community concerns. Without complete and accurate information on an aggregate level, the policing effort is difficult. Linkages between officers and citizens becomes a critical dimension of law enforcement which may serve to establish a conduit through which community needs and values are translated into police activity. The interaction emphasized by community policing programs can be seen as a nexus which transforms officers into proactive agents of social control.
To determine the effectiveness, efficiency or cost benefits of community
policing without a detailed analysis of the activities of both community
police officers and motor patrol officers is impossible. Having a comparative
perspective should make it possible to generate alternative measures of
police performance and service. The present research will analyze and compare
the activities of foot and motor patrol officers in the city of Flint in
order to initiate construction of valid performance criteria.
Community Policing: The Flint
Experiment
The Flint Police Department operated solely with motorized or preventive
patrols until January, 1979, at which point the Charles Stewart Mott Foundation
provided funding for the implementation of experimental community-based
foot patrol.(4)
Flint's Neighborhood Foot Patrol Program is unique in a variety of ways. It emerged from an initiative which integrated citizens into the planning and implementation process through citywide neighborhood meetings in 1977 and 1978. It attempts to ameliorate three distinct problems: (1) the absence of comprehensive neighborhood organizations and services; (2) the lack of citizen involvement in crime prevention; and (3) the depersonalization of interactions between officers and residents. The program began in 1979 with 22 foot patrol officers assigned to 14 experimental areas which included about 20 percent of the city's population. The activity and efforts of the foot officers addressed seven basic goals.:
Supervisory personnel within the Flint Police Department adapt their methods according to the form of patrol for which they are responsible. Motor patrol supervisors continue to measure success primarily in terms of the number of calls made and response time. They adhere to the semimilitary model of authority, with some supervisors infrequently interacting with officers, either individually or collectively. Roll call remains an impersonal exercise which averages 12 minutes and involves all officers and sergeants on a given shift. Sergeants do not necessarily assume responsibility for a stable pool of officers because shift rotations and sector assignments change frequently. Sergeants review officers monthly. They are compelled to interact with individual officers directly only when performance seems to be deficient.
Sergeants responsible for foot patrol officers encourage a participatory mode of supervision. Supervisors meet daily with the eight officers assigned to a specific sector. The briefings which average 31 minutes, are used to exchange information and to develop community-based strategies. The sergeants are familiar with the individual officers and know their accomplishments well. When necessary, sergeants assist and supplement individual efforts, but do not interfere with the autonomy each officer enjoys in defining community problems and programs. The decision-making freedom which sergeants permit foot patrol officers is reflected in the availability of flexible or "flex" time. Although scheduled for either morning or afternoon shifts, foot patrol officers can elect to work an evening or two instead. The only constraint on such flexibility is that the officer's alternate schedule has to be responsive to the community's needs.
The supervisory and management role in foot patrol is less directed and uniform. Supervisory and command personnel serve as resources and conduits for foot patrol officers and their communities. They become the repository for citywide information, which facilitates community involvement in the crime prevention and solving process. Under ideal circumstances, supervisors coordinate and prioritize community activities according to available resources and community needs. They do not impose cumbersome bureaucratic procedures on either foot patrol officers or on community residents.
Some of the results of the Flint experiment have been reported elsewhere. Briefly, the Neighborhood Foot Patrol Program reduced crime rates by 8.7 percent. More dramatic were the reductions in calls for service, which decreased by 42 percent over the period 1979-1982. Citizens began handling minor problems themselves, or the foot officer acted as mediator on an informal basis, negating the need for a formal complaint.
Although the impact on calls for service alone was significant, additional
evidence indicated that citizens felt safer, were satisfied with the program,
felt that it had impacted the crime rates, and that it had improved police-community
relations. There was much closer interaction between the foot officers
and citizens. Over 33 percent of neighborhood residents knew their foot
patrol officers by name, and 50 percent of the rest could provide accurate
descriptions of foot officers. Citizens also felt that foot officers were
more effective than motor officers in encouraging crime reporting, in involving
citizens in neighborhood crime prevention efforts, in working with juveniles,
in encouraging citizen self-protection, and in following up on complaints.
The foot patrol officers themselves felt well integrated into the communities
they served, minimizing their sense of isolation, alienation, and fear.
The foot patrol experiment was so successful that the citizens of Flint
passed a tax millage increase in August, 1982 which extended the program
to the entire city. A three-year tax renewal was passed in June, 1985.
The margin of approval, 68 percent, was even greater than in 1982. Currently
there are 64 foot beats.
Research Design and Methods
Flint divides both foot and motor patrol into four sectors of roughly
equal size in terms of population. The foot patrol program services 64
beats covering the entire city. The present research, using a random stratified
sample, compares 16 foot officers--four from each sector--with a like number
of motor patrol officers drawn from each of the sectors. Since foot officers
do not work the third shift, the sample reflects only first and second
shift officers so that comparability may be sustained. Because foot patrol
beats are permanent assignments, the 16 foot officers selected remained
stable throughout the study; a total of 25 motor patrol officers had to
be drawn due to shift rotations. The characteristics of the sample groups
can be found in Table 1.
| Cell
Count Row% Column% |
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| Foot
Patrol |
A
B
C
D |
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| Motor
Patrol |
A
B
C
D
Total |
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| Total
Combined FP & MP |
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| *Twenty-five motor officers comprised the sixteen "slots" because of shift changes and rotations. | ||||||||||||||||||||||
In an effort to compare the two forms of patrol, the researchers categorized and tabulated the activities of the officers as reflected in their daily report forms. The dailies were checked against monthly activity reports in order to verify data and to establish a quality control mechanism.
The daily reports present some unique challenges in that they are constructed differently for foot and motor patrol (Appendix). Designed to give command officers the means to supervise and direct the policing effort, the upper portion of the daily records specific types of work--felony and misdemeanor arrests, hazardous tags, and so on. The lower portion of the dailies includes information about the people with whom the officers interacted--names of those arrested, for example--and miscellaneous information not included in the upper portion. Foot patrol officers register their work on the lower portion of the dailies in terms of the nearest 5 minute period; motor officers to the nearest minute.
Reviewing the dailies, both the upper and lower portions, made it possible to develop a profile of each form of patrol, a composite portrait of a foot and motor patrol officer, and sector profiles. Through the use of composite profiles it became possible to compare the relative expenditure of time on specific activities for foot and motor patrol. The dimension of time expended required a very careful and detailed review of the narrative--lower--portion of the daily activity reports in consultation with command staff in order to assure that the time and activities recorded were consistent with each other.
Foot and Motor Patrol Composites.
The top portions of the daily reports reveal nine categories
of activity common to both foot and motor patrol. These identical activities
are:
Categories of Activity
Tables 2 and 3 list the composite activities of foot and motor officers,
providing comparative data. Table 2 represents the nine activities common
to both forms of patrol. With the exception of investigations initiated
and services rendered, motor patrol accounts for a greater number of the
common activites. It produces six times the number of felony arrests and
five times the number of misdemeanor arrests; it is also assigned three
times as many investigations by departmental dispatchers or supervisors.
Foot patrol officers, on the other hand, initiated almost twice as many
investigations and seven and one half times more service to the public.
Self-initiated investgations are a function of the frequent and intimate
interaction between foot officers and citizens. The same may be said of
services rendered to the public.
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| Cell:
Count %Secotor %Officer |
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| MOTOR
PATROL |
Total
Per Sector Per Officer |
33.00
8.25 2.06 |
44.00
11.00 2.75 |
1,566.00
391.50 97.87 |
3,256.00
814.00 203.50 |
10.00
2.50 .63 |
206.00
51.50 12.88 |
68.00
17.00 4.25 |
1,613.00
403.25 100.81 |
17,600.00
4,400.00 1,100.00 |
| FOOT
PATROL |
Total
Per Sector Per Officer |
211.00
52.75 13.18 |
226.00
56.50 14.12 |
4,866.00
1,216.50 304.12 |
1,710.00
427.50 106.87 |
50.00
12.50 3.12 |
1,541.00
385.25 96.31 |
179.00
44.75 11.18 |
214.00
53.50 13.37 |
48,750.00
12,187.00 3,046.87 |
| Activities
of Foot Patrol |
Meetings
Attended |
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| Total
Per Sector Per Officer |
114.00
28.5 7.12 |
71.00
17.75 4.43 |
553.00
138.25 34.56 |
798.00
199.50 49.87 |
149.00
37.25 9.31 |
70.00
17.50 4.37 |
245.00
61.25 15.31 |
| Activities
of Motor Patrol |
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| Total
Per Sector Per Officer |
253.00
63.25 15.81 |
121.00
30.25 7.56 |
16.00
4.00 1.00 |
17.00
4.25 1.06 |
The issue, of course, is not the quantity of police-community interactions, but the quality. Table 2 shows that when the three categories of activity which do not involve citizen contact--parking violations, premises open and recovered property--are excluded, motor patrol has a higher number of contacts. The number of motor patrol contacts is 8,768, compared to 6,718 for foot patrol. Within the context of exclusive activities as depicted in Table 3, foot patrol engaged in 2,000 contacts; motor patrol, 407. Combined, foot patrol had 8,718 contacts and motor patrol 9,175, assuming one contact for each activity. Of course, the assumption may not be realistic because of the mass nature of the meetings and speaking engagements which characterize foot patrol. The number of citizens involved in a contact is not tabulated on the officers' daily report; if it were, it could skew the numbers in favor of foot patrol. The point, however, is not the number of contacts, but the nature of the contacts.
In order to view activities in terms of their nature, not numbers, one can view them as either adversarial or nonadversarial, depending upon the situation. In adversarial contacts, the officer views the citizen as a potential threat, an arrestee or a suspect; the officer normally takes some form of enforcement action. In nonadversarial situations, the interaction has no criminal focus. The conditions of nonadversarial contacts include either public service or other amiable exchanges. Looking closely at the adversarial or nonadversarial content of contacts, can provide a sense of the differences between foot and motor patrol (Table 4).
Certain activities must be excluded from an analysis of adversarial and nonadversarial contacts. Since investigations initiated and assigned can include either type of contact, they were excluded for both groups. Specific information is not available on the activity reports. Premises open was also excluded. All the foot patrol activities included in Table 3 are nonadversarial. All traffic tags recorded by motor patrol are adversarial, but accidents are viewed as nonadversarial. In Table 2, services rendered is nonadversarial, but felony arrests, misdemeanor arrests, suspicious persons and parking violations are all adversarial.
Table 4 demonstrates that foot patrol officers encounter the public far more frequently in a nonadversarial than an adversarial manner. The reverse is true for the motor patrol.
| Cell
Count Row % |
Adversarial | Nonadversarial | Total |
| Foot
Patrol Motor Patrol |
351
8.85 2,531 91.10 |
3,613
91.14 247 8.89 |
3,964
99.99 2,778 99.99 |
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| Component |
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| Training
Roll Call Patrol Complaint Senior Citizen Speaking at Schools Office Administratino Juvenile Work Meetings Alarm Response Traffic Stops Desk/Court |
.39
.52 4.02 .28 .11 .05 1.01 .32 .38 .37 |
4.93
6.51 50.27 3.48 1.41 .59 12.62 3.96 4.77 4.66 |
$9.37
12.37 95.51 6.61 2.68 1.12 23.98 7.52 9.06 8.85 |
.05
.21 3.92 3.32 .13
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.59
2.62 49.00 41.50 1.56
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$ 1.17
5.21 97.51 82.58 3.10
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| *Numbers do not add up to 40 (hours per week) or 100% because of "slippage" due to the fact that foot officers carry their time to the nearest 5 minutes and motor officers to the nearest minute. | ||||||
Foot patrol possesses six activities exclusively; motor patrol, three. Table 6 shows that the time spent on both common (comparable) and exclusive (noncomparable) activities differs widely between the two forms of patrol. These figures show that foot patrol expends 65.19 percent of its day on common activities; motor patrol, 93.71 percent. Foot patrol officers spend better than one third of the day (34.81 percent) performing exclusive or noncomparable activities. Motor patrol consumes 6.29 percent of its day on exclusive activities. Unaccounted time from both tables has been collapsed into the noncomparable categories.

Table 7 depicts differences in the time spent by each form of patrol in the performance of comparable or common time components. These figures demonstrate that there are differences in how foot and motor officers spend time on activities which are common. One major difference is that foot patrol only consumes 3.48 percent of its work day on complaints. Motor patrol expends 41.5 percent of its work day on complaint work. Foot patrol is involved in training activity for 4.93 percent of the day, where motor patrol uses only .59 percent of its work day on training. Roll call consumes 6.51 percent of foot patrol's average work day and 2.62 percent of motor patrol's.

Patrol time varies only 1.27 percent between the two forms of patrol. Patrol time is that portion of the shift not committed to some other activity. While on patrol, both foot and motor officers are readily available for assignment. Previous studies have shown that most police departments average between 40 percent and 60 percent of the work day on "free patrol." This is an expensive expenditure. Foot patrol officers during the study period averaged 4.02 hours (50.27 percent) of each work day actually on foot patrol. Motor officers averaged 3.92 hours (49 percent) of each work day on patrol. Both types of policing, however, include activities during this "free patrol" time.
After all activities are organized into specific time blocks, the data
indicate that foot patrol officers, during this "free patrol" time, make
business and home visits and security checks; they also locate open premises,
check suspicious persons, and perform public services ranging from giving
directions to citizens to assisting finding overnight accommodations. Foot
officers log 3,495 such activities during 2,432.25 hours of foot patrol.
The log is equivalent to one activity every 41 minutes on foot patrol (.69
hours). Applying a cost factor of $1.90 per 1 percent of a day's work,
the expenditure for each foot patrol activity is $16.23. Motorized officers
logged 1,805 activities during 2,448 hours of "free patrol" time which
is equal to one activity each 81 minutes (1.35 hours). Applying the motor
patrol factor of $1.99 per 1 percent of a day's work, the cost of each
motor patrol activity is $33.58. (The difference in cost between foot and
motor patrols is attributable primarily to the increased cost of patrol
cars and slightly higher administrative costs due to a lower supervisor-supervisee
ratio. An analysis using direct and indirect cost revealed that the foot
patrol cost was $1.90 for each 1 percent of day's work and that motor patrol
cost was $1.99 for each 1 percent of day's work.)
Summary and Conclusions
This analysis developed profiles of foot and motor patrol officers.
The data indicate that foot patrol officers are involved with the public
on a much more proactive basis than motor patrol officers. Although foot
officers do traditional kinds of police activities, they are more involved
in information exchanges and nonadversarial situations. They are also involved
in more activities on their "free patrol" time. Caution is necessary, however:
simply because foot patrol is cheaper--$1.90 per 1 percent of time--and
foot officers are involved in more activities on their free patrol time,
does not mean that foot patrol is more valuable to the community than motor
patrol.
Foot patrol will always be a support service for motor patrol. It will never replace motor patrol for obvious reasons--the speed of motorized response in serious situations as well as the automobile's ability to cover more area are indispensable to contemporary policing.
Extraction of both motor and foot patrol activities from the daily reports makes it apparent that, even though there are similar kinds of work, foot patrol officers have a much different and more varied work schedule than motor patrol officers. The delineation of patrol activities gives community residents a basis for making decisions about how they would like to see their officers spend time. For example, if residents determine that the officers should spend 10 percent of their time in developing block clubs and presenting crime prevention seminars, then a cost factor can be attached to that activity. However, officers cannot be all things to all people, and it becomes necessary to determine what percent of an officer's time, both motor and foot, should be spent on various activities in order to produce the desired results. It is possible that motorized officers could use some of their free patrol time more effectively by parking the car and becoming more involved in proactive, nonadversarial kinds of contacts. These contacts not only increase positive interaction between the citizens and the police, they also bring delivery of services closer to the public. As a result of intimate contact the public should more readily provide information to the police through a natural communication process.
The net result of enhanced intimacy is that foot officers are better able to diagnose their neighborhoods and to define community needs and values. The officers can, then, respond to the community more appropriately. Relevant information gained as a result of such intimacy translates into a proactive approach to the causes of turbulance in the community. Developing and implementing linkages between the police and the public encourages cooperation and facilitates problem solving.
By reviewing the composite profiles drawn in this research, the community not only has an idea of what motor and foot officers are doing, but it can develop a better sense of its priorities. Realistic priorities should improve the delivery of services to the community and the accountability of police departments as well as facilitate problem identification and resolution.
Having this kind of community input may be a threat to some politicians and administrators, however. Officers acting as diagnosticians, linkages, and community organizers are threatening to established structures because they are perceived as developing their own constituencies and increasing their political influence. The risk is inherent in adopting a proactive model of policing. The proactive model must be measured against the potential benefits to the community.
Some police administrators may not be alone in their resistance to community policing programs. In some cases special interest groups from the upper-middle and wealthy classes (or businesses) may either misuse a foot patrol program or react negatively to its implementation. Foot patrol is egalitarian, affording police protection to all citizens. If there are limited police resources in a community, spreading them out more evenly will reduce the chances of special interest groups receiving "special treatment."
Working class and lower socioeconomic segments of the community are usually much more receptive to foot patrol than either the upper-middle class or the wealthy who may be accustomed to having their interests served ahead of others. In may communities, if not most, the impetus for foot patrol comes from the lower socioeconomic or middle class areas in the community. These groups view foot patrol as a more personal response to community needs and as a way of increasing police service. The policy implications are obvious: innovative police programs need the support of community decision makers. If the decision makers are influenced by those groups which resist foot patrol, the chances of implementing and successfully operating a program are minimal.
APPENDIX
NEIGHBORHOOD FOOT PATROL
Community Service Bureau
Daily Activity Sheet
FLINT POLICE DEPARTMENT
Name: ___________________________________________ Badge No.: _______________ Date: ______________
Assignment: _______________________________________Shift: _______________ Partner: _________________
| ACTIVITES | Da Mo Yr | ACTIVITIES | Da Mo Yr | ACTIVITIES | Da Mo Yr | ||||||
| Hours Worked | Meetings/Speaking Eng. | Juvenile Activities | |||||||||
| Hours Leave | Business Sec. Checks | Juvenile Arrest Follow-up | |||||||||
| Invest. Assigned | Business Site visits | Premises Found Open | |||||||||
| Activities Initiated | Home Security Checks | Val. Rec'd. Property | |||||||||
| Felong Arrest | Home Site Visits | Block Clubs Organized | |||||||||
| Misdeameanor Arrest | Moving Traffic Violations | Public Serv. Rendered | |||||||||
| Radio Calls Rec'd. | Parking Traffic Viol. | Susp. Pers. Checked | |||||||||
| TIME | TYPE | CLEAR | |
FLINT POLICE DEPARTMENT
DATE:___________________________
NAME:____________________________
LAST
FIRST
M.I.
PATROL BUREAU
SHIFT:________ ASSIGN:______________
DAYS OFF:_________________________
POLICE OFFICERS DAILY REPORT BADGE NO._________ CAR#____________ PARTNER: _________________________
| ACTIVITES | Da Mo Yr | ACTIVITIES | Da Mo Yr | ACTIVITIES | Da Mo Yr | ACTIVITIES | Da Mo Yr | ||||||||
| Arrests-Felonies | Value Rcvd. Prop. | Hrs. Worked | P.D. Acc. Inv. | ||||||||||||
| Arrests-Trfc. | Invest. Assgnd. | Ann. Time Taken | P.I. Acc. Inv. | ||||||||||||
| Arrests-Trfc. | Invest. Init. | Sick time Taken | Def. Equip. Rptd. | ||||||||||||
| App. Tickets | Haz. Tags | Misc. Time Lost | Pub. Haz. Rptd. | ||||||||||||
| Susp. Pers. Chd. | Non-Haz. Tags | Pub. Serv. Rndrd. | |||||||||||||
| Prem. Fnd. Open | Parking Tags | ||||||||||||||
| TIME | TYPE | ON
LOC. |
CLEAR | TIME
TOTAL |
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| TRUNK EQUIP. | MILEAGE | VEHICLE CONDITION | EMERGENCY EQUIPMENT | ||
| Blanket | Flares | Oxygen | In: | Clean | Lights |
| Fire Ext. | First Aid | Cones | Out: | Dirty | Siren |
| Riot Sticks | Life Ring | Helmets | TOTAL | Damage Rptd. | Shotgun# |
| Complt. Jack | Spare Tire |
Publications
Books
An Evalutation of the Neighborhood Foot Patrol
Program in Flint, Michigan
A Manual for the Establishment and Operation of a Foot Patrol Program
Articles
Perceptions of Safety: A Comparison of Foot Patrol
Versus Motor Patrol Officers
Job Satisfaction: A Comparison of Foot Patrol Versus Motor Patrol Officers
The Status of Contemporary Community Policing Programs
The Impact of Foot Patrol on Black and White Perceptions of Policing
Uniform Crime Reporting and Community Policing: An Historical Perspective
Performance Profiles of Foot Versus Motor Officers
The Foot Patrol Officer, the Communtiy, and the School: A Coalition Against Crime
Community Policing: Defining the Officer's Role
Foot Patrol: Some Problem Areas
An Evaluation of a Neighborhood Foot Patrol Program
National Center for Community Policing
School of Criminal Justice
Michigan State University
560 Baker Hall
East Lansing, Michigan 48824-1118
800-892-9051 or (517) 355-9648