Funding and staffing of the Capitol Police Division : action has been taken to reduce costs and improve security

Follow-Up Review Report No. 13-15

November 2013

Georgia Department of Audits and Accounts
Performance Audit Division
Greg S. Griffin, State Auditor Leslie McGuire, Director

Why we did this review
This follow-up review was conducted to determine the extent to which conditions identified in our February 2011 Special Examination (11-04) have been addressed.
The purpose of the original examination was to answer House Appropriations Committee questions regarding how the Capitol Police Division is funded, the current level and type of security provided by the Division, and how the funding and staffing levels of the Division compare to industry standards and other states
About the Capitol Police
Division
The Capitol Police Division (Division) of the Georgia Department of Public Safety (DPS) is responsible for providing security and police services in the Capitol Square area. The Division is funded through an interagency agreement between the Georgia Building Authority (GBA) and DPS. GBA collects rent from state agencies occupying space in state buildings in the Capitol Square area, and a portion of those rent payments funds the Division's operations. The Division's fiscal year 2013 expenses totaled approximately $7.3 million.
The Division consists of approximately 19 state troopers, 13 police officers, 37 safety officers, and 9 command staff. There are also other support staff and private security officers who support the Division's operations.

Follow-Up Review
Funding and Staffing of the Capitol
Police Division
Action has been taken to reduce costs
and improve security
What we found Subsequent to our February 2011 report, the Georgia Department of Public Safety (DPS) made significant organizational and operational changes to the Capitol Police Division (Division). According to DPS, these changes were implemented to improve security and service delivery. Through these changes, DPS addressed several recommendations identified in the original report. These recommendations included conducting a security assessment of the Capitol Square area, reviewing the detachment of troopers to the Division, closing doors at the Capitol, and modifying the command structure of the Division.
Since our report, DPS assessed the security needs of the Capitol Square area by reviewing the 2005 Capitol Hill Terrorism and Civil Assessment conducted by the Georgia Office of Homeland Security and conducting informal staffing reviews. Based on these assessments, DPS created Georgia State Patrol (GSP) Post 50. With the creation of Post 50, troopers are now permanently posted on Capitol Hill and provide enhanced security in and around the vicinity of the Capitol and other critical state buildings. Overall, the result of the creation of Post 50 has been more effective use of resources and increased security within the Capitol Square area.
Our original report also found the Division could reduce security costs by closing some of the Capitol building entrances. In July 2012, three of the seven Capitol building entrances were closed, resulting in an annual savings of approximately $326,000.

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Funding and Staffing of the Capitol Police Division

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In addition, DPS reviewed the Division's command structure and eliminated a command position. The eliminated position saves approximately $101,000 per year. As noted by GBA, while DPS has implemented cost-reducing recommendations, overall security costs have increased approximately $500,000 due to the creation of Post 50.
As noted in the original report, the Division should take steps to limit Capitol Police officers from patrolling areas outside their primary coverage area. Between June and September 2012, approximately 190 of the 413 citations (46%) were written outside of Capitol Square.
The Division is funded through an interagency agreement between GBA and DPS. GBA collects rent from state agencies occupying space in state buildings in the Capitol Square area, and a portion of those rent payments funds the Division's operations. As shown below, on average, $2.79 (22%) of the $12.68 per square foot in rent collected by GBA is to provide security and police services. The percentage of funding by source is also shown below. Even though all agencies occupying space in GBA-owned buildings in Capitol Square pay the same percentage of their total rent for security services, the amount of security is not equal. The Supreme Court and the Court of Appeals have sworn officers when courtrooms are in session. These agencies do not pay additional funds for the additional security services they receive. In addition, tenants of the Capitol building do not pay rent, and tenants of the Coverdell Legislative Office building only pay a pre-determined amount for maintenance. Therefore, the security costs of these buildings are subsidized by other GBA tenants.

GBA Weighted Rent Schedule Fiscal Year 2013

Cost per Percentage of Component Square Foot1 Total Cost

Maintenance

$3.93

31.0%

Utilities

$2.48

19.6%

Security

$2.79

22.0%

Admin

$1.62

12.8%

Custodial SPC2

$0.87 $0.55

6.9% 4.3%

Grounds

$0.44

3.5%

Total

$12.68

100.0%

1These dollar amounts are a weighted average of all rent payments received by GBA. Actual rental rates vary.

2The State Properties Commission (SPC) is funded through rent payments paid to GBA.

Source: GBA records

Capitol Police Funding by Source1 Fiscal Year 2012

Other 27%
Federal 10%

State 64%

1Percentages may not total to 100% due to rounding. Source: GBA records, PeopleSoft, survey of state agencies

DPS Response: DPS stated, "...O.C.G.A. 35-2-122 mandates that DPS perform certain functions on Capitol Hill, the most important of which are the protection of life and property. The men and women of DPS strive to perform these mandated duties to the highest standard. I firmly believe that Capitol Police operations are conducted in a manner consistent with the public interest, are fiscally responsible, and meet the expectations of all branches of state government."

GBA Response: GBA collaborates with DPS to ensure security services for Capitol Square are optimized. The creation of Post 50 resulted in an increase of $500,000 for security services, which was funded by a $0.20 increase to GBA rental rates. GBA will continue its efforts to work with DPS to improve Capitol Square security services at a cost effective rate.
The following table summarizes the findings and recommendations in our 2011 report and actions taken to address them. A copy of the 2011 special examination report 11-04 may be accessed at http://www.audits.ga.gov/rsaAudits.

Funding and Staffing of the Capitol Police Division

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Funding and Staffing of the Capitol Police Division Follow-Up Review, November 2013

Original Findings/Recommendations

Current Status

The Division has not conducted any studies on the level and type of staff needed to secure the Capitol Square area.

Fully Implemented Management stated the Division has based many of its operational changes on the 2005 Georgia Office of Homeland Security Report. In addition, the Division has made some effort to assess the level and type of staff needed, including conducting informal staffing assessments and beginning to track individual officer workload. Division management indicated that staffing is assessed and adjusted on a continuous, informal basis.

The Division should review the use of detached troopers in order to decrease the cost of security and police services for the Capitol Square area.

Fully Implemented With the creation of Post 50, GSP troopers are no longer detached to the Capitol Police Division. Troopers are now permanently attached to the Division. At the time of the original report, detached troopers were primarily assigned to security desk duty at less critical buildings, positions that were typically filled by non-sworn private security officers. This resulted in troopers being significantly underutilized relative to their training and compensation. This practice has changed as troopers are now primarily assigned to critical buildings such as the Capitol, Judicial, and Coverdell Legislative Office buildings. This allows Capitol Hill safety officers and private security to be assigned to work in the less critical buildings. As a result, the Division is making more effective use of resources and has increased security within the Capitol Square area.
DPS Response: According to DPS, "the creation of Post 50 and the assignment of State Troopers to Capitol Hill resulted in enhanced security in and around the vicinity of the Capitol and other critical state buildings."

Decrease Capitol building entrances to decrease the cost of security and police services for the Capitol Square area.

Fully Implemented Effective July 2012, three of the seven entrances to the Capitol building were closed to the public. The annual savings resulting from these closures is estimated at approximately $326,000.

Increase the use of the private security contract to decrease the cost of security and police services for the Capitol Square area.

Not Implemented The Division has decreased the use of the Allied Barton private security contract since the release of the original report. Fiscal year 2013 contract expenditures are projected to total approximately $1.2 million, which represents a 24% decrease from fiscal year 2010 expenditures. In addition, the number of Allied Barton security officers assigned to Capitol Square has decreased by 15% from 46 at the time of the original report to approximately 39 security officers.
While the recommendation was not implemented, adequate

Funding and Staffing of the Capitol Police Division

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Funding and Staffing of the Capitol Police Division Follow-Up Review, November 2013

Original Findings/Recommendations

Current Status
justification was provided for the decrease in private security. DPS management explained decreasing private security is based on the 2005 Homeland Security report that outlined the need for more armed guards in Capitol Square. In addition, DPS expressed the security considerations outweigh the cost-benefit of expanding the use of private security.

Change the Division's command structure to decrease the cost of security and police services for the Capitol Square area.

Fully Implemented While the Division has not reorganized its command structure to one similar to a GSP post, DPS reviewed the Division's command structure and eliminated a command position. The eliminated position saves approximately $101,000 per year.

All agencies do not receive the level of security for which they are paying.

Not Implemented Even though all agencies occupying space in GBA-owned buildings in Capitol Square pay the same percentage of their total rent for security services, the amount of security is not equal. The Supreme Court and the Court of Appeals have sworn officers when courtrooms are in session. These agencies do not pay additional funds for the additional security services they receive. In addition, tenants of the Capitol building do not pay rent, and tenants of the Coverdell Legislative Office building only pay a pre-determined amount for maintenance. Therefore, the security costs of these buildings are subsidized by other GBA tenants.

DPS Response: DPS stated it does not control the amount of rent charged by the Georgia Building Authority or the percentage of rent apportioned for security services. However, DPS did point out that "high-risk areas of government receive greater security, such as the Supreme Court and Court of Appeals. The provision of heightened security is consistent with the 2005 report by the Georgia Office of Homeland Security."

Capitol police officers routinely issue citations outside of Capitol Square.

Not Implemented In the original report, we determined Capitol Police officers were patrolling areas outside their primary coverage area based on the significant number of citations (42%) written outside of Capitol Square. To determine whether Capitol Police officers still patrol areas outside of Capitol Square, we reviewed locations of the 413 citations written by Capitol Police officers between June and September 2012. While over 50% of citations were written in Capitol Square; approximately 190 of the 413 citations (46%) were written outside of Capitol Square.

DPS Response: DPS has reviewed the 413 citations issued during the June-September 2012 period as mentioned in the draft report. 100% of the citations issued by Capitol Police Officers were

Funding and Staffing of the Capitol Police Division

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Funding and Staffing of the Capitol Police Division Follow-Up Review, November 2013

Original Findings/Recommendations

Current Status
for violations that occurred within the five mile radius of Capitol Square, as authorized by O.C.G.A 35-2-122(a). The five-mile radius allows for patrol and security of state buildings within the division's area of operations, but outside of Capitol Square. Additionally, DPS noted that since state troopers, who have statewide jurisdiction, are assigned to Capitol Square, "more citations have been issued outside the 5 mile radius surrounding Capitol Square by troopers."

DOAA Response: O.C.G.A. 35-2-122(a) states, "The division shall have jurisdiction and the primary duty to enforce all laws in Capitol Square and the property and buildings owned by the Georgia Building Authority within a five-mile radius of Capitol Square." Furthermore, O.C.G.A 35-2-122(b) states, "The division shall have the following additional duties: (3) To enforce parking and traffic laws and to investigate accidents within Capitol Square." It appears the intent of O.G.G.A. 35-2-122 limits the jurisdiction of the Capitol Police Division to the Capitol Square and property and buildings owned by the Georgia Building Authority within a five-mile radius and limits parking and traffic enforcement to the Capitol Square. It does not appear the statute supports DPS's contention that the jurisdiction encompasses all areas, including all roads, in a fivemile circumference surrounding Capitol Square.
Our analysis included citations written by Capitol Police officers. We did not include citations written by state troopers due to their statewide jurisdiction.

7 Recommendations

4 Fully Implemented 3 Not Implemented

The Performance Audit Division was established in 1971 to conduct in-depth reviews of state-funded programs. Our reviews determine if programs are meeting goals and objectives; measure program results and effectiveness; identify alternate methods to meet goals; evaluate efficiency of resource allocation; assess compliance with laws and regulations; and provide credible management information to decision-makers. For more information, contact
us at (404)657-5220 or visit our website at www.audits.ga.gov.