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Performance Management for Justice Information Sharing

David J. RobertsGlobal Justice Consulting

Bob Roper, CIO/Director of JBITSColorado Judicial Branch

Michael DeverState Policy Advisory, BJA

2006 BJA/SEARCH Regional Information Sharing Conference

November 28, 2006 San Diego, California

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Managing Performance“Performance measurement, in simplest terms, is the

comparison of actual levels of performance to pre-established target levels of performance. To be effective, performance must be linked to the organizational strategic plan. Performance-based management essentially uses performance measurement information to manage and improve performance and to demonstrate what has been accomplished. In other words, performance measurement is a critical component of performance-based management.”

Source: Will Artley, D.J. Ellison and Bill Kennedy, The Performance-Based Management Handbook, Volume 1:

Establishing and Maintaining a Performance-Based Management Program (Washington, DC: U.S. Department of Energy, 2001), p. 4.

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Universal IJIS Elements• Definition: The ability to access and share

critical information at key decision points throughout the whole of the justice enterprise;

• Scope: Recognition that the boundaries of the enterprise are increasingly elastic—engaging not only justice, but also emergency & disaster management, intelligence, homeland security, first responders, health & social services, the public, etc.;

• Goal: Get the right information, to the right people, all of the time—underscores the need for dynamic information exchange

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Information Sharing Objectives• 3 Universal Objectives:

– Improve Public Safety and Homeland Security;– Enhance the Quality and Equality of Justice;– Gain Operational Efficiencies, Effectiveness, and

Demonstrate Return on Investment (ROI).

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WHY EVALUATE A CJIS PROJECT?Are We Beyond the “trust me” Stage?

• INFORMATION IS CONTROL• PROVIDES FEEDBACK TO IMPROVE PRGM.• PROVIDES INFO FOR RESOURCE

ALLOCATION• ENABLES EFFECTIVE PLANNING• TESTS GENERALIZATIONS BASED ON

INDIVIDUAL EXPERIENCES AND ASSUMP.• MARKET TO AND DEVELOP SUPPORT

AMONG FUNDING BODIES, CONSTITUENTS, AND STAFF

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…In order to reach the goals and objectives, one needs to measure and publish because, “People behave based on how they are measured.”

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Public Safety Measures

• Increase the percentage of court dispositions that can be matched to an arrest—this will improve the quality of the computerized criminal history records

• Decrease the average response time to establish a positive identification following an arrest

• Reduce the number of incidents of criminal records being associated with the wrong person

• Reduce recidivism• Decrease the amount of time it takes to serve a warrant• Decrease the amount of time for law enforcement to have

details on protection orders.• Reduce the fear of crime in target neighborhoods• Reduce the amount of time it takes users of the integrated

justice system to respond to a request from the public• Reduce the time it takes to complete a criminal history

background check• Reduce the number of agencies that can’t communicate

with each other.

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Quality of Justice Measures• Reduce the number of civilian complaints against local

law enforcement• Reduce the number of continuances per case that result

from scheduling conflicts between the courts, law enforcement, and prosecution

• Reduce the number of cases without a next scheduled event

• Reduce the average number of days or hours from arrest to arraignment

• Reduce the average time a defendant is held while waiting for a bond decision

• Reduce the time it takes for correctional facility intake• Reduce the number of days it takes to process cases from

arrest to disposition• Reduce the number of false arrests.• Reduce the amount of missing data.

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Efficiency/Effectiveness Measures

• Reduce the number of hours that staff spends entering data manually or electronically

• Reduce the costs of copying documents for justice organizations

• Reduce the number of hours spent filing documents manually

• Reduce the number of hours spent searching other governmental databases

• Increase the number of law enforcement personnel performing community policing tasks, instead of administrative tasks

• Increase the number of electronic data transfers between justice agencies

• Reduce the amount of missing information in criminal justice databases

• Reduce the number of corrections needed in databases maintained by CJIS agencies

• Decrease the number of warrants that never get entered into the state registry

• Increase the number of query hits on each agency database

• Reduce the number of hours it takes to enter a court disposition into the state criminal history repository

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Walking Thru an Example

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Specific Example

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Process vs. Impact Evaluations• Process evaluations focus on how the

initiative was executed; the activities, efforts, and workflow associated with the response. Process evaluations ask whether the response occurred as planned, and whether all components worked as intended. Fundamentally, a process evaluation posits the question, “Are we doing the thing right?”

• Impact evaluations focus on the outcome (the what) of the initiative; the output (products and services) and outcome (results, accomplishment, impact). Did the problem decline or cease? And if so, was the response the proximate cause of the decline? Fundamentally, the impact evaluation posits the question, “Are we doing the right thing(s)?”

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Establishing a Performance Management Program

The Six Steps to Establishing a Performance-Based Management Program

Source: Will Artley, DJ Ellison and Bill Kennedy, The Performance-Based Management

Handbook, Volume 1: Establishing and Maintaining a Performance-Based Management

Program (Washington, DC: U.S. Department of Energy, 2001)

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Step 1: Define Mission and Strategic Performance Objectives1. Mission statements identify the overall purpose for which

the organization is organized. 2. Vision statements describe the future business

environment and the role of the organization within it. 3. Value statements reflect fundamental beliefs and values

guiding the agency, the nature of their responsibilities, and the philosophy underlying their approach.

4. Assumptions are also frequently discussed in strategic planning efforts, describing business environmental conditions that are expected in the future.

5. Business strategies identify how objectives are to be accomplished, e.g., community-oriented policing, integration of justice information systems, subscription/notification capabilities, etc.

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Step 2: Establishing an Integrated Performance Management FrameworkMajor Elements in Creating a Performance Management

Framework1. Define the Relationship of Performance Measurement

to the Strategic Planning Process2. Build the Performance Management Team3. Address Stakeholder/Customer Needs4. Understand Performance Measurement Terminology5. Manage Performance Measurement6. Accept Accountability for Measures 7. Communicate8. Know How to Check/Test Your Measures 9. Learn From Others 10. What Do You Measure Yourself Against

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Performance Planning Template• Performance Plan Template Defined/Action taken • Mission/Vision/Values/Assumptions Relate project to Agency Mission/Vision, etc.• Strategic Performance Objective 1 Defined• Operation/Activity Title• Purpose Describe purpose(s) of initiative• Execution Define how you’re going to do it• Performance Target(s) Identify target(s) (e.g., reduce violent crime by 10%)• Performance Measures How you’re going to measure it• Owner Person responsible/accountable• Resources Resources needed for this initiative• Budget Funding dedicated to this initiative• FTE Staffing dedicated to this initiative

• Strategic Performance Objective 2 Defined• Operation/Activity Title• Purpose Describe purpose(s) of initiative• Execution Define how you’re going to do it• Performance Target(s) Target(s) (e.g., reduce violent crime by 10%)• Performance Measures How you’re going to measure it• Owner Person responsible/accountable• Resources Resources needed for this initiative• Budget Funding dedicated to this initiative• FTE Staffing dedicated to this initiative

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Step 3: Establish Accountability for Performance

• Building Accountability:– Authority refers to the power to influence or

command thought, opinion, or behavior. – Responsibility means that one is liable to be called to

account as the primary cause, motive, or agent.– Accountability, on the other hand, is an obligation or

willingness to accept responsibility and to account for one's actions.

• Internal vs. External Accountability– Internal Organizational Accountability – Internal

organizational accountability refers to the establishment of the upward and downward flow of accountabilities between management and individuals and teams within the organization.

– External Organizational Accountability – In external organizational accountability, the organization answers to/reports to its stakeholders on both its organizational performance and organizational behavior.

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Step 4: Establish a Process/System for Collecting Data to Assess Performance Develop a Plan:1. Information Requirements2. Information Sources3. Data Collection Processes4. Data Collection and Reporting Frequencies5. Data Collection Costs 6. Data Protection7. Data Quality8. Trial Run

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Step 5: Establish a Process/System to Analyze, Review, and Report Data Data Analysis Strategies1. Assess the Quality of Data2. Employ Analytic Methods3. Calibrate Baseline Measures4. Test Hypotheses 5. Know What to Measure6. Data Presentation—How Will the Data be Used and

Reported?7. Create an Executive Dashboard

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Sample Executive Dashboard

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Step 6: Establish a Process/System to Use Information to Drive Improvement 1. Shape Organizational Culture2. Make Information Broadly Available3. Reengineer Business Processes4. Build Performance Management into Everyday

Operations a. Executive Support and Organizational Commitment

is Requiredb. Comprehensive System of Accountability and

Responsibility is Requiredc. Flattens the Organizationd. Identify Problems Earlye. Ensure Progress and Keep Projects on Target f. Demonstrate Value

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Resources• Will Artley, DJ Ellison and Bill Kennedy, The Performance-Based Management Handbook,

Volume 1: Establishing and Maintaining a Performance-Based Management Program (Washington, DC: U.S. Department of Energy, 2001) at http://www.orau.gov/pbm/pbmhandbook/pbmhandbook.html

• John E. Eck, Assessing Responses to Problems: An Introductory Guide for Police Problem-Solvers (Washington, DC: Center for Problem-Oriented Policing, no date), at http://www.popcenter.org/Tools/tool-assessing.htm

• Michael Geerken, The Art of Performance Measurement for Criminal Justice Information System Projects, (Washington, DC: U.S. Department of Justice, Bureau of Justice Assistance, 2006 [forthcoming])

• Robert H. Langworthy (ed.), Measuring What Matters: Proceedings from the Policing Research Institute Meetings, (Washington, DC: NIJ/COPS, July 1999, NCJ 170610), pp. 37-53.

• David J. Roberts, Law Enforcement Tech Guide: Creating Performance Measures that Work! A Guide for Law Enforcement Executives and Managers to Assess and Measure Performance, (Washington, DC: U.S. Department of Justice, Office of Community Oriented Policing Services, 2006 [forthcoming from SEARCH and COPS])

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Performance Measurement Resources

• More information on GPRA and PART can be found at:–www.omb.gov/part–www.results.gov–www.expectmore.gov