COPY /) OF 5o

lecontro2led effective July 16, 1973 by authority of Mr. Lauren J. Goin, Director, Office of Public Safety

4 repert on the POLICE of H0NDlRAS

INTERNATIONAL COOPERATION . ""f. ADMINISTRATION

FEBRUARY 1960

OFT4UAL-USE OWNL ornoThL USE ONLY

'N REPORT ON THE N

POLICE OF

HONDURAS

Herbert 0. Hardin Chief, Latin -Amerida Branch Public Safety Division

February 1960

3F9PPESTflrSWl9Y 2IPETIALBU-E OiL

TABLE OF CONTENTS PAGE

PREDICATION OF REPORT------1

CHAPTER I - INTRODUGTION------3

A. Description of the Country------3 B. Internal Security------3

CHAPTER.II - THE CIVIL GUARD------5

1. Directorate------5 2. Administrative Section ------5 3. Section of ,Statistics and Personnel------5 4. Delegation of the Central District------5 a. Medical Dispensary------6 b. Traffic Command------6 c-. Radio Patrol------6 d. Court of the Civil Guard------6 e. Court of Traffic ------6

FIGURE NO. 1 - Current Organization of the Civil Guard------7

f. Line Companies------8 g. Cantons------8

5. Departmental Delegations------8 6. Mobile Civil Guard------9 B. Administration ~------9 1. Staff Support ------9 2. Span of Control------10

FIGURE NO. 2 - Map - Five zones of the Civil Guard and the Departments in each.

FIGURE NO. 3 - Span of Control - Showing number of persons theoretically, reporting to the Director of the Civil Guard------11

3. Control of Operating Units------12

FIGURE NO. 4 - Suggested organization of the Civil Guard----- 13 4. Page144US-eE

Go Person ------14 1. Strength------14 2. Salary Scale ------14. 3. Recruitment------114 FIGURE NO. 5 - Span of Control Chart------. 15 FIGURE-NOo 6 - Authorized Civil Guard strength by departmental delegation and totals for zones------16

FIGURE NO. 7 - Job title and salary rate distribution in the Civil Guard (in Lempirae)------17

4. Assignment and Transfer------18 50 Promotion------18 6. Special Benefits---.--is------18 7,o Retirement-~------~ 18 -8. Discipline------19 ,9.- e u e ------19 10. Unifor------19 11o Service C--- 20 D. -Tn--n------20 1. Selection of Trainees------20 2. Types of Training------21 3. Courses------21 a. Basic Training------21 - -b. Specialized In-service Training------21 c. Roll -all Training------22 4. Responsibility for Training_------22 E. Patro------22 l Motorized Patrol_------23 2. - Foot Parl ------23 3o Patrol Outside the Capital------24 IF. Re o d -- - - .. .- - - - -24 G. Communications------25 1. Telegraph------25 2. Telephonci------25 3. Radio------26 H. Traffic------7 I. Detention------28 1. Faiiis ------29 2. Administration------29 J. Buildings------30

L. Equipment------31

QEEICIAL.JJSErONLY

- ii ­ Page 1. Automotive Equipmen t 32 a.. Automotive Maintenance------32 2. Weapons------33 a. Weapons Maintenance 35 b. Storage and Control- 35 3. Office Equipm ------...... 35 N. Special Enforcement Problems- 36 1. Banditry------36 2. Prostitution------37 3. Narcotics----- 37 4. Juvenile Delinquency Control---- 37 0. Public Rlations- 38 P. Budget ~------.. 38S Q. Conclusions - Civil Guard--- 40 R. Recommendations - Civil Guard- 40 1. Administration and Organization- 40 2. Working Conditions------41 3. Training------41 4. Operations-ti------41 5. Traffic---- 42 6. Juvenile Delinquency------42 7. Border Control------42 8. Automotive irntenane---- 42 9. Motor Vehiles--- 42 10. Requisition and Supply - 43 11. Budgeting- - - - -..--- - 43A 13. Communications------..-- 43 14. Custody of Prisoners- 43 15. Firearms------... - - - - 44 16. Buildings-4

CHAPTER III - THE PUBLIC SECURITY OF HONDURAS--- 45

B. Operaitional Climate------45 C. Organizational Structure------45 1. Description of Units--.-- 45 a. Director Gen a-l-- 45 b. Secretary General------45 c. Charge of the Administrative Section------45

FIGURESO. 8 - Present Organization of the Public Security Organization--Y 46

- iii ­ .O@F11IOIIL USE OG*-

Page d. Chief of the Juvenile Section------47 e0 Chief of the Department of Intelligence- 47 f Chief of the Department of Immigration------47 g0 Chief of the Department of Identification -- - 47 h0 Chief of the Sqction of Robbery and Offenses Against Persons and Property- - 4­ 2. Suggested Organization------­ 47 FIGURE NO. 9 - Suggested Organization of the Public Security 49

50 le Personnel Strength and Salary 80ale------­ 50 E. Training ------­ 51 Fo Budget------­ 51 G. Automotive E 52 H. Firearms-- --- _­ 52 52 J0 Oeratios------. 52 1. Liaison--­ 52 2. Investigative Procedures----__------­ 53 3. Operational Responsibility--_------53 K. Scientific Equipment-- ---­ 53 Controls----­ 54 Communications ------­ 54 Public elations------... _­ 54 0. 54 P. Work Lad------­ 54 Q. Conclusions - Public Security Organization-.--­ 55 VRPnnrmpn + na -­ 55

C_

orncm uSE ONL~

*iv ­ OFELCTAI.ISE-ONLY

PREDICkTION OF REPORT

In late 1959, the newly activated Civil Guard and the reorganized Public Security Organization of Honduras were placed under the Ministry of Government. There followed -several informal inquiries to the American Embassy and the Director of the USON as to the nature of technical assistance which might be available to these organizations. On the basis of these ' requests the writer went to Tegucigalpa where he engaged in discussions with other U. S. officials and members of the Government of Honduras. During the writer's stay (February 10 - 17, 1960) the American Ambassador received a formal request for technical assistance from the Government of Honduras.

Factual information contained in this report was received by the writer during the week he spent in discussing the internal security situation and traveling about the Republic examining Civil Guard and Public Security forces.

The conclusions and recommendations made in the report are based solely on technical considerations, and should be regarded in that light when being considered for application.

The report seeks to present an over-all plan for the orderly development of forces capable of providing internal security, maintaining law and order, and rendering police services to the people of the Republic.

OFTIAt-USrONLY

- 1­ ~~Pxafl USE ON~

CHAPTER I

INTRODUCTION

A. DESCRIPTION OF THE COUNTRY

Honduras is a country 44.,480 square miles in area lying southeast of Guatemala and northeast of Nicaragua. It has a Caribbean coastline of 350 miles and a Pacific shore of 80 miles. It includes the Bay Islands off the Caribbean coast. It is a mountainous country with interspersions of mesas and valleys. There are several rivers and many small streams. The two principal mountain ranges are jagged and parallel to either coastline.

There are 1,740 miles of national highway in Honduras, only 25 miles of which are paved. There are 875 miles of all-weather gravel road, and numerous uncharted trails There are 1,008 miles of railroad, mostly dedicated to banana hauling. Air transportation is well developed with over 100 suitable daytime landing facilities in the country

Most of the manufacturing in Honduras is for local consumption. Iti economy is based principally on its export of bananas, coffee, gold, siltdr, and fine hardwoods.

The population estimate for 1958 was 1,800,000, and it is also estimated that 91%of the people are of mixed Indian-Spanish blood. They are proud of their ancestry, especially the implication of courage and l6ilty given by the Indian blood. Spanish is the official language, while Thdidn dialects are spoken in two of the remote regions. The two largest cities are Tegucigalpa, the capital, with a population of about 100,000; and San Pedro Sula, estimated population 40,000.

Honduras has a democratic type of government. It has a president &Addthreesuccessor designates. The president's cabinet is composed of nine ministers. There is a supreme court of five justices. The single house congress has 52 deputies. The country is divided into 18 departments, e&ich"being supervised by a governor who is appointed by the president. Each department has local and departmental judges0

B. INTERNAL SECURITY

- Internal security is the responsibility of the Minister of Government. Under the Ministry, and specifically responsible for the internal security functions are:

FF10111 UZE ONLY~ The Civil Guard, authorized strength- --- - 2,042 The Public Security------208 The Inspectorates------537 The Guards of the Presidio ------175

OFFICIAL UJE 01112 -4­ T P~TICIP 1yc;'

CHAPTER II

THE CIVIL GUARD -

The Civil Guard is the uniformed organization responsible for the maintenance of law and order throughout Honduras. The Guard was activated soon after the abolition of the National Police as a result of its alleged involvement in an abortive revolt on July 11, 1959. About six of the National Police, then under the Minister of Defense, were retained in the Civil Guard. The remainder of the members were recruited .anew. Its actual strength is currently estimated at 1,200.

A. -ORGANIZATION

The Civil Guard is organized as follows:

(See Figure No. 1, Page 7, and Figure No* 6, Page l6, organization and personnel distribution charts, respectively.) 1. Directorate.

- The Directorate consists of the Director, immediately responsible to the Minister of Government, the Sub-Director, responsible to the Director, and the Secretary General (Executive Officer) responsible to the Director through the Sub-Director. Also attached to the Directorate are two clerks and a porter.

2. Administrative Section.

The Administrative Section is immediately under the Directorate. It is the fiscal unit of the Guard, having the responsibility for all financial matters, including budgeting, allocating, disbursing, and accounting. It also controls purchasing, custody, and distribution of supplies and equipment for the Guard. Ik is composed of the chief of the section, one accountant, two secretiries, and one storekeeper.

3. Section of Statistics and Personnel.

The Section of Statistics and Personnel is also immediately under the Directorate. It has the responsibility of maintaining all records relating to personnel from the time of their recruitment to the time of their separation from the Guard. It has one chief of section, two secretaries, and two clerks.

4. Delegation of the Central District.

The Delegation of the Central District is the operating unit .of the Civil Guard responsible for the -maintenance of law and order in OFFIGI-ALr-uBE-NLW -5­ -OFFIGCIAL-U-9Nfr'

Tegucigalpa. It is commanded by a delegate who has on his immediate staff one secretary, two clerks, one records clerk, one instructor, two barbers, and one reporter.

a, Medical Dispensary.

The. Medical Dispensary is within the Delegation of the Central District. Here, sick or injured Guardsmen may receive first aid treatment. It is headed by a doctor serving on a "when-needed? bbsis, and is regularly staffed by two nurses,

b. Traffic Command.

The Traffic Command is a part of the Central District Delegation and has the responsibility for enforcement of traffic laws and control of traffic movement in the capital. It also is responsible for the handling of traffic violation and accident records. These records are of a iudimentary sort. The command is headed by a commander who has on his staff two secretaries. Responsible to him are five sergeants who supervise the 95 traffic guards.

a. 'Radio Patrol.

The Radio Patrol of the Central District Delegation has the responsibility of patrolling the streets of the capital for the purpose of suppressing criminal activity, deterring traffic violations, and giving rapid response to calls from the public for police assistance. It is staffed by six chiefs of radio patrol, three radio operators, and 'sit chauffeurs. There are three radio-equipped cars (1957 Ford sedans); however, the trans­ ceiver in one is not operating. There is one GE base transceiver about five years old which is in working condition. Guard personnel were unable to tell what power or frequency the set has but it is believed to be UHF, low power, since its range does not extend beyond the capital area. There is no police radio equipment in Honduras outside the capital.

d. Court of the Civil Guard.

The Court of the Civil Guard for the Central District functions within the administrative framework of the Central District Delegation, It has jurisdiction over minor infractions. It is headed by a judge who is a lawyer, and is staffed with a secretary, a clerk, and a porter0

e. Court of Traffic.

The Court of Traffic for the Central District has juris­ diction over traffic violations, is on the same basis and is staffed the same as the Court of the Civil Guard.

OFFrAh-t.uznONLT -6­ er- BL -tr'Y:

FIGURE NO. 1

CURRENT ORGANIZATION OF THE CIVIL GUARD

IMINISTER OF GOVERNMENT 1

I DIRCTOcIo

SUB-DIRECTOR

SECRETARY GENERAL

5ADMINSTRATION PERSONNEL DELEGATION I. SETION AN TASIC CENTRAL DISTRICT

1GUICAL TRAFFIC RADIO COURT OF OF LIN. A MOMMAND PATROL CIVIL GUARD TRAFFIC COMPM (Total o

- 7 - f. Line Companies. -

There are three Line Companies in the Central District Delegation. Members of these companies are assigned the task of patrolling the streets of the main part of the capital for the purpose of suppressing crininal activity and rendering police services to the public, and guarding public buildings and the homes of functionaries. Each company has a commander, a sub-commander, a chief of platoon, and five line sergeants. The first company has 95 guards, while the second has 90, and the third has 84.

g. Cantons.

The Central District Delegation has 12 Cantons or detachments stationed throughout the outlying neighborhoods of the capital. The members of these cantons patrol the neighborhoods to suppress criminal activity and to answer citizens' calls for police services. Each canton is headed by one or two sergeants supervising from six to 40 Guards, depending on the sise of the canton. The combined strength of the cantons is 159.

h. Sub-Delegations.

Further out from the capital in the surrounding iural areas are 13 Sub-Delegations whose members have the siameresponsibility as the members of the Line Companies and the cantons. Ea6h Sub-Delegation is

headed by a sub-delegate who supervises four.or five Guards. - The total authorized strength of the Sub-Delegations in the Delegation of the Central District is 74.

5. Departmental Delegations.

Each of the 18 Departments has a Delegation of the Civil Guard for the purpose of maintaining law and order and providing police services to the public. Each of the Delegations is headed by a Delegate and is further broken down into a number of Sub-Delegations and headed by a Sub-Delegate, one for each settlement of any size within the respective department. Three of the Delegations have defined traffic sections headed by either chiefs or sergeants, while four have traffic guards directly under the delegate.

The Delegations are grouped into five zones:

a. North - Cortes, Yoro, Atlantida, Colon, Islas de la Bahia.

b. East - Olancho, El Paraiso, Gracias a Dios.

c. West - Ocotepeque, Copan, Lempira, Santa Barbara, Intibuca.

d. Central - Francisco Morazan, Comayagua, La Paz. ­

e. South - Valle, Choluteca.

OFFIflkUZOr-W

- 8­ PFffZIAL UJE CMLI.

(See Figure No. 2, following - Map showing the five zones and departments,)

6. Mobile Civil Guard.

It is planned that ten of the Departments will have Mobile Civil Guard. delegations in addition to the Civil Guard, and some are already in operation. It is the intended purpose of these mobile units to maintain law .and order in the most undeveloped regions- of the country, combatting the organized banditry, and protecting the international boundaries against the transgressions of smugglers, thieves, subversives, and other undesirable elements. It is contemplated that most of these units will be mounted on horses and mules in order to operate over the broken and mountainous terrain of Honduras where there are no roads. Some jeeps are planned for areas where there are sufficient trails to permit their operation. It is planned to arm the leaders with pistols, and to equip all with carbines and machetes, both of which- can be carried on the saddles. Each delegation of the Mobile Civil Guard is, or will be, ,headed by a delegate, assisted by 'one or two sergeants, with 15 to 25 Guards filling the remainder of each complement.

B. ADMINISTRATION

The administration of the Civil Guard is oversimplified for the size and importance of the organization. The Director, assisted by the Sub-Director, formulates Guard policy to take its place within the broad framework of; the government's over-all policy. On the basis of established Guard policy, he must make his many connand decisions and issue- orders to implemeht them. The only real staff assistance which he has is that of his Secretary General whose duty it is to interpret his policies and directives into detailed orders to be transmitted and disseminated to the proper level of execution.

1. Staff Support.

There is no system of staff inspection to assure that the policies and directives of the Guard are being properly implemented. There is no question that such a system should exist, and that the responsibility should be placed in a staff officer who would cause such a system to operate for the purpose of keeping the Director informed at all times regarding the quality of compliance and performance of duties throughout the organization. This officer should also be charged with investigation of charges of misconduct, malfeasance or other irregularities by personnel in the Guard.

Because of the support which the Administrative Section must give the Director General in management problems, and the close communication which he must maintain with the Section, the chief and his unit should be attached to the Director's Office at staff level. OWEIJCIAL-USBEY -9­ There is a need for a staff officer to direct a defined program of public relations for the 'Guard. Because of the common visibility of the Civil Guard, the people of Honduras will see their government personified by this organization more than any other. Thus, the demeanor and attitude of the members of the Guard directly influence the feeling of the people not only toward the Civil Guard, but toward their entire government. At this time, the relationship of the Civil Guard with the people of Honduras is exceptionally good, and for this reason, the Guard enjoys popular support; this, however, is largely due to public enthusiasm for the new organization which replaced an old one which was resented by the public. A few unfortunate incidents and some uncomplimentary publicity involving the Civil Guard can rapidly change the attitude of the public to one of resentment and distrust; thus, the Guard would lose its most valuable asset--public support.

With the staff support of the Secretary General and the other three officers mentioned in the preceding paragraphs, the Director can do a much more efficient job of directing his organization and he will find his task much easier and simpler, freeing him of detail work and allowing him more tiine to devote to the.more important policy and command matters.

2. Span of Control.

The completion of the command staff is only a partial solution to the problema of effective administrative control, An analysis of the current organizational structure of the Civil Guard reveals that in addition to his immediate headquarters staff, the Director has 19 delegates reporting to him, making a total of 24 subordinates which he must supervise directly. This is most clearly illustrated by the span of control chart (Figure No. $-,Page 11) which shows the broad field of contact which must be maintained by the Director of the Civil Guard if he is to exercise control over his organi­ zation.- One of the most widely recognized principles of public adminis­ tration is the fact that no person can effectively supervise more than five or six subordinates. Hence, it may be seen that under the current organizational structure the Director is obliged to exercise direct super­ vision over four times as many subordihates as is humanly possible.

The same situation exists in the Delegations of the Central District and Cortes whete the Delegates' spans of control are extended over 20 and 11 subordinates, respectively. Thus, it can be seen that the organization of the Guard must be altered to provide for a span of control which is within the limits of effective administrative control. In order that this may be achieved, it will be necessary to establish intermediate levels of command and responsibility which will necessitate the creation of new ranks. This could be done easily by designating various classes of delegates such as Ist, 2nd, 3rd, etc. This could also eliminate the use of the terms "sub-delegate" and "sergeant."

OFFIGIAL USErONt

- 10 ­ I 'I

SADEROATAN I sA OuANAJA /Boudones ae net neceusdythose

HONDURAS DE LA u/S Icogrd byM.Goreent Rotr 1A FIGURENO.

Is .--- CARIBBEAN SEA Five zon os the GULP OF RONDURAS up a HNDRA Ciil Guard and the aniO S caO TS UNs .Nor As fse cmlm Apartients in each. A tATrIOUS S P I- PUNITASALp/CT ...... 'Trujillo FUNDr, GUA . tA RAan OAN,0 EMALA / 4 0. ­ -CORTIS %u\ ATLANTIDA - . c. Sans Pero[ Nams ZoNE*

. L PSANTA '. BARBARA 'eYoro - I HONDURA&C LO C 0( 6LoS 0 EAS TZONEIcLcr NONZ NE s Santa /O o^oaOS A ... d C lopa a. WEST Juticaapand COP N , Lan a Earanza coMAYAcu/. OLANCH b , COTEPEQUELOZONE S"I .CENTRAL

/__ LAPZ . -E P R

e- -- I r o l u y - -- ­ I ZONINLDS sAANCIS ua NORT SASD A AI

'LALUTE\A' 0 0L 40 60 80 )61

0~ro 20- 401- 60nra80eKdlometers CPIGIUE NL NGuEO O PTH I

SPAN OF CONTROL t HOWING NMBRER OF PERSONS THERT!CLI fEPORTING TO TH~E DlIRECTOR OF THE CIVIL GUAMD

orrxoi os4Morai 3 Control of Operatin Units.

Beside the staff units described above, there should be five operating departments, each directed by a higher ranking delegate.

(See Figure No. 4, Page 13, chart showing suggested organization of the Civil Guard.)'

a. Traffic Department, composed of:

(1) fgtrol and enforcement section (confined to the capital area).

(2) Signs, signals and mrking section.

(3) Safety edeation section.

(4) Licensing (driver and vehicle) section.

b. Personnel, Recruitment and. Training Department, composed of:

(1) Training section.

(2) Recruitment section.

(3) Personnel welfare records.

'e. Department of Safety and Order, composed of:

(1) The five zone commands.

(2) The Central District and its subordinate units.

d. Communications -and Records Department, composed of:

(1) Comnunications section.

(2) Geieral records section.

e. Services Department, composed of:

(1) Carpenters, barbers, tailors section. (2) Medical section.

(3) Equipment maintenance section.

(4) Sujply'section.

-12­ - FIGURE NO. 4

SUGMSTED ORGANIZATION OF CIVIL GUARD

TRAFFIC DEPARTMNT

IMSNSALF i-jMARKINGS

SAFETY EDUCATION SECTION

fLCN1G

- 13 ­ urrFFT6aLTUE**GNL?

By effecting these changes in organization the span of control will be brought within limits of effective direction and lines command will be clearly defined. (See Figure No. 5, Page 15-)

A- CGourtsO

The courts should not be a part of the Civil Guard. Courts should be free to decide impartially on the basis of evidence presented by the prosecution and the defense, If they remain under the administrative control oftthe Civil Guard, then they will be ineffective as an institution of justice.

0. PERSONNEL 1. Stregh

The authorized strength of the Civil Guard has been set at 2,042 officers and men, including the mobile component of 202. (See distribution in Figure No. 6, Page 16.) The present actual strength is estimated at 1,200 members with about 425 in the Central District, 100 in San Pedro Sula, and the remainder scattered through the Departments.

2. Salary Seale.

An analysis of the salary schedules within the Civil Guard reveals wide discrepancies in the rates received by each rank, and there appears to be no reasonable explanation for this lack of uniformity. The salaries are i so varied from unit to unit that to attempt to present a detailed picture in a chart would be extremely confusing. A summary schedule is presented ii Figure No. 7, Page 17. It can be seen that in many cases lower ranking individuals receive much higher salaries than higher ranking personnel* It is obvious that for reasons of fairness, morale, and sound administrative principles, a uniform salary schedule should be established before the Guard becomes more firmly established and the problem becomes insoluble. Salaries should be tied to grade or rank, and periodic increases provided. The above-mentioned chart also reflects 65 different position titles and grade levels in the Civil Guard. This unnecessary array should be simplified to include not over 12 grades below the Sub-Director level. 3. Recruitment,

Because of the necessity of activating the Civil Guard as rapidly as possible, firm standards of selection have not yet been established. Recruits are now selected on the basis of their Honduran citizenship, apparent physical fitness, and reputation for good character. In the capital, many of the personnel are youths under 20 years of age. Because an organization can be no better than its members, it is important that standards of selection be established which will assure the best possible recruits for the Civil Guard. The general standards should include: OFPIAL-USE-N T 1 ' I

pF1RICIltu5"USElY

FIGURE NO. 5

'SPAN OF CONTROL CHART (showing how Director's span would be reduced if suggested plan were adopted)

I I

OFICALID Nz­

- 15 ­ 91l t lfJpld puS-0K1

FIGURE NO.. 6

AUTHORIZED CIVIL GUARD STRENGTH BY DEPARTMENTAL DELEGATION AND TOTALS FOR ZONES (rNhsberss indicate Mobile Civil Guard personnel in addition to regular strengtho)

COMMAND MISCO &A1mIN. ADMIN. SUB- STAFF ' DELEGATE PERSONNEL DELEGATE SERGANT GUARD TOTALS

14 14 CENTRAL ZONE 737 (45)

Franeisco Morazan (First Delegation) 13 i(1) 11 13 34(2) 569(25) 641(28) comayagua 1 5 2 40 - 48 La Paz 1(1) 6 2(1) 39(15) 48(17) NORTH ZOKE 41.2(17) cortes 1 9 6 199- 215 Yoro :1.- 6, 5 - 71 83 Atlantida 1(1) 2 5(1) 59(15) 67(17) Colon 1 3 1 25 30 Islas de la Bahia 1 2 14 '- 17

SOUTH ZONE 196(34)

Choluteca 2(1) 11 2(1) * 102(15) 116(17) Valle 1(1) 10 3(1) 66(15) 80(17) EAST ZONE 187(39) 0ancho 1(1) 12 3(1) 80(20) 96(22) El Paraiso 1(1) 11 3(1) 70(15) -85(17) Gracias a Dios 1 1 4 6

WEST ZONE 277 (49)

Ocotepeque 1 3 1 24 29 Copan 1 7 3 53 64 Lempira 1(1) 6 40 (13) 48(15) Santa Barbara 1(1) 9 1(1) 58(15) 69(17) Intibuca 1(1) 8 2(1) 56(15) 67(17)

Ofl'IeM1SE-ONIE­

- 16 ­ j-FIGURE NO. 7 JOB TITLE AND SALARY RATE DISTRIBUTION IN THE CIVIL GUARD (IN LEMPIRAS)

Monthly Monthly No. Rank Rate No. Rank Rate

1 Director (ad honorem) 2 Sub-Delegates 125 -1 Sub-Director (ad honorem) 102 Sub-Delegates 100 1 Secretary General 500 6 Traffic Sergeants 150 1 Chief, Administrative Section 500 1 Traffic Sergeant 125 1 Chief, Personnel & Statistics 6 Traffic Sergeants 100 * Section 400 1 Traffic Sergeant 90 1 Doctor 400 15 Line Sergeants 150 2 Nurses 150 2 Mobile Guard Sergeant 150 1 Guard Judge 400 9 Mobile Guard Sergeant 100 1 Traffic Judge 400 1 Sergeant 200 2 Commanders of Traffic 300 24 Sergeants 150 6 Chiefs of Radio Patrol 200 14 Sergeants 100 3 Commanders of Line Companies 300 3 Sergeants 90 3 Sub-Commanders of Line 1 Sergeant ._80 Companies 250 2 Sergeants 75 1 Accountant 300 269 Line Guards 100 -1 Storekeeper 125 67 Line Guards 90 1 Record Keeper 150 15 Line Guards 50 1 Instructor 150 95 Traffic Guards 100 3 Platoon Leaders 180 34 Traffic Guards 90 3 Radio Operators 175 3 Traffic Guards 80 1 Male Secretary 400 7 Traffic Guards. 60 2 Male Secretaries 250 25 Mobile Civil Guards 100 4 Secretaries 200 140 Mobile fivil Guards 75 6 Drivers 150 145 Guards 100 2 Clerks 200 375 Guards 90 2 Clerks 175 72 Guards 75 6 Clerks 150 647 Guards 60 4 Porters 75 2 Barbers 150 1 Delegate, 'Central District 1,000 1 Delegate, Department of (NOTE: 2 Lempiras = $1.00 U.S.) Cortes 700 1 Delegate 300 4 Delegates 200 12 Delegates 150 Delegate, Mobile Civil Guard 250 9 Delegates, Mobile Civil Guard 200 14 Sub-Delegates 250 Sub-Delegate ,200 13 Sub-Delegates 150 O99-l-LL-USE-ONLY

- 17 ­ Minimum-maximum age Minimum height- Minimum weight Good health Average literacy for Honduras Good character certified by-background check

An effort should be made to recruit men over 21 who are more mature in their judgment and are more, likely to remain in the Guard.

. Assignment and Transfer.,

It is understood at this time that personnel are assigned as neiarly as possible to the locality where they reside. This practice has merit for several reasons:

* a. It gives each community a feeling of control by self-will rather than by imposition.

b. Personnel.are in a position to gain better cooperation and more useful information from the public in a community where they are known.

c. Personnel are not separated from their families

d. The problem of living expenses is minimized.

5. Promotion

Promotions are currently made on the basis of an informal appraisal of the employee and his performance. Before the Guard grows too large and becomes too entrenched in custom, a formalized system of appraisal should be established for the purpose of selecting the most competent for promotion. Sudh a sjstem is necessary to building efficiency and morale within the organization.

6. Special Benefits.

A set of uniform regulations and procedures covering such things as injury in line of duty, sick leave and vacations should be established immediately in order to obviate confusion and inconsistencies sure to arise as the Guard advances in age and grows in numbers.

7, Retirement.

Retirement is an important consideration in an organization where an attempt is being made to establish a career service. It. is only reasonable that any young man who contemplates giving his most useful years to service in the Civil Guard will consider how he- is to be taken care of when he is no

- 18­ 9FFICIAL.1SE-NLY­

longer able to serve. In order to attragt and retain career- type personnel, there must be developed a sound system providing conditions of retirement, pension rates, and means of creating the pension fund. It is likely that legislation will be necessary for this purpose.

8. Discipline.

Discipline, insofar as it has developed, tends to be of a military type. In order that the Guard can develop as a civil police force, the rigid military type discipline should be supplanted by ordinary administrative discipline.- Disciplinary action should consist of reprimand, suspension without pay, or discharge. Military type courtesy should be replaced by common civil courtesy.

9. Tenure, Tenure in service should be contirigent on satisfactory performance of duties and creditable conduct. Presently"tenure of Guard personnel is relatively unprotected by regulations. !Again, any young man considering entrance'to the Guard on a career basis will want assurance that his employ­ ment will be secured so long as he performs well. Therefore, a set of regulations designed to assure retention of deserving personnel and providing a list of reasons for disciplinary action, along with procedures for implementation, should be developed.

10. Uniforms.

* Uniforms without shoes and individual equipment are furnished to Guard personnel. The uniform consists of:

Helmet liner - U.S. type, white, with letters "GC" and insignia of rank if the wearer has such.

Shirt - deck grey, open neck, short sleeve.

Trousers - navy blue cotton in city; blue denim in rural areas.

Black shoes - various styles.

Belt - black, sam brown, without- shoulder straps.

Holster - black, closed, swivel type.

The design and color of the uniform is considered good. The cotton trousers for use in the city, and dem in the rural areas is in good taste.

.- An effort should be made to assure that uniforms are kept in a cleaner and neater condition as wbll as in a good state of repair. Idequate washing and

PF-14IULUE-ONLY

- 19 ­ iESIAL USE ONLY

pressing facilities should be proyided at each headquarters, and it should be incumbent on the personnel to use them. Personnel who live at home should be urged to have their uniforms done there.

Shoes should be of a uniform pattern, of sturdy construction which' will give adequate support to the feet. Thought should be given to manu­ fadtifihg the sam brown belt and holster in Honduras if the leather industry can supply the demand. Shoes, belts, and holsters should be kept polished in order to present a neat appearance and preserve the leather.

11. Service Citations.

Recognition of outstanding acts giving evidence of great courage, diligenbe, or loyalty to duty over the years is an excellent morale booster as well-as being an incentive. Several levels of citations should be devised, and basis of award defined for each.oneb. A citations board composed of rankihg members of the Guard should be formed for the purpose- of passing on awards. In order to maintain the high value of the citations, they should be awardd: judiciously after thorough. evaluation of the cause for the proposed award0

D. TRAINING

At the time of the writer's visit, civil police trainingas such in the -Civil Guard was non-existent. Some close order drill and other military training, having no bearing on the civil police function, was being given0

In the police service the need for trained personnel is a consideration of utmost importance. Without training, the policeman has little or no knowledge of how to go about his task. Through ignorance, he may cause grave damage by failure to handle situations requiring skilled attention, or by taking incorrect action where the. safety of life and property are at the mercy of his discretion. It is, therefore, of the utmost urgency that an intensive civil police training program be initiated within the Civil Guard as quickly as possible0 1. Selection of Trainees.

Because of the almost totally untrained state of the Guard at this time, an intensive basic training program should be established in the capital. Trainees should be drawn from two sources:

ao New recruits not yet placed on duty.

b0 Guard personnel on duty with the various units in Honduras, drawn in small numbers until all personnel have the same amount of basic training. OFFICERUSE-ONLfY

- 20 - OF=WGIALDSE..MIA.

2. Types of Training.

Training should be in three types:

a. Basic for recruits and other untrained personnel. b. Specialized in-service for experienced personnel. a. Roll call general training for all personnel.

3. Courses,

a. Basic Training.

The courses in the basic training program should include:

(1) Orientation to the police service. (2) Social, economic, political and geographic make-up of Honduras;. (3) The criminal laws of Honduras and criminal procedure. (4) General police procedure. (5) Responsibility of a policeman. (6) Police operations in populated areas. (7) Police operations in undeveloped areas. (8) Police tactics. including riot control. (9) General investigations by police first on the scene. (10) Traffic control, enforcement, and accident investigation. (11) Juveniles - their handling by the Civil Guard. (12)- Suspects of trime. (13) Persons (handling of various categories). (14) Property (handling of various categories). (15) Hazards .(handling of). (16) Narcoticsa (17) Breaches of the peace. (18) Other miscellaneous offenders (19) Miscellaneous duties. (20) Information (gathering and using). (21) Firearms - safety, ethics, marksmanship.

b. Specialized In-service Training.

Specialized in-service training should be given for thtee purposes: (1) To increase the general effectiveness of the Civil Guard in certain fields.

(2) To develop qualified specialists, including instructors, in certain fields as traffic, communications, etc.

4WIC1-I USE O.I.

-' 21­ OFflCI*~L USE ONLY

(3) To develop capable leadership within the Guard.

The specialized in-service training program should be initiated as quickly as availability of physical facilities, instructors and material content permit. While the courses for specialists and leaders should be given only in the capital, there are.many which should and can be given at training centers lcated within the departments. Courses in leadership should be given all present delegates and sergeants New promotions should be preceded by a period -of training, and the degree to which the student profits from the training should be a prominent factor in determining his promotion

c. 'll Call Training.

Roll call training should be regarded as an extension of basic training- to be given all personnel for the purpose of keeping them abreast of new developments in police operations and to familiarize all with the approwd' uniform procedure within the Guardo Roll call training material may be drawn from police journals and texts as well as organizational manuals, administrative orders, planning documents,9 and material especially prepared as a result of analysis of incidents involving the Guard. The material is prepared in lesson units, each, dealing with one topic, and reproduced on pages 'with holes punched for easy binding into notebook form by the individual Guar4smano A lesson should be distributed to all personnel in each unit at roll call after which supervisors should explain the contents. Short exam­ inations on this' material should be held periodically. Such training serves not 6nly to keep Guard personnel up to date in general training, but it stimt3ates interest in their work.

4. Responsibility for Training

Each delegate should have on his staff a delegate of subordinate grade who would have responsibility for development and supervision of training programs within the delegation, dissemination of roll call training material, and coordination with the training and personnel offices for the Civil Guard0

Insofar as possible, the training program of the Civil Guard should be coordinated with that of the Public Security. Common physical facilities should certainly be used for reasons of economro Many of the courses given are of common interest Instructors can be drawn from both organizations to the advantage of allo

E. PATROL

The patrol system in the Civil Guard has not yet developed to the point where it nay be termed very effective. Patrol zones, beats and routes

- 22 ­ Cfl'IOIAL U~n vflL! are not clearly defined, thus allowing for overlap in some areas while others are lik'ely to remain uncovered. Distribution of patrol is not accurately based on'need as reflected by number of incidents calling for police service, number of hazards calling for police inspection, and calls from the public for police services. Neither is distribution over time of day accurately based on varying hourly level of need for police services. Being untrained and inexperienced, it is self-evident that patrol personnel are not keenly aware of their purpose or how to achieve it. In other words, they have not yet learned how to recognize police hazards or hbo* to deal with them. It is extremely doubtful that they know how to make inspections and render miscellaneous police services.

1. Motorized Patrol0

Available in the capital for patrol are six jeeps with no extra equigment and three radio equipped sedana. The radio in one of these sedans is but -of order. Fourteen more jeeps are distributed among the delegations

-where tp±rain and roads permit auto travel. There are about six other miscellangous passenger vehicles scattered among the delegations. The radio patrol, as. previously described on Page 6, is established as a separate unit, quite apart from the foot patrol. This separation has no jistification from the standpoint of sound police operations. Patrol, whether foot or auto, is essentially- movement for the purpose of repressing criminal activity; inspecting han4rds, and giving attention to needs for police services. Patrol is an operation while communication is a service which ­ should -serve not only patrol, but the entire organization. The radio patrol, by being-a separate unit, is of very limited usefulness because of reduced doordination with the foot patrol. It not only reduces the interchange­ ability of personnel, but it unnecessarily increases the intergroup rivalry and jealousy which hamper efficient operation. For these reasons, all patrol-vehicles in the Central District Delegation, whether radio equipped or not,- should be placed under the direction of the commander of patrol forces in the delegation. If the radio comunications facilities are extended beyond the capital, this same arrangement should apply. Personnel who man patrol vehicles can be replaced at the will of their commander. They should be chosen on the basis of their efficiency.

2. Foot Patrol. The writer observed the operation of foot patrol in Tegucigalpa. While members of the Guard are on the street in numbers, they do not seem to realize why they are on patrol They seem to regard their mission as being that of covering a certain amount of ground, and do not "work" their beats as they should in order to attain their objectives.

OFICIALFr**6NLI

- 23 ­ be forwarded to the Public Security. (If the Civil Guard and the Public Security are placed in the same building, then they by all means should contribute to and share the same central records system, thereby increasing its value to each.)

The records system of the Civil Guard should be, built around:

1. Arrest records;

2. Incident (complaint) records.

The fingerprints. of persons arrested by the Guard should be forwarded to the Public Security for classification and filing.

Although traffic records are distinct in some ways from other pblice 'ricords, they should nevertheless be an integral part of the central redords- system. Technically, the traffic violation notice is an arrest record.- Wile the accident report is an incident record. The statistical piocessing method is similarto that used on all police records. Criminals and other police characters frequently drive automobiles, and, because of their attitudes, may be frequent violators, which would also increase their accident proneness.

- All records should be cross-referenced into a central index by names of all persons figuring in the incident except officiating police.

- . The records unit should be housed in a large room, centrally located with respect to the units making most frequent use of records.

G. COMMUNICATIONS

Police communications in Honduras are basic in natue. Countiy-wide, the Civil Guard depends on the land cable telegraph for communication between delegations and headquarters.

1. Telegraph0 The telegraph-offices, which are usually located next to the departmental governor's offices, are still equipped with the ancient code key sending and receiving equipment. In times of civil unrest, it is a simp& matter to cut the telegraph lines, thus severing all -communications with any particular point.

2. Telephone0

Long :istance telephone facilities within the country are extremely limited and not always dependable. The central headquarters of the Guard in . OFFrIITAL-UB-N-b

- 25 ­ the capital, now being temporarily occupied, are not yet equipped with the type of telephone service needed by an organization engaged in emergency service operations. The central headquarters should be provided with at least- six two-way telephone lines, and three incoming lines designated as emergency0

3o. IRadio.

As previously mentioned in this report, the Civil Guard has a iadio bahe transceiver set which is believed to be ultra high frequer'y, low power with a range limited to the approximate environs of the capital. This range is sufficient to meet the tactical needs for policing the capital. There are only three mobile transceivers in the organisation, all in the capital, and one does not worko The city of San Pedro Sula has no tactical net. There is no form of radio communication between the delegations in the departments and central headquarters in the capital. All information must travel by telegraph-, which, as was previously pointed out, is dependent on the lines being intact.

The extent of real authority which the Director of the Civil Guard exercises over the units away from the capital is strongly influenced by the­ efficiency of the communications facilities by which commands and directives are trhsmitted. Authority is exercised by command which must be communi­ cated by some means. In the case of the Guard, telephone. communications outside' the capital are almost completely lacking. The telegraph, beside being in danger of sabotage, is slow and unreliable.

In order to achieve and maintain effective control over the Civil Guard and render the quality of police services needed in the country, the Goverzment of Honduraspshould provide the Civil Guard with a country-wide radio net. This wouldrequire 19 HF base transceivers, one for the capital and one for each department; 18 HF mobile transceivers, one per vehicle in departments outside the capital; one UHF base transceiver for the San Pedro Sula tactical net; and 21 UHF mobile transceivers, six of which would go to San Pedro -Sula, and 15 of which would be retained in the capital. This would furnish the Civil Guard with a very effective communications network enabling the Director to instantly communicate with any of his delegations, allowing the transmittal of his orders and the reporting of important information from the field. In addition, it would afford effective tactical control over police operations, raising the quality of police services considerably. The entire net would cost in the neighborhood of $75,000. This is calculated on the basis of $2,000 per base set and $600 per mobile set, using the remainder for antennae and other accessories. The entire net need not be purchased at once if the financial burden is too heavy. Base and mobile transceivers may be located first at the most important delegations, and a few mobile sets added in the capital and San Pedro Sula. The remainder could be scheduled for purchase in later years until the net was completed

26 ­ OF-Im.AS-aNY

The radio equipment should be of standard, basic design. This will simplify the maintenance problemo

Prior to acquisition of radio equipment, however, an important prerequisite must be satisfied. Personnel trained to qualify in radio maintenance, along with adequate physical facilities, must be provided to service the equipment. Police radio equipment in the United States, where the use environment is at an optimum, is in need of constant maintenance. Radio equipment is delicate, and the mobile sets are especially susceptible to damage because of the constant vibrations and jolts to which they are subjected. If radio equipment is acquired in Honduras before the proper maintenance facilities are provided, the Civil Guard will soon find itself in possession of a large quantity of inoperative equipment.

H. TRAFFIC

Honduras, along with the rest of the world, has a traffic problem. However, because of the relatively small number of automobiles in the country, traffic is not yet a dilemma. On the other hand, there is need and possibility for improvement. The rapid movement of go:ds and people from place to-place in maximum'safety is basic to economic progress. Thus, improvement in the traffic situation is a logical undertaking.

Movement of traffic in Tegucigalpa is hampered by the narrowness of the streets, the lack of proper channeling of traffic by imposing restrictions on movement of vehicles, the lack of parking restrictions, the lack of street markings, signs and signals, the lack of police who are adequately trained to direct traffic and enforce the laws relating thereto, and finally, the lack of, a program to educate drivers in proper driving procedures and attitudes. Although no figures are available, it is certain that there are too many accidents in Tegucigalpa for the size of the city and the number of motor vehicles. At peak hours, the flow of traffic is almost at a standstill as a result of intersections being blocked by cross traffic. There are either no Guard personnel available to regulate this, or they do not know how. Intersectional and marginal friction cause vehicles to move at a snail's pace. There are many blind, uncontroled intersections in the business district. The pedestrian hazard is great because pedestrians dart across streets at any point0 In the outlying districts where the streets widen and the frictions are reduced, the traffic hazard level is raised by increased speed coupled with relaxed vigilance.

Although the highways in Honduras are not crowded, the numerous cross-bearing monuments along the roads indicate that the fatalities have been high. The writer noticed a complete absence of warning and regulatory signs along the highways. Speeds are unrestricted and there is no patrol by the police.

OOE6 5i SU0NE

- 27 - ~ Tegucigalpa is the only location in Honduras where a specialized group of 'traffic enforcement personnel within the Civil Guard is justified. Even then, the size of the contingent should be limited to a number in the central business district sufficient to minimize traffic congestion by expediting traffic flow and enforcing parking regulations. The most effective -and uniform program of traffic enforcement is available through placing the responsibility for enforcement of traffic laws upon the entire Guard0 Since the incidence of traffic violations and accidents generally conforms'to the geographical pattern of crimes and other demand for police s6iviceds, there is good justification for having the same police personnel handle the. entire need.

The commander of traffic should have the responsibility of developing asoiind and comprehensive traffic program, the objectives of which would be &dcomplishedby effective- public education in correct and safe driver-pedestrian practices, a steady, firm, but fair enforcement pressure based on the selective enforcement principle, and an engineering program aimed at increasing the physical safety factors in the streets and highways. The direction of the program should be based on information derived from accurate traffic records which would reflect information as to time, location, frequency, and cause of accidents This data should define the needs for attention. Traffic flow counts -should give basis for placement of signs, signals, markings, and other alterations in streets:td highways,

Io DETENTION

Detention facilities in Honduras are in dire need of attention Each Civil Guard unit headquarters has some temporary detention facilities, but only a few are-adequate for secure and healthful detention of prisoners. Responsi­ bility for temporary detention of prisoners arrested by the Guard rests with that, organization. In rural areas, prisoners sentenced to very short terms or held for questioning may remain in the temporary facility; however, it- is found most practical to transfer all prisoners held for longer periods to the presidio, of which there is one in each department. It was understood by the writer that prisoners sentenced to three years or less might be kept at the presidio in their department to serve their sentences, while those serving longer terms would be transferred to the penitentiary at Tegucigalpa. Each presidio is the responsibility of the governor of the department.

- The few women kept in the same facilities are segregated, but the writer could see no evidence of matron's services being provided.

Some juveniles were observed with the older persons in the temporary detention facility at delegation headquarters in the capitalo Juveniles detained for longer periods are sent to one of the cantons in the capital where only minors are held.

CEFIALUJEf 'SN1Y

- 28 ­ 1. Facilities.

Although the writer was unable to afford the time, for a visit to the main penitentiary in the capital, he did visit two presidios ,in the departments, and was told that they were representative of the others. The average presidio (prison) is a one-story adobe building constructed in the shape of a square with a courtyard in the middle. The cells are contained in the building and front on the courtyard. They have old wooden bars. These buildings appear to be several centuries old. They have no plumbing except for a latrine and shower in one corner of the courtyard. Although it is no doubt the desire of the officials to keep the facilities clean, the antiquated condition of the structure makes this an impossibility. There is usually one entrance, a wide hallway-like affair where the presidio office is located. An outer gate permits entry from the outside, while an inner gate leads into the courtyard, Usually diagonally across the yard from the gate is a crude tower for the guard.

There is little differentiation in degrees of security, the only distinction being that some prisoners who are considered control problems are kept -locked in their cells. The writer is convinced that no one would have to stay in prison in Honduras if he really wanted to get out.

2. Administration.

Each prison has a director who supervises from seven to 288 Muar4s. No--qualifications have been established for employment of prison directors or guards and they receive no training. They sit in the entrance hallway with their rifles, standing by for an emergency.

There is no discernible program for rehabilitation of the prisoners. They are placed in the prison and left to - eir own pursuits. Those who are fortunate enough to have a skill and can find the materials engage in manufacture of small articles which they hope to sell or barter. Others sit in complete idleness, while some play simple games or talk. It is not unlikely that some of the group discussions assume the aspect of crime seminars dedicated to increasing the proficiency of the participants upon their release.

Prison food consists of beans, rice, and what food the prisoners can have brought in from the outside by friends or relatives. Cooking is done over an open fire in the courtyard.

For the purpose of attempting to salvage some of its wayward citizenry and reduce crime incidence, and also to place its penal system on a self-sustaining basis, the Government of Honduras should completely overhaul its -penal system. The prisons should be placed under one director responsible - to the Minister of Government. Those prisoners being held for trial should be

-GFFIGCEIr-LS-*9Nirl

- 29 ­ YP~tCIZL IJZE CULT

released'on bail or other assurance if possible. Those not releasable should be segregted from those serving sentences. A woman's prison should be established at some location in the country which would be favorable to their rehabilitationo

The penal institutions in Honduras should be located in parts of the country where the inmates could engage in productive work which would contribute to the country's development, to the material support of the penal system, and to the rehabilitation of the prisoners.

The production program should include four categories: Agriculture- Road construction Forestry and land conservation Industry

Prison inmates should be segregated into maximum, medium, and minimum security classes, depending on their escape risk potential and their prospects for rehabilitation. The maximum security risks should be assigned to prison industry where they may be closely supervised.

The directors and guards in the prison institutions should be selected'on the basis of their qualifications and interest in correctional work. Indoctrination should be based on the rehabilitation aspect.with training of personnel to be directed toward these objectives. The rehabi-li­ tation program for prisoners should consist of vocational training combined with productive work, organized physical training, training in elementary s6hool subjects for those who want it, and a recreation program for morale purposes.

- New buildings should be provided, and should be built, insofar as possible, of material to be had at the construction cites. Because of the favorable climate in .Honduras, construction should be light and airy, merelyz sufficient to protect the inmates from the wind, -rain and insects. Walls should be replaced by heavy, well anchored wire fences with manned guard towers strategically placed.

The agricultural portion of the program would do m~ph to help improve the diet of the prisoners as well as reducing expenditures for food. In planning its prison program the Government of Honduras should seek the services of a qualified consultant who can make a detailed study of the program and submit specific recommendations.

J. BUILDINGS

The National Police Headquarters in Tegucigalpa were burned during the 1959 revolt and the Civil Gard Headquarters are now located in an old OFFEIAL-USOr-GNLY

- 30 ­ .­

-ramshackle building which is much too small and not laid out according to need. Obviously this condition seriously obstructs efficient administration of Civil Guard operations. The Public Security is in much better circumstances in its present building, however, the high rental cost of the structure works an extreme hardship on the organization's budget. Prior to the revolt, the Public Security and the Civil Guard shared the headquarters building. The Mihistry of Government is actively seeking government buildings which might be converted to use by the two organizations which it is contemplated will again be housed together. Most of the lower unit headquarters of the Civil Guard which the writertobserved were old, difficult to keep clean, and not laid out to suit the need.

The Government of Honduras should develop a master building ­ construction program and plan buildings which will accommodate the function of the Civil Guard as well as that of the Public Security wherever both organizations are represented. As in the case of the prison plants, the police buildings should be light and airy, planned to permit expansion when necessary, and constructed of materials available in the particular region.

K. RANGES

At the time of this study, no firearms training ranges for the Civil Guard and the Public Security existed. An untrained policeman equipped with a firearm is not only ineffective, he is dangerous. In addition to missing his mark, he is likely to shoot an innocent person. The respect of the population does- not necessarily derive from the type of firearm with which the policeman is armed, but from his ability to use it accurately. The construction cost of firearms ranges is cheap and the. design i siaple. Plans are readily available. The Government of Honduras should take immediate steps to .ensure ,the construction of an all-purpose small arms range in each department. Availability of suitable land should be no problem. Materials are available on the land. The possibility of using prisoner labor should be explired.

L. EQUIPMENT

Most of the equipment for the Civil Guard is purchased at the request of the Director of the Guard with the concurrence of the Minister of Government.

P"fIAL-UE-; 3

- 31 ­ 1. .Atitomotive Equipment.

The civil Guaid has three 1958 Vord sedans which are in fair condition. These cars are used in the capital. In addition, the Guard has 20 jeeps, M38 military type, which were acquired in October 1959. Six of these vehicles are used in the capital, while 14 are assigned to, the delegations in some of the departments. The jeeps whibh the writer was able to inspect are being kept clean, and appear to be well maintained. It is 'believed that those in the capital and in San Pedro Sula receive the most use because of the relatively larger amount of street and highway mileage over which they can be operated.

The Government of Honduras should increase the number of .jeeps in. the Civil Guard to approximately 50. This would add 30 to the present number. Because of the roughness of the highways and terrain in Honduras, automotive equipment for the Guard should be restricted to the jeep type 'vehicle which is rugged and versatile. To simplify the problem of obtaining spare parts and that of training maintenance personnel, it is considered to be advantageous for the Civil Guard to standardize on -one make of vehicle.

Distribution of the recommended number of vehicles should be on the following basis:*

Jeep Station Personnel Carrier Jeeps Wagon (6 cy1.) General Purpose

Central District 10 1 4 Department of Cortes 5 2 Other departments (17) 1 ea Mobile Civil Guard 10

Extra (maintenance replacement) - 1

This number includes the 20 jeeps already in possession of the Civil Guard.

Under no condition should the Civil Guard attempt to acquire solo motorcycles. These machines have extremely limited police use, the injury­ fatality factor for riders is so high that their use is considered to be-a liability. Mbheywise) .the over-all cost of operation is many times that oft an automobilec The rough streets and roads of Honduras would only serve to aggravate the above cited distdvantages.

a. Automotive Maintenance

Preventative maintenance should not be allowed to become a problem in the Civil Guard, Automotive equipment is scarce and replacement parts are expensive and difficult to obtain. If a vehicle breaks down, it may remain in the deadline for weeks or months before it can be repaired. The best maintenance is the preventative type where each driver is

- -32­ OFFICnL USE ONLY responsible for seeing that the minor maintenance tasks are -performed- on each vehicle0 Lubrication and oil changes every 1600 kilos or 1,000 miles, using good quality products, will greatly reduce the wear on parts. Maintenance of the proper level of battery water adds greatly to the life of the battery. Proper air pressure in the tires reduces wear, prevents breaks in the carcasses, and increases resistance to punctures. Frequent tightening of screws, nuts and bolts prevents wear, leaks, and loss of parts; The Civil Guard units should provide oil change and lubrication "shops at each jurisdiction where automotive equipment is assigned. 'I record chart should, be kept on each vehicle in order to ensure regularity -of lubrication and oil change. 'It should be the responsibility of each driver during his tour of ­ duty to make sure that the preventative maintenance of his vehicle is up to standard. It should be the responsibility of supervisory personnel to ­ inspect periodically to determine that preventative maintenance is being performed and is of the desired quality. Any driver found not maintaining his assigned vehicle properly should be barred from driving for a period to be determined by the seriousness of the omission.

Considering the expense of providing the physical plant, shop * equipment and tools, and the investment required to acquire a stock of spare parts, together with the necessity of training personnel as mechanics, there is serious doubt in the writer's mind regarding the advisability of the Civil Guard maintaining an automotive repair shop. There is also the problem of bringing ailing vehicles into the capital for repair. These problems would seem to warrant exploration of the practicality of the Civil Guard entering into maintenance contracts with garages in the capital and in each department, to perform needed repairs on the Guard automotive equipment. The contracts should provide that the cost of parts and repairs should not * -exceed those provided in manufacturers service manuals. Contractors should be required to surrender all removed parts at the time the vehicle is restored to service. The contract should also provide that the contractor maintain an adequate stock of spare parts and that he have established channels for ordering parts not often used.

I maintenance record should be kept on each vehicle and when the annual. cost of maintenance exceeds 1/3 of the original cost of the vehicle, a replacement purchase should be scheduled for the next vehicle buying period. The retired vehicle should be kept in running condition and sold at public auction. The price which a used automotive vehicle in fair running condition will bring in Honduras nearly approaches the price which a new one will cost the government. Under no circumstances should parts be taken from one vehicle for the purpose of repairing another. This is the most expensive form of maintenance known and soon renders one vehicle completely worthless.

2. Weapons. Soon after the Civil Guard was activated, it acquired 500 each .38 caliber 4" revolvers which are issued to personnel in the capital. 904PhIA-EUSE 1

- 33 ­ OFFE1cf-USZr6NT

Personnel in the departments are mostly armed with Enfield or Eddystone military rifles of early 20th century vintage. These weapons are in extremely poor condition and it is doubtful that many will operate safely. There are also many 19th century rifles on hand dating back to breech loading civil war pieces. None of these rifles have any value as civil police weapons.

The Civil Guard is now in the process of purchasing 500 .30 caliber MI1 carbines which should be used to equip members of the Mobile Civil Guard to carry secured in Guard vehicles and to secure in limited numbers for emergency purposes in Guard unit headquarters.

The Civil Guard has a' sill 'number of submachine guns and these -weapons should be kept secured in unit headquarters, to be used only in emergencies.

The Guard should acquire 1,000 more .38 caliber revolvers to replace the rifles now used by personnel.

The Civil Guard should not attempt to arm itself with fully automatic weapons. They are far too powerful and dangerous. An increase in proficiency in marksmanship with repeating or semi-automtic weapons is far more -desirable and much more safe. Shoulder weapons, both automatic and semi-automatic, are not suitable for use when working in close quarters with the public. If slung over the back, they are cumbersome and they pose a hazard to the policeman. In order to exercise a reasonable amount of control over the arms, the police must hold them in their hands. In either case, there is the danger of the weapon being wrested away and turned against the policeman, or being used as leverage to overpower him, A policeman must have his hands free in order to work. Both the rifle and the submachine gun have excessive range for use in a populated area and there is danger of ricochet; moreover, a great deal of public resentment is likely to result from their use. In dealing with crowds, lethal weapons in the hands of police are a bluff and the people know it, causing them to become more daring. A policeman is placed in an awkward position when he is equipped with a weapon which he quite properly hesitates to put to its correct use. Police should not bluff. The Civil Guard has no tear gas guns or .r'idt guns.

The sum of 200,000 Lempiras ($100,000 U.S.) was allocated in the FY 1960 budget for purchase of weapons. Of this, about 58,000 Lempiras ($29,000 U.S.) has been obligated to purchase the carbines, ammunition, reloading equipment and tear gas grenades. Of the remainder, about 90,000 Lempiras should be applied to purchase 1,000 more revolvers. About 6,000 Lempiras should be obligated for purchase of 1,600 wooden batons and 500 machetes, the batons to equip those armed with revolvers, and the machetes for the rural (Mobile Guard) forces armed with carbines.

- 34 ­ a. Weapons Maintenance

There is no indication that weapons maintenance receives any attention. Each employee to whom 7,gan is assigned should be responsible for seeing that the weapon is clean,properly lubricated, and in working order. It should be the responsibility of supervisory personnel to make frequent -inspections to ensure compliance, and take action to correct any deficiencies found.

The Guard should have an arms repair shop in central head-' quarters where -damaged or worn weapons could be repaired for further use. Tools and equipment are relatively inexpensive. One man who displays interest and aptitude should be selected and sent to a small arms repair school. This person could assume responsibility for operation of the shop and then train several assistants. The arms repair shop should also have the responsibility for reloading ammunition. The operations are closely ielated and can be performed on a time complementing basis. b. Storage and Control.

There is evident a need for safeguarding weapons not actually use. -The writer noticed several instances of loaded weapons, including submachine guns, lying or hanging unprotected in various unit headquarters, some within easy reach of prisoners.

Arms temporarily not in use should be locked in racks or chests ihere personnel are on duty at all times. No arms should be kept in sleeping quarters. A strong room, properly ventilated and damp proofed, equipped with racks, should be provided in central headquarters and each delegation head­ quarters for protracted storage of arms. Accurate inventory records by serial number should be kept on all armss and these records should be kept up to date, constantly reflecting the whereabouts of each weapon, including the -name of the person to whom issued.

23. Office Equipment,

- The office equipment in central headquarters of the National Police ieas destroyed by fire. The Civil Guard has a few neioftypewriters in central headquarters, however, it is far too early to determine their adequacy. A determination of need should be made after the organization of the Guard has progressed to the point where needs may be accurately measured. The same holds true for filing cabinets and other office equipment.

The office equipment observed in headquarters units away from the capital was of the most rudimentary nature. After the organization of the Guard is more complete, an assessment of the-needs of outlying units should be made for the purpose of gradually modernizing the office equipment in order to sustain modern records operations.

OFPPILL -f-l3F uiL

- 35 ­ M. SUPPLIES

The 1960 budget allocates the following amounts for -supplies:

Office supplies------L 15,000 Medical supplies and medicines------18,000 Clothing for personnel------132,930 Fuels and lubricants------25,000 Miscellaneous supplies------914,000 L 194,930

The purchase of supplies for which there is a regular need should be made annually, if possible, in amounts anticipated to meet the year's requirement. In all cases it is not possible to do this because of possibility of loss.by pilferage, shrinkage,, or deterioration. These factors must be considered in determining the purchase of supplies which they affect. Miscellaneous supplies, the need for which cannot be predicteds, should be purchased in quantities required as the needs arise. If frequent purchases are-made of any one item, and it becomes apparent that the need will continue, then this item should no longer be, purchased as miscellaneous, but should be procured in larger quantities.

.1running stock control inventory should be- kept.on all supplies. These itrentories should reflect all purchases, withdrawals, and the current stock levels, showing when the proper re-order level is reached. This system is simple to operate once it is, installed and nakes possible an dequate supply system.

In order to ensure that all units receive the supplies they need and to establish an audit basis for withdrawals, a requisitioning system should be established, whereby lower units can periodically submit requisitions to headquarters for supplies for the coming period. Requisitions for miscellaneous supplies should be submitted when the need occurs.

N':SPECIAL ENFORCEMENT PROBLEMS -

The Republic of Honduras, like any other country, has its problems which need attention in various degrees.

1. Banditry.

Some of the undeveloped areas of Honduras are still plagued by bandits who- usually operate at night against small isolated settlements, or against the fringes of larger communities, often approaching by stealth, binding and terrorizing the occupants, or sometimes murdering them, and making off with their money, their personal and household possessions as

- 36 ­ well as poultry, livestock and food. The outlaws usually live in bands of families 'in'-semi-permanent settlements which they move to suit their convenience. Some live across the borders in neighboring countries, and come into Honduras on forays, fleeing over the frontiers with their plunder and living in relative immunity. To them, this is a way of life, a means of existence. That they are not brave is apparent by their method of operation. They are equipped with machetes and some small arms. Until these bands of outlaws are eliminated as such, it will not be possible to settle- the undeveloped areas where they operate. The -firsttask of the Mobile Civil Guard after it is organized and trained should be to remove these groups from operation. They must be trapped by carefully planned tactics designed to lure them into situations where they can be dealt ­ with.

2. Prostitution.

Honduras has laws against prostitution and it does not appear to pose much of a problem. Several houses of assignation have recently been closed by the Civil Guard. - Authorities should maintain constant vigilance to prevent the growth of organized prostitution. It not only creates a health and moral hazard, but attracts criminal elements and activities. 3. Narcotics-

Some marijuana is grown and used in Honduras, but it is not out of proportion to the traffic in the rest of the Americas. Coca and opium and their derivatives do not appear to constitute any great problem. 4. Juvenile Delinquency Control,

Although no statistics are available, it is the writer's belief that the problem of juvenile delinquency in Honduras is not anywhere near the size in proportion of that in the U.S.; however, since any child delinquent of today is in danger of becoming the criminal of tomorrow, a juvenile problem of any size should be dealt with. Both the Civil Guard and the Public Security should have the responsibility of delinquency ­ prevention. The Guard, being the patrol force, is theoretically everywhere at all times, able to discover and deal with persons, situations, places and things- which contribute to juvenile delinquency, and discover cases of delinquency where they exist. The Public Security, being the investigative organization with a juvenile section as a part of it, should be able to make follow-up investigations of the contributing factors mentioned above, and of the actual cases, and refer them to the proper agency, be it a welfare facility or the court, for final disposition.

All personnel of the Guard and the Public Security should receive elementary training in juvenile delinquency control, and certain key supervisory personnel in the Public Security should be given advanced training whenever-possible.

- 37 ­ /

O PUBLIC RELATIONS

As previously pointed out in this report, the Civil Guard-is a new organization, and thus far has enjoyed popular approval and support, however, as the initial public enthusiasm for the new group wears off and more and more persons are dealt with by the Guard, the problem of maintaining good relations with the public will become increasingly delicate and complex. Public support ii essential in police administration. Public cooperation is essential to the accomplishment of the police purpose; it is necessary in the enforcement of major laws as well as of minor regulations and with it arrests aie made and convictions are obtained that otherwise would be impossible. A public that observes laws and complies with regulations relieves the police of a large part of their burden. Difficult programs can be carried out with support of the community, and new techniques can operate successfully in friendly atmosphereso Commendation and praise from the public build police morale and cause the police to increase their efforts to give good service. Public support is necessary in obtaining budgetary provisions for needed buildings, equipment and personnel. Police salaries, relief days, sick and retirement benefits and other conditions of service are also favorably influenced by a friendly and cooperative public.

The organization and operation of the public relations unit has been described in the portion of this report dealing with organization of the Civil Guard.

P. BUDGET

The budget for the Civil Guard for Fiscal Year 1960 totaled L 2,678,230- ($1,00 U.S. = 2 Lempiras). The appropriation was broken down as fo1owss

Salaries for personnel (broken down by rank and assignment)__------L 2,187,780.00 Operating expenses:-

Miscellaneous payments to personnel, N.C.-­ 2,000,00 Travel expenses within the country------­ 12,000.00 Miscellaneous services, N------­ 5,000.00 Office equipment and supplies- ----­ 15,000.00 Medicine and medical supplies----- 18,000.00 Personel expenses------­ 3,000.00 Uniforms for personnel--­ 132,930.00 Fuels and miscellaneous lubricants-- --­ 25,000.00 Miscellaneous materials and supplies----­ 4,000.00 Ordinary repair and maintenance of equipment­ 12,000.00 Ordinary repair and maintenance of buildings­ 20*000.00 Total operating expenses------­ 248,930.00 31PP31.AL-USE-3Nf' - 38 ­ Capital expenses:

Office equipment, additions and -special repair 25 0.00 Civil equipment (purchase -of arms for the Civil Guard)- 00.00 Total capital expenses -' 22,000.00

Miscellaneous expenses:

Funerals of personnel------3,900.00 * Contingencies~' 13,520.00 :- -btal7 iniacellaneous expenses- - ­ 16,520.00

- BUDGET 'TOTAL- L 2,678,230.00 ($ 1,339,115.00) Since this is an initial budget request for a new organization, it is understandable that it would :be somewhat disproportionate in comparison to that of a mature establishment 'Adjustments based jon-stabilizing conditions and changing needs should, in a few years, 'effect- a change in the over-all appearance of this instrument. Future budgets should contain provisions for sinking funds to finance - new buildings and to replace automotive equipment. The budget should be one. of the most valuable tools of adminis­ trative planning and analysis as wefl 'as an effective instrument of executive management. Present and future money -needs for personnel, equipment, and itpital investments must be estimated and plans for supporting budget requests must be made if needed apprppriations are to -be obtained. Work programs must be planned in order'to ascertain future needs in equipment, sface, and personnel. Annual inspections should -be made to ascertain the need of replacing worn* outmoded$ or damaged equipment, or to meet an expanded need, in automotive, communications, offices weapons, maintenance, or jail. Unit commanders should participate in the budgeting process, beginningat departmental delegation level and forwarding-their requests through zone headquarters to central-headquarters. The budget of the Civil Guard should be of the.-perforance type, containing itemizsed., justified requests. In order to effect mote firm budgeiary controls, the Guard should institute a system of monthly rbcapitulations, -reflecting the amount of funds to .be apportioned for the monthj sexpenditures as based on anticipatedt needs. The recapitulation should- also reflect the amount, spent in each account in the fiscal year to date, the amount spent during the previous month, and the amount avaiaable

- 39 ­

1.-i

-~1 for the balance of the fiscal year. In this manner, the Guard may maintain effective controls over its funds, affording a means of orerly planning of expenditures, and preventing serious fund depletions prior to the end of the fiscal year.

Q, CONCLUSIONS - CIVIL GUARD * The Civil Guard is a completely new organization yet in its formative stages. For this reason, it is important to realize that this is the greatest opportunity which will ever exist to make a proper beginning iA the development of a soundly organized, wisely administered, well trained, orrectly equipped police body dedicated to serving the needs of a young ddmocracy. The Civil Guard does not yet have the problem of making cumber- Adme changes in order to correct debilitating errors It does not have to cope with emotional sentiment based on tradition in order to bring about new improvements. In short, the Guard has a fresh start and the Tate opportunity to "make good."

The problem of having an efficient Civil Guard may not be solved by the mere addition of manpower and equipment. The Government of Honduras 9hould seek expert advice and such advice should be carefully considered in the light of what is best for the country. The Civil -Guard needs assistance in effecting the proper organizational structure; it is in need of guidance 1i establishing the proper administrative procedures; there is a requirement t6r aid in developing a personnel system which will both serve the beet needs ot the -Guard and afford adequate protection and benefits for personnel. Firm sdpport is needed for a comprehensive training program which will give the iew policeman a firm basis upon which to begin his career, assistance in increasing his effectiveness while in service, and special knowledge which will prefer the potentially qualified for specialized tasks or positions of leadership and command within the organization.

Expert guidance will be useful in a multitude of other aspects, siich as records, tactics and operations, communications, traffic, detention, e4uipment, public relations, and internal management. All of these have b en discussed in detail in foregoing sections.

Ro RECOMMENDATIONS - CIVIL GUARD

1. Administration and Organization,

a, Organize the Civil Guard in general conformance to the pattern described starting on Page 9, as illustrated in Figure No. 4, Page 13.

b. Increase the strength and extend the operations of the Mobile givil Guard without increasing the over-all strength of the Civil -Guard. O)FFr;VILL 11S ONUX­ - 40 ­ c. Improve administrative controls by establishing a system of staff inspections to evaluate operations as well as to assure adherence to policy and compliance with orders, reporting results to commanders at proper levels,

d. Develop and implement a vigorous public relations program aimed at maintaining and improving public acceptance and support for the Guard.

e. Implement planning at all levels within the Guard under the leadership of the plans, training and personnel unit.

2. Working Conditions.

Create good working conditions in the Guard by:

a. Placing personnel on regular eight hour daily working schedules with regular days off. b. Creating a salary schedule which is uniform for each grade and maintain salaries at adequate levels to provide acceptable living standards for personnel.

a. Devise an orderly classification of grades or ranks.

d. Install a sound actuarial system to protect the interests of retired Guard members.

3. Training.

a. Limit training to civil police subjects.

b. Initiate a recruit training program designed to prepare Guard recruits for general duty.

c. Initiate an in-service training program directed at furnishing refresher training for experienced personnel, training- in specialized subjects, and training in new developments in police operations and techniques.

d9 Provide hioly specialized training in leaderal4p and super­ vision, and specialized-operdtions in order to prepare poten4ally qualified personnel for positionW of responsibility,

4. Operations. a. Institute thorough, well planned patrol procedurbs aimed at accomplishing the over-all police task.

OF-IGI-AL-USE-ONL*

- 41 ­ K

omf~ U1BrSE-ONLY­

bo Give close attention to riot control methods through continuous training 4nd drill.

c Restrict equipment of personnel to that which is essential for civil Police work and can be used most effectively.

5f Traffic.

a0 Initiate a traffic program of public education, enforcement, and engineering designed to reduce the frequency of accidents, improve driver-Vedestrian attitudes and habits and increase the safety factors in the streets and highways0 b. Define the functions of the traffic section as those f formulation and administration of the aforementioned traffic program on a country-wide basis.

c Limit formation of a specialized traffic enforcement unit to the Central District

do Make all operating personnel of the Guard responsible for traffic enforcement.

6. Juvenile Delinquency0

Include juvenile delinquency prevention in all operations and training of the Guard.

7o; Border Control

Place responsibility for control of all international boundary crossings with the Civil Guard, and more specifically with the mobile component, assigning defined sections of the borders to specific units.

8. Automotive Maintenance0

to Place responsibility for preventative maintenance of motor vehicles on the assigned drivers and their supervisors

b. .At each headquarters where motor vehicles are assigned, provide .physical facilities for performance of preventative maintenance.

c- Effect a contract as described on Page 33 with a garage in each Guard zone for repair maintenance of motor vehicles.

9. Motor Vehicles0

a0 Increase the number of jeep type vehicles to 50 and standardize on one make.

- 42­ b. Sell at auction or use as trade-ins the retired motor vehicles of the Guard.

10. Requisition and Supply.

Establish a sound requisition and supply system as described on Page 36 within the Guard. 11. Budgeting.

- a. Require budget request submissions from all delegations and require justification for all items.

b. Establish a system of budgetary controls which will regulate expenditures throughout the year.

12. Records 0

a. Integrate records operations into a single- department where there may be established a modern records system which will afford admin­ istrative controls, and supply information for operational guidance.

b. If the Civil Guard is to occupy a building with the Public Secauity establish a centralized, jointly controlled records unit.

13. Communications.

a. Install a radio communications net which will serve the entire Guard, enabling instantaneous communication between central headquarters and delegation headquarters, and all headquarters and attached automotive units.

b. Afford adequate maintenance service for radio equipment.

14.. Custody of Prisoners0

a. Maintain a separation of the Civil Guard from the correctional or penal function, limiting the Guard custodial role to that of custody of prisoners awaiting trial

b. Take innediate steps to improve Guard jail conditions with respect to buildings, sanitation, and food.

Co Specifically fix responsibility for operation of each Guard jail at each headquarters unit.

d. Obtain expert consultation on prison system reform.

- 43 ­ OFFICIAL-USE-ONLY­

15.Firear-Z0

a0 Replace with revolvers the fully automatic weapons and rifles now in hands of personnel assigned to cities, towns and villages.

b. Equip Mobile Civil Guai-d and all motor vehicles with carbines; assign small number of carbines to each unit headquarters for emergencies.

c. Destroy all unserviceable 'firearms and look full-automatic weapons in unit headquarters for emergencies.

d. Fix responsibility on each individual, for maintenance and care of his weapon.

e. Establish a small arms repair and cartridge reloading shop at central headquarters.

f. Construct firing ranges and institute training in marksmanship and safety in use of firearms.

16. Buildings.

Plan and pursue a long-range building program to provide suitable buildings for the Civil Guard and the Public Security.

-Th

-'S

-44­ OfPFICIliCferrOlsh.

CHAPTER III

THE PUBLIC SECURITY OF HONDURAS

A. HISTORY

The Public Security of Honduras was first established under the Minister of Defense in 1954, and was assigned the responsibility of making all investigations pertaining to criminal and subversive offenses and immigration cases. In the attempted revolt of August 1959, the Public Security went the way of the old National Police, however, a few, of the key personnel, including the Director of the Identification Department, were restored to duty. The Public .Security was subsequently established under the Minister of Government, still independent of the ivil ,Guard.

B. OPERATIONAL CLIMATE

The social upheavals incidental to the impetus of political and ecofiomic development in Honduras, coupled with its being a new organisation staffed with untrained, inexperienced personnel has posed a serious operational problem to the Public -ecurity, making it difficult for the staff to develop any real investigative - capabilities.

C. ORGANIZATIONAL STRUCTURE

1. Description of Units.

a. Director General.

A Director General heads the organization. He has a Secretary General as his Deputy. (See present orgaiizational chart, Figure No, 8, Page 46.) b. Secretary General,

The Secretary General exercises ppecific direction of the juvenile section and the administrative section as well as the general direction of the organigation in the absence of the Director General.

c. Charge of the Administrative Section.

The Charge of the Administrative Section has two secretaries and a porter responsible to him.

CPFICI Uefty~8B

- 45 ­ OPErOAl USE ONLY

FIGURE NO. 8

PESENTORGANIZATIQN OF THE. PUBLIC. SCURITY ORGANIZATION

DEPARTMENT OF DEPARTMENT OF DEPAR2MENT OF L IMIGRATION INTELLIGENGE IDENTIFICATION

SECTION OF OFFENSE SECTION OF I SECTION OF SECTIQN OF I AGAINST PERSONS AGENTS --. COMMUNICA'iONS I LABORATORIES

GUARDS OF RS OF THE MORNING TGUATHE EVENING

- 46 ­

1, d. Chief of the Juvenile Section

The Chief of the Juvenile Section has a woman social worker and a chief of agents responsible to him.

e. Chief of the Department of Intelligence.

The Chief of the Department of Intelligence is apparently the third in command of the Public Security. He has two secretaries.

f. Chief of the Department of Immigration.

The Chief of the Department of Immigration has two secretaries and a porter.

g . Chief of the Department of Identification.

The Chief of the Department of Identification has an assistant chief, seven technical 6fficers, and two secretaries.

h. Chief of the Section of Robbery and Offenses Against Persons and Property0 -

The Chief of the Section of Robbery and Offenses Against Persons and Property has two secretaries and a stenographic agent.

The Public Security office at -San Pedro Sula has one chief, an assistant chief, a chief of intelligence, a chief of identification and an assistant chief of identification

Available for detail to any of the aforementioned departments or sections are personnel of the Agentst Section assigned to a morning shift and an evening shift There is an inspector in charge of each shift. There are 45 agents and two porters divided between the two shifts.

2. Suggested Organization

It is apparent that to increase the over-all effectiveness of the Public Security organization, some staff units should be added for the purpose of supporting the Director General in his administrative task, and some of the operating units should be regrouped in order to reduce the span of control and place like activities together so that they will be more effectively supervised, better coprdinated, and thus more effective in achieving their objective.

A Personnel and Training.Office should be added to the Director's staff for the purpose of handling matters pertaining to personnel and

-OPLEZI UUJr-ONLY­ establishing and administering the training program described on Page 51. The importance of the Director exercising direct control of personnel and training operations is owable to the part which these functions play in determining the standard of the organization. If the personnel and training programs do not have close support from the top, they are in danger of deterioriation as a result of inadequate attention at lower levels.

An Inspector's Office should be established at command staff level for the purpose of initiating an administrative inspection system for the purpose of ensuring by means of inspecting and reporting on conformance to organizational policy the administrative and operational procedures at all levels within -Public Security. The Inspector's Office should also be charged with making inspections to ensure that specific orders of the Director are carried out as directed. One of its other important functions should be to investigate any allegations of improper conduct on the part of Public Security personnel. All reports on the results of -inspections and investigations should be forwarded directly to the Director General.

On the operational level should be established four units whose chiefs would be responsible to the Director General through the Secretary General.

a. Records and Identification - to include the laboratory and the communications sections because of interrelationship of tasks.

* b. Criminal Investigations Department - to include the section of offenses against persons and property and the section of juveniles.

c. Intelligence Department - should include the immigration department reduced to a section. Common interest warrants this inclusiorr.

d. The San Pedro Sula office.

It is believed that better results from investigations will be had if agents are permanently assigned to the various units, their number being determined by the workload. This will enable more specific assignment of responsibility to the agents and stronger supervision by the unit chiefs. It-will also permit agents to become more specialized, and thus more expert, in particular types of investigations.

(See Figure No. 9, Page 49.)

- 48­ 14 4'ii J'

OFF1 rL4E-91IlI-

FIGURE NO. 9

SUGGESTED ORGANIZATION OF THE PUBLIC SECURITY ORGANIZATION

I

4-,.

- 49 ­ I (I I.

D. ADMINISTRATION ­

2,.Peror~Si rnR~tm and &%ry &aLeq

The: authorized strength of the Public Security is 88, and the actual atrength Is. the same.. -The various rositions-of the Public Security are listed below:td-th, the onthT 1nes in .nisas shown fr each:

Monthly

umber. - . .PositiolL

Director Generat ... L 2,000 Secretary:Geal . 600 2 Chief, Inte134g=_ r...... 600 1. Chief, -Immigratna m Da 500 1 Chief, Identification nta-- - - 2 500 1 Assistant. Chief, =Identjfijation- repartmen t 350 Chief, San Pedre. £8 V#fic - 1 _5G0­ Chia4 Robberies and- Odfa aAgainst ?esonarand:Proper Y- 1 Ghiefq 350­ Juvenile Section 325 Inspas-tors-.--a - -- 400 1 Chief of IntelIkgence (Sax ...... , 300 Chief -of Identification Section (San Pedro ..Sula) -200 Assistant Chief of Identifit ion Section (San Pedro &iia)- 200 Chief of Administrative, seatior . 1 350 1 -Social Visit- Dhief Juvenie Age -- 300 1 250 Technica> Qffcers bIdentification) .250 Technical. Officer (Identificaton) 225 1 Technical -Officer'(Identification) '200 Technical 1 Officers (Idetificatipn) 150 Stenographic, Agent-- 1 Agents n.... 175 Agenta -- -175 1 150 1 Agent 100 22 fladneea tf~lO~~ Male Secretary.A(Jte. . -600 400 29 Male Searetary 29 Secretary- 275 Secretaries--­ 250 sereta es--.tA .A -20Q, Secretaries- 150 Porters- 80 Janitors-----.... ,4O In view ofth e iv adispazity in the.-salaries of .personnel in comparable. positions ­ a -study V 2 is needecta .effeat, a-more.unifonn - fication e3assi­ of positionsiandw'alarjes; Such an adjustment-would go far .in improving the .moraletad-tefficiency of the organization.

50,-. 023141A& USE QNLTY_

E. TRAINING

No training program of any kind exists within the Public Security organization. There can be found only a few employees who have any kind of investigative training. The great majority have learned only what their relatively scant experience has taught them. It is evident this condition results in a lack of competence not only on an individual basis but for the whole organization, as will be observed from the discussion of workload on Page 54. A training program should be planned and put into operation as soon as possible. The training should be of three principal types: 1. Recruit 2. In-service 3. Specialized

Recruit training should include fundamental instruction in the tbchniques of arrest and detention, general investigative. procedures in criminal and security type cases. The recruit training-program should be thorough enough to "professionalize" the service, and those not able to meet required standards should not be retained. In-service training courses should be given for the purpose of refreshing the experienced personnel in basic principles and keeping them abreast of newly developed investigative techniques.

Specialized training courses should be provided for those whose work will-be highly specialized, either as a result of permanent assignment or by virtue of ,frequent assignment of certain types of work on a rotating basis.

The Public Security should use, as far as- possible, the same physical -facilities which the Civil Guard uses for training. Too, much training which is of common value to both organizations should be administered on a combined- basis. It is possible that the Civil Guard and the Public Security may find it most economical -and convenient to integrate their training academies.

F. BUDGET

No information is available at this time on the budget for the Public Security, however, the budget should be reviewed in the light of criticisms and suggestions made on Page 39 with respect to the Civil Guard budget.

- 51 ­ OSEf-GCL u'M-4NLY*

G. AUTOMOTIVE EQUIPMT

The headquarters in Tegucigalpa has five automobiles and the office in Sah Pedro Sula has one. All of these vehicles are more than four years of age and in worn out condition. Their failures seriously interfere with the accomplishment of the work of the Public Seiubity and the repair bills constitute a heavy expense. All of these vehicles should be replaced with jeep type equipment.

H. FIREARMS

The Public Security has no sidearms of its own. When for any reison serviceable pistols come into the bands of Public Security, these arms are issued to agents for use as service weapons. If the gun must be teturned to its owner, then it is "called infs There are many risks involved in this practice, among them liability resulting from loss or damage" jeopardy of important evidence, damage to public relations, and harit to employee morale. The Public Security should acquire a minimum of 7'5 .38 caliber revolvers with a 3" barrel, Colt or Smith & Wesson. -After thorough training in ethics, safety and markemanship, all operating personnel should be equipped with these weapons.

Io RECORDS

The records of the Public Safety are decentralized. All but the identification records were lost in the alleged revolt attempt. The iden­ tification records are well organized, classified and filed by the Henry System.

The records system of the Public Security should be centralized. As recommended in the portion of the report dealing with the Civil Guard, if the Civil Guard and the Public Security are to be housed in the same building, then their records system should be combined. This will increase their usefulness to both organications manyfold.

J. OPERA2IONS

1. Liaison.

The Public Security participates to the extent possible with friendly foreign countries in the investigation of international police matters, such as the movement of narcotics, illegal arms, and inter­ national criminals. As the Public Security increases its capabilities, it should become more able to contribute to this international effort and thus increase its own benefits from it.

OFPEGCIr-USE-ONL

- 52 ­ 2. Investigative Procedures.

The Public Security engages in criminal, immigration, and subversive investigations. Thformation from infornants is relied on, although it is believed that more effective use could be made of it. There is a need to develop the use of physical evidence as such. There is a need for training and guidance in all investigative techniques.

3. Operational Responsibility.

The primary function of the Public Security should be investigative, and it is in the best interests of the organization that the Director exercise vigilance' to ensure conformance to this policy, Any operations directed at regulation of human conduct should be conducted only in conjunction with Civil Guard operations, and in such exercises, the Public Security should play its appropriate part; for example, in a civil disturbance, Public Security agents should infiltrate the mob for the purpose of locating the agitators and pointing them out to the uniformed Civil Guard. The Public Security should engage in patrol operations only when such patrol is directed at apprehending perpetrators in specific situations of criminal activity where uniformed personnel cannot operate successfully.

K; SCIENTFIC EQUIPMWT

The Public Security has practibally no scientific equipment. There is no photographic equipment for taking or developing pictures. The investi­ gative kits used for searching crime scenes are depleted of powders, brushes, lifting tapes and other materials. The kits are of so little use in this condition that they might well be left at headquarters. The Government of Honduras should immediately purchase supplies and equipment necessary to make an effective search of crime scenes. The headquarters at Tegucigalpa should have at least three units of such equipment, each unit consisting of one * complete investigative kit, one latent fingerprint camera, and one field camera. This number is necessary because of the necessity of taking this equipment on trips to the interior, and its absence might extend over several days. The San Pedro Sula office should have one unit. It is unlikely that the cost of these four units of equipment will exceed L5,000.

Between ,1,000 and L2,000 should be allocated each year to the purchase -of laboratory equipment for use in examining physical evidence of all-types as an aid to investigation and to strengthen the prosecution of criminal cases in court. Because of the necessity of training personnel in the use of this equipment and stimulating organizational enthusiasm in its usefulness, acquisition should be gradual and begin with the most basic items, allowing more complex equipment to come -with acquisition of knowledge and development of skills among laboratory personnel.

-GPPE6IIjBEW16E-Y

- 53 ­ L. CONTROLS The Public Security receives copies of all hotel registrations to check against its files for alien control purposes. All passports of persons' seeking to leave the country are eif-erred to the Emigration Dipkrtmerit of Public Security for inspection. The Public Security also maintains a travel control check point at the airport,

M. COMMUNICATIONS

The Public Security has an ultra high frequency base transceiver rhich dbes not work. An operator-technician is assigned the responsibility of berating and maintaining the station; however, at this time his capabilities to perform radio maintenance work are limited. He is taking a corresp6ndence course in radio0 Spare parts are not available to repair the set. There are no mobile transceiver units with which to communicate. The Piblic Security should not attempt to maintain its own radio communi­ cation net but rather it should rely on the facilities of the Civil Guard, equipping its vehicles with transceivers of the Civil Guard's frequency. .A remote control unit could be used to broadcast directly from Public Security' headquarters, thus obviating the necessity of calling the Civil Guard each time. Automatic signal lights prevent conflict.

The Public Security also has regular telephone comnunica'tibn. There is no problem related to this facility-

N. PUBLIC RELATIONS

The reputation of the organization with the public bas improved since the alleged August 1959 revolt attempt. Press releases on major issues must be authorized by the Director General while department or section -chiefs can make informal release on small or unimportant matters.

0. SECURITY

A canton headquarters of the Civil Guard is housed in a small addition to the Public Security headquarters building, Guard, personnel assigned here furnish -security to the Public Security headquarters and render other needed assistance.

P. WORK LOAD'

Statistics on the number of offenses reported to the Public Security in Honduras are available only for the last three months of 1959 OPPICIkt*UJEi3UME and the first li months of 1960. It is stated that during that period 726 offense6 of all kinds, ran'ging from simple assault to murder, were reported to Public Security, and investigations were completed on 154 of this number, while 572 were left pending. This apparently means that 154 cases were cleared while the remainder were uncleared. The types of offenses were not uniformly listed and it is believed that to present them as listed would not furnish a clear picture. There is reason to believe that some of the cases listed as offenses are actually the end results of offenses. Based bn the number of offenses reported, cleared, and pending for the 41 month period, there would be about 1,936 reported offenses, 410 cleared, and 1,526 pending for a 12 month period. There should be about 50 persons in the organization to whom cases can be assigned. This would make an annual case load of about 39 per person, which is extremely low. Even more unrealistic is an annual clearance average of about 21.2 cases per operating agent0 -Also excessively low is the 21% clearance rate. In a snall country with such a homogenous population and with as limited transportation as that of Honduras, with such a small case load per operating employee, the offense clearance- rate should be at least twice, and even three times as high. -The investigative capabilities of the organization as a whole should be equally greater.

Q0 CONCLUSIONS - PUBLIC SECURITY ORGANIZATION It is apparent that the Public Security organization lacks a great deal in being able to carry out its intended function. This is largely due to 'the fact that it was virtually eliminated in the 1959 revolt attempt and it has been almost completely restaffed with untrained, inexperienced personniel who strive to do their best with no background in this field. The organizational structure is lacking in effectiveness and there is a need for adoption of clearly 'defined administrative procedures which will ensure effective control from top to bottom, enabling exact placement of responsi­ bility. There is a need for automotive, communications, investigative and firearms equipment which will bolster morale and enable personnel to perform effectively. All of these deficiencies must be remedied before the Public Security organization may be considered competent to properly serve the Republic.

R. RECOMMENDATIONS

It is recommended that:

1. The Public Security be reorganized according to the suggestions starting on Page 47. 2. That the Public Security establish and follow personnel selection standards which will enable recruitment of the best calibre of personnel. *GFFe±AtUSEONTY

- 55 ­ 3. That a training program be established along the lines of that discussed on Page .51.:

4. That equipment described on Pages 52 and 53 be acquired for a the Public Security by the Government of Honduras.

56 ­