MARCH 1969

·LAW ENFORCEMENT BULLETIN MARCH 1969

VOL. 38, NO. 3

THE COVER-Attorney General fohn N. Mitchell. See page 11.

LAW ENFORCEMENT BULLETIN CONTENTS

Message From Director]' Edgar Hoover 1

Modem Facilities Aid Police Training Programs, by Maj. Giles H. Webb, Superintendent, Georgia Police Academy, Atlanta, Ga. 2

Avalanche: The Cities and the Seventies, by Hon. Erik Jonsson, Mayor, Dallas, Tex. 6

"You're on the Air," by Manuel Gonzales, Chief of Police, Gallup, N. Mex. 9

Attorney General John N. Mitchell . 11

Respect for Law Begins at an Early Age 12 A

An Effective Police Manual 15 '­

Published by 'he Wanted by the FBI 24 FEDERAL BUREAU OF INVESTIGATION UNITED STATES DEPARTMENT OF JUSTICE Washing'on, D.C. 20535 •

A NEWSPAPER COLUMNIST OTED that today's Arguments are made that court opinions and law enforcement officer has to "speak softly and legal restraints are not so broad as to require carry a big law library." Actually, his para- arresting officers to unduly endanger their lives phrase of the well­known quotation from Theo- in order to meet standards established to protect dore Roosevelt comes close to being true. There the rights of the suspect or accused. Here again, is nothing wrong, of course, with an officer's we encounter the difference between theory and speaking softly and being well­versed in legal practice. Judicial guidelines which are so vague criminal procedure. Ideally, this is as it should and questionable that even the highest jurists dis- be. agree on their intent place a heavy burden of judgment on the enforcement officer. In crucial Unfortunately, in the criminal realm within moments, this burden of judgment can create in- which he must work, the law enforcement officer decision. And as we know, moments of indecision is the only one "playing by the rules." This places can cost an officer his life. him at a definite disadvantage. In complying with all the procedural safeguards established for The trend today, even though unintentional, is criminals, an officer must often subordinate his to negate the enforcement of the laws to insure personal safety, his own rights, and the rights of that the criminal is protected. We are asking our society to insure that he does not commit some officers to operate under an honor system in deal- error which might later result in the release of ing with an element of our society which has no the guilty. Criminals are usually well aware of honor. Certainly, arresting officers cannot be per- their legal rights and take full advantage of mitted to resort to illegal tactics themselves, but them. they must be allowed to perform their duty with Many critics of law enforcement today sub- confidence and with the assurance that they have stitute paper theories for grim realities. When the support of the public, the government on all they advocate more restraints on arresting offi- levels, and the courts. The powers of arrest must cers, they do so apparently on the premise that be as clear and positive as possible. police are dealing with only law­abiding, co- Vigorous law enforcement is needed to cope operative citizens who respect the law and those with crime and violence in our Nation. It cannot charged with enforcing it. While a big percentage he achieved if arresting officers are required to of police contacts are with the responsible mem- make an apologetic approach to every killer, bers of society, increasing assaults against and killing of law enforcement officers are indicative rapist, robber, and thug roaming our streets. If of the open contempt numerous violators have the rule of law is to prevail, the law must be for police and authority of any kind. enforced.

MARCH 1, 1969 ­UlJ'bIln HOOVER, Director "Training is everything. The peach was once a bitter almond." .. ­Mark Twain • Modern Facilities Aid Police Training Programs

he Georgia Police Academy, lo• separate division of the Georgia De• officers from the State penitentiary cated in Atlanta, was established by partment of Public Safety. system, and State revenue, alcohol, the 1962 Georgia Legislature to im• Since the institution opened in the and beverage control agents. prove State, county, and municipal fall of 1966, it has trained over 3,000 Although the teaching staff of the law enforcement. This modern facility officers each year. The Police Acad• Academy is small, an accelerated pro• represents an investment of $1 million emy trains all prospective Georgia gram for students is available because in State funds and is operated as a State Troopers, Georgia custodial outstanding police officials throughout

In this modern structure the Georgia Police Academy has trained several thousand law enforcement officers since its opening in 1966

•

1-""'", <~1 ., .. ... • - .. GEORGIA "\.. POLICE .. ACADEMY ". ~ .. By MAJ. GILES H. WEBB· Superintendent, Georgia Police Academy, Atlanta, Ga.

Rookie police officers attending Atlanta Metropol classes at the Georgia Police Academy are shown lifting latent prints from a vehicle as part of a practical problem.

the State, including many graduates partment and other Metropol agencies sentatives of The Northwestern Uni- of the FBI National Academy, have representing five counties begin an versity Traffic Institute holds spec- ,. offered their services as faculty memo intensive 80­hour training program ialized schools in various phases of bers. The Atlanta office of the FBI which is the first part of a required traffic_ A 3­week basic program in the and other Federal investigative agen· 200­hour program. Periodically, these latest techniques of police science and cies have also supplied the Academy officers return until they complete the traffic and accident investigation is with instru~tors. course_ Each month for experienced offered for officers who live beyond The programs that are offered are police officers the Academy also con- commuting distance_ These officers • designed to meet the general require- ducts 2­day workshops which deal live in the Academy dormitory during ments of local police in the State. A with practioal problems and investi- their period of training. principal program is the Metropol gative matters frequently encountered Dormitory facilities at the Acad- • Basic Recruit School, which is con- in Georgia. emy can accommodate up to 86 stu- ducted by the Academy in coopera- dents. There are four classrooms, a tion with the Atlanta Metropol. On the Management Training library, and a modern cafeteria. Al- ~. first Monday of each month, all rookie A management training program is though instruction at the Academy is policemen from the Atlanta Police De- conducted in cooperation with the free, a nominal charge is made for Atlanta Metropol and the Atlanta of- dormitory rooms, meals, ammunition, ­Major Webb. a graduate of the FBI National Academy, was formerly training officer of the Georgia fice of the FBI. From time to time the ana training materials. The Academy Sta te Pa trol a nd has more tha n 26 yean in law Academy staff together with repre- is now considering an expansion plan enforcement. March 1969 3 "Because of their importance, specialized schools of vary• ing lengths are held once a year."

Recruits in an outdoor practical crime scene problem prepare to make a plaster cast of a footprint.

Col. R. H. Burson, Director, Georgia Department of Public Safety.

which would include a large audi• torium, a gymnasium, an indoor fir• ing range, and additional classroom and office space. The Georgia Police Academy is be• ing adapted to meet the needs of • mandated or assigned police training, a program which may be made into law by the Georgia Legislature, al• though at present all police training in this State is on a strictly voluntary basis.

Syllabus of Courses

One feature of the Academy's train• ing program is a syllabus of all courses bound in looseleaf notebook form. The outline material for this publica• " tion is researched by experts in the field of law enforcement and by the legal staff of the Police Academy. The training staff consists of Capt. Arthur L. Hutchins, a former FBI Agent and past Assistant Director of • the Georgia Bureau of Investigation, Sgt. C. L. Roberts, Sgt. J. H. Presley, CpI. L. M. Key, and Mr. Dallas Mob• ley, a retired FBI Agent and former practicing attorney. Together with this small permanent staff, the Georgia ·: 1 Police Academy utilizes the services ~ of outstanding FBI National Academy \. graduates from the State. National • Academy men who teach regularly at • •

4 FBI Law Enforcement Bulletin ... the institution include Supt. Clint Chafin, Lt. A. L. Posey, and Capt. W. L. Duncan, all of the Atlanta Police Department; Billy Hart, Chief Crim• inal Investigator, Floyd County Police Department; Frank McGuffey, Chief of Police, Columbus; Ray Wilkes, Chief Deputy Sheriff, Bibb County; Lewis Clyburn, Chief Criminal In• vestigator, Fulton County; and Capt. Clarence Robinson, Training Officer, Marietta Police Department. Programs Committee In adopting training programs and curriculums, the Academy depends on a committee of outstanding local law enforcement officials. The current members, three of whom were pre• viously mentioned, include Superin• tendent Chafin, Chief Investigator Staff members, Capt. Arthur Hutchins and Mr. Dallas Mobley, prepare case summaries in Hart, Chief McGuffey, and Sheriff the Academy law library. Dwayne Gilbert of Spalding County. All programs and curriculums are co• test drunken driving violators is part Sheriffs' Association, the Police Acad• ordinated with the Georgia Associa• of the implied consent law in the State emy · will have trained all newly tion of Chiefs of Police and the of Georgia. This training program ex• elected Georgia sheriffs in 1968. This Georgia Sheriffs' Association. tends throughout Georgia and nu• training consists of a 4O-hour basic The Georgia Police Academy hosts merous police departments and sher• course covering police science and the statewide quarterly intelligence iffs participate in it. Georgia laws concerning the functions conferences, which are held in con• In cooperation with the Georgia of the sheriff's office. junction with Atlanta Metropol and the Fugitive Squad of the Atlanta Lt. Wayne Spiva of the Atlanta Police Department conducts a fingerprint class at the Georgia Police Department. At these meetings Police Academy. criminal intelligence data is ex• changed between principal local law enforcement agencies. Because of their importance, spe• cialized schools of varying lengths are held once a year. The subj ects of these schools include fingerprints, drugs and narcotics, safe burglary, the '" policeman and the law (search and seizure, confessions, and arrests) , management, traffic supervision, pho• tography, and protection for the businessman. The Georgia State Crime Lab, in conjunction with the Academy, is cur• rently conducting a program to train local officers in the use of the Intoxim• eter. The use of the Intoximeter to

March 1969 Avalanche:

The Cities and

the Seventies

By HON. ERIK JONSSON* Mayor, Dallas, Tex. "It is time to refocus on our respect for the law. With the present amount of crime in the streets, we should reassess the relatively new view that quickly returns the criminal there with Uttle or no penalty. ... We may need to return to older methods not so permissive of the rights of violators to kill, to rob, to rape, to plunder, again and again."

.By .pecial permi..ion, the Bulletin i. pIrated 'J to present excerptl of ••peech by Mayor Joollon before the American Society of Mechanical Engineer., December 3, 1968, New York, N.Y. :1 " ~I 6 FBI Law Enforcement Bulletin .. ~ . sprawling megalopolis with multiple Goal­setting gives direction and governmental and taxing entities? meaning to preparations to act with As today's cities are, will these informed deliberation in terms of "homes" of people be products of one's resources. It fits the demo- random growth, haphazard design, cratic way exceedingly well, and I sug- countless more expedient decisions gest we institute it on a national scale with little regard for sensible land and follow in the States and the cities. use or thoughts of the long range? There is a model for goal­setting Will whole new cities be designed, for the Nation. It was constructed by As the end of the sixth and the modeled, built? a nonpartisan Commission on Na- beginning of the seventh decade of this The "urban crisis" steadily cap- tional Goals appointed by President 20th century, A.D., approach, it seems tures more of our attention. From a Eisenhower in 1960. Their work was in order to assess where we stand in wide and increasing variety of pens administered by the nonpartisan these United States and to look for- flow diverse opinions, ideas, sugges- American Assembly because of its ward. We lead the world in technology tions on what is the matter and the established practices of encouraging and management understanding. We choices to be made at these cross- wide consideration of public issues. are a prosperous and able people with roads. Torrents of vitriolic words as- The Commission invited a distin- the greatest productive plant in the sess the blame or accept, on behalf guished group of Americans to write world and an abundance still of land of all, guilt for things as they are. essays on fundamentals of American • and natural resources. We live in ex- citing times, but we are confused about our aims and the means to at- tain them. "Lest we be buried by the avalanching problems, ... we A simple society we are not. We must understand how to bring the problems progressively have a heavy agenda of deep­rooted, within the scope of deliberate planning and management." complex, and difficult internal prob- lems not easily categorized except that they are strongly centered in our cities. There, most of the people are Lest we be buried by the ava- life as they saw them at that time. In and more will be. There, tumult and lanching problems of the cities in proposing goals in 15 major areas, the tension seem increasingly to have the seventies, we must understand Commission sought the counsel of ap- their way. There, the mood of the how to bring the problems progres- proximately 100 people expert therein. people grows strange and perplex- sively within the scope of deliberate "Goals for Americans" was published ing, noi~y and violent on the one planning and management. If ever in a volume which has sold to date in hand, unvoiced, seemingly apathetic we are in scope and degree to insti- the order of three­quarter million on the other. tute the problem­solving of which copies. That volume begins with these we are capable, we must survey our words: Constant Change conditions, inventory our resources, "The paramount goal of the United Avalanche: A decade sliding swift- and state, clearly and in writing, our States was set long ago. It is to guard ly and suddenly upon us. The con- goals, our shared aims. Then we may the rights of the individual, to ensure tinuance of lightning­like change is lay our plans to achieve them and his development and to enlarge his op- inevitable through revolutionary in- set our priorities more intelligently. portunity. It is set forth in the Decla- creases in knowledge and the revolu- Goal­setting, taking into account ration of Independence ... The goals tion of rising expectations. Likewise, things as they are and as they are we here identify are within the frame· .. we had better get ready for the 32 desired to be, has a profound im- work of the original plan and are million more persons it is conserva- pact, I have found, not only for in- tively estimated will join by 1977 dividuals but institutions, industrial calculated to bring to fruition the "'­ 1 our present, slightly splintered "one and urban alike. The process requires dreams of the men who laid the big family" of 200 million. that the totality of problems and op- foundation of this country. Where will the people live and un· portunities be examined simultane- "In the echo of those fateful words der what conditions? Four more ously. It minimizes expediency and can be heard the onrolling thunder of chaotic New Yorks? One more tends to halt the drifting process. a new age ... Its soaring vision -" March 1969 7 enabled our society to meet the trials ence, the resolutions or commands was put in our own hands. Our re• of emerging nationhood. It placed the which pretend to be laws will, in fact, sponsibility is to achieve the objectives young republic securely behind the amount to nothing more than advice of a free, constructive, and effectively principle that every human being is or recommendation." functioning society and to oppose with of infinite worth. In time it led the It is time to refocus on our respect all our resources any destructive nation out of the morass of human for the law. With the present amount opposition. slavery. It inspires us still in the strug• of crime in the streets, we should reas• gle against injustice . . . Our endur• sess the relatively new view that No Instant Solutions ing aim is to build a nation and help quickly returns the criminal there build a world in which every human with little or no penalty. In the long We should voice clearly and re• being shall be free to develop his ca• range such treatment may be work• peatedly for the people truly to hear paci ties to the fullest. able, but apparently it is not for our and understand, as our President, our "In the 1960's every American is society. We may need to return to Governors, our mayors do, that there summoned to extraordinary personal older methods not so permissive of the are no instant solutions to age-old ills; responsibility, sustained effort, and rights of violators to kill, to rob, to that we do not possess instant money sacrifice. " rape, to plunder, again and again. in unlimited quantities; that all the manpower needed to do the jobs that must he done cannot be mobilized overnight. There have been many changes "Likewise, we must deal with the paralyzing destructive since Goals for Americans in the f - new stance of vocal minorities and bloc groups. These Sixties were established. Much has groups should be made to know that they can no more 'run happened in this decade both in our over' the majority than the majority can afford to ignore social system and our technology. them any longer." There are new needs; new aims need to be defined. New resources, new technologies begin to emerge from the shadows. The light of this and of other thorough knowledge may rightly If those words were appropriate a Likewise, we must deal with the convince us not only that old institu· decade ago, surely they are even more paralyzing destructive new stance of tions must improve their performance so today. Our society, our technology, vocal minorities and bloc groups. but that new institutions, new ways of our increased numbers, our acceler• These groups should be made to know managing, must be created to deal ating rate of change make crystal clear that they can no more "run over" the with accelerating change. Age-old our need to take stock, to know where majority than the majority can afford values need to be reviewed, restored, we stand, to be able to overcome our to ignore them any longer. Their prob• refreshed, restated, that we may un• divisiveness and polarization. lems, however urgent, must take their derstand how we shall live in the dec• Deep down most of us know there place in the proper scale of human ade ahead and well beyond. is no way to go ahead in our society values and receive their proper share without the rule of law. If we proceed of attention and devotion of resources, State Programs in our time to anarchy, of which there no more, no less. Likewise, the are disturbing signs, we can be very majority group must accede to that My view of a goals program as a sure that order will be restored. Likely with no pretext for delay and no less• centripetal force-adding tensile it will be authoritarian, dictatorial, ening of the commitment to right old strength and cohesion to purpose, without freedom for all. Alexander wrongs. We must remember, too, that knowledge, understanding, commit• Hamilton explained it thus: "Govern• there are those, both outside and in• ment-leads me to believe that our ment implies the power of making side our organized society, who will States might well benefit from engag• laws. It is essential to the idea of a fight it, even destroy it if they can. ing in goals programs of their own. law that it be attended with a sanc• It is not in keeping with our heritage At the State level, it would seem to tion; or, in other words, a penalty or as free men to pass on this Nation me to be important to involve large punishment for disobedience. If there to those who will follow in any way be no penalty annexed to disobedi- diminished from its condition when it (Continued on page 21 )

8 FBI Law Enforcement Bulletin ..

"V , .IOU re on the Air"

A Look at the Use of Commercial Radio in Police­Community Relations •

By MANUEL GONZALES Chief of Police, Gallup, N. Mex.

Police communication is such an or that of a stolen car to our patrol- opportunity to bridge the gap between intrinsic part of law enforcement to- men. But what about the thousands of the police officer and the citizen. The day that the two­way radio and Tele- responsible citizens, the barber and success of these efforts has been read- type are just as commonplace to shoe clerk, the laundry deliveryman ily apparent in the rapport we have policemen as their badge and and insurance salesman, who never managed to establish with the com- .. revolver. receive this descriptive information? munity in general. The investigative A most recent technological de· success, as a result of this program, is velopment in law enforcement has First Contact reflected in increases in the recovery been the implementation of the FBI of stolen property and the solution of National Crime Information Center Frequently, the ordinary citizen crimes. (NCIC) at FBI Headquarters in comes in contact with policemen, Gallup, N. Mex., is a typical small Washington, D.C. FBI Director J. often for the first time in his life, American city in many respects. But Edgar Hoover has described the under very pressing conditions. He it is equally individualistic because NCIC as "a big advancement in scien- may have just been involved in an ac· of the Indian reservation and the tific crime detection and an electronic cident or been the victim of an armed rough terrain which surrountl the city. achievement in the fight against crime robbery. Under these circumstances, This city of approximately 15,000 and lawlessness." public relations must of necessity be helps to meet the economic needs of All too often, however, our think- subordinated to the immediate prob- nearly ten times its own population. in~ on communications in law enforce- lem of handling the emergency. The chance of reaching more than a ment has been mostly internal. Our During the summer of 1966, small proportion of these through .; radio dispatchers immediately broad- through an overture by a local radio the printed news media is all but _ ... cast the description of a bank robber station in Gallup, I was provided an impossible.

T­. March 1969 9 I was approached by a local radio expect from the additional police ceived by my office and the station. station on the possibility of a daily training. The response from the listen• When the Saturday program is not broadcast of police news of the past ing public has been encouraging, broadcast for some reason, I have 24 hours. The idea seemed very prac• especially the reaction received by our been telephoned repeatedly and in• tical, and we planned a program State legislators who have been con• formed of the assistance the program which is now heard between 7 :15 and tacted by citizens who otherwise might has rendered. 7 :30 a.m., 5 days a week. Previously, never have been aware of the acad• the police news was handled in the emy's existence. Useful Effect standard way by newscasters who re• Shortly after the daily radio pro• viewed the police reports and wrote gram began, I was approached by an• Many police administrators may their stories. other local radio station and asked to rightfully ask what immediate and do a Saturday morning program. The useful effect a program of this nature Daily Broadcast program, entitled "Back Fence," runs has. In answer to this question, it from 8:35 to 9 a.m. and covers major should be pointed out that the ability The radio station management sug• police news of the past week. This to broadcast the description of a bank gested that a daily broadcast by the broadcast also provides an oppor• robber or stolen car to literally thou• chief of police might be effective and tunity to discuss other related sub• sands of citizens in an area of approxi• might result in improved police-com• jects, for instance, the passage of mately 1,200 square miles is most munity relations. We agreed that the new ordinances by the city council. valuable. It is especially important proposal had merit and should be ac• People coming to Gallup from the when we consider that Gallup, N. cepted. We saw in the suggestion an opportunity to provide various side• lights to police problems which other• "Radio has provided the means of reaching thousands of wise would not be disseminated to the citizens daily, more than we could ever hope to accomplish public. At the outset it was apparent through personal contacts and other public relations that there would be times when I methods." would be unable to present the news. This problem was solved by occa• sionally having the program taped reservation or the surrounding area, Mex., is situated along U.S. High• early in the morning or having who would be expected to comply with way 66, the so-called "Main Street of my next-in·command make the city regulations, now have an oppor• America," and a primary thorough• presentation. tunity to learn of the ordinances in fare for escaped felons and stolen advance. Without the radio many peo• cars. ple would be totally unaware of the Capt. Maurice Cordova of the New Public Interest Items new statutes. The program has en• Mexico State Police, Gallup District, This arrangement also provided us abled us to explain the reasons for recently has begun a daily program '" an opportunity, when there was new ordinances from a public safety pertaining to State police news and litlle significant news, to discuss some standpoint, rather than to arbitrarily arrests. It is noteworthy that in the item of public interest. A recent exam• enact a new law which people are ex• Gallup District alone during one 3• ple was the effort of all local and pected to obey. Because of the addi• month period more than 20 stolen State law enforcement agencies to tional time available on the Saturday cars which had been transported from build and staff a law enforcement acad• morning program, we have arranged other States were recovered by the emy in the State of New Mexico. The for the public to call the station and New Mexico State Police and the Gal• purpose of the academy is to provide ask questions about any subject under lup Police Department. Several times professional training to all local law discussion. From time to time I have omeone ha heard our broadcast con• enforcement officers in the State. The explained the purpose of an ordinance cerning a stolen car and has im• radio program has enabled me to ex· that i frequently violated and served mediately contacted the department plain the reasons and need for the warning that it will be rigidly and advised us of its location. academy to the general listening pub· enforced. Gallup is also unique because of its lic. I have given information pertain• The ability of the radio to reach language problem. We have a large ing to cost and training and discussed a surprisingly large proportion of number of Spanish-speaking people what the people of lew Mexico can people is indicated by the response re• (Continued on page 23)

10 FBI Law Enforcement Bulletin .. ... On January 20, 1969, John Newton Mitchell became the 67th Attorney General of the United States. Born in Detroit, Mich., Mr. Mitchell has resided in New York for most of his life. Working his way through Fordham University and its law school, he received both his bac• calaureate and LL.B. degrees, the latter in 1937. During World War II, he commanded Navy torpedo boats in the Pacific. He was admitted to the New York State Bar in 1938 and became a member of the District of Columbia Bar in 1967. The 55-year-old former law partner of Presi• dent Richard M. Nixon is regarded as an expert in many legal fields. As the new Attorney General, Mr. Mitchell is responsible for more than 33,000 employees within his Department which includes nine divisions, together with various Departmental bureaus, such as the FBI, the Immigration and Naturalization Service, the Bureau of Narcotics and Dangerous Drugs, and the Bureau of Prisons. Mr. Mitchell is married to the former Martha Beall of Pine Bluff, Ark., and is the father of a son and two daughters. Respect for Law Begins at an~

I n an effort to develop respect for boys to the camp, where they are in• law enforcement, combat juvenile de• structed in woodmanship, camping, linquency, and provide valuable ac• and firearms safety. For pleasure, the tivity for youth, the Sheriff's Office of youths take swamp buggy rides Collier County, aples, Fla., has through the marshy land, and to add formed a Junior Deputy Sheriff a spiritual note to their weekend, they League. attend an outdoor church service on The group, which has a member• Sunday morning. ship of nearly 1,000 boys, centers its Sheriff Hendry states the value of activities around weekend trips to a this program "is readily seen when camp maintained in the Everglades. one considers that the juvenile delin• Collier County Sheriff E. A. Hendry quency rate in Collier County is one• and his staff take groups of about 120 tenth of one percent (.001)."

For their enjoyment, the boys take rides on swamp buggies through the marshy grass of the Everglades. Supervision is under the direction of the Sheriff and his staff.

Bacon and eggs are on the breakfast menu...

12 FBI Law Enforcement Bulletin arly Age

Training in firearms safety is an important part of the Junior Deputy Sheriff League. The County Sheriff lectures on this subject to a gathering of boys.

The Junior Deputies learn many camping skills. Their weekend provides them the opportunity to live without the customary comforts and conveniences of home.

boys wait their turn in line. A

March 1969 Mark Up An Assist For The FBI Bulletin!

--~--=..: Athief recently apprehended in an • east coast city could probably give a convincing testimonial on "How NOT ~ to Commit a Burglary." The home of an FBI Agent, away on JIO.T..... AHO "C'I .... '0 vacation, was burglarized. His "DUAL. It"",...... 0,. I l<4y«n 'O"'TION daughter, on stopping by to check the OFFICIAL BLo!;INESS residence, noted the break-in and called local police. In searching the house for evidence, the officers saw a copy of the June 1968 FBI Law En• forcement Bulletin lying on the bed in the master bedroom. The daughter pointed out that this was unusual as her father always kept his reading material in a specific location. The officers processed the Bulletin for latent fingerprints. As regular readers of the magazine know, the Bulletin on its back cover each month features an enlarged picture of an "Interesting" or "Questionable" fin• gerprint pattern. In the border near the June photograph, the officers pro• duced some very good latent impres• sions which where both interesting and questionable. Subsequently, the police developed information on a suspect believed responsible for a number of burglaries in the area. They compared the latent prints lifted from the Bulletin with the fingerprints of the suspect and 1• 4 found them to be identical. The suspect was arrested, and a county grand jury indicted him on charges of third degree burglary and petty 1 Th. back cover of the Law Enforcement Bulletin shows two fingerprints which were used to ~I larceny. identify the burglar of an FBI Agent's home. ~ -

14 FBI Law Enforcement Bu lletin ...-1j An Effective Police Manual*

A survey of the literature in the of his duties and responsibilities and lished within the policy cadre of the field of manual writing reveals no the regulations under which he shall organization. It is axiomatic that a strict guidelines for the preparation work. This should be done in a simple, person who understands and accepts of police manuals. With the exception direct manner by some uniform, au• the goal of and reason for a procedure of the work of Lt. Hugo J. Masini thoritative, yet relatively inexpensive, can carry out his role in completing of the New York City Police Depart• means. Furthermore, many organiza• the action more efficiently than one ment,l the authors have been unable tions predetermine the manner in with a mere mechanical knowledge of to find any systematic analysis of what which they wish their employees to procedure alone. Necessarily, some optimum presentation of a police perform their duties. manual should be. There are, how• Employees should have knowledge *This article was prepared by Richard W. Calister. graduate student, New York State School of In· ever, a number of generally accepted not only of such functional perfor• dustrial and Labor RelatioDs, Cornell University, principles to which the author of an mance, but also of the broad manage• Ithaca, N.Y.; Lt. Michael J. Farrell, New York City Police Department, liaison officer, Vera Institute of effective police manual should adhere. ment policy underlying the established Justice; Lt. Joseph D. McNamara, instructor. Police procedures. For management to func• AcadeJl)Y. New York City Police Department; and In any organization, it is essential Patrolman Joseph D. Mahoney, New York City Police that each employee be fully informed tion, policy decisions must be made, Department, student, John Jay College of Criminal and they must be implemented. In• Justice, a8 undergraduate work in a 8eminar on police 1 "An Analysis of the Rules and Procedures of the problema at John Jay College of Criminal JU8tice, New York City Police Department," an unpublished herent in such process is some proce• The City University of New York. The re8earch and master', thesis by Hugo J. Masini submitted to the dure for informing the employees who preparation or this article were supervised by Pro• Bernard M. Baruch School of Business and Public fessor Herbert C. Friese, Jr., Division of Law and Administration, February 1964. must carry out the practices estab• Police Science, John Jay CoUege.

March 1969 15 provision must be made for making a manual more than an indefinite police duties. They also include func- employees aware of organizational purpose. tions of a support nature, such as com- policy and procedure. An organization can realize impor- munications and records, training, A manual is one means of com- tant benefits by constructing an effec- uniforms, and administrative proce- municating this information. Most tive manual for it: dures regarding sickness, injuries, manuals consist of an integrated sys- (1) Provides an authoritative on·the­job vacation, working conditions, and su- tem of long­term instructions, classi- reference guid e for both supervisors pervisory structure. A comprehensive fied and coded, indexed, and otherwise and subordinates. index is essential, and individual chap- prepared to maximize their reference (2) Defines areas of responsibility. ter indexes are suggested. Also, an (3) Aids in the coordination of activities. value. Organizations which choose to (4) Helps eliminate duplication of effort. effective means of updating material use manuals as the primary means for (5) Forces management to state clearly must be devised. establishing uniform policy do so be- decisions on policy and procedure. (6) May stimulate employees to think of cause handbooks offer an effective Delegation of Responsibility means for organizing the human ways to improve policy and procedure. assets of the group under an authorita- Basic to most manual construction Police departments are concerned tive, consistent policy structure that is an initial breakdown of the subject with the purposes and functions of will persist through personnel matter into sections, chapters, and manuals in a decentralized organiza- changes. However, manuals should paragraphs. This type of division is tion. Such an organization has author- not restrict flexibility in the accom- then suitably coded. Practical sugges- ity and responsibility widely delegated plishment of the organization's goals. tions of systems analysts include a from headquarters to the operational divisions. The success of the organiza- tion is dependent upon the exercise of sufficient control by the police chief and his staff in order to prevent dele- "An organization must determine the specific purpose of gation from becoming abdication of its manual and then design it specifically to accomplish authority; however, the manual of a this purpose_ •.• Simple, direct vocabulary and brief sen• police agency should allow for delega- tences should be used." tion of responsibility to field super- visors by showing the necessary op- erational discretion. The manual should be a compendium of estab- There are many types of manuals manual format consisting of a loose- lished policy statements regarding all available for use as references by an leaf binder of standard 8Y2 ­ by ll­inch activities, with procedural details in- organization preparing one to satisfy size with tab dividers separating chap- dicated where uniformity is essential. its own objectives. However, authors ters. The use of vi ual aids, photo- Yet, it should allow sufficient latitude of manuals who have used numerous graphs, and illustrations is recom- for operating units to develop and references for ideas sometimes at- mended to clarify difficult material. maintain their own procedures, and tempt to make their own manuals so Simple, direct vocabulary and brief even manuals in which they integrate all­inclusive in content that they be- sentences should be used. Manual de- data from headquarters and tailor in- come useless hodge­podges of infor- sign usually incorporates a preface or structions to their personnel to mation. An organization must deter- introduction, an organizational chart meet their local objectives and con- mine the pecific purpose of its man- with some interpretation of the basic ditions. Certainly, field supervisors ual and then design it specifically to organizational structure, a sum- must be given authority commensu- accomplish thi purpose. Manuals marized de cription of the position of rate with their responsibility. may be de igned with econdaryaims, employees concerned, and policies re- but they must accomplish their pri- garding fundamental subjects. These Scope and Applicability mary purpose to be worthwhile. The subjects include methods of patrol, ar- organization must select a clearly de- rest procedures, processing of prison- Prior to the actual designing and fined purpose sufficiently limited in ers, handling of evidence, crowd con- writing of the manual, the police exec- scope 0 that an effective manual can trol tactics, accident and criminal utive must determine its projected be de igned. This is essential because investigations, traffic control and sum- scope and applicability. He may nothing de troys the effectiveness of mons procedures, and other primary choo e to design two manuals, one for

16 FBI Law Enforcement Bulletin policy and one for procedures. Such a quently, a manual should be struc- ence to use as a guide to action. If system has the advantage of leaving tured to emphasize those points from he had been exposed to the basic rea- top administrators free to make im- which the greatest results can be ob- soning for the procedure, he would be portant policy decisions without be- tained. able to function independently and coming involved in the fine details of There are many types of manuals could still reasonably be expected to operation. It also provides personnel used in business, industry, and gov- fulfill the aims of the department even with guidelines for action, but still ernment. However, examination re- without specific procedural details. permits them to exercise their own veals that the all­purpose manual is Then, too, in a case where recom· judgment. Since the procedural man- the kind most frequently used in the mended procedures do not fit the ac- ual allows the field supervisor full police field. This type attempts to ac- tual situation, a knowledge of policy • discretion in adapting practices to complish all of the department's ob- is essential for the individual to adapt meet local needs, uniformity is sacri- jectives in one huge volume and is to the situation and take action con- ficed for flexibility. generally regarded as the least success- sistent with established policy. ful of the various types. Thus the Types of Manuals answer to the inqu~ry, "Should an all- Guide to Action purpose manual be used?" is an A procedural manual totally devoid emphatic, "NO." All too frequently, a police manual of policy statements describes the To be an effective tool of communi· is used as the basis for disciplinary duties of employees and sets forth de- cation, a manual must be regularly charges against an officer. In effect, tailed guides for action. These guides used as a reference guide for action. any deviation from the recommended for action help insure uniformity and By including procedures requiring procedures can conceivably result in continuity of action and pinpoint re- frequent reference in the same work charges against an officer performing ,., sponsibility. Conversely, the wholly with much less frequently sought in- his duties. To achieve its primary pur- procedural manual can become too de- formation, the author reduces the us- pose, a manual should be a guide to tailed and hence too bulky for practi- ability of his manual and in effect action expounding what is currently cal field use. It also may limit field discourages his readers from using it. considered the best means of accom- discretion. To the question, "Should a law en- plishing required tasks. The manual The writer must decide beforehand forcement agency prepare separate should never be used to stifle whether his manual is to be strictly policy and procedural manuals?" initiative. a policy manual, exclusively a proce- again, the response is a resounding Conversely, certain prohibitions dural manual, a combination policy- negative. Official policy should per- must be presented to employees in procedural manual, or a separate sys- tems manual. If this decision is not made, the final product may be a mass of confusion. Thus, the first decision of the manual designer­writer relates "To be an effective tool of communication, a manual must to the scope and application of his be regularly used as a reference guide for action." work. Next he must consider the criteria for the construction of the manual.

Communicative Tool meate each and every manual used by such a way that they fully understand a police department. Often manuals that such behavior will result in dis- The consensus of the authors of omit policy decisions which create the ciplinary action. Such matters as materials included in the list of sug- need for procedures and merely in- ethics, personal conduct, appearance, gested additional readings at the end clude the procedures themselves. The outside employment, and other reg· of this article is that a manual is ba- major weakness in such a sitl,lation is ulated activities must be the subject of • sically a communicative tool of man- evident when an individual forgets a policy decisions by management and agement. All recognize the necessity procedure and has no manual readily set down in clear, unequivocal terms. of keeping the operating levels in- available to him. Since he has not been To accomplish the goal of com- formed of the policy and procedural exposed to the reasoning behind the municating required behavior without decisions of management. Conse­ procedure, he has no frame of refer- stiAing initiative, the preparation of

March 1969 17 a separate section of the manual de- the officer is most concerned. Title Distribute to- voted exclusively to prohibited be- Having considered some of the Patrol Procedures _____ Members assigned havior is recommended. The foreword major decisions to be made prior to to patrol. Detective DutieB­ _____ Members assigned to the manual should also contain a designing police manuals, the follow- to detective passage similar to the following: "The ing recommendations should be con- duties. procedures set forth in this manual sidered for their actual design: Public Morals Duties __ Members assigned to public morals should be recognized as the best pos- (1) A minimum of two mrulUals should be duties_ sible way presently available to us in used. Arrest procedureS ____} (a) The first should be an operational accomplishing departmental goals. Court Procedures____ All except civilian These procedures are subject to con- manual including policy and pro- Summons Procedures_ employees. cedUl'e, but limited to primary tinual re­evaluation, and, in this re- State Penal Law ____ _ police operations which the officer Emergency Duties _____ All employees. • spect, your recommendations and sug- must know to perform his duties. Supervisory Duties ____ Supervisory person- nel. Examples of the chapters to be in- cluded in the general administrative "The manual should be a compendium of established manual are: policy statements regarding all activities, with procedural Title Distribute to- details indicated where uniformity is essential." An Organizational Table ______Department De- scription ______All employees. Prescribed Behavior __ gestions are invited_ Each procedure (b) The second should be a general Employee Informa- is prefaced with the underlying de- administrative manual, including tion ______policy and procedure; however, partment policy. While the recom- Clerical Procedures___ Concerned clerical it should contain other informa- offices. mended procedure may not always be tion which the officer should Civilian Employees applicable in a sit~ation with which have, but knowledge of which is Information ______Civilian employees. you are confronted, your a<;tions not required for the proper per- We would be glad to hear about should always be. guided by appro- formance of routine duties. (2) The operational manual should be of your experience with any of the sug- priate policy. Any member of this de- a size that can be stored easily in a gestions offered here_ partment preferring disciplinary patrol car or in the locker of a Additional readings on this topic charges based upon a procedural foot patrolman. A pocket­size manual, may be found in the following: violation of this manual, with the ex- however, is impractical in view of the ception of those acts identified as amount of material that should be in- Ahern. E., How to Prepare and Maintain a Super- cluded. Supplemental aids issued by visory Policy Manual. New York. N.Y.: American prohibited behavior, must be pre- field supervisors are also advisable. Management Al8ociation. 1947. pared to show that the violation was (3) Material in both manuals should be Dale, E., Planning and Developing Organizational Structure. New York, N.Y.: American Management of such nature and degree that the arranged on a functional basis with Association, 1952. disregard of fundamental stated policy logically divided chapters. A given O.rtnell Office Manager's Handbook. Chicago, J11.: chapter should only be distributed to Dartnell Publishers, 1961. was indeed a gross deviation from the those having a need for the informa- Germann, A. C., Police Personnel Management. standard of conduct that could rea- tion it contains. Springfield, 111.: Charle. C. Thomas, 1958. Han, G., Management Guide. San Francisco, Calif.: _o nably be expected to follow from (4) Supervi ory personnel should be given Standard Oil Co .• 1918. such policy." all chapters concerning the duties of Louaro. V. (Editor), Systems and Procedures. Distribution of the manual should the individuals they supervise as well Englewood Clill •• N.J. : Prentice·Hall, 196­1. as chapters specifically related to the Masini, H. I., "An Analysil of the Rules and Pro- be on a need­to­know basis. This not performance of their supervisory cedures of the New York City Police Department," only limits the amount of material unpublished master's thesis. Bernard M. Baruch dutie . chool or Business and Public Administration. 1961. each officer must collect and maintain, (5) Manuals should be printed on loose- Metropolitan LHe Insurance Co. Manuals for Ex- but also encourages him to use the leaf paper and placed in loose­leaf ecutives and Supervisors. New York, N.Y.: Various. Neuschel, R., Streamlining Business Procedures. manual because those procedures with binders. This facilitates replacing re- vised or amended pages as the need New York, .Y.: MrCraw·llill. 1950. which he has no concern have been Pfiffner, J., Manual for Administrative Analysis. arises. Dubuque, Iowa: W. C. Brown Co., 1951. eliminated. This enables the officer to Examples of chapters which should Trambuld., L. P.• uA Police Regulation. Manual- use the manual more effectively and be included in the operational manual It. Preparation and Purpose." FBI Law Enforcement Bulletin, vol. 35. No. 12. pp . 26 (Dec. 1966). Federal gives pertinence to matters with which are: Bureau of Investigation.

18 FBI Law Enforcement Bulletin ~ A Portable Frequently, small law enforcement Firearms Range agencies have difficulty in finding suitable land to construct ranges for firearms training. And just as often, the funds to build a permanent range are not available even if a site is obtained. The Charles County Sheriff's Of• End View of' Target fice, La Plata, Md., faced a similar Area problem recently. Sheriff Francis C. l"xI" Garner found an ideal tract of land Str p for the training of his 24·man de• partment. However, he discovered there were two drawbacks. One was that the acreage was used annually for an air show, and the other was that it was a year-round cow pasture. Con• " sequently, permanent range facilities could not be constructed on the site. Sheriff Garner assigned Deputy Weldon 1. Wood to find a solution to the problem so that firearms training could be conducted on the location. AREA After considering the matter, Deputy Wood reasoned that a portable range would meet the department's needs. A portable range could be set up, and L following each period of training, it 2" x " could be taken down and stored. At all other times the range area would be ready for normal use.

Ideas Sought

In seeking ways to make portable 2" x 4" targets and barricades, Deputy Wood checked with a number of groups and I&'f=' m'-)/8"x5" Boltb ~ ~ associations experienced in firearms "------2"x6" ---______------~ training and range construction. Us• ing some of the ideas received and some of his own, he designed and constructed a portable range. The barricades are approximately SCALE 1" = l' 6 feet tall and 16 inches wide. The up•

.. March 1969 19 body of water, or any other place that will afford an adequate and safe SIDE VIEW TARGET FRAME AND BARRICADE impact area. The practical value of this range is that it can be made as large or as small as needed to accom• modate a department that cannot af•

2" ford to buy or lease the land and the x material necessary to construct a 4" permanent range. x 6' The Charles County Sheriff's Office has been very successful with this • project, and the range has been used extensively in training regular officers as well as new recruits. For additional information on this portable range, write: Mr. Francis C. Garner, Sheriff of Charles County, J/8"xJt" Bolt La Plata, Md. 20646.

...-:, / ./ / /' /' FRONT VIEW HEIGHT /" BARRICADE FLAT 6 " ___~~L- __~~~ ~~~~~ Bolt

FOR BARRICADE 25t " LONG L:..ti 4 JLJ FOR TARGET FRAME 41" LONG ~ 2"x "

P rights are two.by-fours covered with two-by-four in the back of the up• L l,4-inch plywood. The two bases-36 rights. The inside of the target area 2" x is stripped with 1- by Y2.inch furrow• Y inches long-are cut from two·by• 4" ing strips, inch apart, to hold the x sixes. A two-by·two brace is bolted to % B one upright and one base. cardboard target backing. The pieces 6 • Both two-by-four uprights are of cardboard can be obtained from 5' 5" 0 bolted to the two-by-six bases. A piece packing crates and cut to size. A of two-by·four is cut and notched to fit R in the two-by-six bases just behind Storage the two-by·four uprights. This gives D added stability to the barricades. By removing the bolt from the two• by-two brace and the two-by-four up• Target Frames right, and by removing the notched Penny two-by-four from the two-by-six bases, Nails The target frames are made from the target frames and the barricades the same material, with two-by-four can be folded and stacked for easy for the uprights and two-by-six for storage or transportation. When the bases. The target area measures 36 folded, each occupies a space of 7 feet by 46 inches to accommodate the sil• by 46 inches by 6 inches. They can he houette target. The target frame is quickly assembled and disassembled. braced the same as the barricade with This type of range can be set up in a two-by-two brace and a notched a gravel pit, an open field, near a large

20 FBI Law Enforcement Bulletin • PROBLEMS OF THE CITIES shadowed by their ignoring what in- total engagement of citizens and officials dustry has long known al1d prac- in joint problem­solving endeavors. t. (Continued from page 8) 3. Most city governments desperately need ticed: To get a better job done, get numbers of citizens, representing the the scientific management concepts ap- better men; give them better tools; plied to their operations. Particularly, diversity of the citizens, in the study, provide them with opportunities; in- our local governments need to be more formulation, and the reach fOf con- spire them to new orders of improve- strongly "people oriented," looking sensus on a State's goals_ ment, fulfillment, self­renewal. either inward or outward. Essential are the use of incentive­oriented, modern • This is the approach we took in Thrice in a single day I have heard Dallas when we instituted more than recruitment methods to make it easier to it said by distinguished people at employ and keep better men; provision 2 years ago a goals program to ask, high levels that ew York's problems for the continuous updating of their not tell, the people what kind of a are "hopeless." "New York is un- education, on and off the job; the pro- city they wanted ours to be_ Thus far, manageable." "It's too late to do any- motion of careers in local government as adventures in building the future, for we have involved in constructing Goals thing." I don't believe any of these that is what they can and should be. , for Dallas about 50,000 citizens from statements. It is true that the trou- Add research, large doses of innovation, every part of the city and of all races, bles are deeply rooted, complex, diffi- and feed the patient sufficient tax income religions, occupations, and political cult, unsolvable unless all levels of to keep him alive and progressing, not ­ persuasions_ citizenry, including its best engineers just growing. Apply appropriate meas- A goals program, like this, gets urements of performance to people, proc- and managers, are involved. With esses, equipment, and facilities. Estab- people engaged in problems of their commitment and involvement, the lish the kind of cost responsibilities • cities, lending perspective to how problems can be made to yield to the commonly used in industry_ Across the things are and how they could be_ In basic principles we have long and board, get in the posture to simplify, do correlating and communicating the beneficially used in management and it better, faster, for less. people's wishes, it causes both public engineering. Combined Forces and private organizations charged In what has been said thus far, I with specific functions in the city to have generalized a good deal and de- It can't be done? Right, if we be- • be more responsive and the people to scribed a few of the recent Dallas lieve that, but if we apply the com- be more ready to support worthwhile efforts which seem to contain ele- bined forces of our best trained pro- undertakings. ments possibly transferable and fessional minds, our great and worth trying elsewhere. My princi- powerful educational, social, busi- City Government pal points were these: ness, and industrial institutions, to- 1. Goal·setting at all levels of government, gether with the power of an aroused, The fact is that one would expect if properly done, can make a genuine unified society to our urban prob- .• the techniques of science, engineering, contribution to clarification of problems lems, there are none which won't scientific management, so commonly and better, faster, more meaningful yield. understood, would have been rapidly solutions. When the process begins at May I remind you? For more than the grassroots level, the goals are an and effectively transferred to the man- expression of the aims of the people 19 centuries, all but a few believed agement of at least our larger urban themselves. Growing upward, they thus that man could never fly. For another communities. Quite the reverse is the enjoy built­in substantial support. The half century, all but a few believed case. Ponderou governments move side effects of such a program­pulling we were earthbound. Now who will slowly and in exceedingly antiquated people together instead of apart; better put a limit on these ventures? ways their wonders to perform. By informed, more understanding elec- torate; greater citizen involvement- .. and large, in our cities the manage- "One Best Way" these and others match or exceed in ment philosophies and practices, the value the establishment of the goals When man can split an atom, shall organizational structures, the tools, themselves. we say he cannot design or redesign ~ the systems of communicating with 2. A return to the principle of the New a city; that he cannot devise the man- the people they are designed to serve, England town meeting, varied to make agement patterns to control urban the self­renewing mechanisms, are it a neighborhood affair, with all top- affairs effectively; or that he cannot .. absent, inadequate, or entrenched level city officials in face­to· face discus- find ways within a city's confines to relics of a past long since gone. sion on the home grounds of the people who have the problems, yields a two- live with other men in tolerant ac- The willingness in cities to accept way direct information circuit, greatly cord? There is but one answer. • new tools, if not often to force the enhanced depth and scope of mutual Surely together we can search out the design of better ones, is totally over­ • understanding, and highly desirable (Continued on page 23)

March 1969 21 • •

Mobile Radioteleprinter

•

Checking copy from the radioteleprint.r in a Miami police cruiser are (from leftl: Ben Demby, Director, City of Miami Communications Department; James E. Barr, Chief, Safety and Special Services Bureau, Federal Communications Commission; and Miami police officer S. R. Streiner.

The Miami Police Department is perhaps, stand to benefit most. The Advantages of the instrument noted currently experimenting with a new FCC presently is considering how best by officials include unattended opera- 10 device to aid in fighting crime. Under- to provide for the licensing of the tion, better use of available fre- going extensive testing is a mobile special apparatus needed to transmit quencies, interconnection with inter- radioteleprinter­a vehicle­mounted the necessary information on the air state computer systems, greater se- .. message printer that is activated by in operating the radioteleprinters," curity, and the possible acceptability of radio teleprinter copy for warrants, coded audio tones over a standard Barr explained. which would allow an officer to stay ­ two­way radio transmitter. Miami police officials believe the on the scene while obtaining the James E. Barr, Chief of the Federal advantage of having the special re- Communications Commission's Safety document. ceiver­printers in police units will be and Special Services Bureau, after ob- Being unaffected by static and other • evident in the reduction of "on air" serving the equipment in operation, modulation interference, the unit, time needed for long, involved de- stated, "Mobile radioteleprinters have Miami police explain, also extends the great potential as a supplement to the scription transmissions and in the normal range of voice communica- ,. many two­way mobile radio communi- elimination of errors in copying or tions and permits two­way communi- cation systems now in use. The Na- repeating information for officers who cation in noisy surroundings when tion's police departments are principal happen to be out of their units at the audible signals sometime become· users of these systems, and therefore, time of original transmission. unintelligible.

22 FBI Law Enforcement Bulletin • the other members of the family could be located on the reservation. Admit- It New Highway Standards Issued tedly, notification of next of kin ov('r to the radio is not the best method of communication, but oftentimes it is the only means of contacting them. In the latter part of 1968, the De- Debris Hazard Control and Clean• Radio has provided the means of ­1 partment of Transportation issued up­ Each State shall provide for the reaching thousands of law­abiding three new highway safety standards rapid and orderly removal of wreck- citizens daily, more then we could ever ~ dealing with police traffic services, age and debris from the highway, for hope to accomplish through personal .. pedestrian safety, and debris hazards_ rescue and salvage efforts, and for contacts and other public relations The standards, developed by the Na- necessary communications and con- methods. It is an effective channel for tional Highway Safety Bureau, rep- trol of approaching vehicles. offsetting the misconceived notions of • resent goals the States are expected to the policeman as a club­wielding en- reach in future years. These stand- forcer of the law and re­establishing ards were issued as an aid in carrying the picture of a man with a difficult "' out the provisions of the Highway job to do under the most trying Safety Act. PROBLEMS OF THE CITIES conditions. State and local officials, private and (Continued from page 21) ... professional organizations, and the "One Best Way." Since 1776 that has ., Safety Advisory Committee of the been the American Way. From time Transportation Department all par- to time since that well­remembered " ticipated in the standard­making year, this Nation has taken serious process. PROTECTION PAINT risks to make great gains. That prin- The major points in the new stand- ciple can serve us still­in the Na- The increasing theft of tools and • ards are: tion, the States, and the cities. Not materials from construction sites in Police Traffic Services-State pro- to act upon the knowledge, the re- a midwestern city has led to new meas- grams shall include uniform training sources, the mind, and the strength ures by State law enforcement offi- procedures, periodic in­service train- to do, which we have, is to tempt cer- cials to prevent such crimes. A file of ing, the assignment of police person- tain failure. To act deliberately and chemical paint markings will be used nel on the basis of traffic volume, ac- positively is to commit ourselves to to aid in the prevention and prosecu- cident experience, etc., procedures for success. Let us, therefore, step tion of these kinds of thefts. The paint ~ investigating accidents that consider strongly into the future, prepared and is daubed on all materials and tools "human, vehicular, and highway unafraid. This is how I pray history left overnight at construction projects. causative factors," the systematic re- will record we dealt with the ava- Each of the 125 contractors.involved porting of hazardous highway defects lanche. We are a great people. We can in this program has his own tracing and conditions, and a series of juris- find anew the "One Best Way." color and number, which are regis- -+ dictional agreements. tered with the State_ Pedestrian Safety-States and their A special ingredient in the ,paint • political subdivisions shall develop fluoresces when an ultraviolet ray is ... and implement programs that inven- RADIO PROGRAMS directed at it and, when checked tory pedestrian accidents as to time, against the file, identifies the contrac- (Continued from page 10) location, age of victim, color of cloth- tor from whom the materials were • ing, and blood­alcohol content; pro- in our area, together with the Navajo stolen. This program is being partly cedures and equipment to reduce vehi- Indian Reservation which contains financed by a private firm, and in ad- • cle­pedestrian "conflicts" including over 150,000 Indians, many of whom dition to supplying ultraviolet ray ... control devices, land­use planning, only speak Navajo, but who under- lamps, the company is providing pedestrian bridges, and better light- stand English. The radio programs posters to warn persons at the con- ing; and a program to educate drivers have enabled us to reach persons con- struction sites that all of the property • about the pedestrian problem and cerning the death or injury of a family and equipment is marked with a de- ., pedestrians about safe behavior . member when we had no idea where tecting color. .. March 1969 23 Remarks ______Reportedly has prefer- ence for western style clothes; avid camper • WANTED BY THE FBI and fisherman. FBI No ______. 291,56l. Fingerprint classification__ M 31 W IOM o 32 W 00=­=­1­ 15­ SCOTT DOUGLAS ELLIOTT, also known as: Douglas Elliott Scott, Charles Ref: 32 Williams, Harry Williams, John R. Wright, "Scotty." 32 to

Caution Interstate Flight-Manslaughter Elliott reportedly carries a gun and The FBI is presently s~eking Scott Height ______6 feet. should be considered dangerous. Weight ______155 pounds. t Douglas Elliott for unlawful interstate Build ______. Slender. flight to avoid confinement alter con- Hair ______. Dark brown, greying, Notify the FBI viction for manslaughter. On May 22, receding. Any person having information 1965, Elliott was convicted and Eyes ______Brown. which might assist in locating this sentenced to serve 15 years for the Complexion ____ Medium. Race ______White. fugitive is requested to notify im- slaying of the son of a Greenwood, Nationality ____. American. mediately the Director of the Federal ~ Miss., police captain in 1961. His ap- Scars and marks. Two scars right temple, Bureau of Investigation, U.S. Depart- peal to the Mississippi State Supreme scar upper right side ment of Justice, Washington, D.C. ... Court failed, and on April n, 1966, of back, operation scar 20535, or the Special Agent in Charge f- Elliott, free on bond, did not appear middle abdomen, scar back of right leg at of the nearest,FBI field office, the tele- for his scheduled court hearing. A knee, scars on both phone number of which appears on the Federal warrant for his arrest was knees. first page of most local directories. issued on May 17, 1966, at Oxford, Occupations __ __ Construction w 0 r k e r, Miss. nightclub operator, oil field worker, service Description station attendant, ship· yard worker, shoe Age ______57, born June 1, 1911, maker, truckdriver, Simpson County, Ky. welder. AN UNUSUAL TYPEWRITER

Prison officials in a midwestern city .. recently revealed that an inmate trans- ferred from a State penitentiary to a I•

training center had a typewriter in I.• his possession. Inspection of the ma- chine showed that the platen, with a diameter of more than 1 inch, was r - hollow. Inside the roller were two rolls of paper money, a holder con- • taining two steel hypodermic needles, • a plastic holder. containing one plastic base steel hypodermic needle, and 69 , sleeping pills, The platen had a metal < ~ end on the right side which was stuffed ~ with cotton to prevent the contraband • from rattling. '" A discovery of this kind indicates that a typewriter platen is an excellent place to hide narcotics and other' ~ SCOTT DOUGLAS ELLIOTT items.

~ 24 FBI Law Enforcement Bulletin U. S. GOVERNMENT PRINTING OFFICE: 1969 0 ­ 331­196 FOR CHANGE OF ADDRESS •

Complete this form ancl return to: • DIRECTOR FEDERAL BUREAU OF INVESTIGATION WASmNGTON, D.C. 20535

.. (Name) (TUZe)

(A.ddreas)

(OItll) ( Btate ) (Zip Oode)

Don't Let Your Child Become COOPERATION A Shoplifter A law enforcement officer recently graduated from the FBI National to follow blindly for fear of being In an effort to prevent shoplifting Academy and returned to his deI>art- among youth, a retail merchants group called " Chicken." 9. Adults should be alert to a daughter ment in a southern State in time to .., in a western city recently distributed who repeatedly shops with an extra- assist in the investigation of'a $25,000 a booklet to junior and senior high large handbag or shopping bag. burglary. He learned that some of the school students warning them of the 10. Clothes­swapping must be properly loot had been transported to a distant supervised. inherent dangers of this crime. The part of the State and traded in pawn booklet stresses the fact that shop- 11. Selling the right example is the respon- sibility of adults. shops. lifting is stealing and stealing is a A telephone call to a fellow NA criminal act. It presents eleven sugges- classmate where the loot was carried ~ tions to assist parents in preventing brought quick results. Cooperation be• and controlling this violation: FINGERPRINT tween the two police officers led to the 1. Shoplifting can be the beginning of BOOKLETS recovery of thousands of dollars worth bigger trouble for their children. of the goods from the pawn shops. 2. Children should understand that the Information about the shoplifter is a thief, not a prankster. history, services, and oper- 3. A police record can hurt their chilo ations of the FBI Identifica- dren's chances for jobs and education. 4. Knowledge of how much money their tion Division is contained INSURANCE FOR children have and the way they spend in a hooklet, "Fingerprint APARTMENT DWELLERS it is important. Identification," which can 5. What children bring into the house be obtained free of charge The re ident manager of an apart- should be closely checked. in limited quantities by in- ment in a southeastern city has devised 6. Knowing when, where, and why their sons and daughters are shopping is terested individuals and a new security system. crucial. organizations. When movers, tradesmen, and 7. Finding out what their community is Requests for copies of other outsiders have a need to borrow doing about the problem and lending this item should be sub- keys to the storage rooms, garage, any support to civic causes would be mitted to the Director, and other facilities, they are required most benefi cial. to leave their driver's licenses at the 8. Youth should be taught that it is more Federal Bureau of Investi- co urageous and virtuous to refuse to gation, Washington, D.C. apartment house office. When the keys "go along with the crowd" than it is 20535. are returned, the licenses are returned. •

U N ITED STATES DEPARTMENT OF JUSTICE POSTAGE AND FEES PAID FEDERAL BUREA U O F INV ESTIGATION FEDERAL BUREAU OF INVESTIGATION WASHINGT ON. D .C . 20535 OFFICIAL BUSINESS • RETURN A FTER 5 DAYS

UNUSUAL PATTERN

In the Identification Division of the FBI, this unusual pa"ern is given the preferred classification of a tented arch and is referenced to a loop with two ridge counts.