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JANUARY 1967

LAW ENFORCEMENT BULLETIN

FEDERAL BUREAU OF INVESTIGATION UNITED STATES DEPARTMENT OF JUSTICE J. EDGAR HOOVER, DIRECTOR JANUARY 1967 VOL. 36, NO. 1

THE COVER­Free emergency telephone service for motorists. See page 2. - LAW ENFORCEMENT- BULLETIN CONTENTS

Message From Director J. Edgar Hoover...... 1 Free Emergency Telephones for Superhighways, a by Lt. Ronald N. Kulikowsky, New York State .. Police ...... 2

New Communications Will Improve Law Enforce· ment ...... 6

Policemen Must Not Strike, by Paul Harvey. . .. 11

The Talking Traffic Light, by Lt. Michael Thomas Loftus, Officer in Charge of Youth Bureau, Omaha, Nebr., Police Department. 12

A Look at Codes and Ciphers...... 17 Publi.hed by the FEDERAL BUREAU OF INVESTIGATION Police Management, Selection Procedures. 25 UNITED STATES DEPARTMENT OF JUSTICE Wanted by the FBI ...... ~ .... . 28 Wa.hington, D.C. 20535 The FBI National Crime Information Center provide State and local law enforcement agencies (NCIC) will begin operations later this month. a nationwide uninterrupted flow of up-to-the• This nationwide computer network represents a minute crime data. If for any reason one of the big advancement in scientific crime detection and computers or storage units fails, a second piece electronic achievement in the fight against crime of equipment will take over. and lawlessness. It also serves as a symbol of One basic obstacle of the system was resolving the cooperative spirit prevailing among enforce• how the many different computers could com• ment officials as they unite their efforts to municate with each other in a compatible lan• modernize and improve enforcement techniques. guage. A group of line and staff officers from The FBI center is not a total information departments throughout the country and FBI depot or repository. Rather, it is a nationwide representatives met this challenge. They estab• index of data on crime and criminals which, by lished a uniform set of record formats and codes high-speed random-access search techniques, will to be used by all agencies and systems partici• ~ ovide within seconds pertinent information to pating in the network. This same group a police officer on the scene. This service will established operating procedures to maximize bring more and more criminals to justice and accuracy and discipline in the system. prevent fast-moving violators from evading local The exchange of criminal information among authorities and "outrunning" the law. enforcement agencies is not new. It has existed The NCIC is not a separate entity. It will for many years. However, in the past, time gap complement electronic information systems being and the cumbersome means of transmitting such set up or already in operation by metropolitan information have handicapped police. The big and State police agencies. When the network advantage of NCIC is its ability to provide "in• opens, there will be 15 local and State law stant information" on a nationwide basis. enforcement agencies participating in the system. Through this system the officer on the street can Each will be directly tied in to the FBI computers, receive pertinent facts when he needs them• and each will serve numerous other agencies. right now. Eventually, the system will include a terminal While law enforcement is often discouraged agency in each State as well as in ·each of 25 by public apathy, judicial leniency, and other or more larger metropolitan areas. Further, all factors encouraging criminality, it can be proud FBI field divisions and offices of other Federal of its own efforts to move ahead progressively agencies will be connected with the NCIC in the fight against crime. I feel the NCIC is a computers. distinct step in the right direction. It will Since crime is a constant, round-the-clock materially assist law enforcement in its respon• problem, services of NCIC will be available on sibility to protect and safeguard the rights and a 24-hour, 7-day-week basis. The network will lives of all citizens. Free Emergency Telephones for Superhighways

LT. RONALD N. KULIKOWSKY New York State Police

An Interim Survey of the New York Northway Emergency Communications System

I n law enforcement, as in other pro• fessions, new services can cause new problems which in turn initiate addi• tional service to solve the problems. As a result, the benefit to the public i twofold. A good example is the police serv• ice instituted in 1961 by the New York tate Police to solve problems created by the opening of the Northway free• way in the winter of 1959. By early 1961 the new superhighway had spread its concrete web away from suburban Albany to the rural foothills of the formidable Adirondacks. Shortages in manpower for patrol were critical, but the need of render• ing services to motorists stranded in the bewilderment of i olation that only limited access interstate highways can produce became urgent. Following the simple instructions on the box, a lady in distress calls a nearby State police

2 FBI Law Enforcement Bu"eti The idea for a solution jelled into a gested free two-way voice commu• eation system to be open to all mo• torists and to be operated by available police personnel. This concept emerged into a cooperative program encompassing the skills of the New York State Police, the support of the Department of Public Works, and the contractural engineering and mainte• nance services of the New York Tele• phone Co. Construction of the sys• "I tem started in October 1965, and it was opened to the public on January 7, r 1966. By summer's end the testing of the longest free emergency telephone serv• ice installed along a U.S. interstate highway and operated by a law en• forcement agency moved into the final phase of a yearlong pilot program of a new public service to motorists. En• couraged by the successful operation of the Northway Emergency Com• munications System (NETS) during the late winter, spring, and summer A ths, the New York State Police is Officers monitor calls 24 hours a day and dispatch whatever assistance is needed. W fident of achieving3tandards of accomplishment during the coming the Canadian border. At the present nating conditions of hazardous fogs, months. This program may well set a time there are two completed, but un• ice, snow, and subfreezing tempera• pattern for other law enforcement connected, segments of the North• tures, particularly at night. The agencies searching for a means to way. The 56.1-mile southern section New York State Police assumed re• bring improved policing and services stretches from Route 20 near Albany sponsibility for policing the orth• to the motoring public. The details of to the village of Lake George in the way. With the leadership of Supt. the system and the experience gained Adirondack Mountains. Arthur Cornelius, Jr., the ew York thus far in its operation are outlined It was first opened in late 1959 and State Police was undergoing an exten• in this article. was followed by the opening of the sive reorganization and expansion 40-mile northern section from Keese• program, and manpower was at a pre• ville, near the city of Plattsburgh, to mium. Experienced troopers were Origin of NETS the Canadian line. The uncompleted engaged in a massive training pro• The Northway is an integral link of section in the center of the Adiron• gram for new recruits and 'Yere in the dacks is now under construction and first cycle of inservice training in the K Interstate Route 87. When completed, organization's history. This dual de• ~ it will provide 178 miles of direct high• is scheduled to open in midsummer of mand on the organization, which for speed limited access motor travel from this year. many years had been severely under• the Governor Thomas E. Dewey New York State Thruway's Albany exit to Challenges Faced strength, served to amplify the need the Province of Quebec, Canada. The for new means of providing neces• route traverses New York's historical The opening of the first sections of sary police services to interstate capital area; Saratoga, the summer• the Northway brought the challenge motorists without reducing the effec• time racing center of the East; and of meeting increased demands for po• tiveness of our normal criminal, traf• the rugged Adirondack skiing areas of lice services on a lonesome highway fic, investigative, policing, and other George and Lake Champlain to plagued all too frequently with alter- functions.

3 The executive committee of the Jew motorists in trouble the means of se- onto the driving lane and creating York State Police searched for ideas. curing aid quickly without creating another dangerous situation. wa The problem was familiar to agencies additional hazards. The internation- vehicles are disabled between tW patrolling rural limited·access high- ally recognized symbol of a telephone phones, the shoulder provides a wide ways, but its dimensions defied any handset appeared to be the answer. safe walkway to the nearest instru· ment. Attached to the pole is a green easy solution. In many instances the Organization and Operation physical construction of the North· and white reflectorized metal sign dis- way places northbound and south- Joint intercooperative agency plan- playing a symbol of communication- bound lanes on different levels. A ning developed the organization of the a telephone handset. hill or a wide mall with dense foliage orthway Emergency Communica- often separates the lanes, so some- tions System. Contracts for procure- Telephone Package times drivers in opposing lanes are ment of equipment and its installation completely obstructed from each were negotiated after solicitation of The telephone package is "national, other's view. These conditions, while bids between the Tew York Telephone '3chool­bus yellow" in color and con- highly desirable from a safety view- Co. and the Department of Public sists of a metal box equipped with an point, prevent an early detection of Works. Installation of 222 tele- "ice breaker" handle and spring re- disabled vehicles. This problem be- phones along the 56­mile southern turn door. The handle is operated on comes particularly acute during the section cos t $210,000. Monthly the double lever principle: The first winter nights with temperatures well rental and maintenance amounts to position will open the box, but if there below the freezing point. Under such $3,250. The State of ew York pays are obstructions of ice or snow, the conditions a family marooned in a the bill and the New York State second or "breaker position" will free stalled and unheated vehicle can be- Police is the operator of the system. the box cover for normal use. Out- come a major casualty before the The telephones are located every side the box is a reflectorized decal needed assistance arrives. To insure half mile along both the northbound number of the phone and instructions prompt as istance to disabled motor- and southbound driving lanes. Each on how to use it. ists, and to be consistent with avail- phone located along the northbound The instructions are simple: able manpower, the State police lane has a counterpart instrument lo- 1. Lift handset from mounting to acte system. patrols on the T orthway were short- cated directly opposite it in the south- 2. Operate switch hook if you do not re- • ened and the officers were required bound lane. This juxtaposition elimi- ceive an answer. to make complete circuits of the post nates the need for motorists' crossing 3. Hang up when finished. area on a continuous basis. How- the highway to reach a phone. The 4. Your location number is listed below. ever, this maneuver was not enough telephone package is mounted on a (box number in large numerals) to answer the problem. wooden pole approximately 50 inches above the ground level. Experiments Inside the box is the familiar stand- ard telephone handset comparable to Security for Motorists proved that poles encased in concrete could pull out of the ground, penetrate a home telephone. To activate the • Along its entire length, the orth- a vehicle, and cause serious inj ury to system, the user merely follows direc- ~ way has no service areas of any type. vehicle, driver, and/ or passengers. It tions on the box. Voice strength is At its intersections standard road was also felt that the majority of peo- constant throughout the system and igns direct attention to the food, fuel, ple using the telephone.o would be raised sufficiently so that a normal voice speaking into the phone can be and lodging services located off the standing when making a call rather heard over the background noise of )- superhighway, but at night these serv- than sitting in a car, so a lower height would be uncomfortable. Also passing trucks and automobiles. Spe- • ices are difficult to obtain because the a person bent on malicious damage or cial design features and amplification majority of proprietors close in the larceny would have to leave his ve- every 6,000 feet along the orthway • early evening hours. The blanket of hicle to do his mischief. The poles insure correct volume. darkness added desolation to the di- are located on the road shoulder 12 The phones are interconnected with mension of isolation. The idea of feet from the outside edge of the driv- buried cable placed along the north- ETS germinated with a desire for ing lane. Sufficient room on the bound and outhbound lanes. The • providing a comforting sense of secu- houlder allows a driver to pull his first 56­mile chain of cable is divided rity to those in need of prompt assist- vehicle out of the driving lane and into three major circuits, each ance while simultaneously giving the make his distress call without stepping nected to a nearby tate police

4 FBI law Enforcement Bull lane and approximat'e location of the calling motorist. At each State police station involved in NETS, a daily log is maintained of all calls made over the system. Logs are consolidated and keypunched, and monthly printouts are made available through electronic data-processing equipment for evaluation of the pilot program and for consideration in ex• tending NETS to the remaining un• r. covered sections of the Northway. I

Analysis of the System

The general evaluation of the North• way Emergency Telephone System for the first 8 months of operation has been most revealing as to the pattern of services requested, the emergencies encountered, and the conditions under which prompt responses have been made to requests for assistance made by motorists. Complaints have been notably absent. Although one com• plete instrument was stolen, misuse, damage, and vandalism of equipment ephone package is mounted on wooden pole 12 feet from outside edge of driving lane. have been practically nil, and "no an• several miles from the Northway. patcher is unable to obtain the box swer" calls made by the curious have Each major circuit is further divided number from which the call originates, sharply diminished. On the contrary, into four minor circuits, two north• he can estimate its location by noting proving the effectiveness of the sys• bound and two southbound. Minor which circuit light is on. Circuit keys tem, legitimate and bona fide use of circuits vary from 4 to 9 miles in A and C on the control phone instru• the system has been made by the mo• .. length. ment control even-numbered phones toring public during an experimental Activating a roadside phone causes along the northbound lane, while cir• period covering the deep snows of Jan• a humming sound and a light to flash cuit keys Band D control the odd• uary and March and the heavy vaca• on the control instrument located at numbered phones along the south• tion traffic periods of the summer. the State police station where 24-hour bound lane. The number of phones Wrong-way traffic movements, result• monitoring coverage is given to the on each circuit is limited so no one ing in almost certain death, were rap• ~ section of the system. The light des• circuit would be tied up for a lengthy idly detected, and prompt action was ignates which circuit is being used, period. initiated for erection of appropriate and the dispatcher at the station lifts The phones are numbered in series additional signs at entrance areas and the receiver announcing the State which indicate the identity of the State other locations where a driver's error police station and his identity. For police station servicing any particular was most likely to start. The entire example, "State Police, Loudonville. phone. For example, the 100 series venture has notably proven its positive Sergeant Eagan." The caller then boxes are controlled by the State po• values. states his problem, and the dispatcher lice station in Loudonville ; the 200 During the first 8 months a total of takes immediate action in sending series are controlled by the station in 3,458 calls have been made over the services ranging from tow trucks to Saratoga; and the 300 series by the system. As the public becomes more fire trucks, and from police ambu• station in South Glens Falls. Conse• acquainted with NETS, the continued lances to an y other services as maybe quently, a patrol car on the Northway and increased number of calls to be If for any reason the dis• can be advised by radio of the exact (Continued on page 20 )

1967 5 FBI NA Graduates Told-

New Communications Will Improve Law Enforcement

"N ew communications technol• forcement, Mr. Goldenson told the tools at its disposal to help in the never• ogy can not only vastly improve police graduates that they and their associ• ending struggle against crime." response to crime; it can give you the ates must recognize and overcome Mr. Goldenson concluded by telling opportunity _ . . to help answer new obstacles facing law enforce• the members of the graduating class quickly and positively unfounded and ment-population mobility, expand• that "these systems of law enforce• irresponsible criticism, to promote ing opportunities for criminal gain, ment communications deserve the improved internal procedures within easy conversion of stolen property, widespread support, not only of your• each law enforcement agency, and increasingly sophisticated techniques selves; but of your colleagues ane to develop programs that best assure and equipment of criminals, and the the public at large." the safety of the public from the narrowing and complicated legal re• Another distinguished guest and assaults of the lawless." strictions on police efforts. He stated speaker, Mr. Efrem Zimbalist, Jr., ex• This was the message of the Hon• that "all of these are factors which ir• tended his "fraternal" congratulations orable Leonard H. Goldenson, Presi• resi tibly combine to strain existing to the graduates. Mr. Zimbalist, who dent of American Broadcasting Cos., police technology in the solution of stars as Insp. Lew Erskine in ABC's Inc., in an address to the graduates crime to its very limit-and maybe "The FBI" weekly TV series, told the of the 78th Session of the FBI a• even beyond its present capabilities." officers he was beginning to feel "al• tional Academy on ovember 2, 1966, Mr. Goldenson noted that the most a part of your profession by a in Washington, D.C. basic purpose of law enforcement lies kind of electronic osmosis." Stressing the ever-increasing im• in the ability to detect and apprehend Turning to a more serious vein, portance of scientific and technical the lawless. "Law enforcement must Mr. Zimbalist stated that "there is a advances in communications, Mr. be ready and willing to advance bold deep concern today over the binge of Goldenson urged the graduating of• and new programs to achieve those 'civil disobedience' which has come ficers to adjust themselves to new pro• ends." to serve as a justification for deliber• cedures and techniques to meet social The FBI Tational Crime Informa• ate violations of law." He urged the change and new court decisions. He tion Center, soon to be opened, pro• graduates to apply their knowledge stated that he believes "it is essential vides an excellent example, Mr. Gol• and ability "in strengthening the that those responsible for the mainte• denson stated, of effective scientific cause of law and order throughout " nance of law and order acquire and police communications. He pointed the land." use the latest scientific advances in out that this system and other similar Recalling William Penn's phrase communications to increase the effec• advancements by local and tate agen• that "liberty without obedience is tivene s of all law enforcement." cie are the beginnings, but "much confusion," Mr. Zimbalist criticized In a speech providing valuable in• more will have to be done if law en• the "so-called Free Speech Move• ight into the near future of law en- forcement is to use all the scientific ment" and other groups par

6 FBI Law Enforcement B fellow officers. He expressed their sincere gratitude for the opportunity of additional and vital training in the field of law enforcement. Mr. Genung echoed his fellow graduates' promise "to chart our course of future action with integrity, ability, and perseverance." Assistant Attorney General Edwin L. Weisl, Jr., and Mr. Hoover pre• sented diplomas to the lOO·member graduating class. Represented in the class were 42 States, the District of Columbia, the Armed Forces, the White House Police, the U.S. Park Police, the U.S. Forest Service, and the FBI. Seven law enforcement officers representing five foreign coun• tries and two officers from Puerto Rico were also members of the gradu• ating class. The visiting officers rep• resented the countries of Iran, Malaysia, the Philippines, Spain, and Tunisia. The 100·member 78th Session in• creased the total number of FBI Na• tional Academy graduates to 5,036. By alphabetical sequence and by co• incidence, the 5,000th diploma was presented to Capt. William V. Mosher, of the Illinois State Highway Patrol, Springfield, Ill. In ceremonies prior to the gradua• Shown with Director J. Edgar Hoover after the graduation ceremonies are: Hon. Leonard H. tion, Lt. Paul J. Dumas,_Jr., of the Goldenson, President, American Broadcasting Cos., Inc. (left), and Mr. Efrem Zimbalist, Jr., star of the television series, "The FB!." Montgomery, Ala., Police Depart• ment, received the John Edgar Hoover Medal for Excellence in the Study of under counterfeit banners. Using without discipline is no liberty at all, Law Enforcement as an award for the contrasting phrase of Penn that and that only by surrendering that having the highest scholastic standing • "obedience without liberty is slavery" tiny fraction of his personal freedom in the class. Detective Lt. Victor H. to describe the existing life behind necessary to maintaining the integrity Smith, Jr., of the Flint, Mich., Police the Iron and Bamboo Curtains, he of society can man himself ever be Department, received the American voiced concern over the tendency in free." Legion National Academy Firearms many quarters to convert liberty to In his closing remarks urging the Proficiency Award. license. The "liberty without obedi· graduates to apply their knowledge, Mr. Hoover, presiding at the cere• ence" issue "poses one of the most Mr. Zimbalist recalled an old adage monies, introduced as distinguished perplexing dilemmas in America from his childhood: "It's not what guests Maj. Gen. Carl C. Turner, The today," he added. you know that matters; it's what you Provost Marshal General, U.S. Army; However, Mr. Zimbalist expressed do with what you know." the Honorable James C. Hagerty, his belief that "a new day is dawn· Mr. Donald S. Genung, Sheriff of formerly Press Secretary to President ing across our Nation in which it will Pinellas County, Clearwater, Fla., and Eisenhower and presently Vice Pres• to be known again that liberty president of the class, spoke for his ident of Corporate Relations of

ary 1967 7 American Broadcasting Cos., Inc. ; Zimbalist from time to time. r would suspect that the good inspect the Honorable Tom de Paolo, rep· might be the object of some envy by resenting the J. Walter Thompson members of this graduating class since e Co., which handles "The FBI" tele· always is able to dispose of each case, no VISIOn series; and the Honorable matter how difficult, in one hour each Sun• Bernard R. Goodman, Vice President day night between 8 and 9 o'clock, eastern standard time. Inspector, my heartiest of Warner Brothers Pictures Dis· congratulations, and JUay you continue to tributing Corp. do so for a long, long time. Law enforce• Rev. Edward Bradley Lewis, Cap• ment needs you-but so does ABC. itol Hill Methodist Church, Washing• But seriously, both Mr. Zimbalist and I ton, D.C., delivered the invocation derive great personal satisfaction from "The FBI" series. In addition to providing first• and benediction for the exercises. A class entertainment, we sincerely believe we program of music was provided by are helping to inform a weekly audience of the U.S. Marine Band conducted by 28% million viewers of the true functioning of the law enforcement profession. Capt. Dale Harpham. Ho n. Leonard H. Gol denson. Mr. Goldenson's address follows: By dramatizing actual cases in the FBI files, we are trying to increase public knowl• Mr. Hoover, honored guests, members of Before I try to show you what I mean• edge of the ethics and devotion to duty of the graduating class, and friends: why I think these evolving communications all law enforcement agencies, of expanding It is a vrivilege and a pleasure to be here processes can be useful in a modern-day and improved techniques and procedures, of today, to join with you in these exercises, law enforcement operation-permit me to increasing service to and protection of the and to have the opportunity to extend per• address a few personal observations to the rights and human liberties of all our citizens. sonal congratulations to the members of the graduating class and to our host, the FBI. That is our desire and that is our goal. I 78th graduating class of the FBI National First, and properly so since this is a grad• must leave to others the judgment on Academy. uation exercise, to the members of the class: whether we are succeeding. As far as I am At the outset of these remarks, I think it I am sure the training you have received concerned, I am extremely proud of this would be prudent to make one thing quite at the Academy will contribute greatly to program, and I publicly want to thank Mr. clear. I am not an expert in the business your increased effectiveness as law enforce• Hoover and his associates for their mag• of law enforcement, nor do I attempt to ment officers. I am equally confident that nificent cooperation, given so unstintin. pose as one. what you have learned here will be reflected to all of us who have had the responsibi I am in the business of mass communi• manifold in the increasing leadership and of bringing "The FBI" series into so many cations--and have been most of my adult services all of you will be rendering in your American homes. life. All of us in broadcasting are par• local communities. Our ABC Radio etwork is also .partici• ticularly excited these days over the tre• And while at times it may seem other• pating nationally in bringing information mendous scientific and technological ad• wise to you, let me assure you that you do concerning law enforcement to the public. vances that are being made in our industry. have the overwhelming support of the great Each weekend the network carries two We are constantly revising and updating our majority of your fellow citizens in your 5-minute programs recorded personally by technical methods and our procedures as unceasing efforts to preserve and strengthen Deke DeLoach, the Assistant to the Director the promise of the future that these ad• our free society through the proper appli• of the FBI. They provide up-to-date infor• vances portend becomes practical reality. cation of the law and its enforcement. mation on wanted criminals and on lawen• Within the last few years, for example, So, gentlemen, my compliments and my forcement procedures and methods. communication satellites link your living congratulations. I deeply admire and re• In addition the network, again working in room in split econds with events occurring spect your dedication and devotion to your cooperation with the FBI, is carrying during thousands of miles away across oceans; chosen profession. My warm best wishes the month of ovember a series of public computer systems analyze and give you al• to each of you as you return to your home service announcements entitled "Respect for most instantaneous vote results in elections departments. the Law." These announcements will be across our land; and new and more portable And next, a few personal words about carried on our network news, sports, and equipment improves our service to our our host. Like all Americans of good will, public affairs programs and will be serviced viewing audiences. I have always had great respect and high to more than 350 affiliated stations through• When I fir t received the invitation to be regard for Mr. Hoover and the FBI. These out the country. with you today, I hesitated to accept. For, feelings have been heightened even more• And now, to return to my topic of mass as I say, I am no expert on law enforcement. if that is possible-through the clo e rela• communications. I fully realize that the But as I thought about it, I realized that I tionship we at ABC have maintained with words "mass communications" can have did have something to talk about that would the Director of the Bureau in connection many different connotations to many people. bc of mutual interest. For it seemed to me with our network presentation of the tele• many of these new communications develop• vision series "The FBI." For me, in these remarks, mass communi• ments that we in broadcasting have been Incidentally, I am delighted that I am cations will center more on the scientific adding to our expanded facilities could be sharing the speaking assignment today with and technical meaning of the words. As I of equal importance to you in the law the infallible Inspector Lew Erskine who, shall apply it, it will mean the rapid report• enforcement. I must warn you, uses the alias of Efrem ing and movement to all lawen

8 FB I Law Enforcement Bull agencies of accurate, fast, and up-to-date insist that all of these are factors which mildly, was a confusing mess. Each net• . formation, intelligence, and records con• irresistibly combine to strain existing police work gathered its own returns; each net• ing the activities of the criminal ~Iement technology in the solution of crime to its work transmitted different figures on each ~ ~ our society. In brief, it will be a discus• very limit-and maybe even beyond its pres• race. It got so impossible, so confusing to sion of the communications gap among your ent capabilities. the public, that something had to be done own profession. Additional manpower, better training, and done fast. I do not believe that anyone in this audi• more qualified personnel, competitive sala• In the 1964 presidential election, the three torium will argue with the fact that the ries and increased police budgets, better television networks, ABC, CBS, and NBC, nationwide struggle to gain individual rights public relations, and a more informed and joined with the two national wire services, for all citizens and recent court decisions supporting citizenry are important improve• AP and UPI, and pooled their resources and have radically affected law enforcement pro• ments, sorely needed improvements, for their reporting of vote returns. Within a cedure and operation. As law enforcement every law enforcement agency. comparatively short time after poll closing in general must modify and adapt its pro• But ultimate acquisition of these depends in each district or State, accurate and defi• cedures and techniques to meet social on how law enforcement as a whole demon• nite figures were available to all and the change and new court decisions, I believe it strate its capability to adjust itself to what conf usion of the past was eliminated. In is essential that those responsible for the is frankly a new environment. And remem• this year's elections, we are taking the first maintenance of law and order acquire and ber, the rightful public image, the basic step, in setting up the entire vote-collecting use the latest scientific advances in com• purpose of law enforcement, lies in its abil• system on a computer basis by putting all munications to increase the effectiveness of ity to detect and to apprehend the lawless. returns in 11 Western States through a all law enforcement. Law enforcement must be ready and willing computer center. And by 1968 we hope to I am sure I don't have to remind you that to advance bold and new programs to have the entire Nation on computer there was a day when law enforcement, often achieve these ends. tabulations. with time and certainly with technique in And that's where these new communica• In May of 1965, on the initial Early Bird its favor, could rather deliberately gather tions advances I referred to earlier come communications satellite broadcast, the evidence of criminal violations and eventu• into the picture. FBI, using II National Academy classroom ally arrest a culprit for his crime. But that The computer and the dissemination of on the fifth floor of the Justice Building as day seems to be over-at least that is what its vast supply of stored knowledge could a live broadcasting point, exchanged fugitive my FBI friends tell me. be as basic and as important to police work information on a three-way live broadcast They point out new obstacles that must as was the first acceptance of fingerprinting basis with Scotland Yard in London and be overcome--the mobility of our popula• as a positive means of identification of crim• the Royal Canadian Mounted Police in tion; the expanding opportunities for crimi• inals. And the communication satellite. Canada. The broadcast was seen by 300 r gain and the effortless conversion of operating both domestically and interna• million people on both sides of the Atlantic. en property in our competitive economy; tionally, could afford instantaneous 24-hour As a result of this dissemination of police rtt e increasingly sophisticated techniques service of immeasurable value. information, a long-sought Canadian fugi• I and equipment now utilized by criminals; Let me digress for a moment to give you tive was apprehended. and the narrowing and complicated legal two illustrations of what I mean. This arrest surely emphasized the future restrictions on police efforts lest they en• Up to a few years ago, national network possibilities for cooperative international croach on the rights of the individuaL They reporting of election returns, to put it law enforcement through satellite trans• mission. Now naturally any new national police communications system, using the latest of scientific advance~, isn't going to happen overnight. Any system to be successful has to interconnect with existing local and State systems, which in turn have to be geared up to handle new equipment, new techniques. And it is going to be expensive. You just don't find banks of computers and the sophisticated machinery necessary to estab• lish such a system, or fees to pay for satellite transmission, on the nearest street corner. But money must be appropriated, for it is essential for law enforcement to set up such a system unless you want to run the risk of something you can, in the long run, least afford-obsolescence of communications in the all-important ex• change of vital information on criminal activities. Happily, as I understand it, a start has been made in the right direction. Following the graduati on exercises Mr. Berna rd R. Goodman, Vice President, Warner Brothers Pictures Distributing Corp., and Mrs. Goodman a re shown w ith Mr_ Hoover. The Washington headquarters of the FBI

uary 1967 9

238-576 0-66-2 will open a new National Crime Information his fine and moved on, that this same car not only of yourselves, but of your colleagues Center in January which will be capable of was stolen and used that day in a robbery and of the public at large. I hope it servlCInf,! any law enforcement agency in another State. given wholeheartedly and promptly. I throughout the country that requests such Or being faced by a sullen and sneering confident it will be. assistance. suspect who literally challenges you to find Following is the address given by out who he is, where he has been, and what Mr. Hoover has predicted that this center Mr. Zimbalist: would eventually be "the hub of a vast in· he has been up to. I take it that this is formation network which will serve as a something you all must have to live with Mr. Hoover, Mr. Goldenson, distin• rapid mean of procuring, storing, retriev· frequently-not only the impudence of his guished visitors, members of the 78th ing, and in stantly transmitting ,·ital police actions, but, quite often, your own inability Session and particularly your wives and information, nationwide in scope, to any to determine promptly his identity and families: point in the country in a matter of seconds." activities. It is indeed a great honor to take part The FBI and their consulting scientists A computer storage communications sys• in these graduation exercises of the FBI envision that this increasing reservoir of tem can end many of these frustrations_ ational Academy. To the 100 outstand• data on criminal activities, gathered from For the system will be able, upon interro• ing officers who are members of this 78th police throughout the country- indeed from gation, to identify most criminals by finger• Session, I offer my sincere congratulations. throughout the world-can, in time, through prints or descriptive profiles, or tell whether I would like to say "fraternal" congratula• the marvel of electronic "memory" com• an automobile has been stolen or used in a tions, if you will permit me, because on puters, be interrogated for up.to-the-minute crime-all in a matter of seconds. Or to occasion I have had such regard for mem• information for all participating law en- give you any other information you may bers of the State highway patrol as to fur• need in other cases-again in a matter of nish them personally with the opportunity seconds. to brush up on their techniques, and be· In addition, the FBI has already asked cause through association with "The FBI" more than 30 major electronic firms to un• series, I bave developed a feeling of being dertake a study for the development of a almost a part of your profession by a kind scanning device which can be used to read of electronic osmosis. and classify inked finger impressions. Working on this program has been one When they get that worked out-and they of the most satisfying and enlightening will- the mammoth criminal fingerprint assignments of my career. During our re• files of the FBI, computer-linked with a law creations of actual cases investigated by the enforcement communications network across FBI, I have gained an insight into the the Nation, will afford short sanctuary-a dedication, the sacrifices, and the painS. few minutes at the most-for any criminal ing effort that underlie the remarkable who refuses to divulge his true identity. It ord achieved by J. Edgar Hoover and his will wipe that irritating sneer off his face, associates. They merit the gratitude and but quick! Mr. Efrem Zimbalist, Jr. the support of every decent American. ow this may sound like Buck Rogers• Since 1924, when he became Director of l or I suppose I should say Dick Tracy. But, the Bureau, Mr. Hoover has been the one forcement agencies and even at the request believe me, it isn't anything more fantastic preeminent figure on the law enforcement of police officers on the street. than the procedures and techniques which scene. His contributions to the cause of orne police departments have already we in broadcasting have put into practice. law and order-his seilless devotion to started to modernize their own systems_ It is the positive future and it will come democracy in the real sense of the word Among other, the ew York City Police sooner than you realize. I would hope that and to justice- are a modern legend. Department ha converted a sizable portion all of you in this graduating class would The FBI National Academy is but one of its criminal fingerprint files to computer redouble your efforts within your own de• example of Director Hoover's pioneering torage and the tate of California already partments to develop and implement this spirit and imaginative genius. He founded has in operation an effective statewide new concept in police communication. the Academy in 1935 to meet the pressing computcr·ba ed communication sy tern. You know you really owe it to yourselves need at all levels of law enforcement for These arc the beginning . Much more to do so. ew communications technol• professional skills, expert training, and a will have to be done if law enforcement is ogy can not only vastly improve police unified approach to the deep-rooted prob• to u e all the . cientific tools at its disposal response to crime; it can give you the oppor• lems of corruption and crime. to help in the never-ending struggle against tunity- backed up by an incredible tore· In the strong image of its founder, the crime. house of information at your fingertip - to ational Academy has grown steadily in I am certain that almost every law en• help answer quickly and po itivcly un• prestige, until it is recognized today a forcement officer, in the performance of his founded and irresponsible critici m, to pro• "the West Point of Law Enforcement"• duty, has experienced many frustrating inci• mote improved internal procedures within a most fitting description in view of the dents. All of you here undoubtedly recall many such cases. For the sake of applying each law en forcement agency, and to de• dominant role its graduates have played in the ation's continuing war against it to the computer system, let me give you velop programs that best a sure the safety just two typical case: of the public from the a sa ult of the crime. Like an officer in a rural area who stops a lawless. orne 8 years ago, a professor of law at one of our ea tern universities made this ~peeding out·of- tate car only to learn hour, The e systems of law enforcement com• if not days later, after the speeder has paid munications deserve the widespread support, (Continued on page 22)

10 FBI Law Enforcement Bulleti Policemen

Must Not

Strike r PAUL HARVEY

Mr. Harvey, a noted commen- resultant rioting. A thousand Boston I hurt inside when conscientious tator and journalist, granted per- policemen who had committed "the lawmen, forced to use force, are "sus- mission for the Bulletin to print unpardonable crime" were never re­ pended" pending investigation of this recent newscast. We think turned to duty. "brutality." his timely remarks will be of In Pontiac, Mich., in 1966 a police­ I feel for the wives and children e at interest to our readers. man's salary was a thousand dollars when one crooked cop throws an ugly less than the salary of a policeman in shadow over the legions of decent nearby Detroit. They felt discrimi­ ones. nated against. They asked their city But no­they have no right to Today's policeman is a pro. The commission for a raise and the city strike. oldtime caricature of the "dumb cop" commission stalled. Policemen are and must remain has long since been replaced by an So the policemen, indignant, quit. separated from the rest of us by an educated, trained, skilled specialist in Had that "sickness," contagious, obligation that's bigger than all our crime detection and law enforcement. spread elsewhere, it might have re­ grievances. In Pontiac, Mich., on November 2, sulted in a disastrous epidemic. But The rest of us may continue to de- policemen went on strike and a Na­ within hours, sensing the gravity of mand "more payor else." The dis- tion went into shock. the crisis they had created, the police­ pensable rest of us will continue to "Utterly inexcusable!" men of Pontiac­still without a pay demand "more fringe benefits" in a "How dare they leave 80,000 peo­ raise­returned to duty. ceaseless quest for "security." pIe defenseless!" Exactly what are a policeman's Though our pay, our possessions, "Lawmen must not break laws!" "rights"? our daughters, and our lives are "se­ Make no mistake, these did. The This column has consistently cham­ cure" only as long as the policeman is law in Michigan bans strikes by public pioned the interests of policemen on duty. employees so these did not formally through two generations of them. I There is no way we can afford him. call a "strike"; they called in "sick." have never known any policeman who Perhaps we don't even deserve him. The effect was the same. is paid enough for what we expect of This is true of soldiers, too. But This was our Nation's first police him. they don't mutiny, they don't fake strike since 1919, when Boston police­ It grieves me to see dedicated law sickness, and they don't desert. ... men struck for higher pay and Massa­ officers risk their lives to apprehend Because they alone stand guard at chusetts' then­Governor, Calvin Coo­ felons whom the courts or parole the upstairs door of Hell. (CofY)'right Me, had to call out troops to quell boards subsequently set free. 1966, General Features Corp.)

~ nuary 1967 hJ~ ~ J:k­/..­­Ju ~ I !fjf/" c. I ~ : ~ ~cJ-tJJ'~~-d } 'r?~~ ~}~~} 0~~ ~~-<--->'--' r~ t!~)3 . Recently the Omaha Police De• properly supervised, can easily be• struction. In the letter parents are partment completed its 14th annual come a careless attitude which spells specifically urged to have school Preschool Child Traffic Training real danger, especially to a child beginners study the training which is Program with some 3,500 youngsters whose route to and from school takes offered without charge. It is also participating_ One of the first safety him through traffic. We also know stated that if there are other grade• schools for young people in the coun• that children and traffic, unfortu• school children in the home who need try, the Omaha program has been nately, are an explosive combination, a refresher course in traffic safety, highly successful, both in terms of and the naivete of the young and the these, too, are invited. numbers and results. Since the start natural exuberance of childhood are I suppose we are guilty of a little of this program, some 50,000 children the two chief factors leading children "shock strategy" in our invitations, have taken part, and there has been into danger in traffic. ince we use expressions such as "your a favorable reflection in our pedes• In Omaha all children who will be child" or "the child next door" in trian accident picture regarding the going to school for the fir t time are order to get parents' attention, and preschool age level. ent a letter by our police division the e mes ages drive the thought home Most police officers are aware that (via school officials) inviting them in unforgettable fashion. In this the carefree attitude of children, not to participate in the traffic safety in• same letter that reaches the home, p_ 12 FBI Law Enforcement Bulletin ents are told they can have their chil• which they are to participate. Other dren taught traffic safety habits by safety chairmen form car pools and , bringing their children to one of the babysitter groups so that the mothers f e training locations. The letter con• can take the preschoolers to the pro• cludes by stating that since parents grams. Still others will call the par• are morally responsible for what ents the day before the program is held The happens to their children, they should near their schools. Because we have make every effort to insure that the 116 schools in our area, we have chil• children are fully equipped to take dren from about 6 schools at a time care of themselves as pedestrians in coming to each location. If a child heavy automobile traffic. is unable to attend the area assigned Talking for his school, the parent are free to Purpose of School attend any other one they choose. This Preschool Child Traffic Train• The program is scheduled so that ing Program has five parts, and four '" Traffic instruction takes place in June, run• uniformed police officers, assigned full ning for a period of 2 weeks, at some time to safety education, serve as in· 20 separate locations. The purpose structors. When the children arrive of the program is to teach children at the various training locations, they entering school for the first time the are registered by adults who are affili• Light skills and attitudes needed to become ated with parent.teacher and home and good pedestrians, and also how to con• school associations. After registra• duct themselves through traffic to and tion the children are placed in groups f rom school. of 20 without their parents. About 30 to 40 minutes are needed to com• Members of the Omaha, Because it is necessary for the pro· gram to move without a hitch, the plete the course. It is not necessary br., Police Department are for others to wait while one group is ud of their "talking" traffic sponsoring groups have a traffic safety going through the course. It is pos· ight and the valuable aid it gives symposium the preceding January. t This meeting is attended by safety sible to run four groups of about 80 in teaching safety to children in children simultaneously. the department's Preschool Child chairmen, club presidents, school principals, and other interested per• The officer in his first meeting with Traffic Training Program. sons. The program is explained to the children avoids pre achiness. He these people by one of our officers, is aware that youngsters tend to be and each individual is given a copy impulsive and are unpredictable in the of the 2·week program schedule for best of circumstances. As the officer June. At this meeting each school is goes through the course with the chilo dren, he uses every minute of instruc· LT. MICHAEL THOMAS LOFTUS advised as to the number of persons it tion, every act, every word to impress Officer in Charge of Youth Bureau, should have available for assistance Omaha, Nebr., Police Department at each location, and adult assistants upon the children the fact that safety are asked to wear identical headgear. is more than a list of rules to be The PTA at most schools furnishes the memorized and repeated by rote. assistants. Participants are advised The children are gathered into prior to the symposium to secure a list groups of 20 and escorted by one of of the children who will be eligible for the volunteer workers. The program the program. This list is obtained proceeds as follows: from the health chairman and from school registration forms. Exercise No. 1 Many gimmicks are used by the safety chairmen to insure greater at· The volunteer assistant takes her tendance. Some send a card to the group of 20 children to the assigned child in the form of a traffic light, stop location, greets the officer with, "Hello, sign, or patrol boy, with the date on Mr. Policeman," and then introduces

January 1967 13 Above, officer gets acquainted with the children prior to beginning exercises.

Right, group learns how school safety patrols assist in crossing the street.

Below, proper procedure for boarding a bus is part of instruction program. the children to the officer. Following our best instructional aids. A loud• .sis a sort of general assembly, and speaker is mounted on the pole of _ purpose of this exercise is to elim• one of the portable traffic lights, and inate fear and create cooperative at• this is tied into the safety-education titudes. The officer gives a cordial vehicle which is parked out of the greeting and kneels down on one knee children's view and operated by one and asks the little ones to sit around of the officers. him. He proceeds to tell them how The talking traffic light tells the he can be ~f help on their way to and children where traffic lights are us• from school and that he is their friend. ually found in their community, such He picks out one of the more vocal as near schools. in shopping areas, youngsters and holds a short conversa· in the business districts, etc. tion with him by asking a safety rule Some of the remarks coming from or the name of the school where he will the traffic light are : "You are now , be going. The purpose of this is to looking at my red color; this means it have all the children know they can Chief C. Harold Ostler. is not your turn to cross the street," talk with the officer and ask him any or "This is my green color; it is now questions they wish. From this point Exercise No.3 your turn, but before you cross, you on, the officer dominates the conver· must look both ways." The children sation by telling the children what they The children are taught how to are fascinated by the traffic light, and will learn while they are with him. cross streets at unprotected crossings. the messages from the light are long He then asks all the children to stand, The safety education officer, approach• remembered. and he takes one or two of the chil• ing the unprotected crossing, again dren by the hand and leads them to asks the group what they must do Exercise No.5 the first crossing exercise. The as• before they step into the street. The loud and instantaneous response, of sistant follows at the rear of the group Buses are important items in the course, is "Look both ways." They . ing the complete course. life of the child, and each participant are now stopped back of the curb, is taught how to get on, how to get off, Exercise No. 2 and the officer explains to them that and how to ride public transportation this type of crossing is the most dan• The police officer introduces the properly and safely. The bus and gerous because they will have to cross children to the school safety patrol driver used in this safety program many streets without any assistance. officer, and during his introduction he are provided through the courtesy of They now proceed to the curb edge explains what the school patrol does our local transit system. and heads are twisted one way and and why they wear the Sam Browne The uniformed officer, as he ap• then the other to see if the way is clear. belt. The students are further in• proaches the parked bus with his When satisfied that no vehicular traf• structed that school safety patrol of• group, stops at the front door and fic is coming, the children cross within ficers will help them cross the streets talks about the trip they are about to the marked crosswalks. The exercise and that these officers are generally take. The officer instructs the chil• is repeated many times, and different found within two blocks of their dren as to where they should stand children are permitted to lead the ~ schools. The students are then given while waiting for the bus, and insists group across the street, so that it will several crossing tests under the watch• they use the handrail both in getting not be a case of follow-the-Ieader. ful eye of the school safety patrol of• on and off. After boarding the bus, ficer. Prior to the crossing tests, the Exercise No.4 the children are advised to be seated youngsters are told to stop on immediately and are told that putting reaching the curb and look both ways Regular traffic lights are set up at arms, heads, or legs out bus windows to make sure the street is safe. The each training location. Children are is taboo. patrol officer then steps into the street, instructed as to the meaning of traffic The group is now ready for the takes his position, and gives a hand signal light colors and then partici• ride, but only after the children are signal for the children to cross. The pate in actual crossing tests. personally introduced to the busdriver police officer's conversation is constant The talking traffic light as used in by the police officer. The children repetition with continual response the Preschool Child Traffic Training are instructed to go to the busdriver, .mthe group. Program has proved to be one of who is also their friend, if they do ~nuary 1967 15 not remember where they are to get public service by the Parent-Teacher TO COVER UP off, or if they become lost. After a Association, Safety Council, Deanery The vehicle used as a getaway two-block ride, they are returned to Council of Catholic Women, Transit go a~ the starting point, with each child be• Company, community clubs, and the in an armed robbery was given a ing instructed in the use of the device police division of the Department of search. At a glimpse, the car appeared for signaling the bus driver to stop. Public Safety. to be in proper order with the key in When they are ready to leave the bus, The tremendous success of this pro• the ignition. However, upon closer they are reminded again about the gram is due in part to the genuine examination, the ignition was found use of the handrails. After alighting, cooperation of the news media. Our to be neatly hot-wired, and the key they are instructed to wait until the newspapers and radio and television a blank, with all but the last notch bus leaves before they cross the street. stations carried a daily schedule of filed off. The key apparently had the programs, plus many news items been placed there to give the illusion of being the proper key for the car Traffic School Reward on the Preschool Child Traffic Train• ing Program in general. a~ c? av~on7 /.2 After the children have participated J;tit.7 in the program, it is time for gradu• ~ &3-0 -;.qt. . ation. They leave the bus and are escorted by the police officer to a NA GRADUATE HONORED table manned by school safety patrol officers. The safety patrol officers pin a green cross-for-safety badge on each graduate and give him a pepper• mint candy stick. The safety educa• tion officer, in his last moments with the children, thanks them for coming to visit him and for participating in the safety program. The children are truly happy with their accomplish• ment and hurry over to mom or dad to display the safety badge and candy. The program does not end here, how• ever. Mothers immediately take up the question-and-answer system to see what their offspring have learned. The fathers, brothers, and sisters ask the participants what they have learned, and this starts a chain reac• tion quiz on safety. A father called us after the last training session and said that at first he was afraid his little daughter did not get much out of the traffic school. He said he changed his opinion quite hurriedly on the following Sunday when he was out with his family for a ride. He stated he fudged a little bit on a traffic light, and almost im• mediately a tiny voice from the back seat said, "Daddy, you don't go on the yellow light; it's not your turn." This complete program is a com• Mr. U. Santokh Singh, Assistant Commissioner of Police, Ipoh, Perak, Malaysia, was recently awarded the Distinguished Conduct Medal for outstanding service by His Royal Highness the munity effort, and is sponsored as a Sultan of Perak. Mr. Singh is a graduate of the FBI National Academy. e 16 ,t.y W.J 1/)'1/(' (, r A.-e... ti .FBI ~aw EnforcementoBulietill ) ~~Jv ~'7~/,),LeL~)702~~ of the FBI Law Enforcement Bulletin_ Without question codes and ciphers are extremely useful tools to law en• forcement and to mankind in general. Unfortunately, that which can be used A Look at Codes for the welfare of man can in most instances be utilized to his detriment. Such is the case with codes and ci• phers, for the criminal mind has turned them into working instruments and 'Ciphers of crime in his unceasing efforts to th"art the law. The bookmakers, the numbers operators, the madams of houses of prostitution, the prison in• mates, in fact, all types of criminals, employ codes and ciphers as evidenced D own through history man has color codes the resistors and capaci• by the cryptograms and other crypto• found it necessary to communicate in tors and other products he produces. graphic material submitted to the FBI secrecy with his fellow man, particu• To the uninformed these bands or dots Laboratory through the years for larly while conducting affairs of state, of color mean nothing, but to the elec• examination and decryption. espionage, 'war, business, and love. tronics technician these colors in• It is felt, therefore, that a basic stantly tell him everything he ::leeds to Through this ever-present necessity knowledge and understanding of codes know about the part. has evolved the art and science of and ciphers should prove a very valu• secret communications known as able tool to the law enforcement officer cryptology_ That part of cryptology In Law Enforcement in the battle against crime_ The pur• dealing with codes and ciphers is pose of this article is not to make a , led cryptography. Law enforcement officers also have cryptanalyst of the law enforcement their own systems of codes, such as the officer, but to alert him to the recog• Everyday Tool radio "Ten Code" or "Signal Code" nition of codes and ciphers when en• or others_ Under such systems a countered in his work and acquaint The association of codes and "Signal 13" call might bring all mo• him with some of the basic principles ciphers as a tool of the spy has sur• bile units to the aid of an officer in involved in making and breaking rounded cryptography with ari aura distress, or other coded calls, such as them. This article is in no way com• of mystery and intrigue_ When a "10-26," might direct a unit to prehensive_ In fact, it barely lifts the stripped of this "cloak and dagger" return to headquarters. These codes lid on the subject of cryptography_ association, codes and ciphers are become second nature to the police readily recognized as very useful officer and conserve time but have no Code Elemeltts everyday tools, whether they be used meaning to persons unfamiliar with for the primary purpose of secrecy, the system who might be monitoring While the terms "ciphers" and brevity, or economy_ For instance, police frequencies for one reason or "codes" are frequently used inter• the merchant uses a code in marking another. Another example of a law changeably, they have a fundamental his price tags to record when he pur• enforcement code is the one used in difference which can best be demon• chased the item, its cost to him, and the classification of fingerprints. strated by examples. In the police his markup. A door manufacturer Some departments have established "Ten Code" mentioned above, we might code one of his products as their own codes as a kind of shorthand have an excellent example of a code_ Model R 7832, meaning that particu• for report writing and maintenance of The call "10-15" means "Prisoner is lar door is 78 inches high by 32 inches records. An excellent example is the in custody," and a "10-7" means wide and has a right swing_ The coding system for sex offenders dis• "Unit is going out of service." Here, jeweler scratches his own mark on the cussed in an article captioned "The the signal represents a command, an watches he repairs. The laundry Morals Squad," by William M_ Lom• instruction, or a reply regardless of uses laundry marks to identify clothes. bard, Chief of Police, Rochester, N.Y., the length of the command, or instruc• ~ e electronic parts manufacturer which appeared in the July 1965 issue tion, or reply-the point being that in

. nuary 1967 17 codes there is no relationship between element of plain text, there is a cor• The cipher message 19051 40413 code elements (digits in the above ex• responding element of cipher text. 15140 52500 sent in her system A amples) and the length of the message Let us look at the historic and classic deciphered as "SE D MONEY." _ the code element represents. Funda• Julius Caesar's Cipher in which each Other criminals have used similar mentally then, in codes, elements, such letter of the alphabet is shifted three systems but have been a little more as letters, numbers, symbols, words, places to the right to obtain its cipher sophisticated in randomly assigning electrical impulses, sounds, lights, sig• equivalent in this manner: numerical equivalents to the plaintext nals, etc., are used to represent a whole letters, such as A = 22, B= 16, C=11 Plaintext alphabet: word, a phrase, a sentence, even sev• ABCDEFGHIJKLM ... 2=09. eral sentences or, in fact, whole NOPQRSTUVWXYZ messages. Cipher alphabet: Transposition Cipher DEFGHIJKLMNOP QRSTUVWXYZABC Commercial Codes In a transposition cipher the Using this cipher to encipher the letters remain the same as in the Codes must be worked out by the the message "Have you completed plain text but are shufHed or dis• correspondents in advance and must the tunnel?" and arranging the cipher arranged from their natural order be memorized as in the case of the text in groups of five, as is traditional, aocording to a prearranged pattern law enforcement officer's "Ten Code." would result in the following en• worked out between the correspond• If the code is too long to memorize, ciphered message: KDYHB RXFRP ents. In other words, the individual it must be recorded in some manner, SOHWH GWKHW XQQHO. letters in the plain text retain their such as in a codebook. A good exam• This is a true cipher, and most identity in the enciphered message but ple of a codebook is the many tele• have a new order or arrangement. graphic codebooks available on Lhe ciphers encountered in law enforce• ment work fall into the general cate• For example, the message "PSOUL commercial market today. It is inter• OITCE ESAIR WE" can be read gories of transposition ciphers and esting to note that such commercial "Police are wise to us" if read by substitution ciphers or combinations codes were devised largely as an skipping every other letter readi.1 of the two. economy measure to reduce cable and across the page and back again .• Teletype costs by reducing the overall For another example of transposI• message length and not as a security Substitution Cipher tion, let us arrange the message "The measure. From such a commercial jail break is tonight at seven. Get In a substitution cipher the letters codebook, the code group "AJMDK" ready." as follows: might represent the entire sentence of the plain text are replaced by "Cotton prices in London are firm other letters, figures, or symbol but THE J A I L B REA K 1ST 0 N I G H TAT S today" and could be transmitted at do not change their relative po i• EVE N GET REA D Y the cost of the basic rate for one word tions. The previously mentioned ow let us strip off vertically as rather than at the cost for seven words. Julius Caesar's Cipher is a good columns from right to left the three• Obviously, the security of code mes• example of a substitution cipher. One letter groups thus formed and re• sages in secret communications can such simple substitution cipher was be no better than the physical security arranged horizontally in groups of employed by a female prison inmate afforded the key to the code itself. five letters. The enciphered message in the Midwest in corresponding with Codes can be broken cryptanalyti• would then read as follows with" 's" her contacts on the out ide. She sub• cally, but if the code elements are ran• thrown in to round out the la t group: domly selected, the breaking of a code stituted numbers for letters in direct KYAT DEAAR TEBHR LGTII can present a real challenge to the a cending order: A = 01, B= 02, ... EA TGJ 0 ETE HSVTI EXXXX. cryptanal yst. 2 = 26. Her entire cipher was as fol• Transposition ciphers can be de• lows: vised which are extremely complex Cipher Text

The cryptographic submissions re• Plain text: ABCDEFGIII J KLM ceived by the FBI Laboratory from Cipher text: 01 02 03 04 05 06 07 08 09 10 II 12 13 other law enforcement agencies are Plain text: OPQRST VWXY2 largely ciphers. In ciphers, for each Cipher text: 14 15 16 17 18 19 20 21 22 23 24 25 26 ------18 FB I law Enforcement B and complicated and are limited only TOW a word about deciphering tenacity, patience, and dexterity, the _ the ingenuity of man. cryptograms without prior knowledge solution is usually forthcoming. of the keys. When they are attacked Letter Combinations Crosshatch Design with the proper skill and tools, the breaking of codes and ciphers quite The cryptanalyst has other valuable Another substitution cipher which frequently is not the insurmountable tools. For example, there are two- is a classic in the field and which on task it superficially appears to be. letter and three­letter combinations occasions has been employed by crimi- Upon reflection we realize that certain which appear more frequently in the • nals is a cipher based upon a cross- letters in the English alphabet are English language than other such com- hatch design as follows: used more frequently than other let· binations. This is generally true for ters. Let us look at a frequency other languages as well. We call count of 2,000 letters of English plain- these digraphs and trigraphs. Some ABC DEF GHI text compiled by counting the indi- common digraphs are "th," "er," vidual letters from text randomly "on," "an," "re," "ed," "of," and JKL MNO PQR selected from a previous issue of the "or." Some common trigraphs are FBI Law Enforcement Bulletin. The "the," "and," "tha," "ent," "ing," and STU VWX YZ result is set forth below: "ion." We also have some double letters called doublets, such as "ee," E=273 H=83 G=35 "tt," "00," "mm," and "ss," which The first letter in the three letter T=176 C=73 W=24 appear frequently, and others, such as plaintext groups is represented by 0=162 D=67 V=21 "aa," "gg," and "zz," which appear that part of the design which R=143 M=64 X=6 less frequently. surrounds it or is immediately 1=140 F=61 J =3 In addition, certain ratios exist be- adjacent to it. Thus A= ~, D= U, A=137 U=59 K=2 tween the number of consonants and G=L, ... Y=I. If the plain- =135 P=47 Q= 1 vowels which appear in plain text. If text letter occupies the second posi- S=117 Y=46 2 = 1 this ratio holds in a cryptogram, this . ' a dot is placed in the appro- L=86 B=38 . te symbol. Thus B= ~, E= L:J, is one indication that the cipher is H=~, ... Z=I­. If the plain- From the above frequency count, probably one of transposition, since a text letter occupies the third posi- we see that we tend to overwork the rearrangement of the original letters tion, two dots are placed in the letters "e," "t," and "0," for example, in transposition would not alter the symbol. Thus C= ::.J, F= l::J, 1= ~, and very seldom use the letters "j," ratio. Also languages and language .. . X=R. "k," "q," and "z." families have their own characteris- The message "Get me a lawyer" The cryptanalyst has at his disposal tics. For instance, the letters "k" and expressed in this cipher would similar frequency tables which reflect "w" normally do not appear in Span- appear as L l.:J ­=l 0 L:J ~ :::1 how many times one would expect to ish, Portuguese, or Italian except in ~ 1­11 L:J E, a very weird­looking find any letter of the alphabet in, for foreign names. In a number of lan- cipher indeed. example, 10,000 letters of English guages the letter "q" is usually fol- literary text, Teletype text, or business lowed by a "u." In the July, August, and Septem. text, etc. By making a frequency It is readily seen that when all of l ber, 1962, issues of the FBI Law En- count of the elements in a simple sub· this information concerning a par- I forcement Bulletin, there appeared a stitution cipher under examination, ticular language is compiled into one series of three detailed articles cap· the cryptanalyst is able to quickly de- set of tables, the cryptanalyst has an tioned "FBI Cryptanalysts Decipher termine which elements are used the invaluable tool for the solution of ci- 'Bookie' Codes and Ciphers" which most and in what proportion. By phers prepared in that language. will not be discussed again here. comparing his findings with the nor- Using the proper tables, it is actually Bookmakers still remain the most pro· mal expected from the frequency possible for the cryptanalyst to deci- lific users of encrypted intelligence in tables, the cryptanalyst is able to de- pher a cryptogram in a foreign lan- the criminal field in carrying on the termine which elements of the cipher guage without the cryptanalyst's recording of illegal betting activities text represent the high frequency let- knowing how to speak or read the for- associated with numbers pools and ters, which represent the middle fre- eign language involved. sporting events, such as horseracing, quency letters, and which represent Not all cryptographic material sub- I _ racing, and baseball. the low frequency letters. With skill, mitted to the FBI Laboratory by law

January 1967 19 enforcement agencies involves crim• enters a Jewish home. The case is EMERGENCY TELEPHONES inal codes or ciphers. One of the generally of wood or metal, but other items submitted with some degree of materials may be used. The parch• (Continued from page 5) e frequency by law enforcement agen• ment is inscribed in Hebrew consist• made in the next 4 months will lower cies is a small leather-bound booklet ing of verses 4 through 9 of the 6th the cost per call paid by the State dur• which is written in alphabetic code chapter of Deuteronomy and verses 13 ing the first year of the program. and proves to be the mnemonic code through 21 of the 11th chapter, the The intangible value of lives saved and for certain fraternal organization first of these containing the proclama• injuries to persons and property pre• rituals. tion of the faith. vented cannot be given a dollar value. With some degree of frequency, Another item is the phylactery, The caliber of services rendered by the well-meaning amateur and pseudo• which is the term applied to each of New York State Police and agencies cryptographers, who are motivated by the two hollow cubes containing strips of the State's government strengthen patriotism or thoughts of monetary of parchment inscribed in Hebrew the leadership of New York in pro• gain, submit their "unbreakable" worn by the devout Jewish male dur• moting better and safer highways codes and ciphers to the FBI Labora• ing the morning services, except on serviced by skilled public servants. tory. the Sabbath and Jewish festivals, sym• In general, the administration of bolic reminder to the devout of the NETS has proved to be an easy func• Religious Symbols existence of God. This can be com• tion. Daily logs and monthly activity pared to the custom of some Christian are self-explanatory, thus facilitating Also, on occasion the FBI Labora• churches of wearing a cross on a chain their rapid completion. Pertinent tory receives for examination and around the neck or on a watch chain. base data can be readily extracted for identification from local law enforce• Similar outward signs are common special studies involving low and peak ment agencies certain articles which, among the religions of the world. points of use by location, time of day, because of their general appearance Both the mezuzah and the phylac• type of services requested, most fre• and foreign language text encased tery may be plain and functional in quent causes for disablement of the therein, are not recognized by the sub• design or may be very ornately and vehicles, road conditions requiring mitting agency and arouse curiosity. expertly executed in some of the finest immediate correction, and other si. While superficially resembling crypto• examples of wood, leather, and metal lar categories. This data will be III graphic material, these items are in craftsmanship. fully discussed at the completion of a no way connected with codes and ci• If pertinent to an investigation, law full year of operation of the system. phers but are revered and sacred reli• enforcement officers should resolve For example, the most calls received gious articles. They are included any doubts arising from material sus• on the system come from box 134 here to acquaint law enforcement offi• pected of being cryptographic in na• (55 calls) and the least number of cers with their existence and true pur• ture by submitting the material to the calls from box 383 (1 call). Pecu• pose. FBI Laboratory for examination, as liarities of the location may be the One of the items is known as a the solution of a criminal cipher or reason for this wide variance. Fur• mezuzah. Mezuzah is a Hebrew word code can furnish valuable investiga• ther detailed study will answer this. literally meaning "doorpost" and is tive leads and on frequent occasions The least active day of the week is the encased scroll of parchment which lead to the solution of a case and suc• Tuesday (397 calls), the most active may be located on a doorpost as one cessful prosecution. days on the system are Fridays (595 calls), Saturdays (595 calls), and Sundays (560 calls). Tabulations of number of calls by hour of the day show 8 p.m. to be the busiest (263 A BIKINI WON'T DO group of individuals used a "pouch" calls), while the activity on the net• of clear plastic sewn inside a bathing work slows to a low point of 40 calls Owners of supermarkets in a west• suit as a depository for a flat, expen• at 5 a.m. At this point these trends ern beach resort town were plagued sive cut of beef. appear to be consistent with the nor• by the los of hundreds of dollars When arrested, the thieves explained mal traffic patterns and habits of the worth of expensive cuts of meats from that they figured no one would suspect traveling public. As expected, the their stores. After extensive investi• a person clad in a bathing suit of shop• most calls were received from the gation, authorities discovered that a lifting. rural sections between the larger coe tJ~, ~.zi 20 J t/L . 1/:1.1/(.'-. ~ ':) -1;).Q b - ;.G. . FBI Law En forcement Bulleti n munities. The State Police Loudon- police station in Loudonville nor with funds; but here too, satisfactory ar- control section nearest to Albany the desk troopers at the stations in rangements have been made between • ived 910 calls, State Police South Saratoga and South Glens Falls. For- the service operators and the patron, Glens Falls had 1,023 calls, whereas tunately, the power blackout in the and no police action was necessary. State Police Malta had the greatest Northeastern States in the fall of 1965 The success of the NETS concept number of 1,525. Malta services the occurred during the installation of so far has generated considerations Saratoga area where summertime rac- NETS. Since then emergency 10 kw. for extending the system to the orth- ing and the performing arts center generators have been installed in State ern section of the Northway, now draw heavy traffic, particularly in the police installations not previously so open, and ultimately to the center sec- evening hours. equipped. The system normally op- tion when construction is completed. For the first 8 months, analysis of erates on line power; however, it can The lew York State Police will then daily logs reflect the type of vehicles now be supported should another gen- police and operate the orthway involved in calls on NETS as follows: eral power failure develop. Emergency Communications System Automobiles ______2,225 from Albany to the Canadian border. Trucks ______617 Bilingual Service In the future it is not inconceivable Motorcycles ______15 that similar emergency communica- Buses ______17 The initial experience in operating tions systems will bring the same ad- Other vehicles ______14 the system has also provided oppor- vantages to new as well as to other now Vehicles unknown ______570 tunities to improve the service. In- unserviced interstate limited access structions on the cover of the box in highways in New York as NETS has During the remainder of the first future installations will be stated in given to the Northway. year of the operating experiment, ad- French, and instructions both in Eng- ditional improvement.. in reporting lish and in French will be repeated will further narrow the identification on the inside cover of the box. The of the type of vehicle. Northway is a major link with neigh- boring French­speaking Quebec, and PROBABLE CAUSE e uests Made the vast numbers of French­speaking Two young men driving through a Canadians who use the Northway will midwestern city early one morning Of 3,458 calls received, 79 percent appreciate the consideration accorded hit a wet spot in the pavement and involved service for gas (681), tires them. rammed into a bus traveling on the (640) , batteries (65), mechanical The emergency services available highway. No one was injured and problems (1,151), and other types of to orthway motorists include: Fire little damage was done, but beneath a service (191). During the same re- vehicles, ambulances, large and small smashed front fender of the car pro- porting period 13 percent of the calls towing services, as well as gasoline truded an orange­colored package. received involved either motor vehicle and tire services. Most proprietors Police officers who investigated the accidents (183), ambulances (9), fire of these services willingly agreed to accident had just finished a school on (53), reports of a violation (34), be on 24­hour standby call, and others lawful searches and seizures. They hazardous conditions­for Depart- are available on a limited basis. later reported, "We didn't search the ment of Public Works to act upon- Patrons do not necessarily have to car, didn't even talk to the suspects (31), wrong­way drivers (26) , ether use one (If the present listine;s for serv- about the package until Federal au- police action (111), accident and am- ice. When a patron states a prefer- thorities arrived with a search war- bulance reque.sts (12), or accidents ence for a particular proprietor, the rant. We let the car sit right there in with violation (2). The remainder of dispatcher makes every reasonable the street." the calls were for directional informa- effort to obtain thal service. Fees Federal narcotics officers conducted tion, location of services, test calls, no charged by service operators for la- a legal search on probable cause and answer calls from the curious or bor and parts are not the responsi- located 99 I­pound packages of mari- pranksters, and calls for other miscel- bility of the State police. It is huana concealed throughout the car. laneous reasons. gratifying to note an absence of com- The marihuana was later reported as Experience so far ha .. proved that plaints concerning the fees charged having a recovery value estimated at monitoring the system does not unrea- or the quality of services performed. $150,000. sonably interfere with the normal There have been isolated instances The two men were held for Federal .sof the dispatcher at the State when a patron has been short of prosecution. O~~ January 1967 ; ­ 0 21 (!/IP?~ .J ?J j;1./(. f..) ~ ~,,~ -4~96 ­ .35"". NA GRADUATION

(Continued from page 10)

observation: "We too often forget that criminals are at war with society. Our armed forces are heroes, but policeman is a dirty word. We overlook the times when the police and military forces simultane· ously fight the same enemy." What is that enemy? It is a force awesome in number, at home and abroad, that would circumvent, undermine, and destroy the great ideals that America rep• resents-the ideals of justice, equality, and liberty under law. William Penn commented nearly 300 years ago: "Any government is free to the people under it (whatever be the frame) where the laws rule and the people are a party to those laws. . . . Liberty without obedience is confusion, and obedience with• out liberty is slavery." Lt. Abraham H. Waiamau, Kauai Pol ice Department, lihue, Kauai, Hawaii, receives his diploma from Assistant Attorney General Edwin L. Weisl, J r. "Obedience without liberty"-these words very aptly describe life as it exists behind the Iron and Bamboo Curtains of Europe mine which laws he will obey and if tech· by any character-or mob·-which happens and Asia; or the type of regime which niques of coercion supplant due process:' to take offense at a particular law. Castro has inflicted upon the island nation A former Justice of the Supreme Court More than 2,000 years ago, one of the of Cuba; or the fate which Hanoi and the urges that in a government of law no man wisest of the ancient Greek philosophers Vietcong would bestow upon the freedom• or group of men can be permitted to defy made the penetrating observation, "Man loving people of South Vietnam. the law "for that is anarchy, which always perfected by society is the best of all..&. "Liberty without obedience"-this poses results in chaos." mals; he is the most terrible of all wh_ one of the most perplexing dilemmas in And speaking from experience garnered lives without law, and ,vithout justice. America today, and no one is more aware from a 49·year career in Federal lawen• As crime continues its steady upward of this fact than you members of the law forcement, J. Edgar Hoover has observed, climb, as more and more citizens confess a enforcement profession who are called into and I quote: "... a peaceful, healthy, or· fear to walk the streets at night, as permis• action whenever liberty gives way to license derly society cannot exist, now or ever, if sive court decisions and penal leniency con• and the flames of disobedience begin to each indiVidual may determine which laws tinue to favor the criminal at the expense spread. he is going to obey and which he is not. of his victims, an important crossroad is fast "Liberty without obedience" has asserted . . . Civil disobedience and the unwilling. being approached in America. Our citizens itself across the United tate under many ness of many to re olve their differences by mu t make a choice. Will they continue to pretexts and guises. In California, we have established legal means will surely lead to condone civic apathy and tolerate attacks seen it parade beneath the counterfeit ban• the destruction of the institutions which pro• upon our traditional concepts of decency, ner of a so·caIled "Free Speech Movement." tect their freedom ." respectability, and justice? In other area and on other occasions, it And I would point out that the last sen· I believe there are signs to the contrary• has posed as a "champion" of peace, social tence refer to the freedom even of the signs that the American people are finaIly justice, civil liberties. civilly disobedient. awakening to the fact that their land is Among those most learned and experi• The doctrine of civil disobedience gath. being turned into a jungle by the forces of enced in America's honored system of gov• ers much of its support among the bigots, the subversive, the criminal, and the morally ernment hy law, there is deep concern today the fanatics, the extremists, the emotion• corrupt. I believe the average citizen has over the binge of "civil disobedience" which aIly unstable, and immature. To these op· had his fiIl of demagogues grown too arro· has come to serve as a justification for de• portunists, America is a land where rights gant and pressure groups too demanding. I liherate violations of law. can exist without responsibilities- where believe a new day is dawning across our Last year, the then President of the the obligations of citizenship can legiti· Nation in which it will come to be known American Bar A ociation, chief spokes• mately be ignored or even arrogantly defied. again that liberty without discipline is no man of our legal profession, ternly warned: Contrast their attitude with that of the liberty at all, and that only by surrendering "However succes ful the techniques of dis• dedicated police officer who is, at one and that tiny fraction of his personal freedom obedience and coercion may be in the short the same time, enforcer of the law; guard• neces ary to maintaining the integrity of run and whatever the justification, they ian of public safety; friend of the sick and society can man himself ever be free. And are self·defeating and imperil individual the confused; protector of the innocent; each of you ational Academy men, to· freedom in the long run. An ordered so. nemesis of the criminal; and target for gether with the departments you serve, is ciety cannot exist if every man may deter• insult, ridicule, and even physical abuse better prepared for the coming of thae

22 FBI Law Enforcement Bulletin by virtue of the expert training and skills W. Frank Dyson, Dallas, Tex., Police De- William R. Hanlon, Medford, Mass., Police A ch the FBI has helped you to attain. partment. Department. _ recall an old saying from my childhood: Francis Marion Eddings, U.S. Marine Corps. R. L. S. Hendrickson, U.S. Air Force. "It's not what you know that matters; it's James S. Edwards, Meridian, Miss., Police Lawrence A. Hoffman, Jr., Department of what you do with what you know." Department. Police, Town of Tonawanda, N.Y. Members of the 78th Session, during the Robert . Fadzen, Bureau of Police, Pitts· Meredith Marc Irvin, Scott County Sheriff's past 12 weeks your heads have been filled burgh, Pa. Office, Davenport, Iowa. with the latest professional techniques of Archie L. Finagin, U.S. Park Police, Wash- Richard Jackson, Pensacola, Fla., Police police administration and investigative pro- ington, D.C. Department. cedures. Today, as you complete this course Richard E. Foutz, Pennsylvania Department Ghanbar Jahantab, General Police Admin· and return to your homes, I urge that you of Justice, Harrisburg, Pa. istration of Iran, Tehran, Iran. take with you not only the knowledge you Neil Fox, Billings, Mont., Police Depart- Floyd J. Jones, San Bernardino County have acquired, !Jut also a strong determina- ment. Sheriff's Department, San Bernardino, tion to apply that knowledge in strengthen. Eugene B. Gamble, Akron, Ohio, Police Calif. ing the cause of law and order throughout Department. Kenneth E. Joseph, Federal Bureau of the land. Good day. John A. Garnand, Durango, Colo., Police ­Investigation. . The members of the 78th graduat- Department. Warren H. Kanagy, San Diego County Sher- Salem Mohamed Gataa, National Guard, iff's Department, San Diego, Calif. ing class of the FBI National Acad- Tunis, Tunisia. John L. Keenan, New York, N.Y., Police emyare: Donald S. Genung, Pinellas County Sheriff's Department. John R. Affeldt, Bureau of Police, Bingham- Department, Clearwater, Fla. Richard P. King, White House Police, ton, N.Y. Shahrokh Ghodoussi, General Police Ad· Washington, D.C. Billy J. Anderson, Oklahoma City, Okla., ministration of Iran, Tehran, Iran. John F. Kreckler, Boston., Mass., Police Police Department. Donald Goettel, Westfield, N.J., Police Department. Ray L. Anderson, Jackson County Sheriff's Department. Billie D. Lamkin, Division of Police, Louis- Department, Edna, Tex. Don A. Golding, Maricopa County Sheriff's ville, Ky. Ang Thian Sang, Royal Malaysia Police, Office, Phoenix, Ariz. Eugene H. Lant, District Attorney's Office, Kuala Lumpur, Malaysia. David R. Gonzales, Santa Fe, N. Mex., Sacramento, Calif. William T. Bagron, Juneau, Alaska, Police Police Department. Carl J. Lechner, Florissant, Mo., Police Department. Thomas O. Gooch, Creve Coeur, Mo., Police Department. ·ver R. Bailey, San Joaquin County Department. Eduardo G. Lemi, National Bureau of In- heriff's Office, Stockton, Calif. Ray B. Gubser, Jr., Clark County Sheriff's vestigation, Manila, Philippines. t omas M. Betts, Department of Public Department, Las Vegas, Nev. Larry E. Lunnen, Orem, Utah, Police De· Safety, Tallahassee, Fla. Russell J. Hebert, Louisiana State Police. partment. Alexander H. Boeder, Jr., Whitefish Bay, Wis., Police Department. James H. Brewster, Federal Bureau of Investigation. Raymond W. Brisnehan, Westminster, Colo., Police Department. Lawrence Donald Burrell, Rock Hill, S.C., Police Department. Donald Butler, Mississippi Highway Safety Patrol. Robert R. Caldwell, Metropolitan Police Department, Washington, D. C. Raymond Louis Carroll, Seattle, Wash., Police Department. Eugene S. Cavenaugh, Redondo Beach, Calif., Police Department. Peter G. Connell, New Milford, N.J., Police Department. Richard D. Coomer, Latah County Sheriff's Office, Moscow, Idaho. Bernard P. DeMember, Elmira, N.Y., Police Department. Henry A. Dougherty, Benton County Sher- iff's Department, Corvallis, Oreg. Edgar C. Duke, Raleigh, N.C., Police De- partment. Paul J. Dumas, Jr., Montgomery, Ala., Police _ epartment. Capt. William V. Mosher, Illinois State Highway Police, Springfleld, III., the S,OOOth graduate of the FBI National Academy, is shown following graduation exercises with Director Hoover.

January 1967 23 John H. Sangster, Jr., Lakeland, Fla., Police THE SHOW MUST GOa Department. Donald A. Schlitz, Durham, N.C., Police BUT NOT ON _ Department. Billy 1. Sherrard, Kentucky State Police. Police had reliable information that Garland 1. Smith, North Little Rock, Ark., an establishment in their city was Polico Department. showing obscene film on a "peek Robert G. Smith, Oak Ridge, Tenn., Police show" movie machine. For a quarter Department. Victor H. Smith, Jr., Flint, Mich., Police the machine showed a certain amount Department. of film footage, and for another quar- Milton C. Snell, Beaumont, Tex., Police ter an additional length of film could Department. be viewed. Victor E. Solis, Jr., Webb County Sheriff's A visit to the fun house by members Department, Laredo, Tex. Frank A. Spallina, Indianapolis, Ind., Police of the vice squad resulted only in their Department. viewing movies of the "art" type, George A. Strong, Federal Bureau of In· nothing obscene. vestigation. It was learned, however, that some Franklin Woodrow Taylor, Greenville, S.c., of the machines had two projectors. Police Department. Vivian M. Thomas, Gladstone, Mo., Police One of the projectors showed obscene Mr. Donald S. Genung. Department. film; the other ran film of the art va- Jonathan Shock Van Horn, U.S. Army. riety. When police or suspected law John W. McCarthy, ew York State Police. Rodney N. Vandiveer, Shelby County Sher· enforcement authorities entered, the Thomas C. McGahee, Athens, Ga., Police iff'n Department, Memphis, Tenn. manager or proprietor would switch Department. Antonio Vazquez Rodriguez, Police of Alvin D. McLean, New Hope, Minn., Police Puerto Rico, San Juan, P.R. off the projector with the obscene Department. Thomas E. Veditz, Maryland State Police. film and turn on only the one project- Milton S. Magee, Mississippi Highway Philibert 1. Vierra, Maui Police Depart· ing the art film. Safety Patrol. ment, Wailuku, Maui, Hawaii. A raid of the place resulted in the Manuel de 1. Marrero, Police of Puerto Abraham H. Waiarnau, Kauai Police De· indictment of the owner and a pA Rico, San Juan, P.R. partment, Lihue, Kauai, Hawaii. cha r~ Delano Bill Mathis, Belle Glade, Fla., Police James E. Weaver, Savannah, Ga., Police time manager. They were Department. Department. with the possession and exhibiting of Raymond C. Meador, San Angelo, Tex., John Charles Wenk, Muskegon, Mich., obscene movies. Thirty­five reels of Police Department. Police Department. film were confiscated. cl~ Cecil L. Melvin, Indiana State Police. J. C. Williams, Jefferson County Sheriff's &tM~ / {tif/pt, ~ Donald Carroll Messer, South Portland, Department, Birmingham, Ala. d ~-4Jqb Maine, Police Department. Michael A. Wood, Atchison, Kans., Police .)7. William V. Mosher, Illinois State Highway Department. Police. Charles E. Wright, Atlanta, Ga., Police DUE PUNISHMENT Hubert Nash, Lynchburg, Va., Police Department. Department. Seth Rigby Wright, San Juan County Sher· A city judge in England is taking Antonio Piqueras del Rey, Cuerpo General iff's Office, Monticello, Utah. de Polieia, Madrid, Spain. Domenic A. Zacchio, Wethersfield, Conn., steps to make the sentences he hand·s Donald E. Porter, Oakwood, Ohio, Police Police Department. out fit the crimes by finding out first Department. Juan Zamora Moreno, Cuerpo General de how much harm has come to the Bernard M. Prais, Lake Forest, TIl., Police Policia, Madrid, Spain. victim. Department. Bill S. Price, Memphis, Tenn., Police De· He has asked the city probation partment. service to supply him with reports on Fred W. Prussing, U.S. Forest Service. the victims of crimes, since this infor- Emil Reiprecht, Baton Rouge, La., Police NONE BUT THE BLIND mation was lacking in cases when the Department. criminal pleaded guilty and the vic- Chester C. Rollins, Aberdeen, S. Dak., Police Department. Local ordinances of the city of tim never gave evidence. He stated Wallace D. Rossall, Carlsbad, Calif., Police Cincinnati, Ohio, contain a statute that in a serious crime where the vic- Department. making it illegal for anyone other than tim has suffered extensively, these cir- Andrew L. Rutherford, Williamsburg, Va., a blind person to use a white cane. cumstances would certainiy be taken Police Department. Robert F. Sandie, assau County Police The penalty for such a violation is a into consideration in the sentence he Department, Mineola, N.Y. $25 fine. handed out. ct,oW">u J;t.(...;,/ ~~ ~ J..j/~'5'/{,(,/ ~=tfb3 - "2 24 1/J-b/~ ~ I ~p G3-V;C;6-fO . FBI Law Enforcement Bulletin Police Management

Recruitment and Selection of Personnel

Selection Procedures~~

The importance of sound apd work- tainly our profession has no room in ade are too numerous and compli- able selection procedures for process- its ranks for the dull, the uneducated, cated to justify the risk of hiring ing law enforcement applicants is a the emotionally unstable, the crimi- people whose response to the prob- matter which cannot be overstressed. nally inclined, and the loafer. Prop- lems of our society appears doubtful. Only a small percentage of applicants erly designed selection procedures, There should be an orderly process will receive appointments, and in some carried out in a reasonable manner, in selection procedures, and appli- jurisdictions this is less than 5 per- will keep these undesirables out of uni- cants should progress from one stage cent_ The majority must be elim- form and will not reduce the present to another during the screening in inated during the selection process, high quality of law enforcement per- accordance with a preconceived plan. and the task is to insure that the un- sonnel in this country. To keep the expenditure of time and qualified, the misfits, and the mar- Some persons appear well qualified expense at a minimum, the lawen- ginal individuals who will never make "on paper" but should be denied forcement agency should first insti- topnotch officers do not enter the entrance to the profession of law tute those procedures which are ~ ice service. enforcement after all the facts are simple, relatively inexpensive, and . n some cities the selection process known. All doubts in selection which will eliminate a substantial is handled entirely by the law enforce- should be resolved in favor of the number of applicants early during ment agency, and in other areas this department, for it is better to be the screening process. The most function is performed by a civil serv- slightly undermanned than to operate costly and time­consuming procedures ice commission or central personnel at full strength with men who do not should be performed near the end of agency_ Many police officials have have the ability to function as police the selection process. found that effective liaison with a civil officers in these changing times. The The usual first step in the selection service commission (when the police problems facing the police in this dec- stage is reviewing the application executive makes known the type of personnel needed for police duties) can result in the central personnel agency's setting up standards and screening procedures which will pro- "Selection of personnel is a primary key to effective operation duce the type of employees necessary in any organization. We feel that our personnel do not work for law enforcement duties. for the FBI, but rather we consider that they are the FBI. Our While they may encounter problems recruitment and selection program is, therefore, calculated to in setting up mutually satisfactory ar- enlist employees of fine quality­men and women who have a rangements, in the final analysis, the capacity for growth. The Agent applicant in particular must law enforcement agency and the civil meet rigid physical and educational requirements; he must have service commission should each have a real interest in a career of service, and his private life must the same objectives­attracting the withstand the closest scrutiny." best qualified to submit applications ­J. Edgar Hoover and then selecting only the best for entrance into the police service. eer-

_ hiS is the fourth and last of a series of articles on .,itment and selection of personnel.

January 1967 25 forms to determine if the applicants the fingerprint files of the employing applicants successfully pass the test, meet the basic qualifications or stand• agency at the time the background examination scores provide a mea ards set by the department. This is investigation is instituted. There is of listing candidates in the order. a sound first step and will help elimi• no point in further processing an ap• their grades to formulate an eligibility nate the wasting of valuable time plicant with a disqualifying criminal list. and effort in processing applicants record or one who has deliberately Written examinations should be ad• who do not meet these minimum left out pertinent arrest data from his ministered in a well-lighted and ven• requirements_ application. In some cases where tilated room. As a precaution, the Experience has shown that no mat• minor discrepancies occur, it is ad• tests should be proctored. School• ter how well a law enforcement visable to interview the applicant to rooms, auditoriums, gymnasiums, and agency publicizes its standards during determine if omissions were deliberate armories are frequently used for hold• recruiting, there are always some peo• or caused by inadvertence. ing the s e examinations. The r e ple who submit application forms should be no distractions during the even though they do not possess the Written Examinations examination, and only authorized per• basic qualifications for the position_ sonnel should be permitted to enter One author has described the Since written examinations can be the area where the examination is application form as the "bridge" given to a large number of applicants being held. between recruitment and selection_ at one sitting with a minimum of time Written examinations or tests The detailed review of this form is and expense, this procedure should should be considered only as admin• normally the first opportunity police be held during the initial stages of istrative aids during the selection management has to weed out the ob• the selection process. Written exam• process, and an eligibility list should viously unqualified_ inations should be designed to test not be made up solely on the basis of A simple, comprehensive, and well• the individual's general intelligence, written examination scores. Grades designed application form covering as well as his potential and aptitude achieved by the candidate in the var• the entire life of the applicant is an for law enforcement work. In the ious selection steps should be used in important step in guaranteeing that past some examinations were de• arriving at an overall evaluation or pertinent information will be avail• signed to test the applicant's knowl• a composite grade for the applic. able during the various stages of the edge of local law and geography. Much research is necessary for seleotion process_ The application However, since police officials realize proper preparation and administra• form can be used for information pur• that an alert and intelligent trainee tion of written examinations. An poses during the oral screening, and can rapidly as imilate the e matters attempt should be made to validate it is also extremely helpful in conduct• during recruit training, this practice these examinations to determine if is seldom used at the present time. they are actually mea uring the attri• ing a proper background investiga• Designing and validating written butes needed in the police service. tion_ The FBI uses a detailed appli• examinations are most difficult. Un• When a patrolman is dismissed during cation form that requests information less qualified personnel are assigned his probationary period, a police exec• in almost 50 different categories. to the law enforcement agency, the utive should check the grades re• police executive should secure profes• ceived by this officer on the written Criminal and Fingerprint Checks sional advice from a central personnel examination. If a number of men re• ceiving high grades on the written Immediately after the review of the agency or a company or association examinations were dismissed because application form, or in conjunction which prepares tests of this type. of failure to assimilate in tructions The subject of testing is a rather with thi review, name checks of given during the police academy or controversial one, and there has been agency file should be made to elimi• becau e of poor job performance, nate those person who have disquali• much criticism of efforts to evaluate serious questions ari e a to whether fying criminal records but have not people through written examinations. the written examination is really listed these facts on the form. The Although police managers may be measuring the applicant's intelligence, applicant should be fingerprinted on dealing with the imperfect methods of potential , and aptitude a its relates the earliest possible occasion and tests and examinations, it is still nec• to the police service. a earch made of the FBI Iden• essary to use the best available writ• To ee if a sufficiently high degree tification Divi ion, the State's identi• ten examinations during the selection of correlation exists, officials attempt• fication division if applicable, and process. When a large number of ing to validate the examination shoe

26 FBI Law Enforcement Bulletin compare the grades received by re- It is a moot question whether the Cost is an important factor in the a ts after the training school stage oral interview or the medical examina- medical examination stage unless the _ the test results at the applicant tion should be the next selection pro- examination is performed by the stage_ Unless steps of this type are cedure. While interviews are time police surgeon or doctors attached to I taken, the police administrator will consuming, they usually require little city, county, or State medical facili- never really know if the written ex- extra cash outlay on the department's ties. The police department may bear amination is accomplishing objectives part. Medical examinations, however, the costs of certain necessary tests, as expected. can be expensive. and the police managers should in- Oral screening functions in a sure that these tests are afforded ap- Strength and Agility Tests variety of ways. In some cities only plicants even though the department one department official will interview may have to bear the expense. At the The dangers faced by law enforce- the applicant. In other cases a board conclusion of the examination, it is a ment officers require that they possess or committee of three or more police good idea to have the examining at least average strength and agility officers will conduct the oral examina- physician certify the applicant's physi- to defend themselves and to use neces- tion. In some areas persons other cal and mental competence for per- sary force whenever circumstances than law enforcement officers, such forming a patrolman's job or its demand. The normal medical ex- as officials of the local civil service equivalent. amination does not always determine commission and business and profes- this factor. For this reason, some sional people in the community, are Psychological and Psychiatric form of strength and agility tests is represented on these panels. Where Since emotional stability is such an recommended either as part of the boards, committees, or panels are important factor in the makeup of a selection process or part of the recruit used, each panel member should be competent police officer, this should training. furnished a copy of the applica- be evaluated at all possible steps dur- When these tests are given as part tion form for general background ing the selection process. Some de- of the selection process, they can purposes. partments also use various written usually be afforded to large groups in To be effective, the oral interview or tests and examinations designed spe- & mnasium with a minimum of examination should be well planned cifically to determine the candidate's ~ and expense. For this reason, in advance. If more than one person emotional stability. it is recommended that strength and asks questions, coordination is par- Police administrators should recog- agility tests be given to those who re- ticularly necessary. Interviewing offi- nize that psychological and psychi- ceive passing grades on the written cials should be thoroughly familiar atric testing is a highly controversial examinations as the next stage in the with the patrolman position and its procedure for evaluating applicants. selection and elimination process. requirements. Some departments use The standard tests particularly have Examiners, in giving these tests, an interview form with instructions been the subject of much criticism should be alert for any physical and and a checklist or a set of prepared during recent years. The police offi- • medical defects or deformities which questions to insure that important cials should familiarize themselves would preclude further consideration matters are not overlooked. These with the negative and positive ele- of the applicant. During a survey of interviews should not become stereo- ments of this type of testing before more than 500 departments repre- typed nor should interviewing officials deciding to introduce it into the selec- sented in recent FBI National Acad- be required to confine their questions tion process. emy classes, it was found that ap- to matters covered in a form or a checklist. proximately 35 percent require that Background Investigations candidates undergo some form. of Following the oral interview, each strength and agility tests during the interviewer should furnish his evalua- Since the background investigation screening process. Some of those de- tion of the candidate's qualifications is the most costly and time consum- partments not requiring these tests do for the position of patrolman. All ing of the selection process, it should require that recruits pass similar tests doubts should be resolved in favor of be the last stage and confined to those before graduation from the police the department, and no applicant applicants who have passed the pre- academy. These latter departments should be favorably recommended if ceding hurdles. Personnel conduct- feel that a regular exercise routine he does not appear to have the poten- ing these investigations should be during recruit training enables the tial for developing into a fine police carefully selected and indoctrinated in . rs to pass the required tests. officer. (ContiTlJled on next page)

January 1967 27 Occupation ______Brickmason, carpen· ter, laborer. _ FBI No. ______1,501,726. _ WANTED BY THE FBI Fingerprint clas· sification ______0 32 W MOM 12 o 32 W MIl

Caution

Since Johnson is reportedly armed with a revolver and has stated that he will shoot to avoid apprehension, he should be considered extremely dan- gerous.

Notify the FBI

Any person having information which might assist in locating this fugitive is requested to notify immedi- ately the Director of the Federal Bu- reau of Investigation, U.S. Depart- ment of Justice, Washington, D.C. 20535, or the Special Agent in Charge of the nearest FBI field office, the tele- HOWARD CALLENS JOHNSON, also known as : " Dirty Red ." phone number of which appears on the first page of most local directories. Interstate flight-Murder e POLICE MANAGEMENT HOWARD CALLENS JOHNSON is be· quently beating his blind mother. ing sought by the FBI for unlawful His criminal record dates back to (Continued from page 27) interstate flight to avoid prosecution 1935 with convictions for such crimes for murder. A Federal warrant for as assault, arson, and violation of their duties. The department should have a manual or some form of writ- his arrest was issued on June 3,1966, liquor laws. ten instructions pointing out the aims at Selma, Ala. and objectives of such investigations Description as well as the main steps to be fol- The Crime Age ______50, born Apr. 14, 1916, lowed in each case. Johnson is charged with the brutal Dallas County, Ala. These investigations must be thor- (not supported by shotgun-slaying of an 18-year-old boy ough, and ample time must be allowed birth records). for the investigators to perform a sat- in Summerfield, Ala. , on the evening Height ______5 feet 9 inches. of May 3, 1966. He allegedly com· Weight ______160 to 170 pounds. isfactory job. Training should be mitted the crime after having an ar- Build ______Medium. afforded to the investigators on con- Hair ______Black. ducting inquiries in accordance with gument with the boy's mother earlier Eyes ______Brown. the same evening. departmental policies and regulations Complexion ______Medium, freckled. and on reporting the results of their Race ______Negro. Nationality ______American. investigations. Since this is such an The Fugitive cars and marks__ Large growth back of important selection process, a future Johnson has a reputation of vio- neck, wen on left article in the FBI Law Enforcement wrist, scar right Bulletin will be devoted solely to back- lence. On one occasion he allegedly arm, scar left knee; ground investigations of law enforce- put rat poison in his mother­in­Iaw's tattoo: nude woman well, and he has been accused of fre- left forearm. ment applicants. e 28 FBI Law Enfo rce ment Bull etin

u. s . GOVERNMENT PRINTING OHICI: 1916 o-UI-576 FOR CHANGE OF ADDRESS

Complete this form and return to:

D IRECTOR F EDERAL BUREAU OF INVESTIGATION WASHINGTON, D.C. 20535

(Nam e) (THle)

(.4ddrel8)

(Cltll) (State) (Zip Code)

TO THE RESCUE Upon apprehension, the burglar $20 BILL SWINDLE confessed that he always left his tools While on patrol along the lakeshore, Criminals devise all sorts of devi• at the scene of the crime to prevent two officers of the Washtenaw County ous methods to accomplish their ne• being caught with them in his posses• Sheriff's Office, Ann Arbor, Mich., farious deeds. Some of these inge• sion. By '30 doing, he reasoned, he saw an overturned motorboat on the nious schemes reveal the depth of the could not be linked directly with the water. Near the boat a couple with criminal's planning and the intensity crime through any markings which a small child were struggling to stay of his desire to "make a fast buck." the tools may have made. A at in the chilly water. The officers Although of a less serious nature, the Apparently the burglar did not take . mediately stripped off their outer following example still reflects the in• into consideration the fact that the clothing, seized their spare tire from tricate plans used by some crooks. tools themselves were readily trace• the scout car, and swam out to the At a bank, two people working to• , able. struggling family, pushing the tire gether will obtain a quantity of $20 ahead of them. They helped the three bills in serial number ':sequence. to the tire and told them to cling to Using one of them, one of the indi• it until they could come back with viduals makes a purchase. help. One of the officers stayed with BOND RACKET EXPOSED After waiting a short time, the sec• the couple and their 3-year-old son, ond individual will go into the same protecting them as well as he could A gang of confidence men in a Ca• store and make a }-urchase with a bill from the high waves and urging them nadian city bilked local residents of of a smaller denomination. When the to hold on. The other officer swam more than $1,200,000 by selling them store owner gives him the change, back to shore and radioed for the worthless bonds. The illegal bonds the purchaser will claim he gave him sheriff's boat, which soon appeared to were sold over a 2-month period in a $20 bill. As proof, he will explain effect the rescue. ! j the name of a popular church center that he had just received a number of ~ ~/ V; ;21jb4 in the area. They were official look• $20 bills from a bank and that the one ~ rI h ~ 1"-I5" . ing and bore the name of the center's he gave him should have a serial num• manager, a well-known churchman, ber in sequence with the others, which and that of the salesman. The buyers he gladly shows the owner. TRACEABLE EVIDENCE wero told they could turn in the Naturally, as the owner goes In a series of burglaries investi• bonds to the center at any time for a through his $20 bills, he finds, the gated by local authoritie3 in a south• refund. When several people did try one which the first partner had given ern city, the tools used in each in· to regain their investment, they found him. As a result, he has little choice stance had been left at the scene of the the bonds had not been authorized by but to agree with the customer and c:l~ the center and were worthless. give him the change from $20. p ~YT'--"""' ___ J £:/bf~ J r~Uv1>~1 .i-~l..) qJ/~ "1/ S­f'l/M" J "/v"F{) (!A. {"J / ,.}""'-"YL--uc.J ~ 1¥' &3-l.hJJ{g-27 ~_ -::;I ~3 -.J lCJ(p~ ;);./-3 . 6 3 - t/ 2 ~I:. - 53 UNITED STATES DEPARTMENT OF JUSTICE POSTAGE AND FEES PAID FEDERAL BUREAU OF INVESTIGATION FEDERAL BUREAU OF INVESTIGATION WASHINGTON. D.C. 20535 OFFICIAL BUSINESS RETURN AFTER 5 DAYS

QUESTIONABLE PATTERN

Although this impression contains several possible recurving ridges, none of these ridges are considered to have a sufficient recurve because of the appendage or appendages attached to each. Therefore, this pattern is given the preferred classification of a tented arch and is referenced to a loop and a whorl.