1

APPENDIX C

REPORT ON FOCUS GROUP OF RANK-AND-FILE POLICE OFFICERS

OCTOBER 20–21, 1997

Rosann Greenspan David Weisburd

Edwin E. Hamilton

Police Foundation 2

Contents Introduction ...... 3

Defining Issues of Police Authority: What Is Professional Conduct? ...... 4

Handling Situations That Challenge Police Authority: Rules and Practice ...... 7

Officers’ Perceptions of the Extent and Nature of Abuses of Authority ...... 8

The Role of the Media 8 The Extent of Abuses of Authority 9 The Forms of Abuses of Authority 10

Abuse of Authority and Community Policing...... 11

Community Policing and the Expanding Authority and Responsibility of the Police 11 Community Policing and the Potential for Corruption 14 Departmental Structure and Community Policing 14

Societal Factors That Affect Abuse of Authority...... 15 The Effect of Race and Ethnicity 15 Race and Community Policing 19

The Culture of Policing...... 19

“Us-versus-Them” Mentality 19 Code of Silence 23 Solutions ...... 31

Agency Procedures for Dealing with Abuse of Police Authority 31 Rewarding Good Policing 32

Conclusion ...... 34

Rank-and-File Police Officers 3 C

RANK-AND-FILE POLICE OFFICERS

1 Introduction ments, representative of all regions and In selecting police departments for partici- sizes. Half were assigned to the rank-and- pation in the two panels of police offic- file group, and half to the supervisory Eleven ers—one of rank-and-file officers and one group. In the end, 11 departments partici- departments of supervisors—we established a set of cri- pated in the rank-and-file focus group, and teria to guide the process. Our goal was to another 11 departments participated in the participated achieve representation from various types focus group of supervisors. in the rank- of departments, as characterized by their style of policing, with attention to size of To guide the participating police departments and-file focus community served and region of the coun- in selecting representatives to participate in group.… try. We began by using our own expertise the rank-and-file focus group, we provided as well as by consulting several colleagues the chiefs with a list of suggested criteria. to develop a list of police departments that We asked them to choose an officer with are particularly known for either commu- 5 to 10 years of experience. We asked nity-oriented policing, problem-oriented departments that were selected for their policing, or traditional policing. As the list orientation toward community- and prob- grew, we attempted to ensure that all re- lem-oriented policing to choose officers from gions of the country were represented. Hav- those units. We asked departments that were ing reviewed and refined the selections, selected for traditional policing to choose we then categorized them by size of popu- officers from specialized units such as lation served and region of the country. In narcotics or gangs who have considerable this way, we derived a list of 24 depart- contact with community residents.

Police Foundation 4

The 11 officers from all regions of the coun- Defining Issues of Police Authority: try who participated in the rank-and-file What Is Professional Conduct? focus group ranged in experience from To explore how contemporary police view 3 years to 15 years, with an average of the boundaries of police authority, we 10 years of experience as police officers. As asked participants to discuss what they we requested, their assignments included consider appropriate and inappropriate community- or neighborhood-policing units, conduct in their exercise of authority. Their problem-oriented policing units, and gang responses quickly turned to a thoughtful and narcotics units. discussion of the sources of both the for- “…I am mal definition of good conduct and a per- The rank-and-file focus group was moder- sonal sense of what is good conduct. One generally ated by Rhoda Cohen, survey director for officer started off the conversation by again guided by my the project, under contract with the Police posing the question in different ways: own sense Foundation from Mathematica Policy Re- search, with the participation of Dr. Rosann What is professionalism? What are our of what is Greenspan, Research Director, and Earl expectations of ourselves? What is the right and Hamilton and Kellie Bryant of the Research expectation of the citizenry of the law Division of the Police Foundation. The fo- enforcement agency that works on their wrong…my cus group met for two days: from 9:30 A.M. behalf? [H]ow is it that we ought to act own personal to 5:00 P.M. on October 20, 1997, and from and behave? How is it that these things 9:30 A.M. to 4:00 P.M. on October 21, 1997. view of what are appropriate or inappropriate, or right or wrong, or good or bad? is moral or The officers discussed a range of topics with a set of questions to guide each topic. The The officer answered that, for him, the immoral.…” broad categories included a definition of definition of appropriate conduct begins police authority, the nature of the problem with his own sense of right and wrong, and their concerns, the effect of community but it does not end there: policing on the abuse of authority, the soci- etal factors that affect police authority, the I think that I am generally guided by culture of policing, and what can be done. my own sense of what is right and In addition, the officers pretested the first wrong. In other words, my own per- draft of the upcoming national survey. They sonal view of what is moral or immoral, provided valuable input by reviewing and what’s right and wrong.…What be- reacting to each question in the first draft of comes a challenge for me is how I be- the survey instrument and by making gen- have in very difficult circumstances,… eral and specific recommendations. how I behave in cases where people hate me, [and] how I behave in cases The participants worked hard, grappling with where people want to kill me. So how some of the most difficult and personal is- do I keep from misbehaving? How do sues they face in policing. We were grateful I keep from doing things that are wrong for their thoughtful and frank conversation. inherently, either morally or criminally? We were surprised, as they were, by the And so that is a huge challenge…on a degree of consensus among them on many daily basis, not just for the individual, different issues. but, I think, for the organization.

Rank-and-File Police Officers 5

Another officer suggested that the source Society says that I can effect the amount of the definition of acceptable and unac- of force necessary to effect the arrest. ceptable behavior must be society and that In other words, society has given me the boundaries of appropriate conduct, the green light to use some degree of therefore, change as society changes: physical force in order to control an individual. And I know that I can do I think that we as police officers are that. And there may be something want- guided by what society says is accept- ing me to do that [because] this indi- able and is not acceptable. Thirty years vidual has provoked me to some de- ago [in] law enforcement, certain gree in which I have the option of ex- “…[W]e as actions were acceptable, where[as] ercising some force. But I know that if today’s society has decided that those police officers I can talk rationally to this individual things are not acceptable. As a result, and still gain compliance, then I should are guided …my definition of acceptable behav- probably take that route or accept that by what ior is what society says the rules are for as an alternative, as opposed to using us. Twenty years from now, law en- society says some degree of physical force. forcement will probably be different be- is acceptable cause society will have said that force This comment turned the discussion to the can go this far—that professionalism participants’ definitions of professional and is means x, y, or z. conduct. One officer suggested that key to not acceptable.” professional conduct is treating each indi- However, he agreed that one’s personal stan- vidual with respect: dards were also relevant: “I think within that …[B]eing professional is about respect boundary, then we rely on our own per- …whether you are talking to the presi- sonal moral and ethical ideas to define and dent of the United States or whether guide that.” That officer later modified his you are talking to Joe the hobo.…Every- response: “I think when I said about society body has a story and [people have] their deciding what is acceptable, I think I didn’t own shoes.…Just [as] I could in no way use a correct term. I think it’s the commu- do what the president does, there is no nity in which we live [that] decides that.” way I could do what the hobo does. A third officer raised the interesting sug- The hobo would teach me how to sur- gestion that society’s standards are too low vive, just [as] the president could teach and that unless a higher, personal moral me a bunch of other things. standard is applied, force will be exercised Picking up on the idea that attention must in effecting an arrest when it may be pos- be paid to the individual, another officer sible to use language to gain compliance: emphasized the importance of learning about the individual situation: I think that society in general is taking a very dangerous trend in some of the You have to learn what the situation is things [that] are morally acceptable, and the background behind that prob- some of the things that are socially lem. You have some police officers— acceptable.… they are so gung ho—[who] bust in the

Police Foundation 6

house and it’s so much the profanity Another officer suggested that officers un- and it’s so much this. They never know der stress in their personal lives will en- what the environment as far as the fam- gage in misconduct, and she suggested that ily [is], what’s going on in there. Social very young officers may also have such issues: father could be laid off, the problems: “[Y]ou also have babies coming mother has…five kids, the father is frus- on. I’m talking about 19 to 20 years old. trated because he doesn’t have a job Can carry a gun but can’t take a drink.” so he starts drinking, and that’s when In contrast to an earlier suggestion that the domestic violence comes in.…Good standards of acceptable conduct have low- “Good police police need to focus more on being pro- ered, one officer explained how policing fessional, finding out what the prob- need to focus has changed over the decades, how a re- lem is, and the bad police officers need form chief in his city in the 1980s played a more on being to think some time before they are so role in changing the face of policing. Until professional, gung ho. that time, police violence was the norm: finding out Later, another officer expressed the diffi- …[B]eing a child of the ’60s, a teen- what the culty of entering a situation like the one just described and explained how, despite ager of the ’70s, and an adult of the problem is.…” an officer’s good intentions, the situation ’80s, I watched the…police department is interactive, and the individual may have go through the change. In the ’60s, a pattern of using violence caused by poor there was no accountability whatsoever. oral communication skills that may make Same thing in the ’70s. [In] the ’80s, the it very difficult to avoid the use of force: department really started changing its face. Twenty years ago, it was accept- [S]ome people…have grown up in envi- able if you got a burglar call, the bur- ronments in which their oral communi- glar was shot, plain and simple. There cation skills are horrendous. The only were no questions asked. [An officer way in which they know how to resolve from another department across the conflict—express their emotions and feel- country agreed. The first officer con- ings—is by getting physical. They beat tinued.] We got a chief…[name omit- their wives; they beat their kids; they beat ted] came in. The face of the police in the dog. That is how they express them- [name omitted] changed.…In the selves. If the dinner was too cold, they ’70s,…you got stopped, [and] you went smack their wife and that tells her the into a panic because you knew…some- dinner was too cold. The kids are mak- thing bad is going to happen to me.… ing too much noise in the other room; And they could walk up and basically he gets the belt and just starts beating knock the hell out of you.…There was the kids to let them know that they are no internal affairs in [name omitted] drowning out his football game in the until 1978. living room. So for this guy to all of a sudden be a human being and treat you Another officer, agreeing that standards any differently [from how] he treats his have risen, that “police operated differently family, once you go into his living in a different era,” suggested that the room,…is a very difficult thing to do. Rodney King case had a big impact on

Rank-and-File Police Officers 7 police accountability—educating the pub- Handling Situations That lic about the limits of police authority, in- Challenge Police Authority: creasing civil litigation, and elevating re- Rules and Practice cruitment standards: The moderator asked the participants to discuss the appropriateness of police be- [E]verybody, I think, is operating now havior in a scenario in which abortion pro- under the post–Rodney King era, in testers refused to leave and were force- which people are probably more aware fully picked up and dragged to a paddy of their rights and the limits in which wagon. One officer responded by describ- police can actually do their job. And ing his own experience with demonstrators “E]verybody…is that holds police to a great degree ac- involved in a newspaper strike. He explained countable for their action. I think de- operating now how he defuses such a situation: partments have come into great civil under the liability in that they cannot afford [any If I am on a line,…I will ask, not the post–Rodney longer] to hire the six-foot-four, 300 ones who are hollering at me so much, pounds, police officer [who]…couldn’t but someone next to them, what are King era, in pour water out of a bucket without [you] guys really fighting about?…[A] lot which people getting most of it on him. But he could of times the police—the rank and file kick butt and take names. as we are—don’t know what the real are probably issues are. So I will ask what is the prob- more aware of Summing up the sources of the definition lem? Then after they explain, I let them of the limits of police authority, of what is know that I understand. Then I tell them their rights acceptable conduct by the police, this of- that these are the rules: you just stay and the limits ficer noted that, “Your morals are guiding back there and I will leave you alone. you, the department is guiding you: policy, in which police Most of the time—I am telling you 95 rules and regulations, society.” percent of the time—they go, “Cool, can actually do Another officer suggested that an impor- cool.” And they will protect me! their job.” tant concept that had been left out of the As these officers reminded each other re- discussion was…“discretion. How much peatedly over the two days, “The bottom discretion you can use, and when to know line is officer safety. We want to go home.” how to use the word discretion.” Asked to relate situations where they had Another officer offered what for him was to deal with challenges to their authority, the key to what makes a good police the officers responded by providing a range officer,…“compassion. If you have the abil- of stories in which they had acted by us- ity to feel, you are going to care about that ing less force than might have been per- person. I don’t care if an officer has missible. One officer described how he had 30 years on the force, if you haven’t devel- avoided a potentially volatile situation: oped that compassion, you are useless as We had the…shooting,…emergency a police officer.” services had to go through a door, and

Police Foundation 8

they had to shoot her because she came alizing the question of authority.…It is not at them with a knife. Right away, we a personal issue whether you hate me. You are the bad guy. I was going down to may not like what I am doing, but it is the court one day on the subway and right community who dictates what the laws are, away, they said, “You shot grandma,” and I am simply following through with and this and that. I had three or four that.” people looking at me like I did some- One officer shared a story, “not a dramatic thing wrong. How should I react to that? story whatsoever,” where he learned the Maybe if I was a young cop,…came limits of his authority. He responded to a “You may not from a nice neighborhood, and was a situation where there was a group of gung-ho kind of guy, I could have es- like what I am people playing basketball, and he wanted calated that on the train and then I to speak to someone on the court. He doing, but it is would have had a riot situation. Or I asked another guy, “Hey, run over there may have had to lock up some- the community and get that guy and tell him to come over body.…So, I took it; I swallowed a little who dictates here.” bit of my pride; I tried to act as profes- what the sional as I could without escalating the Well, the guy told me to kiss his be- hind; that’s not his job. I thought, just laws are, and problem. me arriving in uniform, I could direct I am simply Another stated that it is because of his com- people and just tell this guy what I passion that he takes “that extra second” following wanted him to go do for me. And that to de-escalate a situation, “by letting them guy told me where to get on and where through.…” vent first and then asking what is wrong. to get off.…I was verbally assaulted.… The first thing they say is that I don’t care, And it made me really think, and it and I tell them that, yes, I do care. Tell me.” really does.…[M]y authority only goes Another officer told a story of being called so far;…I do not dictate [to] people or on a domestic disturbance where the indi- control lives [as] I think I do—or [as] vidual had left in a car. To the surprise of the uniform makes me think I do. the officer and his partner, the individual jumped out of his car and ran when they Officers’ Perceptions of the Extent pulled him over. “We are thinking it is just and Nature of Abuses of Authority a disturbance, so why would the guy run?” The Role of the Media They chased him into a field, where he Expressing a sense that the media, in re- pulled out a switchblade. “He told us he porting instances of abuse, influence the was going to stab both of us in expletive public to distrust all police, one officer said, terms.” The officers spent five minutes yell- “[E]veryone of us gets labeled for every ing back and forth, trying to get him to problem from every city.…When you re- drop the knife, which he finally did. “Would spond on a call, [then] you just did every- other officers have handled it differently? thing that they heard of for the past 10, 20, Sure. There could have been a shooting. 30 years of their life. You just did it, you We could have been hurt. But I think that represent it, and they’re going to take it how we dealt with it [was by] not person- out on you in those cases.”

Rank-and-File Police Officers 9

Another put it this way, “And as far as the bulk of us who are out there doing [our] j- Detroit deal—yeah, we caught heat behind o-b because we believe in what we do.…” that; L.A., we caught heat behind that; and Another felt that police departments needed New York, yeah, we caught heat behind to be more media savvy: that.”

Another said, “[N]o matter what we do in I think that we are hurt as law enforce- [name omitted],…or anybody else does, I ment by our lack of communication have to answer for it. If I go to Portland, with the media.…But I think our lack of willingness to be honest with the Oregon, to see family, say for example, “You…don’t they’re going to question me about what public—and maybe not the lack of will- happened in Detroit, and I have no ingness, but the lack of know-how, to hear about the perceive that [lack] in the media is what connection.…And if I take the approach bulk of us who that the police were right—they were not is damaging us—not necessarily our wrong—I better be ready with my ticket, actions but our inability to relate that are out there my keys, whatever way I came, because to the mass public. doing [our] I’m going to take some heat for that.” j-o-b because The Extent of Abuses of Authority Some also expressed concern about the There was general agreement that a small we believe in accuracy of media reports. Because they percentage of officers abuse their author- tend to present only the dramatic event of what we do.…” ity. One officer referred to the “95/5 rule, police violence, the media neglect the situ- in that 95 percent of the people on the ation that precipitated the violence, offer- department are doing what they’re sup- ing what some felt was a distortion of the posed to do, doing a good job, and…there’s facts: this 5 percent that cause all the problems …I was giving an example earlier with in your organization.” And 5 percent be- the situation in Baltimore. I didn’t see came the rule of thumb generally accepted the 20 minutes of footage that occurred by the participants. At least some felt that before that, in which the three officers these abuses were generally of a relatively are around this guy—please drop the minor nature: knife; please drop the knife. I just saw I think on my part, that the 5 percent the 10 seconds leading up to the point [who cross the line into abuse of au- right before they shot and killed the thority] are usually guys [who] are in guy. I know there was more to the story, violation of some sort of policy proce- but the average person [who] looks at dural error, in that they didn’t take a that particular situation, that’s what they report, or they failed to administer first see. aid when the situation called for it.… One officer suggested that, although in her Of that 5 percent, you probably have 1 city the police receive both bad and good percent that actually goes out and vio- media coverage, the general trend is to lates someone’s rights.…I don’t think report only the negative stories about that 5 percent…that are in trouble police, and in that way, the truth is within the departments are actually tak- distorted. “You still don’t hear about the ing bribes and shaking people down—

Police Foundation 10

you know, abusing authority. I think the public. One officer suggested that he it’s more [that] this guy just comes to found for himself that the solution is to work, his uniform is bad, or he had explain your actions to the people affected: alcohol on his breath today, or what- One of the problems that I think [is] an ever. issue with regard to police work is that One officer suggested that it takes matu- the public requests to be informed, and rity for an officer not to become jealous the officer feels as if he has no obliga- when he sees a drug dealer driving a nice tion to inform the citizen as to what “…[T]here’s car: “And then that’s when he starts doing he’s doing. I’ve found that I’ve elimi- illegal searches, not turning in the money, nated a large percentage of complaints nothing that not turning in the drugs.…And that’s what that I’ve had lodged against me and turns your some of these officers are doing. They’re just [had] an easier time of doing my stomach more putting their hands in the cookie jar,… job by simply explaining to the indi- they’re being caught, and the media [are] vidual what it is that I’m doing.…You …than to find feeding off of it.” find that [with] most police officers [who] find themselves in trouble, it isn’t an officer Another expressed his distaste for officers because he’s shaking people down or who engage in illegal activity: [who’s] doing he’s taking bribes; it’s because he does something And the reality is there’s nothing that not…explain his actions in a lot of turns your stomach more or that’s more situations.…That person is hyped up illegal.…” distasteful than to find an officer [who’s] and that person is really emotionally in- doing something illegal.…[W]e had volved. And now the officer’s emotion- some officers in [name omitted] [who] ally involved. And the next thing you were breaking the law,…were shaking know, the officer says something he down people.…Not only was it illegal, wishes he could have grabbed back and but it was just so personally offensive.… pulled back. You know, it’s the verbal You want to arrest them, but you also assault again, [which] the officer levies just want to throw up at the same time. against the citizen, that hurts him.

One officer indicated that the behavior he The Forms of Abuses of Authority is most concerned about as a police of- When the officers were asked what kinds ficer is “other cops [who] are bigots and of inappropriate behavior they were most other cops [who] are brutal.” He expressed concerned about, they mentioned a range concern that officers are placed in these of behaviors. One officer described “a brutalizing situations without having rela- trend” in his department of “narcotics traf- tionships with police supervisors who en- ficking,” by officers who fit “the so-called courage talking about what they are con- new prototype police officer, college edu- fronting. He argued that “we’re putting a cated, passed all the tests, background lot of young people of all races and a checked out perfectly.” variety of different educational backgrounds A number of the officers expressed con- …into the worst possible environment, and cern about verbal abuse or a general lack we’re just leaving them there.…And then of respect by police officers in dealing with we’re all real surprised when the media show

Rank-and-File Police Officers 11 up and they’re filming this person beating police and community and the expanded the hell out of somebody.” power of the police. He spoke of how he developed a teen basketball league some 12 years ago in the inner-city neighbor- Abuse of Authority and hood where he was then assigned and still Community Policing is working as a community-policing officer. Most of the rank-and-file officers who par- The relationships he developed in the bas- ticipated in the focus group expressed be- ketball league led to the development of lief in the value of community policing. narcotics information and warrants, as well They recognized that it expanded the tools as to a neighborhood “trespass affidavit Most saw available to solve community problems, but program” and other techniques such as community they cautioned about its potential for en- vertical patrol, which are all aspects of an couraging the community to place undue expanded police role under community- policing as demands on the police. They saw a poten- oriented policing. In his words, “All these involving a tial for violation of citizens’ rights; they tools were added to us for locations like much greater doubted a management concern about this so we could use [them] … in our daily corruption. Most saw community policing routine of patrolling.” The basketball league commitment as involving a much greater commitment continues to occupy much of his leisure of time and of time and dedication than traditional time to this day: policing. As one officer put it, “If you don’t dedication I went to a community meeting…in a put in 110 percent as a community officer housing project, where blocks and than or beat cop or whatever, you’re not doing blocks of buildings were…drug in- your job; I don’t care what anybody says.” traditional fested.…And the people were com- Their conversation seemed to assume that plaining about drug dealers…hanging policing. community policing and problem-oriented out late at night, drinking on the cor- policing are the future of policing—a real- ner, throwing garbage out the windows, ity to which management and older offic- bringing garbage downstairs, boom ers must adapt—rather than an experiment boxes, drag racing, fixing cars on the or a marginal activity that may disappear street. It was out of control.…They were or be deemed to have failed in time. yelling at me and screaming at me.… So I started thinking of what I could Community Policing and the do. And I walked around, and on my Expanding Authority and beat there was a local church.…I went Responsibility of the Police upstairs,…and I saw there was a small The officers discussed a wide range of is- gym.…I started a basketball league.… sues that relate to the expanded role of I made out a few flyers.…I had to con- the police in community policing, to the solidate it to [ages] 10 to 14 because I use of civil law, and to the effect of had too many kids coming. community demands and expectations. Well, we built it up a little bit. Kids One officer told a rich story that was about would give me information—not that I community policing and that demonstrates was looking for information, but they both the close relationships between were giving me information on certain

Police Foundation 12

places. We would target them ourselves. people has been “a very controversial or- I would pass the information to narcot- dinance.” The officer described it as “a real ics. I would do my own search war- difficult ordinance to enforce,” with “five rants. And little by little, we cleared up or six criteria in order to even write the each building at a time.… ticket,” suggesting there are easier solu- tions than trying to enforce this ordinance. We set up another program, called the But some of the public and a radio talk- Trespass Affidavit Program, where we show host have raised concerns that “we have people in the building; then we are just stomping all over the people’s con- “We, as law have the rent roll, so that if there were stitutional rights with this ordinance.” enforcement, people that were outside from other areas coming to buy drugs—and I knew But this expansion of authority also places take there was a spot in one building—I a great burden of responsibility on police responsibility could grab them in the building when officers. As one community policing of- I was doing a vertical. ficer said, “[Y]ou, as a police officer, have for far to wear many different hats: a fireman one I do a vertical patrol, [which] means you too much day, a lawyer another day, a doctor an- go up and down a building and check other day, a marriage counselor one day, in our society it. If I saw somebody coming out that I a psychiatrist one day. It is amazing be- ….[W]e’re didn’t know—because I knew people cause we don’t go to school for that. We on the block—and [those people] don’t get paid for having all these degrees.” feeling…[an] couldn’t give me a good answer…take overwhelming me back to the apartment they were Another community policing officer stated, visiting, they were placed under arrest “[E]verybody’s always looking for the po- requirement for criminal trespass. lice to answer all their problems.” to be everything Now, today, I have 12 teams still doing A third put it this way, “We, as law en- to everybody.” it. I run the program from January to forcement, take responsibility for far too June. It’s four hours a night of my own much in our society.…And I think every time, but I have a good time, more than time someone comes to us, we feel it is the kids, but I can’t let them know that. our responsibility to solve that problem for And I have 120 kids, and a 12-team them.” league. It’s still going strong. Another offered, “I know we’re feeling… just [an] overwhelming requirement to be Another officer described a recent program everything to everybody.” to enforce a loitering ordinance. Police had been using the tool of criminal trespass, There was intermittent discussion about getting property owners to “post their taking your work home with you, whether properties,” as in the above example, in such a move is unhealthy, what to do about order to move “drug dealers and other it, and what its effect on home life is, be- people.” But the targeted population “kind cause the successful community-policing of wised up to it and changed their tactics officer is an individual to his community. a little bit.” They moved to a public park. Officers admitted they gave citizens their The tool now being used to move these home phone numbers and received calls

Rank-and-File Police Officers 13 at all hours: “It never turns off.” But the rules and regulations,…which I have to most striking example was the following: follow.”

I’m down at the shore. I’m down there Perhaps most striking was the officers’ the last two weeks in July and the last indication that a potential for abuse of week in August. I have a beeper. Well, police authority comes directly from the [it’s] a great invention, but community heightened community expectations and leaders beep me. Community activists the closer community–police contact and beep me. People [who] have a prob- relationship that occurs under community lem in the park beep me. You know policing: Perhaps most why: S——, we didn’t see any radio But just an example of the possible striking was car tonight; S——, can you do some- abuse, you get a person who lives in a thing. Could you call up one of the lieu- neighborhood, and [such people are] the officers’ tenants at the desk and give him a heads in charge of a neighborhood watch pro- indication that up [to] send a car over. gram. Or they’ve got a house [that] they know [and that] they kind of get a little a potential for These expressions of the burdens of com- concerned about. Now, it’s not a regu- abuse of munity policing precipitated a discussion lar 911: they’re [not] shooting or there’s of the community’s responsibility in the [not] any kind of real problem. But they police community-policing partnership: “I’m not begin this process because now they authority responsible for all the answers, and some- have…the ear of the police because I’m times the community is.” comes directly designated as the person that they can from the Another said, “[T]he problem is probably call—not just a generic number, but going to come to you first.…But you’ve got now there’s a face and a pager. And heightened they start calling me. Well, I sort of be- all these other resources to funnel every- community thing so…you’re kind of a liaison. And…you come the innuendo police…the rumor deal with the whole family with the idea police. I…hear that so-and-so living at expectations the house is—you know, I think he that eventually you want to totally empower and the closer that whole community so, in a sense, you could possibly be doing a variety of wouldn’t have to be there anymore.” things. I said, well, none of those seem community– to fit with what’s criminal…so maybe police Officers also stated that at times they have in some cases it’s more of a neighbor- to explain to community members that hood personality issue than it is a crime contact.… there are limits to their authority: “Can I issue. And now I’ve got [these people] hit this house two doors down from you? in the community who [have] my ear Probably, if I can get enough information [and] who feel like I’m accountable to that gives me the legal authority to do it. I them.…They’re demanding that I do can’t just go in there and just run through something.…That’s the key piece; [dis- this person’s house just because you say cretion] is being able to tell them— that you think something’s going on.… which is nothing they’re going to want [T]here’s certain legal—there [are] certain to hear from me because they think that

Police Foundation 14

I’m there to do what they want, not to want any cops going into buildings. Why? enforce the law or keep the peace— Because they’re going to get involved in [and] find…a way of telling them it’s something. Or maybe it’s easy for corrup- not something I’m going to be able to tion. Right away, they’re corrupt. They’re deal with for you. going to get into an apartment, or they’re going to get…grabbed by one of the deal- Community Policing and the ers and maybe—let’s make a deal.” Potential for Corruption “You’re asking Asked whether the closer ties with the com- Departmental Structure and munity increased the risk of corruption, one Community Policing a quasi- officer suggested that this was a mis- Some officers expressed concern that po- military type perception held by police management and lice management is not adapting to the some citizens: changing authority structure, namely the organization That’s how these chiefs and higher-ups expanded authority of the rank and file with a very think because…they’re behind closed under community-oriented policing: structured doors. They’re in their offices.…I deal You’re asking a quasi-military type or- with a lot of store owners because they chain of ganization with a very structured chain give me things at the end of the year of command, and you’re asking upper- command, and when I have my championship game.… level and mid-level managers to relin- …upper-level I get donations that go right down to quish some of their authority and some the PA [Police Athletic] office, and I get of their responsibilities.…As a detec- and mid-level a receipt.… They’re afraid that we might tive, I’m bypassing and eliminating the managers get hooked into something with these middleman and going right to the top store owners where—we might give with my plan and my solution, and to relinquish them protection…a slap if they’re do- that’s a threat against everything that some of their ing something illegal…in that commu- you’re taught as a police officer. nity area. And then people [who] live in authority.…” the community perceive this. And they Another suggested, “The problem seems see that we’re hanging out with some- to be…the breaking down of the pyra- body; right away we’re doing something mid…from staff to officer. There is a lot of wrong. And this is why these chiefs and old-school thought…that the street officer everybody—they don’t want to hear this. doesn’t really have the ability to create an And right away, they want to put a bash- autonomous decision.” ing on community policing. And another said:

Besides the potential for corruption from The micromanagement part was our legitimate commercial enterprises, the use biggest foul-up in the system.… of vertical patrol raises some concerns [Command officers from the old school among police management because of the didn’t believe in community policing.] potential for corruption by drug dealers Just go out and lock people up…and when officers cannot be observed by their when you came up with ideas and supervisors: “I [police administrator] don’t things you wanted to try,…they were

Rank-and-File Police Officers 15

reluctant to give you the go ahead on discussion with a direct question that en- it.…If you still have those people [who] gaged the group: Is it unfair to stereotype or are policing from the ’60s and the ’70s is it “smart policing” to know that people of with the same ideas…it’s hard to push certain types—seen at certain hours in cer- new ideas around them sometimes. tain places—are basically up to no good? This question led to a lively discussion that One officer suggested this ideal for super- began with an insistence on distinguishing vision under community policing: stereotyping from profiling, with the assump- You have to have immediate supervi- tion that stereotyping is bad, while profiling “You have sors and mid-level managers [who] trust is ethical, though its legality has recently been you and trust your judgment and [who] limited. By the end, the two seemingly dis- to have parate terms were comfortably conflated. give you latitude to make decisions. immediate And even if you fail in your decision, One officer suggested that profiling is “ethi- they cannot…micromanage. I guess cal to a certain degree, not necessarily… supervisors they have to allow you to be innova- right. But you have a good feel of whom and mid-level tive, to express yourself, to not be afraid you are dealing with. I mean I can tell a managers to come in with an idea and implement normal person—a normal student—be- that idea. I think that’s very important. cause I deal with a lot of kids. If I see a kid [who] trust walking, I can pretty much judge what kind Others suggested that they encountered you and trust of person he is.” But as he explained, problems, not with management, but with “We’re careful about stereotyping. The term your judgment veteran officers who are not serving as we use is profiling.” Several officers ques- community-policing officers: “[S]omething and [who] give tioned the difference between the two that we’re experiencing right now is that terms. Then one provided the working you latitude to neighborhood officers are over here; pa- definition in his gang squad: trol officers are over here. And you’re kind make of looked at as this special group, and you The way in which we have the prac- decisions.” get to kind of adjust your hours.” tice in our department, I should say the practice in gang squad, to differentiate between stereotyping and profiling, is Societal Factors That Affect that to stereotype we go strictly…[on] Abuse of Authority physical appearance. Profiling would be The Effect of Race and Ethnicity the physical appearance, the location Although we considered that the topic of in which the person is, and what [such race as a factor in police behavior—suspi- people] are doing in that location and cion, investigation, stops and searches, use what others are doing around them. of force—was important to our consideration of abuse of authority, we were uncertain Exploring the meaning of stereotyping and whether the participants would be willing profiling, one researcher described an ac- to talk openly about their perceptions. As tual incident where two black teenagers with all other topics addressed, we were driving around in a white neighborhood impressed with the apparent thoughtfulness were approached by two officers with their and frankness of the officers. We began the guns trained to the back of the boys’ heads.

Police Foundation 16

Two African-American participants took the more-compassionate recruits who have “an lead in responding to the situation. The understanding of things and can resolve a first admitted that he had been the recipi- situation without it resolving or ending in ent of similar treatment, “I have experi- conflict”—if only to limit lawsuits. enced the same things that you have ex- Another African-American participant re- perienced.” But he maintained the legiti- called that while “growing up in [name macy of stopping someone at certain times omitted]”…he too “was stopped many on the basis of a sense that they have “no times.” But he noted, “One of the major business being there,” because it is what factors is the time, the era for which that “…[T]here’s… the residents of the neighborhood want: happened to you.” Like his colleague, he a very fine I’m from his hometown. I understand felt that such stops based on “profiling” line between what you are saying. I have been on the are justified: other end. I haven’t been a cop, as I say, So…I tell the kids now, so what [if] you stereotyping all my life. I have been stopped. I have get stopped. So what [if] you get pulled been stopped by white officers in mostly and profiling. over. So what? As long as you have all white or predominantly white neighbor- If it has your paperwork in order, which you hoods. I understand that. I think there’s— should have, there is nothing that an a beak and and I think everybody has been discuss- officer can do to you as long as you ing this—a very fine line between ste- it quacks, are in the right. If [an officer does], then reotyping and profiling. If it has a beak you have a legitimate complaint. If we it’s a duck. and it quacks, it’s a duck. Regardless of stop you and you have got all your stuff what it calls itself, it’s a duck. Regardless together, hey,…Excuse me for stopping of what it If you are walking down [or] if I was you. I’m sorry that I delayed some of walking down that street,…I have been your time. Okay? calls itself, stopped during the middle of the day,…I A white officer suggested that sometimes don’t think that necessarily my actions it’s a duck.” race is seen as a factor when it may not warranted a stop. But if I am…walking be. He told a story that began: down that same street at 3:00 in the morn- ing when everybody else is asleep and …just after the Rodney King trial, I had really no business being there, I maybe the day after, my partner and I, cannot justify my actions for being there. both white, we [are at] work in a pre- I have no legitimate address I am going dominantly black neighborhood. We to or coming from, and, therefore, I see a couple of guys in a car smoking warrant the police to stop me. dope, so we roll up on the car. I go to the driver’s side and say, “Hey, sir, I see If I live in that neighborhood, I don’t you are smoking dope. Put your hands care what race he is or what ethnic on the steering wheel. Don’t move.” He background he is, I want the police to is more or less buffered—I mean the be- check that individual out and why he havior, what he is saying to me. He is is even there. not indicating that he is compliant. He’s The officer expressed hope that the police uncooperative. department is hiring better-educated and

Rank-and-File Police Officers 17

So I become a little bit more concerned cause of what I do [and] in terms of the for my safety. It’s very low light, a relationship we get in.…We don’t ever couple of guys in a car. We don’t know have time to get to know each other. who they are. They are not searched, Relinquishing the distinction, several offic- so I have them get out of the car. “Put ers agreed that “[s]tereotype or profile or your hands on the back of your head, whichever word we choose to use…sort and lock your fingers.” I grab hold of of keeps us alive.” his hands. “Now step out of the car.” …I don’t know if he and his partner Citing a Maryland study that suggested Af- are going to start shooting at us or what. rican Americans are discriminatorily the …[S]everal subject of traffic stops, we rekindled the officers They step out. I go to handcuff him. race discussion by asking whether police He physically resists it. He tightens his engaged in racially discriminatory practices agreed that whole body up. I am thinking—he kind or if this was a false perception held by “[s]tereotype of starts crouching down. I’m waiting the minority community. The term “dis- for his hand to come off the top of his crimination” seemed more evocative than or profile or head, to [go] into a waistband. I ended did stereotyping or profiling. One officer whichever up getting him cuffed up. We got the tried to refine when it was acceptable to dope. He was dealing marijuana out of treat people by appearance, suggesting that word we the car. They [were] smoking marijuana. the standard should be: “I think it’s dis- choose to criminatory if I am judging somebody based But we get in court several weeks later. use…sort of on something that they have no control He says, “I saw what happened on TV. over.” Thus, returning to the earlier ex- keeps us I watched what the white police do to ample, he argued that “[y]ou are a teen- black men.” He sees me walk up on alive.” ager; you’re black; you are in a white neigh- him, and he begins to see me in a par- borhood; you are driving. You have no ticular way. control over the color of your skin. For me I begin to see him as a threat to my to stop you simply because you are safety. [When] we both sort of start look- black…would be discriminatory.” He con- ing at each other as men in this way, tinued in this direction, “However, you are that’s not really good for either one of a teenager who happens to be black, who us. I mean it’s good in a sense because chooses to dress like a gang member, who we’re not going to die, but it’s bad in a chooses to hang out with several other gang sense that now I kind of see him as a members, who chooses to be tagging in a guy who is not a very nice person, and neighborhood. Now I stop you. I think I don’t know the man. He…starts maybe there’s a difference. You had a choice.… seeing me as this racist, brutal, heavy- I think…we can base a lot about how a handed white cop. person is dressed.” Another officer suggested this approach I have got to walk up on that car. But does not always hold up in court: one of the things I don’t have to like is what happens to me because of what I Then when I go to court, the kid [is] do, and what happens to people be- wearing the gang attire, standing on the

Police Foundation 18

corner or whatever. He’s got his mom discriminated—are more likely to dis- with him, his dad with him, and a lot criminate against black, Asian, or His- of family members. They have got a panic people. lawyer, an American Civil Liberties …I’ll give you an example. We’re sit- Union; they are pissed off. Then the ting around a table at a chief’s forum.… media [have] gotten in the middle of it I work in the black community. I have and [are asking], “So that’s good police got a black man sitting next to me who work? This just kind of seems a little is a leader in the black community. He intrusive to us, officer.” …[S]trong says there [have] been X number of As a result, his department no longer con- gang homicides on this street over the police dones this activity: “[T]hey went the oppo- period of the last couple of weeks, and presence in site liberal extreme. Our chief told us that we need to do something about it. We have got a white guy sitting across the minority if you see a kid who is dressed in gang- bang attire [and] who is in the wrong neigh- table who lives near one of the white communities, borhood at the wrong time, that’s not area high schools. He says, “Well, the which have enough to contact him.” problem in our neighborhood is smok- ing off campus. The chief is sitting Another officer said her department also traditional there. He’s [thinking], “Let’s see. We’ve would not permit such a stop: policing, got people dying over here, and we’ve We don’t have routine pit stops or rou- got Mr.-let’s-not-have-kids-smoking contributes to tine core stops. I mean, I can’t assume over here”.…How can you help but the negative because you are wearing your hat back have the disparaging sort of view from with your pants back—they are falling the different racial populations about view of police. down—that you are out there selling police authority. I don’t see how you drugs. You might be a college-educated can get away from it. person that liked that type of dress, so Another officer, also not surprised by the we can’t assume that. We are held re- poll, suggested that the strong police pres- sponsible for that kind of thinking. ence in minority communities, which have The moderator cited a national poll that traditional policing, contributes to the nega- reported that while 63 percent of whites tive view of police: stated they had a great deal of confidence [I don’t know if] the traditional way that in the police, only 26 percent of African we do policing [is] reflective of every- Americans felt that way. The moderator body’s department.…The majority of then sought participants’ reactions. One police stations or policing, as it were, officer made these observations: are situated or centralized in predomi- I can see why, though the people who nantly black or minority communities. are black might be more inclined to Therefore, most of the police contacts have less confidence in police because that occur during the course of a day police historically are predominantly are involving blacks or people of color.… white.…I think white officers—those Most of those contacts have to do with that stereotype or those that have enforcement, either that or the police

Rank-and-File Police Officers 19

have been called in again to remedy or You have certain cultural groups—be- resolve a situation. cause of where they come from—[who] come to America. They have their own Race and Community Policing fear of police. We [police] have to go in The view of the officer who saw a strong, and break down that fear, set up com- but negative, police presence in minority munications, set up information, open communities was that community policing those lines of communication, [and] bring can be expected to improve the confidence them into the fold. level in the police of African Americans. “We [police] This view was shared broadly among par- The Culture of Policing ticipants. As he suggested, In seeking to understand how much the have to go in By seeing the police in a different light culture of policing contributes to abuse of and break and seeing them as not just people who authority, we focused on two aspects at- down that go in to enforce the law and to effect tributed to police culture: (a) the “us-ver- an arrest, but [as] problem solvers and sus-them” mentality, with its premise that fear,…set up police officers who are in constant contact facilitators in that they help guide and information, direct people into situations—help re- with problematic citizens tend to view all solve their problem—I think that num- civilians suspiciously; and (b) the “code of open those ber [26 percent] is probably going to silence,” in which police officers protect lines of go up. It has no choice but to go up. I (by not reporting) their fellow officers in mean,…the police are now helping out situations involving inappropriate or communication, as opposed to the bad guy [who] comes abusive police conduct. We began by ask- [and] bring in and just drags people out of a neigh- ing whether the participants believed there them into the borhood and takes them away. was an us-versus-them mentality and what its role might be in the abuse of fold.” One participant prescribed community authority. policing to improve race relations, with- “Us-versus-Them” Mentality out actually naming it. He saw One participant referred to a scholarly ar- …race relations improving with the ticle that described the psychological and amount of police that you are able to physiological response to living with the put on the street. The more police that dangers of police work on a daily basis: you are able to put on the street, the When you go out into the street and more police officers will be out there you make contact with somebody on a [and] be able to do one-on-one com- call or a car stop…you begin to see munity involvement. There is no way people, anybody, anywhere, as poten- you are going to improve relations on tially a threat of death to you. So you an amicable basis…when all your develop this vigilance for work: I’m officers are able to do is answer runs. ready. I’m on. I’m prepared.…And then One officer who worked in community what happens is [that] you sort of turn relations saw the solution in expanding that [approach] into hypervigilance.… communications, which is also a feature You’re always…looking over your of community policing: shoulder;…you’re a little more aware

Police Foundation 20

than the general public about dangers However, the participants felt that this vigi- that you encounter.…And then, over a lance does not lead to problems. More se- period of time, you [need] something vere manifestations of the us-versus-them to check that. In other words, people mentality can cause potential problems. don’t get on the phone to 911 and tell Participants described a type of police of- us how good their life is going;…they ficer who is intensely identified with his get on the phone [to] tell us when things role and who may be “the ones that don’t are horrible. So those are the kind of make it”: experiences that we have over a pe- You’ve got a lot of guys [who] are cops “There’s riod of time [that] can divide us. And in the day.…They hang out with cops. we may respect people.…We may an over- They talk about cop stuff. All they do be thinking compassionately.…But is cop, cop, cop, cop, cop. And those identification ultimately…you begin to see people as are the guys [who] are in that hyper- with the police a threat of death to you. vigilance mode. These are the guys role. In other A number of participants acknowledged [who] read gun magazines.…And, words, police that the us-versus-them mentality is a cor- you’ve got to wonder about that. ollary of the requirement of their work that Conversely, one officer suggested that the work becomes they be vigilant at all times. It is an attitude attitude described as problematic was more that never leaves many of them, on duty your life….” common than the more-balanced attitude or off. Two described experiences in that the participants were claiming, and he traveling to Washington, D.C., for these implied that the participants may not be meetings: all that different from the supposedly more- We were talking—this is ironic again. extreme adherents of the us-versus-them We were talking the other day about mentality: going in restaurants and…we kind of There’s an over-identification with the [took] an unscientific poll. How many police role. In other words, police work of us sit with our back to the door as becomes your life in some ways. The opposed to sit facing the door? How people who are here in this room—in many of us read customers that come many ways in my experience—are the in there? And we were talking about exception. I mean, I know a lot more keeping our eye on the cash register. people [who] are acting and behaving We’re almost expecting something to in the ways that we are characterizing happen. than people who live and act and be- Or in the cab. Everybody was talking have as we’re saying we do. about [being] in a cab.…We’re in a city Comparing his life to that of his brother we’re not familiar with. Get in a cab the banker, one officer admitted to living with this guy. It’s the middle of the with an us-versus-them mentality: night, and we’re driving, and, oh, okay, he’s taking us somewhere to kill us. All [W]hen you’re bombarded with nega- right. So what do I do now? tive all day, pretty soon that becomes

Rank-and-File Police Officers 21

your life, okay, because you are out population of officers in their departments. there doing it to save your life or save They joked, “Oh, I think so,” and “The the life of others.…But as a police of- department will not send one of them to ficer, I have to be concerned with my Washington.” Because the participants con- life and everybody else’s. sidered themselves “exceptions to the rule,” they were asked how they personally man- Another officer admitted not being so far aged to avoid the more-negative aspect of from the gun-loving officers characterized the us-versus-them attitude. The partici- earlier: pants credited their own personal integ- I agree with…your over-gung-ho rity—and often their religious or spiritual “[W]e work people with the gun magazine promot- beliefs—with being key factors in avoid- 8 hours a day, ing guns and this, that, and the other ing those attitudes. They also suggested 40 hours thing. I like guns as much as the next involvement with positive people or ex- guy, but I’m nowhere near that. But I periences, and humor. Typical comments a week, for a included these: do have something to say. In my expe- combination rience, the [military] veterans are… I think it is filtered out by how much of 30 seconds some of the best police.…They usually you are involved in other things other find a common bond. Yes, a lot of them than your job.…[Those who] are in- of pure, sheer come out of the chute a little too fast.… volved in church…get to see the good terror that can But some of our veterans are some of side of life. For most of us, kids suck the best guys you can depend on.… because the only kids we deal with are come at [W]e work 8 hours a day, 40 hours a kids who are problematic. I’m lucky any…time. week, for a combination of 30 seconds enough that I’m involved with the youth of pure, sheer terror that can come at group at our church. So I see the best I can’t think any unknown time. I can’t think of an- of teens also. And that kind of balances of another other occupation that’s like that. That’s things. If you don’t seek out the best in occupation where the understanding comes in.… [kids], all we are left with—with this I’m asking you [the public] to sympa- job—is the worst in [kids]. And you have that’s like that.” thize. You’re [the police] supposed to to actively do that, otherwise you will be perfect, perfect…up to the point become mental[ly] unstable. where you make a minor mistake. Then you’re held with a level higher, held to I think in myself, anyway, [that] I have higher accountability. a great appreciation for life after see- ing death. You see people die [at] a Thus, as the discussion progressed, it be- young age. You see so many things that came apparent that from the participants’ you see the worst in people and you viewpoint, many police officers have the see the best in people. And you really more-negative version of the us-versus- kind of balance it out. them mentality, and perhaps the original distinction was overdrawn. This revelation You have to use every tool that you led to questioning whether the participants can. Because of my demeanor, I use felt they were the exception to the general humor to bring about some levity, to

Police Foundation 22

bring about some light in stressful situ- forms of the us-versus-them mentality, the ations. [It is] by no means demeaning, participants generally felt that type of of- but I try to bring about some light. ficer does not remain very long in the po- lice profession. Comments included these: I feel the spiritual side. I know what guides me because I would have They’re the ones that don’t make it.… burned out years ago. I know how to Four or five years, burned out. They get bow down to that. I know how to ac- injured, get hurt.…And they’re the con- cept it. I know how to find it within stant revolving door of law enforcement. me. It’s what drives me. A lot of offi- …[P]articipants Get hurt mostly. cers will not admit to a spiritual side indicated the until it gets tested. The participants indicated the need for need for more more experienced officers to take a lead What does it take to humble you as a in helping officers cope with the stress of experienced police officer? It may be something as the job and their personal lives: officers to take simple as an old lady you’re giving a ticket to who will give you her license And you help the other police also with a lead in and say, “I need to come off the that [seeking the best and not the worst helping officers road”.…Or it may take a kid whose in the job].…You help other police of- mother just got killed by his father, you ficers. Because when they had a prob- cope with the know. What is it going to take for you lem, their own personal, they’ll come stress of the job to come back to reality and realize that to you because they see you in a you’re just a cop? You’re just somebody certain light. And they see [that] you’re and their out here doing eight hours. always working with kids. You got some- personal lives. thing I can do with a kid.…So you be- You have to keep that spirituality within come a reference point for them.…And your heart because God is the one that I find it ironic that we, in community watches over you, protects you from policing, help the community. But what that unseen danger.…I tend to find happens to our problems? myself bringing that spirituality in the community and that gets rid of that us- We still have everybody [who] gradu- versus-them because that’s when the ated [in] our class in the department, devil gets involved. and everyone is doing well and we keep in touch with each other. [When] I’m going to take care of my family and somebody has a problem, we can call that’s one of the things. Here I’ve been one another. doing this job for 10 years and prior to that, I didn’t have the sense or the feel- Our department has a mentor officer ing in that very strong way. So that’s an program. When new guys come on, the important point for me. Sort of a stake training department looks at the old in the ground in terms of taking care of guys [who] have been on a while like myself, taking care of my family. we’re looking at one another here and saying, you know, that guy is a guy While acknowledging that a number of [who’s] doing something right.…They officers exhibit these more problematic take guys like me, and they pair me up

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with a brand new guy.…You just talk using what they have.…So that dimin- about whatever interests him.…Of ishes that us-versus-them because course, new people want to know they…get a chance to know a police about being a cop, and my job as a officer or know the community on a mentor officer is to make sure that he first-name basis. understands everything: how to be a The participants agreed that all police of- 20-year veteran, how to retire from the ficers exhibit some degree of an us-ver- job, not how to make it necessarily the sus-them mentality—as a mechanism for year. FTOs [field training officers] will survival—but that attitude in a more ex- take care of that. You’ve got to make Community treme form can cause problems with the sure that they are human beings and community’s perception of the police. Com- policing was members of society for that entire munity policing may prove to be an im- career. …seen as a portant key for addressing the problem by critical Community policing was also seen as a creating more-positive interactions with the critical component in preventing the us- community that will, in turn, provide of- component in versus-them mentality by allowing officers ficers with a more-positive perspective on preventing the the opportunity to have more positive con- the people they serve. tacts with the community. As one of the us-versus-them participants commented: Code of Silence mentality The topic of the “code of silence” or “blue I think when you’re in control also, you by allowing see the community in which you work wall of silence” generated more controversy a little differently than a community than any other topic discussed. The dis- officers the police because you’re in service. Okay. cussion began with a flat denial: “I’ve got opportunity The radio dictates your movements, to tell you: there is no code of silence.” to have more your time. The only time you’re in con- However, even this naysayer before long trol is when you take a personal or admitted to what amounted to a code of positive silence, though he preferred to call it when you take lunch. When you’re in contacts with community policing, you dictate what “police subculture.” happens. You control the pace.…Most At first, some held that the code of silence the community. officers I’ve seen who come out of was a media creation and was based on patrol…[when] they come into a posi- isolated incidents that would negatively tion in community policing, they sit stereotype the public’s perception of the back. Say, for example, in a situation police. Others admitted it exists and poses like this [the focus group] and it’s, “Oh.” problems, but they suggested it is not as The sigh of relief. You’re in with people pervasive as is sometimes depicted in the [who] have education, [who] have a media. The officer who denied outright that home, [who] have interests other than a code of silence exists immediately de- robbing a bank, taking drugs, beating scribed something approximating such a on kids, or whatever the case may be.… code for minor transgressions. What If they were in service [patrol], what- concerned him was that people would ever skills they have, now they can suggest such a code applied for criminal come to surface. In other words, they’re activities by fellow officers:

Police Foundation 24

The code of silence is I take care of admitting to the possibility of the wall of you, you take care of me. Yes, I might silence resulted from the kinds of activities drive a drunk officer home. We may that were permitted to stay behind the wall. overlook the minor things. They’re in What kind of “police misconduct” was be- no way infractions upon society or other ing ignored? Whether the term “police mis- police officers.…Good police officers conduct” referred to officer violations of police other police officers. Nobody minor departmental rules and regulations, does that stuff in front of me.…But the or to criminal violations committed by media take that and run. Code of si- officers, affected the participants’ perceptions …[P]articipants lence. Code of silence.…I’ll protect just of the code of silence. The participants …insisted… about anything: your morals, your foun- consistently insisted that for them no code dation, your beliefs.…But I’m a crimi- of silence exists for incidents involving no code of nal, and you’re going to look out for criminal misconduct by a fellow officer. silence exists me. No way. It’s just the opposite.… One officer admitted he might turn his head So that code of silence…insults me per- for incidents while his partner “smack[ed] a crook,” sonally. Its credibility. involving though he would not tolerate stealing: Another officer stated, “[T]he blue wall of criminal silence, Louima thing, blue code of silence, No, I’m not going to tolerate your steal- ing in front of me. Okay. I’m not going misconduct and everything else,…this is all stereotyped in the media. Whatever the media see and to tolerate your abusing your family in by a fellow whatever they print, people perceive that front of me. Am I going to turn my head while you smack a crook?…It officer. to be true.” depends.…Then is my partner going Others agreed that the media exaggerate to tell on me? Maybe. Is the crook go- the wall of silence: ing to tell? Maybe. But that’s something I think it does vary from department to that I did.…I think it’s upon every of- department, jurisdiction to jurisdiction, ficer, if he’s going to do something…is but, in general, I think certain people it something that I’m going to get in in the media or just certain people [who] trouble for or is it something that I won’t have been violated by the police would get in trouble for? If there’s a chance suggest that it’s so pervasive that’s it’s I’ll be getting in trouble for it, going on everywhere.…I’m not a fink, 99 percent of the time I’m not going to but if it comes down to [my] getting on do it. the box [trial stand] lying for you or One officer described a rejection of the [my] putting my family out into the soup code of silence in his unit: line, I’m not going to lie for you. If somebody has done something, our All it takes is one incident. One nega- unit has an understanding. Nobody lies tive. And then the media come in and for nobody. You don’t do something they blow it into like that’s what goes as my partner that I have to lie for you. on every day, all day. …If you are going to require me to lie As the discussion continued, it became for you, then I don’t want you as my apparent that much of the resistance to partner…because now what the hell

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else are you going to require me to lie [Officer 1] “Now,…my question to you for you over? is what is your line? Are you saying as Another officer emphasized drawing the far as, let’s say, a felony, that a fellow line at felonies: officer would commit or [are] you say- ing some minor rule or regulation? A [T]hat’s a felony. There’s no cut and dry cop didn’t wear his hat.” when it gets to that point. If he puts you in that line of fire, he’s not your [Officer 2] “Tell the truth or get sus- friend anymore. He’s not your part- pended for 30 days without pay.” ner.…It’s not, well, you know, no [Officer 1] “It depends upon the in- “…[O]nce you problem.…But once you cross that line stance.” into felonies, you can forget it.…I don’t cross that line [Officer 2] “No. It depends upon know a cop out there [who’s] going to whether or not I tell the truth or lie and into felonies, go to prison for another cop. my family is put out and inconve- …forget it.… Another suggested that there are those cops nienced as a result of some indiscre- who get involved and those who don’t, tion or action as a result of you.” I don’t know a and the dishonest cops know the differ- cop out there ence: “The cops that are doing these kinds [Officer 1] “It depends upon the inci- of things…they know the cops [who] have dent. Are you going to tell on your part- [who’s] going to ner because he didn’t wear his hat?” integrity [and] who are concerned about go to prison for their images.…As a result, they don’t pull [Officer 2] “…well, we don’t have to you into that.” wear a hat.…” another cop.”

Some participants felt either it was their [Officer 1] “You say you are required to duty to report even small departmental wear your vest.…Are you going to tell rules violations, or at least they would not on your partner because he didn’t wear cover for the violators if asked, because his vest?” participating in that way could, if discov- [Officer 2] “I’m going to hope my part- ered, jeopardize their pay. That is, the cost ner doesn’t put me in that position, but of upholding the code of silence could be if my supervisor—” too high: “I’m not a snitch, and I’m not a fink, but if it comes down to [my] getting [Officer 1] “Would you tell on your part- on the box [and] lying for you or [my] put- ner if he didn’t wear his vest that day?” ting my family out into the soup line, I’m [Officer 2] “If I would voluntarily go be- not going to lie for you.” Whichever posi- fore my supervisor and say, [he] didn’t tion was taken on whether to report such wear his vest. No.” infractions, the decision was generally [Officer 1] “Why?” viewed as being at the discretion of the individual. That discretion included [Officer 2] “That’s not my position…if whether to report the violation to superi- the situation reversed, if the supervisor ors, to report only if asked, or to remain came before me and asked me the ques- silent to protect the officer. The following tion, you know, I would have to de- dialogue between two of the participants cide at that particular time, but I’m go- illustrates the minor rule violation dilemma: ing to tell you here’s where it escalates.

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If the supervisor says, tell the truth or Now, as far as…we have to wear our do 30 days without pay. Well, he didn’t hats if we’re in uniform.…So if I make wear a vest.” a run and a citizen drives by and sees my partner without his hat on…and I The discussion suggests that for one of the get questioned about it later on, I don’t participants, his assessment of the serious- know. He may have had on his hat. I ness of the incident and the possible con- wasn’t paying attention. Do I know for sequences (e.g., disciplinary action) of his sure? Maybe I do; maybe I don’t. Is it failure to report the incident were critical going to affect my paycheck? That’s factors to be considered in the decision to “Where they what he’s [the participant] thinking. If “tell on your partner.” Similar points of view it affects your paycheck, yes [partner [the public’s were expressed by other participants, al- was not wearing hat] because now though one participant felt that it was not perception] you’re affecting his livelihood. But if at the officer’s discretion. That participant it’s something as minor as that [violat- hold you over emphasized the need for the officer who ing the policy on wearing a hat while the barrel is did not wear a hat or vest to be account- in uniform], I don’t care about that. able for that action and not to place a fel- they constantly low officer in an awkward position when If it comes down to something as stu- want to attack questioned by a supervisor. Reactions to pid as a hat, and we’re sitting next to the minor departmental rule violation ex- your level one another and the supervisor [asks], ample included the following: of discretion.” “Was [the officer] wearing his hat?” It’s Where they [the public’s perception] up to [that officer] to say, “No, I wasn’t.” hold you over the barrel is they con- And if [that officer] doesn’t, he wants stantly want to attack your level of dis- to make me lie over a hat? No, nega- cretion. They want to say, “Okay, you tive. I tell my supervisor the exact wouldn’t tell on your partner for not truth.…I’m not going to lie for you nor wearing his hat, not wearing his vest?” are you willing to require me to lie for So what’s to say that you’re not going you.…No [it’s not discretion]. We po- to tell on him for robbing a bank, tak- lice ourselves in that way because…if ing a handful of money on a burglary anybody wants to make me lie for call out of the open door in back? them, then that’s somebody that I cer- Whereas you’re susceptible to not turn- tainly do not want near me.…I’m go- ing [him in]…from wearing his vest or ing to tell the truth, and then that per- wearing his seatbelt. What’s to say son is no longer a part of whatever, you’re not susceptible for the thing? whether it [the incident] be minor or Same thing might be susceptible for not major. And criminal violations are way writing a traffic ticket when you blew out. You don’t wait for somebody to ask that stop sign yesterday. It was my dis- you over. If it’s a criminal violation,…you cretion. It’s the same thing that makes take care of that [person] immediately me take the driver home on a DUI [driv- with your supervisor and that’s taken ing under the influence] rather than care of. arrest him.

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[Participant’s response to the comment there. All right.…For me, it’s better for made above.] That’s why that term [code my partners [whom] I’ve worked with to of silence] is insulting to a good cop. know that yes, if you do something ri- Any [officers who push] me in that line diculous, I’m going to let it be known of fire [criminal violation], they brought because that keeps them in line and that on themselves. They asked for it. keeps me in line. Okay. And then there’s no question. The focus of the foregoing discussion was a situation involving the violation of a mi- No. You take me right out of the dis- nor departmental rule or regulation. We cretionary loop once you do that. If “…[A] bad wanted to find out the participants’ per- somebody is in jail, and you decide to spectives on situations involving more se- give him a good crack, you took me cop will force rious (i.e., criminal) forms of police mis- out of my discretion. You put me now you to try to conduct. An example of a situation involv- into—you forced me into—the role that ing serious police misconduct was I’m already in as a police officer. Now remain silent. suggested by one of the participants: “Or I’m forced to police you. You put me He will use the popular one. The handcuffed pris- in the line of fire.…So you’re account- put you on oner [officer physically abuses prisoner]. able at that point. That’s the most popular.” the spot.… The attitude has existed here [his de- Thus, we asked the participants to provide partment] a number of years where you I hate it.” their views on a situation involving a fel- don’t burn blue. The so-called bad cops low officer whom they witnessed striking will put you in that position, and they a handcuffed suspect. The consensus will try to rely on your loyalty. You see among the participants was that officer dis- me slap him. It’s like okay, you don’t— cretion, as a factor in the decision to re- in front of all the guys. Because of the port the offense, would be totally elimi- moral issue, do I say, “Yes, you did,” or nated. In addition, some indicated that the do I say, “No, I didn’t see.” It’s up to individual officer’s own moral code would the individual officer. You do something be a crucial factor in the decision-making criminal, [and] you put me on the spot— process. Typical comments included the indicted, you be a man and you handle following: yours. Don’t force me to force you. Certain lines I don’t cross. It’s an indi- I’m honest. I’m not going to bull here. vidual thing.…But a lot of cases we I’m telling you exactly the way it is be- won’t come forward, but when the cause I don’t care. All right. I am not department finds out and we’re put in going to,…let’s say, tell on my partner the line of fire, yes, you know it, we about things—and I understand what know it.…But a bad cop will force you he’s saying—things that do not pertain to try to remain silent. He will put you to my paycheck or to my life, my per- on the spot, and I don’t appreciate it. sonal life. No, I’m not. But if there’s a I hate it. chance that it could come back and cause stress and strife in my personal life, with- [Y]ou are who you are and you are what out question [I’ll tell]. You hit. You know. you are. The badge and gun only em- You should have done it when I wasn’t phasize sometimes what it is that you

Police Foundation 28

are as a person. You have your own I’ve gone through doors with…who has set of morals. And yes, the department gotten out and now he’s put me in this has [its] set and the society has [its] set, situation. What the hell am I going to but you yourself, when you talk about do? code of silence, you know what you’ll Well, the easy way for me to do it is to be able to do and what you’ll be able shut up and sit back, and let the investi- not to do, and it’s up to you to make gation start. And let me see what I may that decision. have to say. I was going to take that “…[I]f your To provide further illustration of the per- approach until my partner called me sonal dilemma that an officer contends with …“you can’t tell them what went on.” partner does in making the decision whether to report And I said, “Wait a minute.” And I police misconduct, one of the officers re- something started…[comment made by another called an incident that he was involved in felonious and participant] [to say], “Is this going to with a partner. In his discussion of that affect my house?” Yes. Because…if your you do not incident, he framed his story in terms of partner does something felonious and the earlier discussion of the code of silence say anything you do not say anything about it…you as a way to understand the personal chal- are in just as much trouble as your about it…you lenges that an officer can face: partner.… are in just as I had a partner when I first started work- So I was going to be quiet until they much trouble ing vice. On our way to one of the bomb asked me. I wasn’t going to volunteer. as your threats, my partner happened to see his That’s the way a lot of officers do. They girlfriend in the car…with her boy- [think], “Well, I’m not going to say any- partner.…” friend.…I don’t know the girlfriend. I thing until they ask. If they ask me, don’t know the boyfriend.…I didn’t well, I’ll make a decision then.” Which know anything.…I had no idea what the is what…[comment made by another hell was going on. My partner says to participant]…I did that until he called me, “Hey, that’s a friend of mine.…See me at my home and asked me.…In fact, if you can pull them over so I can talk to he demanded, “You can’t tell them what her”.…I pulled over. I got out. My part- went on. Man, I’ll be—I’ll lose my job.” ner got out. And he got into a physical altercation with this young lady. And so I said, “Wait a minute. If I don’t tell I began to get out of the car to break this them, I’m going to lose all those same up. Her boyfriend got into this alterca- damn things that you’re talking about. tion also. My partner’s gun was drawn, This wasn’t my girlfriend.…But you put and he feloniously assaulted both of them me there.” Which is what…[comment with the gun.…He beat them. He pistol- made by another participant] is talking whipped them.… about.…If you think, as an officer, that you’re going to do something that’s Now, I’m standing there scratching my going to jeopardize your partner or that head going, “Oh, shit. What am I going you yourself could get in trouble for, to do?” Here this is my partner who is you better not do it in front of me. watching my back many times, whom

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Noting that the participant initially felt he question is, are you protecting the code should wait for an investigation or until he of silence by—even allowing—know- was questioned by a supervisor rather than ing inevitably you’re going to go ahead come forward to report the incident, we and break down? But are you, in a asked if that was a common approach sense, I guess, enforcing the code of among police officers. The perspectives the silence by waiting as opposed to… officers brought were theoretical when knocking on the door. Hey, I got some- compared with the actual experience the thing to tell you? That’s a tough call. first officer related. Several officers spoke Another officer invoked both integrity and of a higher standard to which police are “…[A]nother the higher standard to which the police held. For example, “We don’t have—the are held, which favor calling and report- thing…is public doesn’t have those expectations to- ing the incident: ward those people [people in private or- the subculture ganizations]. [When] you look at us, we But ultimately, your integrity is going of police.… are held to a higher standard.…And we to be more important to you over your [L]et there be accept it…you have public accountability, career than your loyalty to one another just like politicians. You have an account- is going to be. And the public does hold a snitch in the ability to the public.” us to a higher level.…I mean, it’s [the department… public] certainly [having] the expecta- One participant said his approach would tion that we are not liars and thieves. and we have been immediately to call his supervisor: A frank discussion of the pressures of the absolutely subculture of policing was offered by one I would handle that differently.…And hate him.” participant: there’s no right or wrong, but as soon as that person committed that act, then I’d say another thing…is the subculture [it’s] up to the supervisor to make that of police.…Subculture policing helps decision. My supervisor gets a call and hold that down. There’s a lot of guys then he makes the decision…when [an [who] would say things but don’t be- officer] hits somebody for no reason, cause they’re afraid to be chastised by my supervisor is called. Everybody the people around them, the other waits right there and he can explain to cops.…But let there be a snitch in the [the supervisor]. Because at that point, department…and we absolutely hate when he pulls his gun out and pistol- him. It’s the worst thing you want to whips somebody for an illegal reason, hear about.…Very few people…in that then he’s made my decision for me. I subculture say, “Hey, wait a minute. have no more discretion. What would you have done?”…Oh, I guess I would have done the same Another officer felt it was “a tough call”: thing. You’re danged right you’d have I think [that with] the questions you’re done the same thing. That subculture asking, we have a policy. As an obliga- stops.…How you’re treated, how you’re tion, you’re obligated to report this to chastised, how you’re labeled. It’s a very internal affairs to come and question big thing in policing. you with regard to that. And I think the

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The discussion made apparent that a code going to put down their doughnut and of silence does exist in the police subcul- come to get you. That’s hard. That’s ture and could place pressure on an hard. officer’s deciding whether to report an in- Although the discussion suggested a code cident involving serious misconduct. The officer may consider not only what his or of silence influences their behavior, par- ticipants commented that the amount of her own morals are, but also how fellow behavior that involves covering up mis- officers will view his or her decision. Of- ficers who report on fellow officers may conduct is very small. Estimates ranged from 1 to 5 percent. But, as one officer “…[Y]ou are be “chastised” or “labeled”: suggested, “[F]rom that 1 percent, you are judged on the If you place an officer in a position judged on the acts of that one [officer]. It’s acts of that where he would have to either lie for 99 percent that are out there doing the right you or face alienation by coming out. one [officer]. thing.…Because it’s that same one person We have one guy that busted…our TAC that you will be judged by civvies.” …[N]inety-nine [tactical] unit, but to save himself.…That At the close of the discussion, the partici- [was in] 1987 and he’s still on the out- percent… pants criticized the media for creating the side. He doesn’t exist. He doesn’t get public perception that the code of silence are out there backup. No one hangs out with him. problem is an everyday occurrence in po- Far as they’re concerned, he’s a bas- doing the licing. Because of misrepresentation by the tard child in the department because media, all police officers are perceived by right thing.…” he came forward in the way he did. He the public to support each other when in- saved himself from indictment but ev- cidents of police misconduct occur by not eryone else got indicted.…That’s an ex- acknowledging to the proper authorities ception. It’s not common at all. It’s a that the incident took place: one time thing. But that [incident] got blown out of To be isolated for something, for being proportion [by the media].…Is the blue labeled. It happens all the time.… code of silence, Louima thing, blue Nobody wants them around. You’re code of silence, and everything afraid to say anything. else…stereotyped by the media? What- …[A]s a police officer, you don’t get ever the media see and whatever they backup…which means that because print, people perceive that to be true, you stood on something that you felt no matter how much it is [and] no morally right on…that’s a hard pill to matter how minute it is.…But that’s swallow.…[U]nfortunately these same how people perceive things. And officers that sometimes you are everybody gets stereotyped. snitching on, or you are telling on, or The media take that one bad experi- whatever, are the same officers [who] ence that he had and make it every- are going to be there at a domestic. Or one. who are going to be the ones that you’re going to [see] when you call for help; All it takes is one incident. One nega- they’re going to be listening. And they’re tive. And then the media come in and

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they blow it into that’s what goes on very much troubled by it.…I feel bad every day, all day. It’s like that incident for the first one, two, three, four police in New York. officers who are going to be the test pilots, if you [will]. They are going to The public’s perception of the existence get, I feel, very mistreated. Everybody of a code of silence poses problems for does. There are good things, don’t get the police profession, even if the me wrong, with a review board.…But perception is exaggerated. As the participants right now we are having a hard time suggested, the community will not perceive incorporating. their police as professional if the code of “Who is on silence or if police misconduct in general is …civilian review board, we have one; condoned. it doesn’t have any power. It doesn’t the bar dictate department policy. association? Solutions We have it. A lot of controversy. Lots Lawyers Agency Procedures for Dealing and lots. Officers don’t particularly care. judging with Abuse of Police Authority The general consensus is they don’t par- We posed a number of questions regard- ticularly care for civilians judging them lawyers. Who ing procedures for handling complaints: and their actions, because they don’t see is on the How should investigations of citizen com- it from—the perception is different. plaints be handled (i.e., internally or by doctors’ outside civilian review)? Is civilian review They [civilians] don’t know the emo- associations? of police misconduct effective in address- tional side and everything that we see ing problems of abuse? Do such reviews and we deal with. Doctors affect officers’ behavior? judging Who is on the bar association? Lawyers Interest is growing in the possibility of es- judging lawyers. Who is on the doctors.… tablishing independent civilian agencies to doctors’ associations? Doctors judging Why are we monitor police conduct. A number of U.S. doctors, doctors policing doctors. We cities have some form of civilian review are a specialty; we go to training; we different?” for citizens’ complaints against police. deal with other people just like them. However, controversy persists about the Why are we different? best mechanism for handling police mis- conduct. Police sometimes argue that only But in our profession…it’s civilians now the police can effectively “police” the po- and not police officers and bosses or lice. We asked the participants for their mid-management or upper manage- perceptions of the use of civilian review ment, however you want to call it, boards, as well as whether their own cities making a decision. had established civilian boards for review- Ours is not a fact-finding board so to ing citizen complaints. Participants re- speak. What they do is just an over- sponded as follows: sight committee that basically ensures We are just getting it [civilian review].… that the investigation is thoroughly con- We as police officers and the unions ducted and that…no indiscretions or are adamantly against it. We are very, abusive things [are] going on during the

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investigative process.…But everybody police misconduct be placed in the police seems to be pretty happy and content and not with civilian review boards. …in that the police are policing and Rewarding Good Policing the citizens are content with the fact The topic of rewarding good policing was that they are somewhat representing never addressed directly, but officers re- them to ensure that the police are, in ferred to it at various times. One sugges- fact, policing the police and didn’t tion was from an officer who recom- sweep it under the carpet. mended “going to people and saying, ‘Hey, “…[P]articipants I mean historically in [his city] civilian you did a really good job.’ Nobody ever review boards were not a good idea. comes up to me and says that.” Another …preferred They didn’t work or are not going to officer put it this way: that the work because basically you’ve got a You’d like to see somebody come from responsibility bunch of headhunters.…We also on top of the hill to say, “Hey, I ap- have…[a committee]. Basically, your plaud this officer.” That’s what I’m say- for reviewing peers [assistant chief, captain, lieuten- ing. And I know [from] being there, it police ant, sergeant, and a police officer]. was difficult for [me] and several offic- And they review the complaint, they misconduct ers that I work with because you’re review the evidence, and they looking for someone to say—not so be placed in suggest a punishment. much they have to give you a little the police We asked whether they preferred internal plaque with your name on it and all that. That’s not what I’m talking about. and not with review processes over civilian review boards and received the following Just [for them] to acknowledge. civilian review responses: In general, the participants felt the need for boards.” I’ll tell you. It should stay the way it’s the department, particularly among individu- been. IAD [internal affairs division]— als in upper management, to recognize the whatever you want to call it. I’ll tell you positive accomplishments of officers and not what: I had no complaint with ours.… to focus entirely on the negative. Typical What I need is to take care of our own. comments included the following: And that’s one place where they were It’s difficult to do because I don’t think doing a fine job of it. Our IAD was anybody came on this job, number one, doing a good job. if they are financially independent and, number two, being praised. For the …not only IAD, even when it comes most part, it’s a thankless job. There down to just a simple supervisor’s com- are a lot of things that go unnoticed. A plaint. [Sometimes] your sergeant has lot of people don’t recognize or realize come out and [is] supposed to be with …it could be balanced out if people the person and [to] stop it right there from management to citizens or who- before it even gets to IAD. ever [could] take as much effort and In general, participants had limited expe- attention to looking at your deficien- rience with civilian review, but they pre- cies and [could use] that same energy ferred that the responsibility for reviewing to look at some of the positive things

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you do.…You know, just to tell a guy a I find that, for me, I was always asking job [is] well done motivates that guy to that question in my years of commu- get up and pull himself out of bed the nity policing. But I guess for me I found next morning and give…at least that the pat on the back by being asked to same effort. come here [as a participant in the focus group]…To me, that was a lift. But you get hollered at every other day for something that you did [that] in their I agree with [comment above], [it’s the] [police administration] mind is wrong.… same thing. That’s why I’m here, be- So I think there should be an equal cause of my commissioner, and he “If you are amount.…If you are going to get at me thinks very highly of me, which feels about what I do wrong, get at me about good. going to something I did right, too. get at me In addition to the need for departments to …in the last three or four years, I re- provide recognition of positive police be- about what ceived over 40 [commendations] and let- havior, the participants feel that recogni- I do wrong, ters from citizens thanking me.…The tion from the community is also an impor- community has been very responsive tant factor. While having a difficult time get at me in thanking me. My department has with a certain community in embracing the about given me two in the same period of concept of community policing, one par- something time; my partner and I won an interna- ticipant commented: tional award for problem-oriented I did right, policing.…A year and a half later, I …But I guess that one community that I haven’t received a letter from my de- was speaking of earlier, I think if I got too.” partment saying good job. But I’ve re- more thank yous and pats on the back ceived letters from all over the nation from them, I would be more motivated saying good job. It’s interesting to me to work with that particular community. that we often don’t appreciate those But [in] the other two [communities he next to us while we [do] appreciate is assigned to], I can do something as someone from across the country. small as [this:] Just one old lady…lives in the community, and she calls me for We don’t get recognized by upper man- everything. And every time that I do agement. I wouldn’t say middle something for her, she really makes me management…your direct supervisor feel special. probably knows what you are doing because you make him look good as Awareness of this universal yearning for supervisor.…But for all those attaboys approval and recognition can perhaps in- that you’ve got, all the pats on the back, form the improvement of policing and the I’m saying, once you make a mistake in changing structure of police authority in judgment—not a severe thing, not a the age of community policing. criminal thing—forget about all those attaboys you ever got. Nobody will re- member that.

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Conclusion discussions were both candid and thought- The rank-and-file focus group discussions ful, thus enabling us to view and under- provided insights into some of the most stand these issues from the perspectives difficult and sensitive issues in policing. of the rank and file, who are challenged Initially, we were concerned that the par- by them on a day-to-day basis. Their ticipants might be hesitant to express their perspectives influenced the further devel- attitudes and thoughts on these issues. opment of the survey instrument and In the end, we were satisfied that the continued to affect our research.

1. The quoted portions of this appendix have been edited sparingly to enhance readability while maintaining the speaker’s voice. We thank David Hayeslip, Bill Matthews, Colleen Cosgrove, and Stephen Mastrofski for their advice in selecting police departments for the focus group.

Rank-and-File Police Officers