A PLAN son THE kmemmmon o; THE

NATIONAL BURENU 0F mvsmmnou or m:

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as 'LIBERM ‘ '

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1953 .

 

  
 
  

 
   

LIBRA R Y
Michigan State
v.1 URI-VCTSR'Y

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Submitted ‘

State [
SCiE
Du-
‘rcrtm
ent O

 

A PLAN FOR THE REORGANIZATION OF THE
NATIONAL BUREAU OF INVESTIGATION
OF THE DEPARTMENT OF JUSTICE
IN THE REPUBLIC OF LIBERIA

by

Edward Sumo Jones

AN ABSTRACT

Submitted to the College of Social Science Michigan
State University of Agriculture and Applied
Science in partial fulfillment of the
requirements for the degree of

MASTER OF SCIENCE

‘Department of Police Administration and Bublic Safety

1963

APPROVED

 

 

The
an organizg
respect to o.

to recomend

 

:5
.JESt Wall
This 5

:3 Chapter
“aka, Depar
:;Lxhl Burea

 

ABSTRACT

 

The objectives of this study are to evaluate the pres-
ent organization of the National Bureau of Investigation with
respect to organizational defects and personnel problems and
to recommend a reorganization plan which will be more appro-
priate and conducive to the system of government and type of
culture under which it Operates. The reorganization will
render the bureau a status equivalent to that of other world
famous national law enforcement agencies of its type. It is
a long—range reorganization plan.

Law enforcement personnel management is relatively a
new area of study. It is associated with the creation and
maintenance of a capable, well-trained law enforcement unit
under such appropriate conditions that the organization ob-
tains its goal of public service in a competent and respect-
able manner. One means of judging a police organization is
by evaluating the type of personnel it accepts in its service.
Sound recruiting standards and effective training programs
and practices can certainly contribute to the selection of
the best available applicants.

This study is divided into five main chapters. The
first chapter presents a brief history of the Republic of
'Liberia, Department of Justice, Police Services, and the
National Bureau of Investigation. They follow almost the

same pattern as the nation's history, emerging from a primitive

s‘age during
zoiern orgar
tar further
and the Sign

the Republic

The .

 

 

stage during the establishment of the Republic and the present
modern organizational structure of the government. This chap-
ter further explains the objective, definition, necessity,

and the significance of a National Bureau of Investigation in
the Republic.

The second chapter describes the present organizational
structure of the National Bureau of Investigation System in
Liberia and explains the functions and activities of the var-
ious divisions. The duties and responsibilities of the Direc-
tor of the Bureau and the ranking officers under his super-
vision are listed and discussed.

In the third chapter, a complete analysis of the
present organization is presented and careful examination is
made of its constituent parts. The most serious weaknesses
'which confront the organization are noted and discussed. Some
of these weaknesses, mainly concentrated on personnel selection
and management, include: recruitment, training, assignments,
promotion, discipline, and instructors. Despite these prob—
lems, credit is given to the progress the organization has
made in.the execution of its responsibilities.

Chapter four is devoted to recommendations for the
reorganization of the bureau. A comparison is made with such
famous law enforcement agencies as the Federal Bureau of In-
‘vestigamion, the United States Secret Service, the Central
Intelligence Agency of the United States, and Scotland Yard,

'Headquarters of the Metropolitan Police of England. The

reasons why
parison are
In t
clusions and
are presentec
It wj
absorption of
16‘th the c.

' -. 0
~ 5.7,. '1 ‘
‘nin. ‘

late fut

hiStory ENC c
It ls

 

reasons why these particular agencies were selected for com-
parison are discussed.

In the final chapter a summary is developed and con-
clusions and final recommendations for future developments
are presented.

It will be observed in this study that a full-scale
absorption of the western democratic concept of law enforce-
ment by the organization is not likely to take place in the
immediate future. The police system is a product of the
history and culture of the country, and in its reform, it
cannot be changed rapidly.

It is further observed in this study that a substan-
tial amount of technical develOpment will be forthcoming in
the not too distant future and it will surpass that of the
phiIOSOphic develOpment. Rapid changes in social, educational,
and political conditions and imperative operational necessi-
ties will undoubtedly generate advancement of the national
investigation technology in the Liberian National Bureau of

Investigation of the Department of Justice.

 

 

SubtliMed

eate
Scj

A PLAN FOR THE REORGANIZATION OF THE
NATIONAL BUREAU OF INVESTIGATION
OF THE DEPARTMENT OF JUSTICE
IN THE REPUBLIC OF LIBERIA

by

Edward Sumo Jones

A THESIS

Submitted to the College of Social Science Michigan
State University of Agriculture and Applied
Science in partial fulfillment of the
requirements for the degree of

MASTER OF SCIENCE

Department of Police Administration and Public Safety

1963

To Dr
lie of Liberi
33‘ apprecia: i
this academic

To Th
of Liberia:
State Univers:
Staff members

EBress grat it

.‘A

=Cessarv dat a

The g;

(I,

“"61 (3- Chap

 

 

f»

ACKNOWLEDGEMENTS

To Dr. William V. S. Tubman, President of the Repub-
lic of Liberia, I wish to take this Opportunity to express
my appreciation for making it possible for me to accomplish
this academic status at Michigan State University.

To The Honorable Joseph J. Chesson, Attorney General
of Liberia; A. F. Brandstatter, Director of the Michigan
State University School of Police Administration; and the
staff members of the Michigan State Police Headquarters, I
express gratitude for their c00peration in gathering the
necessary data for writing this thesis.

The guidance and assistance provided by Professors
Samuel C. Chapman, George D. Eastman, and Roy E. Hollady,

my major advisors, are gratefully acknowledged.

E. S. J.
13 March 1963

Th

Hi

FUD

fr}

 

 

CHAPTER

I.

II.

TABLE OF CONTENTS

 

HISTORICAL INTRODUCTION . . . . . . . . .
The Republic of Liberia . . . . . . . . .

Geography . . . . . . . . . . . . . . .

Culture . . . . . . . . . . . . . . . .

Political History . . . . . . . . . . .

The Department of Justice . . . . . . . .

History of Police Services. . . . . . . .

Creation of the National Police Force .
United States Public Safety Program . .
Mission of the Program. . . . . . . .

Origin of the Public Safety Program
in Liberia. . . . . . . . . . . . . .

Accomplishments of the U.S. Public
Safety Program. . . . . . . . . . . .

Other Organizations Performing Police-
Related Services. . . . . . . . . . . .

History and DevelOpment of the National
Bureau of Investigation . . . . . . . .

Definition of National Bureau of
Investigation . . . . . . . . . . . .

Need of National Bureau of
Investigation . . . . . . . . . . . .

The Significance of a National Bureau
of Investigation. . . . . . . . . . .

Summary . . . . . . . . . . . . . ... . .

THE PRESENT ORGANIZATION OF THE NATIONAL
BUREAU OF INVESTIGATION . . . . . . . . . .

PAGE

\DONNN

15
18
20
23
25

25

26

27

28

32

32

33
34

36

7H

_b-4 '— J_ Z_e-4

 

 

 

CHAPTER
Divisional Structure. . . . . . . . . .
The Security Division . . . . . . . .
The Fact-Finding Division . . . . .
The Investigation Division. . . .
The Personnel and Records Division. .

The Director of the National Bureau
of Investigation. . . . . . . . . . .

The Assistant Director of the
National Bureau of Investigation. . .

The Headquarters Building of the
National Bureau of Investigation. . .

The Concept of the National Bureau of
Investigation Staff Organization. . .

Staff Functions and Procedures. . .
Staff Components. . . . . . . . . .
Summary . . . . . . . . . . . . . . . .

III. EVALUATION OF THE PRESENT ORGANIZATION OF
NATIONAL BUREAU OF INVESTIGATION. . . . .

The Security Division . . . . . . . .
The Fact-Finding Division . . . . . . .
The Investigation Division. . . . . . .
Personnel and Records Division. . .<. .
Supplies and Equipment. . . . . . . . .
Building and Grounds. . . . . . . . . .
Problems. . . . . . . . . . . . . . . .
Recruitment . . . . . . . . . . . . .

Training. 0 O O O O C O O O O O O O 0

iv

PAGE
36
36
39
39
L50

41

41

42

42
43
45
47

48
48
52
53
55
59
62
63
65
66

CHAPT ER

(I)

IV. PROP
OF I}

3)
(f)

 

 

CHAPTER

IV.

Assignments . . . . . . . . . . . . . . . .
Promotion . . . . . . . . . . . . . . . . .
Discipline. . . . . . . . . . . . . . . . .
Instructors . . . . . . . . . . . . . . . .
Summary . . . . . . . . . . . . . . . . . . .

PROPOSED REORGANIZATION OF THE NATIONAL BUREAU
OF INVESTIGATION OF THE DEPARTMENT OF JUSTICE. .

TOp Level Reorganization. . . . . . . . . . .
Functional Organization . . . . . . . ... . .
Director of National Bureau of Investigation.
Intelligence Division . . . . . . . . . .
Records and Communications Division . . . .
Assistant Director for Investigation. . . . .
Investigation Division. . . . . . . . . . .
Narcotics Squad . . . . . . . . . . . . . .
Interpol Clearing Section . . . . . . . . .
Assistant Director for Services . . . . . . .
Security Division . . . . . . . . . . . . .

Executive Mansion Special Security
Police Division . . . . . . . . . . . . . .

Treasury Department . . . . . . . . . . . .
Post Office Department. . . . . . . . . . .
lAssistant Director for Administration . . . .
Secretarial Section . . . . . . .,. . . . .
Personnel Division. . . . . . . . . . . .

Recruitment . . . . . -.- . . . . . . . .

PAGE
69
71
72
74
75

76
83
92
98
98
100
102
102
104
105
106
106

107
107
108
109
109
109
110

CENTER

 

 

 

 

 

CHAPTER

Training. . . . . . . . . . .
Assignments . . . . . . . . .
Promotion . . . . . . . . . .
Discipline. . . . . . . . . .
Instructors . . . . . . . . .
Planning and Research Division.

Budgetary and Fiscal Division
Supplies and Equipment Section.
General Area Assignments. . . . .
Supervision . . . . . . . . . . .

Staffing of Divisions and Units

A Comparison of the PrOposed Reorganization

of the National Bureau of Investigation

with other Law Enforcement and National

Security Agencies . . . . . . . .

Some Similarities and Distinctions
between the National Bureau of In-
vestigation and the Federal Bureau

of Investigation. . . . . . . .

A Comparison with the United States

Secret Service. . . . . . . . .

A Comparison with Scotland Yard .

A Comparison with the United States

Central Intelligence Agency . .

Summary . . . . . . . . . . . . .

v. SUMMARY, CONCLUSIONS, AND RECOMMENDATIONS

Summary . . . . . . . . . .-. . .
Personnel Administration. . .

Training. 0 O O O O O O O O O 0

vi

PAGE
113
114
115
119
122
123
125
127
128
129
131

132

135

138

141

146
150
151
151
152
153

CFAPT ER

 

5%:me A,

APPEEDIX B .

‘1‘}:th :x C.

*PPErmx s.

DI‘~

"U‘IOGPAPHY

 

CHAPTER

Policy Making . . . . . . . . . . . . .

Safety, Health, and Welfare . . . . . .

Conclusions . . . . . . . . . . . . . . .

Recommendat ions 0 O O O O O C O O O O O O 0

APPENDIX A.

APPENDIX B.

APPENDIX C.

APPENDIX D.

APPENDIX E.

BIBLIOGRAPHY

An Act of the National Legislature of
Liberia to Create the National Bureau
of Investigation . . . . . . . . . . .

An Act of the National Legislature of
Liberia to Provide for the Organi-
zation of the National Police Force. .

President Tubman's Annual Message
Relating to the Five Year Plan on
Police Constabulary. . . . . . . . . .

The Declaration of Rights of the
Constitution of the Republic of
‘Liberia. . . . . . . . . . . . . . . .

Specifications for each Class of

Position in the National Bureau
of Investigation Headquarters . . . .

vii

PAGE

154

155

155

158

164

168

170

173

179
215

 

 

1.53;}:

Pres
Auth

Bur q

...-4
5-4
0

Pro-

TABLE

II.

LIST OF TABLES

 

PAGE
Present Rank Structure and Number of
Authorized Positions in the National
Bureau of Investigation. . . . . . . . . . . . . 38

Proposed Organization of the National

Bureau of Investigation. . . . . . . . . . . . . 132

GNU
1- Preser

0f Jus

H- PreSer

POIiCE

H4
r—v
H
(D
(I)
(‘D
1

 

IV

 

 

LIST OF CHARTS

CHART PAGE
I. Present Organization of the Department

of Justice . . . . . . . . . . . . . . . . . . . 16

II. Present Organization of the National

Police Force . . . . . . . . . . . . . . . . . . 24

III. Present Organization of the National

Bureau of Investigation._. . . . . ... . . . . . 37

IV. PrOposed Reorganization of the National

Bureau of Investigation. . . . . . . . . . . . . 93

LIST OF FIGURES

 

FIGURE PAGE

1. Map of the Republic of Liberia, West

Coast of Africa. . . . . . . . . . . . . . . . . l

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'1.

CHAPTER I
HISTORICAL INTRODUCTION

 

Any study of the National Bureau of Investigation
would require that one becomes familiar with the organi-

zation of the Republic of Liberia.

The Republic of Liberia

 

'When becoming acquainted with Liberia, one should
appreciate the Republic's geography, history, cultural, and
political structure.

,A. Geography

Liberia, with an area Of approximately 43,000 square
miles, lies on the west coast of Africa, approximately be-
tween 4° 22' to 80 50' north latitude and 70 to 11° 32' longi-
tude west of Greenwich. It is bounded on the west by the new-
ly independent state of Sierra Leone, on the north by the
Republic of Guinea, on the east by the Republic of the Ivory
Coast and on the south by the Atlantic Ocean.1 Map I shows
the geographical features of Liberia.

The general trend Of the coastline is from northwest
to southeast, so that it is nearly parallel to the course

taken by steamers plying between EurOpe and West and South

 

lStrong, Richard P. The Republic of Liberia and the
Bel,ian Congo (Harvard African Expedition, 1926-1927), Vol. 1.
Cambridge: Harvard University Press, 1930, p. 12.

 

 

 

 

Africa. The
sesses no nat
hm mouths oi'
Thecoast is
broken up by
is relieved 5..

5? Several c a

 

 

 

Africa. The country has a coastline of 350 miles which po-
sesses no natural harbors or points of sheltered anchorage.
The mouths of all rivers are closed to steamers by sand bars.
The coast is in general low and monotonous and more or less
broken up by lagoons and tidal creeks. Its monotony, however,
is relieved as one travels south from the northern boundary
by several capes and promontories which especially attract
attention. Of these, Cape Mount, with an altitude of 1,068
feet above the sea, is by far the most striking.2 The next
promontory of importance is Cape Mesurado, on the northwest-
ern face of which the City of MOnrovia, the capital of the
nation, is built. The next promontory of importance is Baffu
Point situated southwest, but to the east of the Sanquin
River. The fourth promontory is at Cape Palmas near the
southern boundary of the country.3
Behind the coastal lands lies a plateau region of
grassland which averages an altitude Of almost 3,000 feet.
In the northwestern part of the country it is known as the
Mandingo plateau and extends into the Republic of Guinea
adjoining Liberia.“

There are highlands in the north along the borders of

 

2Maugham, R.C.F. The Republic of Liberia. London: G.
Allen & Urwin, Ltd., 1920, pp. 17-19.

 

3Richardson, Nathaniel R. Liberia's Past and Present.
London: The Diplomatic Press & Publishing Co., 1959, p. 10.

4Loc. cit.

 

the Republic

 

the country:
above sea 19".
ofthe higheE
per cent. 5h?
Province. 0:
and Putu in S
Thong
have the very
ated with the
March when th
coolest month
I'm. to 65°F.

almost consta

There

F‘Hl
.: 7‘

«I'- The d
B":t‘w‘een the r

and blowing

 

{its fixtures dur

_ x
-_‘n

 

-.n SOOI6OOF .
5\
.5. Liber
° Londor
6
Strep
7140c l

 

the Republic Of Guinea and the independent state of the Ivory
Coast. Low mountain ranges occur intermittently throughout
the country, with the highest elevations almost 5,000 feet
above sea level. The highest mountain is Nimba which has one
of the highest grades of iron ore deposits in the world--66
per cent. Mount Nimba is situated in Sanniquellie, Central
Province. Others are in the Bong in the Western Province,
and Putu in Sinoe County.5
Though Liberia is close to the equator it does not
have the very hot, steaming, unhealthy climate usually associ-
ated with the tropics. The hottest months are February and
March when the maximum temperature may reach 100°F. The
coolest month is August when the daytime temperature may be
down to 65°F. On the coast, the climate is tempered by the
almost constant sea breeze.6
There are only two seasons Of the year: the dry and
rainy. The dry season begins in November and ends in April.
Between the months of December and February the harmattan
wind blowing from the north sweeps across the nation. Tem-

peratures during this season vary between 800-900F. by day

and 50°-60°F. by night.7

 

5Liberian Information Service. Liberiaj Story of Prog—
ress. London: Staples Printers, Ltd., 1960., p. 7.

 

6Strong, op. cit., pp. 27-31.

7Loc. cit.

The r
The yearly r,
coast, decree
Liber
tornado, or €-
The c
‘55 30 named

States, JaHIes

V55 fo‘mded .

 

 

The rainy season begins in May and ends in October.8

The yearly rainfall averages from 120-130 inches along the
coast, decreasing to about 70 inches in areas farther inland.
Liberia has never experienced a drought, hurricane,
tornado, or earthquake.9
The capital city of Liberia is called Monrovia. It
was so named to honor the fifth president of the United
States, James Monroe, during whose administration Liberia
‘was founded. MOnrovia was officially created on July 25,
1857, ten years after the Declaration of Independence. The
city has a pOpulation of 60,000 people and contains all of
the important offices of the national government. It was
named by Jehudi Ashmun, the leading agent of the colonists
that arrived in 1822.10
‘Monrovia lies roughly in latitude 6° 15" and longitude
11° 20". It stands beside the country's biggest river, the

St. Paul, and has a temperature ranging between 95° to 1000

at noon and 70° at night.11

Liberia has an estimated pOpulation of about two and

 

8Liberia, Story of Progress, 22‘ cit., p. 7.
9L00. cit.

10Liberian Information Service. The City of MOnrovia,
Capital of the Republic of Liberia. London: Staples Print-
ers, dea, 1960, p. 10.

llLiberia, Story of Progress, 22° cit., p. 70.

 

 

one halt mil
administrati
County, in I-
Bassa Count}
(5) Marylanc

Province: .

one half million peOple. It is divided into twelve main
administrative and political divisions: (l) MOntserrado
County, in which lies the seat of government; (2) Grand
Bassa County; (3) Grand Cape MOunt County; (4) Sinoe County;
(5) Maryland County; (6) western Province; (7) Central
Province; (8) Eastern Province; (9) Marshall Territory;

(10) River Cess Territory; (11) Sasstown Territory; and

(12) Kru Coast Territory.12

B. Culture

 

Liberians are today considered as one peOple of common
origin through the unification policy of the present adminis-
tration. Previously there existed two classes of peOple in
the country: (1) the Americo-Liberians (the descendants of
the freed slaves from the United States of America); and (2)
the country peOple (the aborigines Of the country); who con-
stitute the majority of the pOpulation of the country, about
97 per cent.

There is today no clear—cut distinction between
,Americo-Liberians and the million and one half aboriginal
.Africans.l3 Intermarriages have frequently occurred between
Americo—Liberians and indigenous natives, and the Americo-

Liberians and aboriginal African children attend the same

 

121bid., p. 76.

13Strong, 22- cit., p. 46.

 

 

S'.I"T

schools. TI
years, and I
interior ha‘
attained pr<

Tho:
umber of t]
divided intc
(2) Kru: an:

and native ]
5:313, erllt
IEpTESQUt in;
inchides the
third Ethno]
”Rich, from

have belonzg

-
‘n.r‘* A

schools. This assimilation process has been going on for
years, and more and more the sons of the natives of the
interior have entered school, acquired an education and
attained prominence in the affairs and life of the Republic.

Those natives indigenous to Liberia belong to a large
number of tribes, about 28 in all. They have been roughly
divided into three main ethnological groups: (1) Mandingo;
(2) Kru; and (3) Gola. The Mandingo group, a mixture of Fula
and native Liberian stocks, includes the pure Mandingo, the
Vais, erlle, Lorma, Mendi, and Gbandi tribes. The Kru group,
representing the original stock of West Africa, especially
includes the tribes of Krus, Bassas, Des and Grebos. The
third ethnological group includes the Gola and Gizi tribes
which, from the character of their language, are presumed to
have belonged to one of the original black races of West
.Africa and perhaps are allied with the Temne and Bulom tribes
in Sierra Leone.14

The Mandingoes constitute a tribe that accepts the
IMohammedan religion. They are said to own their racial
characteristics to interbreeding between the Fulas and the
‘women of the pure Negro tribes.15

Though the tribes have varying cultures, one common

bond--music--unites them all. Tribal music features distinc-

 

141bid., pp. 46-53.

15Ibid., pp. 48-56.

 

tive indiger
his feet. I
particular,
The:
The Liberia:
The
throughout
and for all
tribal cour
That is mm
M.
“‘Lgiiage, s

l: a
69.11:.
V

age re

tive indigenous rhythms that would cause any listener to tap
his feet. This is true of the peoples of West Africa in
particular, and of Sub-Sahara Africa in general.

There are no social or political barriers in Liberia.
The Liberian peOple live and work happily together.

The Official Liberian language is English. It is used
throughout the nation for all government business and records
and for all commercial and legal transactions except in the
tribal courts where the dialect of the Chiefdom is employed.
‘What is unusual is that to many Liberians English, the official
language, still is, to all intents and purposes, a foreign
language regardless of their level of formal education.

Liberia is officially a Christian state. It includes
many churches and missions served by representatives of the
Baptist, Methodist, Episcopalian, Presbyterian, Lutheran,

Roman Catholic, and Seventh Day Adventist faiths. Islamism

is embraced by some Liberians and they are quite free to
follow this faith as the Bill of Rights provides for freedom
of worship.16

Tribal culture is encouraged by the government. There
are tribal schools and societies where young men and women
are trained in herbalism, arts and crafts, domestic science

and midwifery.17

 

16See Appendix D, Section 3.

l7Liberian Information Service. Liberia--Land of Promise.
London: Staples Printers, Ltd., 1961, p. 30.

 

 

 

I
- V

I}. Polit‘l
Ir
have had 5
0f Liberia
and carrie
and Cuban
treated,
I
‘53 found
itself to
thQ‘xéht I

then" nat

h~‘
‘I‘JD’I-g
‘ L 7V“
“l4
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.‘J .‘
r‘s.
C“.

n.)
0)

C. Political History

 

In the whole history of West Africa, few territories
have had so unique and turbulent a history as the settlement
of Liberia. Africans were captured for purposes of slavery
and carried to America by Dutch, Spanish, Portuguese, English,
and Cuban slave traders. .Although repressively and inhumanly
treated, some of them returned to the land of their nativity.l8

In 1816 the American Colonization Society of New York
was founded in the United States for the purpose of devoting
itself to the welfare of some 200,000 freed Negroes. It was
thought that the most promising plan was to return them to
their native land. There they would establish a free colony
on the West coast of Africa. The sole Objective was for a
place to enjoy the benefits of liberty. General Goodloe R.
Harper of Maryland, who was interested in the proposal, later
suggested the name Liberia in lieu of ChristOpolis, the former
name of the colony. Liberia means the land of freedom for the
colony. .After preliminary investigations by the agents of
this society who visited the West African coast in 1818, the
first consignment of 88 freed Negroes sailed for Africa in
charge of three white Americans. One of the three, an agent
of the United States government, was sent to Observe and
report upon the organization of the colony, while another was

to act as the agent of the colonization society. The party

 

18Maugham, 22. cit., pp. 33-34.

ur'fi‘ii'“r.'.'." ~ '

 

finally re
Island who
it. Withi
iously i1]

Xegroes , 1

tr EB: 07““

10

finally reached Sierra Leone and then passed down to Shebro
Island where they landed with the intention of colonizing
it. ‘Within a short time, however, many of them became ser-
iously ill and all the Americans, together with many of the
Negroes, succumbed.19

In 1821 the ship Nautilus, chartered by the United
States government, proceeded to West Africa with two govern-
ment agents and two Officials of the colonization society and
a further group Of emigrants. These people were allowed by
the authorities of Sierra Leone to remain at Fourah Bay near
Freetown until a site suitable for their colony could be
settled.20

In 1821, Dr. Eli Ayres was appointed chief agent and
proceeded to Africa with another group of emigrants on board
the United States schooner "Alligator." Apparently the first
landing of this group, after their arrival off Cape Mesurado,
was made on what is now known as Providence Island. This
island is situated inside the mouth of the St. Paul River.
.After some negotiations with the native chiefs, Ayres succeeded

in Obtaining the whole of the Cape on which MOnrovia has since

been built.21

 

19Liberia--Story of Progress, 22. cit., p. 8.
2°Richardson, 22. cit., p. 17.

2lLoc. cit.

 

 

By
emigrants t

to the new

11

By the beginning of the following April all of the
emigrants had been transferred from Fourah Bay, Sierra Leone,
to the new domain.

In 1822 Jehudi Ashmun, who subsequently played such a
significant role in the establishment of the colony, embarked
at Baltimore, Maryland, on the brig "Strong" with a further
company of emigrants.22 They eventually reached Cape Mesurado.
It was here that Ashmun assumed direction and administration
of the small colony. He was able to purchase more land and
obtain additional privileges through friendly negotiations
with the natives. The early history of this nation was beset
with many difficulties caused by some of the native tribes
and slave traders. Disease, however, was the greatest obstacle.

In 1834 a number of state branches of the colonization
society were founded, and several separate settlements were
established along the Liberian coast. Thus a contingent sent
out by the Maryland colonization society settled at Cape Pal-
mas and founded the colony of Maryland in Africa. A group
from Pennsylvania established another colony at Grand Bassa.

A third colony was founded at Sinoe by the Settlers from the
state of Mississippi, known at first as Mississippi in Africa.
In a short time some friction arose between these different
colonies, but in 1837 all the settlements, except Maryland,

joined the Central Government. Maryland insisted on retain-

 

22Ibid., p. 18.

 

ing its ind

l'p
directed b_\
private org
0f gOVernme
the Britist
Of State t'r
the authori
EVEN SETH
gciierll'flerjt
and ”Meet
file COIOny
g3‘ferm 9 1'1 1:
establish,

It
2.1 and pr‘
gcverm

EA.

‘ L

a.

5

oh?
§

"

“an Re:

“"E-Ttnent

12

ing its independence and did not enter the Union until 1857.23

Up to 1847 the government of the Commonwealth was
directed by the American Colonization Society, which was a
private organization. Liberia's right to exercise the powers
Of government were soon challenged by Greathritainm In 1843
the British Minister declared to the United States Secretary
of State that certain differenCes between British traders and
the authorities of Liberia rendered it necessary, in order to
avert serious trouble in the future, that her majesty's
government be informed of the degree of official patronage
and protection that the United States government extended to
the colony of Liberia. How far, if at all, the United States
government recognized the colony of Liberia as a national
establishment was also questioned by the British Minister.”4

It was obvious that the United States had given both
aid and protection to the early colonists. .Also, the American
government gave official assistance to the founding of the
.African Republic when Congress, in an Act in 1819, authorized
the President to employ American armed vessels for suppression
of the slave trade along the African coast. The United States

government appointed agents resident on the coast of Africa to

O O 2
receive recaptured Africans. 5

 

23Maugham, 92. cit., p. 65.

2“American Journal of International Law, IV (1910).
Washington. D.C.: The Society, I92I, p.. 211.

25United States Statutes at Large, 111 (1813-1823).
Boston: little Brown & CO., 1861, p. 532.

 

V

In
cooperate n
can govern:
cans to the
several oc<
ECI'ernnent
Vent foreig

In

States Sec:

12%.: .
Tne
"“‘Ection c

13

In addition, President James Monroe sent two agents to
COOperate with the American Colonization Society. The Arneri-
can government also aided in sending nearly 6,000 freed Afri-
cans to the country. The American government, also, on
several occasions, sent cruisers to assist the Liberian
government in the suppression of native revolts and to pre-
vent foreign intervention.26

In reply to the British Minister's inquiry, the United
States Secretary of State asserted that his government re-
garded Liberia as occupying a peculiar position and as
possessing claims to the friendly consideration of all
Christian powers. He also stated that the United States
would at all times be prepared to interpose its good offices
to prevent any encroachment by the colony on any just right
of any nation; also, that it would at all times be very un-
willing to see it despoiled of its territory rightfully ac-
quired in the exercise of its necessary rights and powers as
an independent settlement.27

After considerable discussion, it was agreed by those
most interested in the colony, as well as the settlers them-
selves, that a fully independent government should be organ-

ized. The American Colonization Society severed all political

connections with Liberia in 1846.28

 

26Richardson, 22. cit., pp. 187-191.
27United States Statutes at Large, 22. cit., p. 214.
28Richardson, 22, cit., pp. 59-63.

On .'
cade by the
government.
establish tI
hafted wit'
58 a model .
leEiSIative
zation of a
the bl‘tlted

The
the United
ofsix red
the Eleven
There 31-80

‘. F ‘

1 lndQDEI

14

On July 26, 1847, a declaration of independence was
made by the settlers as a result of pressure from the British
government. They recited their desire and their right to
establish the Republic of Liberia. The Constitution was
drafted with the constitution of the United States serving
as a model. It contains a declaration of rights, defines
legislative and executive powers, and outlines the organi-
zation of a judicial department much in the same fashion as
the United States Constitution.29

The flag of Liberia is also patterned after that of
the United States. It is red, white, and blue and consists
of six red and five white alternating stripes, indicating
the eleven signatories of the Declaration of Independence.
There also is a single white star on a blue field in the cor-
ner near the spearhead of the staff.3°

Great Britain was the first government to recognize
the independence of Liberia in 1848. France, Prussia, and a
number of EurOpean countries did so shortly afterwards. The
United States, however, did not Officially recognize Liberia

until 1862.31

 

29Ibid., pp. 63-72.
3°Ibid., p. 73.

3lStrong, gp. cit., p. 36.

A". '1 «I -‘W.

'K‘.

 

II

The
department:
The
consisted <
executive I
Revs and 13'

These offi,

talCE and Cl

 

15

The Department of Justice

The Department of Justice was one of the first cabinet
departments created by an act of legislature in 1848.

The original organization of the Department of Justice
consisted of the Office of the Attorney General, who was the
executive head of the Department, and offices of County Attor-
neys and District Attorneys for each county and district.32
These officials were appointed by the President with the ad-
vice and consent of the Liberian Senate.

The Department of Justice was established as the branch
of government which was empowered to conduct the legal affairs
of the Republic and represent the government's interests in all
cases before the Supreme Court and represent the government in
all criminal cases in the respective counties and districts.33

As changes came about over the years and as the re-
Sponsibilities of government increased, the Department was
modernized in 1956 to keep pace with the diverse functions of
the Republic. The present organization of the Department of
Justice is shown on Chart I following.

Today the Attorney General is still the executive

head of the Department of Justice, a member of the President's

 

32McCants, T. and Stewarts. RevisedlStatutes of the
Republic of Liberia (1848-1911). Paris: T. McCants and
Stewarts, 1928: p. 604.

33Ibid., pp. 806-807.

~<2.._2.._L >L22CEE<
22;. LC Hamlin?»

 

 

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IL

 

 

 

 

 

 

_

 

1

 

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coauoom Sowuoom Dmohnm
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hoowmmo Sowumwwpmo>cH oohom huommm owansm a
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A¢mmzmw wmszBH<
mmB mo monhO

 

 

A<mw2mw MOBHUHAOM

 

 

 

oowumsh mo unmaunmdoo map mo cowumuwcmwuo pcomopm .H pamno

 

 

 

 

 

Cabinet, .2
is in dire
.‘ational E
Directors.

Th
the ttorn
Republic 1
the Divisi

0n

allowing
\J

at
1'15 .fi.
u
is.

17

Cabinet, and principal legal advisor to the Republic.3u He
is in direct command of the National Police Force and the
National Bureau of Investigation, both of which are headed by
Directors.35

The Solicitor General is the principal assistant to
the Attorney General. He argues major cases to which the
Republic is a party, and exercises direct supervision over
the Division of Litigation.36

One Assistant Attorney General heads each of the
following units Of the Department of Justice: (1) Division
Of Litigation; (2) Codification; (3) Division of Rehabili-
tation; (4) Bureau of Immigration and Naturalization; and
(5) Bureau of Administration and Public Safety.37

In brief, the present activities of the Department of
Justice are: (l) conducting the legal affairs of the Republic,
including representing the government's interests in civil
litigation and prosecution of accused offenders; (2) render-
ing legal advice to the President of the Republic and princi-

pal Officials of government; (3) providing police and fire

fighting services; (4) providing security and criminal in—

 

3’"IConvitz, Milton R. (ed.). Liberian Code of Laws of
1956. Vol. II. Ithaca, New York: Cornell UniVersity Press,

‘I957, p. 542.
35;p;g., p. 549.
36;p;g., p. 543.
37lpig., pp. 543-545.

vestigatl
ization a

and (7) r

L , I,
3:831. sort.

full cont

18

vestigative services; (5) enforcing immigration and natural-
ization acts and regulations; (6) Operating jails and prisons;
and (7) registering certain legal documents.

In the conduct of most of these activities, the depart-
ment works closely with the courts. However, the latter have

full control of their own Operations.38

History Of Police Services

There was no police organization during the early
settlement of the Republic. Every man was a policeman in his
own right. Those who did wrong and were captured, trial was
by ritual.39

From 1822-1912, law enforcement was essentially per-
formed by the hue and cry system. There were no magistrates
but only justices of the peace.

Because it was cumbersome for every person in the
cities within the Republic to be serving precepts, the office
of the constable was created in 1834. Constables were charged
‘with maintaining law and order in each city or settlement and
serving the courts of justices of the peace and courts of

precepts. Consequently, the first system of police service

in the Republic of Liberia was not national in scope but

 

38Ibid., p. 542.

39Thompson, Lt. Col.‘Wm. T. History of the National
Police Force. MOnrovia: National Police Force Headquarters,
I96I (mimeographed), p. l.

 

 

local ar

lbnrovia

utll'e ll.

constabl

non 154

$611th 1:
hto thr

The lOCa

linister.
.ulQ: (

It"

19

local and decentralized.40

In 1835, the first mayor was elected in the City Of
IMonrovia. The mayor, elected bi-annually, was the chief exec-
utive in charge of constables and security functions.41

The appointed Officers of the city government included
constables with the advice and consent of the city council
from 12348-1849.“2

The City of Monrovia, which actually at the time repre-
sented the over-all picture of Liberian life, was then divided
into three wards with each ward having a justice of the peace.
The local government of each ward of the entire city was ad-
ministered by a mayor and aldermen. The wards were divided
into: (1) East; (2) Central; and (3) Snapper Hill.

The local government of mayoralty continued until 1922
'with constables under a chief constable. At that time, there
were 15 constables in the City Of Monrovia.43

By the end of 1923, the previous system of law enforce-
ment was abolished. It was succeeded by the Monrovia City

Police by creation of the Commonwealth District of Monrovia

under the commissioner and a board among which was the super-

 

40McCants, T. and Stewarts, pp. cit., p. 648.

AlCity of Monrovia, 9p. cit., p. 23.
uzLoc. cit.

“31bid., p. 7.

 

 

intendent

health in

but were

some none
these shor
increased

CfflCerS

A. C?‘ 7;.-
fl

20

intendent of police. The Board also included magistrates and

health inspectors.4n

Up to 1924 the constables and police had no salaries
but were paid on commission basis from services rendered when
some money was paid by the individual concerned. Despite
theseshortcomings45 the strength Of the Monrovia City Police

increased from 15 to more than 45 uniformed and plainclothes

officers in 1948.

A. Creation of the National Police Force

Liberian police services, like other public services
of the free world, are built upon the premise that police
work is a public service, that the police have a great re-
sponsibility to assist their fellow citizens Who, in turn,
have a responsibility to give the police the support and
respect they deserve. The President of Liberia has constantly
supported modern police concepts and programs.

In 1949, the government of Liberia undertook complex
responsibilities, both internally and externally. The need
for a better police system which would be conducive to the
present system of government became necessary. Therefore,
the local police system typified by the mayoralty scheme was

abolished by law and a national police force was created

 

LH+Loc. cit.

usNot peculiar to the beginning of any primitive police
system.

under the
46

country.

Force was

the nation

liberian F

 

21

under the leadership of one chief of police for the entire
country.Ll6 The first commissioner of the National Police
Force was appointed.

The first organized and trained police service unit on
the national level in the history of the Republic was the
Liberian Frontier Force, now called Liberian National Guard.
It was originally created by an Act of Legislature in 1908.,"7
iMajor Mackey Cadell, a British military officer, was appointed
by the Liberian government to organize the Force.48

The Liberian Frontier Force was organized for the pur-
pose of maintaining peace and order. The Force was also es-
tablished to prevent invasion and raids by the aborigines of
the Republic into the territories of neighboring states. It
‘was to suppress inter-tribal enmities, to keep roads open for
trade and travel, and to enforce laws and regulations as were
then or as thereafter would be passed. These laws and regu-
lations were relative to the aboriginal pOpulation. The
force was to be used in such scientific services as the map-
ping Of the interior, the exploration of rivers and their
'watersheds, laying out a road from the interior to the coast,

and carrying out such other duties Of scientific and economic

 

46Richardson, 9p. cit., p. 224.
47McCants,T. and Stewarts, 2p. cit., pp. 879-880.

#BDean, Colonel David F. M. Organization of the Liberian
Frontier Force. Monrovia: Department of National Defense,
‘I958, (mimeographed), p. 2.

 

character as tl

ln add'
the Liberian .\'
constabulary bl
aids in facili
of revenues, p
obedience to t
stards and pro
ficties as guar
sotages of for
security to th

Four f
originally ran

Under
‘15:he first 1

“3E DEpartnent

The Na'

 

 

22

character as the President required.L+9

In addition to its duties as prescribed by statutes,
the Liberian National Guard today Operates generally as a
constabulary boundary police force. It renders all lawful
aids in facilitating, insuring and safeguarding the collection
of revenues, protecting persons and prOperty, and compelling
obedience to the country's laws. The Liberian National Guard
guards and protects the coast. The Force performs such other
duties as guards of honor to diplomats and high ranking per-
sonages of foreign governments, and above all, it provides
security to the Chief Executive at the ExecutiveiMansion.50

Four former heads of the National Police Force were
originally ranking members of the Liberian Frontier Force.

Under recent legislation, the Liberian National Guard
is the first line of the country's defense Operating under
the Department of National Defense.51

9 The National Police Force was organized by Leon M.

Jordan, a member of the Kansas City Police Department, who
was employed by the Liberian government to create it. During
the process of the organization, Jordan, who was known as

police specialist to the government of Liberia, recommended

 

“91bid., p. 32.

50Loc. cit.

 

51Konvitz, Milton R. (ed.). Liberian Code of Laws of
1956. V01. I. Ithaca, New York: CornelI University Press,

1957, p. 85.

......

 

six rankir
the conpet
for furthe
lugh posit
appointed
Senior De;
Or
l.d‘.1ced It
llOt attrac
EXIrenely
II
307 men, I
Chart II 5

Force.

3' UDIE‘ ,.'
w

h A

for.“ “in!

.1. “\, F.

"It ( 13(
Q r“:

 

23

Six ranking members of the force who had successfully passed
the competitive examination, to proceed to the United States
for further training. Upon their return, they were placed in
high positions in the organization. One of them was formally
appointed Commissioner Of Police and another was appointed
Senior Deputy Commissioner of Police.52

Only since 1949 have educated young men and women been
induced to join the police force. Previously, the force was
not attractive to the literate individual because the pay was
extremely low and facilities were very poor.

The present strength of the National Police Force is
507 men, 404 of whom are stationed in Montserrado County.53

Chart II shows the present organization of the National Police

Force.

B. United States Public Safety Program

The Agency for International DevelOpment public safety
program (until recently the International COOperation,Adminis-
tration) is carried out in conformance with the congressional
"statement of policy” set forth in the preamble of the mutual
security Act of 1954, as amended, and Title 3 entitled "Tech-

nical Cooperation." The program is designed to support the

 

52Richardson, 2p. cit., pp. 224 and 319.

53Annual Report of the Director of the National Police
Force, Fiscal Year 1961. Monrovia: National Police Force,

I96I (mimeographed).

 

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24

 

 

 

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25

attainment of the objectives of the mutual security program
through technical advice, training, and commodity assistance.5u

The purpose of the public safety program in Liberia
is to improve the organization, training capabilities and
Operations of the National Police Force.55

a. The Mission of the Program. The objective of the
Public Safety Program is to assist the civil police forces of
cooperating countries to maintain law and order and internal
security by providing technical advice, establishing training
programs, bringing selected police officers to the United
States, and in some instances, sending them to third countries
for strictly on-the-job training, and by providing minimum
amounts of essential transportation, communication and scien-
tific equipment.

b. Origin Of the Public Safety Program in Liberia.
The United States Public Safety Program in Liberia has been in
Operation since fiscal year 1957. The staffing pattern at
that time called for a Chief Advisor, a Deputy Chief Advisor
(also responsible for training activities), and a Communi-

cation Advisor. The staffing pattern at the present time,

fiscal year 1962, consists of:56

 

5”Craig, John T. Liberia/Sierra Leone Desk Officer,
International COOperation Administration, The ICA Public
Safety Program in Liberia, Department of State. washingtion,
D.C.: ICA, 1961, p. 1.

55Loc. cit.

56Loc. cit.

l
l
l
2
l
&

VlSlOIled b

accompl ish

The

H
L!“
H-

ta N: r4 P‘ r4 H

C.

26

Chief Public Safety Advisor

Public
Public
Public
Public

Public

Safety Advisor (Communications)
Safety Advisor (Rural)

Safety Advisor (Investigations)
Safety Advisors (Training)

Safety Advisor (Identification & Records)

Accomplishments of the United States Public Safety

 

Program.

The following are some of the specific targets en-

visioned by the project, which have been to a certain extent

accomplished:57

1.

Completion of installation of police
communications system in Monrovia.

Reorganization Of the National Police
Force.

Expansion of recruit training using
the facilities of the new police
academy through the efforts of United
States trained police Officers and
United States advisors.

Completion of a police training course
by 7 Liberian police Officers in the
United States since 1958.

Completion of a central records system
for the National Police Force.

Construction and dedication of the new
police training academy which was built
using Joint Commission funds in 1961.

The total cost of the Liberian Public Safety program

 

57Ibid., pp. l-3.

 

 

of SZSC

the tre

Ernment

27

through fiscal year 1960 (June 30, 1960) is $324,000. A total

of $250,000 was programmed for fiscal year 1961, including

the training academy activities:58
Technicians .............. $135,000
Commodities .............. 34,000
Other Costs .............. 81,000
Total .............. $250,000

C. Other Organizations Performing Police-Related Services
The following are some divisions of the Liberian gov-
ernment which carry on some police services:
1. Bureau of Immigration and Naturalization
which enforces immigration and naturali-

zation laws.

2. The Bureau of Labor which enforces acts
and regulations of labor.

3. The National Bureau of Investigation.

4. National Public Health and Sanitation
which enforces health laws and regu-
lations.

5. The Fire Brigade which has been, until
recently, a branch of the National Pblice
Force.

6. Executive Action Bureau.

7. Statistics Bureau.

8. Executive Mansion Special Security
Police.

9. The Liberian Coast Guard.

 

58Ibid., p. 4.

ereign ar
police 33

has been

hOt 51 RE

POlitan 1
Secret 3,
consider,
Country.

lishéd ur

28

D. History and DevelOpment of National Bureau of Investigation

Despite Liberia's 116 years of history as a free sov-
ereign and independent state, the development of a modern
police system, particularly in the investigative area ppr pp,
has been relatively new and rather slow. However, Liberia is
not alone in the slow development of a law enforcement agency
of this type. As old as England is as a sovereign state, a
criminal investigation agency was not established on the Metro-
politan Police Force until August, 1842.59 The United States
Secret Service was not established until 1865,60 and it is
considered the oldest Federal law enforcement agency in the
country. The Federal Bureau of Investigation was not estab-
lished until 1908,61 133 years after the independence of the
United States.

The first modern police system with a national inves-
tigation division in the Republic was created by Act of the
Legislature in 1949 as a part of the National Police Force
of Liberia. This section is called the Detective Division,

headed by a Chief of Detectives.62

 

59Reith, Charles. A New Study of Police History.
Edinburgh: Oliver & Boyd, 1956, p. 221.

6OBaughman, U. E. The U.S. Secret Service. Washington,
D.C.: Bureau of Secret Service, 1958, p. l.

6LWhitehead, Don F. The FBI Story. New York: Random
House, 1956, p. 13.

°zKonvitz (ed.), Vol. II, pp. cit., p. 550.

 

inportar
was not
establi
ized st
People.
and the
for the
the io~

.1

; I

If
It ,'
“I (U
‘ h

[(1

29

Just as in every other newly developing country, the
important role that the police play in an organized society
was not given much thought by most Liberians during the early
establishment of the system. Therefore, most of the author-
ized strength of the police system was composed of illiterate
people. The very poor conditions under which the police worked
and the Very low pay, as forementioned, were largely responsible
for the reluctance of literate men to apply for positions on
the force. The police were held in low esteem until 1949 when
the National Police Force was created.

Respect for the police and the necessity to have a
Specialized law enforcement agency to assist the National
Police Force became evident when an attempt was made on the
life of the President of Liberia on the night of June 22,

1955, when some members of the National Police Force prevented
the possible assassination of the Chief Executive by disarming
the would-be assassin.63 There was a demand to create a
supplemental force of the National Police Force that would

be trained specifically to perform functions similar to the
Federal Bureau of Investigation and the Secret Service of the

United States.

This event largely contributed to the immediate

 

63Liberian Information Service. The Plot that Failed,
The Attempted Assassination of President Tubman. London:
Staples Printers, Ltd., 1959, pp. 5-6.

-. 'n‘! M_

 

creation I
sional pr<
facily, ar
gating anc
Similar t3
Bureau of
tins type
States Sec
Civil War
C'Illation w
and the na
fEderal CU

tilieS. 62+

30

creation of a Special Services Bureau for better and profes-
sional protection of the lives of the President, his immediate
family, and other dignitaries. It also contributed to investi-
gating and bringing to trial all enemies of the government.
Similar types of events led to the creation of the Federal
Bureau of Investigation and the Secret Service. It was also
this type of event that prompted the creation of the United
States Secret Service on July 5, 1865. During the American
Civil War it was estimated that one-third of the money in cir-
culation was counterfeit. United States notes, greenbacks,
and the national bank notes, which were issued as the new

federal currency in 1863, were being imitated in large quan-

tities.°4
The primary responsibility of the Secret Service--
that of Presidential protection-~came immediately after

President McKinley was assassinated in 1901. Agents of the

Secret Service were then charged with the safety of United

States presidents.65

The Federal Bureau Of Investigation was also created,
despite opposition from congressmen, because of a pressing
need to prevent federal crimes that were not covered by the
Secret Service. They included such crimes as the purchase

and sale of securities, bankruptcy, fraud cases, and crimes

 

64Baughman, pp. cit., p. 1.

°5Ibid., p. 2.

associated
cial vice
Fo:
National BI
police sec:
in'vestigati
an intellig
personnel f
National BU
cellaneous
for the Bar
ing some re
jurisdictio
Rea
SPQCializEd
PTESident T
of the Depaj

h

at asslined

 

31

associated with the crossing of state boundaries and commer-
cial vice investigations.66

For the short time it has been in existence, the
National Bureau of Investigation has served as an undercover
police security force charged with the security of the state,
investigation of crimes against the government, maintaining
an intelligence Operation, and providing protective security
personnel for the President and other dignitaries. The
National Bureau of Investigation has performed numerous mis-
cellaneous duties ranging from deporting undesirable aliens
for the Bureau of Immigration and Naturalization to perform-
ing some responsibilities which fall normally under the
jurisdiction of the National Police Force.67

Realizing the insecurity of the state without a
specialized law enforcement agency to handle the situation,
President Tubman, in 1958, established an investigative arm
of the Department of Justice that would be capable of cover-
ing the security responsibilities of the Republic which were

not assumed by the National Police Force. He secured the ser-

vices of two United States police officers to organize the

 

66Lowenthal, Max. The Federal Bureau of Investigation.
New York: ‘William Sloane Association, Inc., 1950, pp. 10-22.

67Special Commission on Government Operations. Tech-
nical Staff, Public Administration Service, Department of
Justice Administrative Survey Report. MOnrovia: Special
Commission on Government Operations, January, 1962 (mimeo-

graphed), p. 9-10.

Bureau. 68

of the Lou
the Direct

Police Dep

as

making a S‘
and SUbVerl
gov‘erment
Cooperatiné
fCI‘cement e
quire Hath
political :
PETSQHHEI j

4:".
nasuLtarleE

 

32

Bureau.68 These police specialists were Lt. A. Wilson Edwards
of the Louisville, Kentucky, Special Services Squad, who was
the Director, and Walter P. Upshur of the New York City

Police Department, who was the Assistant Director.

a. Definition of National Bureau of Investigation.

 

For the purpose of its organization and functions, the term
National Bureau of Investigation is construed to mean and in-
clude any subdivision of a government that is charged with
making a systematic inquiry of matters of national security
and subversion, investigations for various departments of
government which have no investigative staff of their own,
c00perating with and assisting other investigative law en-
forcement agencies where needed in solving crimes which re-
quire nationwide investigation and intelligence work and
political investigation and offering protective security
personnel for the Chief Executive and other designated

dignitaries.

b. Need of a National Bureau of Investigation. A

 

National Bureau of Investigation is essential to any state
because it is upon the investigative division that falls the

duty of solving crimes and apprehending and prosecuting the

 

68Public Safety Division, United States Agency for Inter-
ngtional Development, Operationalvand Administrative Survey.
National Bureau of Investigation (formerly Bureau of Special
Services) and Executive Mansion Special Security Police. Mon-
rovia: A.I.D. Headquarters, February, 1962, (mimeographed),
p. 2.

type oi
Nations

preserx

securi

33

type of criminals it is by law authorized to investigate. A
National Bureau of Investigation is further necessary for the
preservation of the sovereignty and independence that a state
struggles so hard to gain. It is essential for internal

security against subversive agents.

c. The Significance of a National Bureau of Investi-

 

gation to Liberia. An organization like the National Bureau

 

of investigation is most important to Liberia because, first
of all, the fact that it efficiently exists and the agents
professionally qualified are around on the spot to detect
and prevent what criminal plans may be underway, prevent
crime and disorder. Nobody who is sane commits a crime if
he is certain that there is a vigilant policeman looking on
or just around the corner. If an organization of this type
were in existence during June 22, 1955, with efficient per-
sonnel, the attempt made on the life of the President could
have hardly taken place. The situation possibly occurred be-
cause the plotters knew the weaknesses of the police in terms
of the personnel and their professional qualifications. The
would-be assassin might not have been able to enter the Ex-
ecutive Pavilion unnoticed, as conspicuous as he was, more
or less to get as close as six feet from the President.
Agents on the beat have a lot more to do than merely
walk along. They must keep their eyes and ears Open. Through

this, they learn many things that may be useful in preventing

 

or detec1

portant t
Specially
women. ]
fied uni:
security1
Capabili:

Officer j

u r:
3“,“ E14

GA
”\5\°..' "
if“; . 1'11
v. nr~leq)

34

or detecting crime.

The National Bureau of Investigation is further im—
portant to Liberia because it is supposed to be organized of
Specially trained, well-disciplined and dedicated men and
women. It was established to have an extraordinarily quali-
fied unit of super police officers drilled in the fine art of
security, detection, and investigation, with abilities and
capabilities develOped over and above the average police

officer in the nation.69

Summary

After few years of existence with many handicaps, the
National Bureau of Investigation appears to be gaining public
support by pursuing its mission of maintaining internal
security, peace and order, and providing maximum assistance
to the various law enforcement agencies of the Republic,
under its motto, "Ever Vigilant."

The foregoing description has presented a basic idea
of the past and current events of the Republic of Liberia,
Department of Justice, the National Police Force, the
Liberian Frontier Force (now called Liberian National Guard),
the United States Public Safety Program to Liberia, and the

National Bureau of Investigation. A detailed survey of the

 

 

69Edwards, Lt. A. Wilson. "A.Handbook for Special Ser-
vices." ‘Monrovia: Special Services Bureau, 1958 (Mimeo-

graphed), p. 2.

 

present 0

follows.

35

present organization of the National Bureau of Investigation

follows.

 

 

 

Vlc’ a

}
' Mn
. . m7!

 

Investig
which mg-
Services

civilian

authOI‘iz

Al:
g‘LLOH a

36

CHAPTER II

THE PRESENT ORGANIZATION OF THE NATIONAL
BUREAU OF INVESTIGATION

The present organization of the National Bureau of
Investigation, depicted in Chart III, is identical to that
which marked its parent organization, the Bureau of Special
Services.1 Its present strength is 6# sworn members and 12
civilians. All sworn members work in plainclothes assign—
ments. The present rank structure and number of positions
authorized for each rank in the National Bureau of Investi-

gation appears in Table I.

Divisional Structure
There are four major divisions in the National Bureau
of Investigation: (1) The Security Division; (2) The Fact-
Finding Division; (3) The Investigation Division; and (4)

The Personnel and Records Division.

A;_ The Security Division

The Security Division, numerically the largest of the
four divisions, is headed by a Special Agent-In-Charge. There
are 42 agents who are engaged in protective security details

assigned to the Executive Mansion, the Vice President, the

, lEdwards, Lt. A. Wilson. "Prospectus for Special Ser-
'VlCes, An Investigative and Security Agency of the Department
<prJustice." MOnrovia: Special Services Bureau, 1958,

:Mlmeographed), p. 1.

In

III
i.l%
v .
1.
W

= Securi

N NUT Ilq\
I

Chart III

THE PRESENT ORGANIZATION OF THE
NATIONAL BUREAU OF INVESTIGATION

 

 

The Chief Executive

 

 

 

 

 

The Attorney General

 

 

 

 

 

The Director of
Special Services
(NBI)

 

 

 

 

 

 

Security Division

 

 

 

 

 

Personnel & Records
Division

 

 

 

 

Assistant Director

 

 

 

 

 

 

 

 

Division

Investigation

 

 

 

 

 

Fact-Finding
Division

 

 

37

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-U~m~z~ ~z

A~z< E v: ~LM.M:-~.~..I..

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#57794 ..J....N v? N

38

 

 

 

o:

ma<ommwo<

 

N:

Z<HAH>HO 92¢ DmBmHAZm A<EOB

 

 

mhuwCommmz

 

“momma

 

mamuohoom

 

xpmao waaaam

 

afimmmdwfig

 

homooxxoom

 

thQMHwouofim pcuw<

 

N:

mucuw¢

 

Amzzommmm UZHMZ<M A<EOE

 

 

mucow< Hmwom m

 

owumfionfiHnmuauw< Hmwoomw

 

honomhwm pnmumwmm<

 

H

houoohwn

 

 

 

cowmw>wm
wohoomm a
chcomhom

 

cowmw>wm
cowumw
nmumo>cHe

 

aowmw>wm
wcaeaam
-pomm

cowmw>wa
zuwhSoom

 

 

houoopwm
.umm<
oommmo

 

houoohwm
mo
mowmmo

A

 

 

ZOHH<UHBmm>ZH m0 D<mmbm A<ZOHH<Z mmH ZH

mZOHEHmom QMNHmOZBD< mo mmmZDZ 92¢ mmDEUDMBm MZ<m BZHmMMm

H mam»;

 

 

Speakei
:ection
three e

of each

3. The

on rumo}

Bureau’s

39

Speaker of the House of Representatives, and provide pro-
tection for official visitors. The Security Division works

three eight-hour watches with three Special Agents—In-Charge

of each eight—hour shift.2

 

B. The Fact-Finding_Division

The Fact-Finding Division builds and maintains files
on rumors, individuals, organizations, and serves as the
Bureau's news service clipping agency. This Division is

supervised by a Special-Agent-In-Charge who has a staff of

fouragents.3

Four of the five men work during the day while one
thrks from 4:00 P.M. until 12:00 Midnight so that the Division's
files may be available 16 hours each day. The Division also
maiJItains files on known agitators, firms, investigates ru-
morms and keeps abreast of activities of visitors and requests

and-(Shecks records from foreign police departments“ through

cooperation with Interpol.

C. CPhe Investigation Division

M

The Investigation Division is supervised by a Special
AgeIItF-In-Charge who directs the activities of four agents.

The iffive men of this Division are charged with conducting

 

\
2Ibid., pp. 1-2.

31bid., pp. 5-6.
41bid., p. 6.

 

.k’s '

enem:

40

investigations and seeking information and enforcing national
criminal laws. This Division is also responsible for detec—
ting subversive individuals, traitors, revolutionists, and

enemies of the Republic.5

 

The agents of this Division report to work at 8:00
A.M. every day for assignments and prepare reports on activ-
ities of their most recent tours of duty. These agents may
also be assigned to provide security for official visitors in .

addition to their regular duties.6

D. The Personnel and Records Division

 

The Personnel and Records Division is staffed by one
Special Agent-In—Charge, one filing clerk and one secretary.7
The members of this Division work one eight-hour day shift per
week. ‘When necessary, this Division assists in the protection
of official visitors. The supervisor of this Division is also
charged with keeping the personal and official records of all
Bureau personnel, training all personnel in the most modern
methods, giving efficiency examinations for promotions, and
setting up trial boards for National Bureau of Investigation

personnel accused of violations or infractions of the Bureau’s

rules and regulations. This Division also performs fiscal

 

5Ibid., p. 63.
6Ibid., p. 5.

71:22. sit.-

 

 

 

duties,

purchasi

E. The

eau of I

at his p

is direc
i
I
f
7
P .
T
.n -
Cohmarl
8
‘Opffiel
986
10
#31} EC
Sim-Ls Mar

41

duties, such as preparing the agency budget, payroll, and

purchasing of supplies.8

E. The Director of the National Bureau of Investigation

 

 

The Director of Special Services of the National Bur-
eau of Investigation is appointed by the President and serves
at his pleasure with the advice and consent of the Senate. He
is directly responsible to the Attorney General.9

10 '

The Director's responsibilities include: I

1. Serving as tOp administrative officer of
the Bureau.

. Keeping the Bureau functioning efficiently.
. Establishing policies for the Bureau.

2
3
4. Establishing disciplinary measures.
5. SUpervising the rules and regulations.
6

. Instituting investigations for any in—
adequacy in the Bureau.

7. Making an annual report of the Bureau to

the Attorney General.

F. The Assistant Director of the National Bureau of Investi-
gation
The Assistant Director of Special Services is second

in command of the Bureau and immediate assistant to the

 

8Public Safety Division. "U.S. Agency for International
Development," 22. cit., p. 12.

98cc Appendix A.
loEdwards,Lt. A.'Wilson. ”Rules and Regulations for

.Agents Manual.” Department of Justice. Monrovia: Special
Services Bureau, 1958 (Mimeographed), p. 2.

 

 

 

Director

G The?
S

gation i.
National
leased,

Streets ,
tratva i

11 Civil"

42

Director.11 His duties include:12

1. Directing all personnel of the Bureau.
2. Commanding the Bureau in the absence of

the Director.

G. The Headguarters of the National Bureau of Investigation

 

The Headquarters of the National Bureau of Investi-
gation is located in MOnrovia. The building in which the
National Bureau of Investigation is housed is temporarily
leased. It is situated at the corner of Gurley and Front
Streets. The Headquarters building where all the adminis—
trative plans are made has approximately nine agents and

ll civilian employees.

H. The Concept of the National Bureau of Investigation Staff

Organization

 

The National Bureau of Investigation, although created
by law to handle criminal cases which do not normally fall
within the jurisdiction of the National Police Force, as pre-
viously mentioned, is fundamentally performing National Police
Force organization duties. As such, it is one of the major
law enforcement agencies of the Department of Justice. Its
headquarters organization is patterned after the concept of

staff organization employed by the National Police Force.

 

11Ibid., pp. 1-2.
12Ibid., p. 2

 

 

Under th
Assistar
this cor

cedures

the giv-

7 ' 1
Ofllrig

servic e

 

43

Under this concept, the staff includes the Director, the
Assistant Director, and the personnel staff. To understand
this concept, it is necessary to be familiar with the pro-
cedures and functions of the staff divisions.

a. Staff Functions and Procedures. Staff command is
the giving of orders by an agent who has no authority in his
own right but who performs the routine tasks of command as a
service for principle.13

Line command is the giving of authority by the Chief
to his immediate subordinates Who, in turn, relay that author-
ity to their subordinates down the line of direct control to
the lowest point of authority. The staff concept is not com-
plicated in operation and it does not involve any difficult
relationships when the lines of control are clearly stated and
understood. It consists of the superior officer conducting
the efforts of his immediate subordinates by direct written
or oral order.“L

Supervision of associates by a higher ranking officer
is the process of overseeing the execution of their responsi-
bilities for the purpose of directing them in the accomplish-
ment of their tasks. The superior officer is given authority

to order the immediate rectification of any derelictions that

he may come across.

 

13International City Managers' Association. Municipal
Police Administration. Chicago: Brock & Rankin, Inc., 1961,
pp. 60—61.

luMunicipal Police Administration, 1961, 22. cit., pp.
70-79.

 

 

Therei
the 16

a higl

‘t

. .g

$\ pr

"M

\ y—K.
‘rdta

44

Supervision is very important to effective Operation.
Therefore, it is necessary to state that every individual at
the level of execution should be under the direct command of

a higher ranking officer.15

While the superior cannot keep
the subordinates in his actual presence at all times, he
should be constantly around to assist them, and he should
make frequent and irregular checks on their performance.

The distinguishing feature of staff supervision is
that it is an advisory relationship outside the regular
hierarchy Of command and responsibility. Thus, a supervisor
may review the work of another employee who is responsible
to another superior Officer but who is, for the time being,
engaged in work falling within the jurisdiction of the
supervisor.

Staff supervision is provided by an Officer who is
acting in staff capacity; he does not have direct control of
the subordinate. The staff supervisor does not have the
authority to make immediate correction of a dereliction. He
may discuss the matter with the subordinate and point out
errors and suggest improvements, but he lacks authority to
take disciplinary action or to give a command (except under
the previously mentioned conditions when the purpose or

reputation Of the department is in jeopardy). The staff

 

1'5Wilson, 0. W. Police Administration. New York:
McGraw Hill, 1950, p. 54.

 

. l I ‘ l C C\
r . cl r S 0 CL e 7: .l t l .C e .‘L x .. h e
.c a . N .1 mw .d 30 .0 8 7L .3 Nu. C « .Q .Q. :nm
Ld I c 0 v. F. a c 0 .. u t.» hu 3 .2 .t ...u t a a . a \ .
C a T. S .L .5 a a. . .d ..I .a... a: a . at s. .. C» .

 

 

 

45

SUpervisor, instead, must report his findings through desig-
nated channels for action. When tactfully administered,
staff supervision is nearly as effective as direct command.
Its success is dependent on the personalities involved and
on the spirit of the members of the organization.

SO long as the relationships described above and
channels or procedures are defined by department regulations,
staff supervision does not violate the principle of unity of
command. Much of the friction and misunderstanding that
arises from staff supervision results from a failure of the
members to understand its true nature. Those who exercise
staff supervision must remember that they are not authorized
to enforce policies and regulations but can only inform,
suggest, or assist. Most of the friction that arises can be
avoided if the Chief holds regular staff meetings to explain
the relationships and discuss the problems Of division heads
as they occur. A typical staff-type responsibility which
falls to members of the National Bureau of Investigation
headquarters is to prepare and issue essential orders and
supervise their execution.

b. Staff Components. The immediate commanding

 

Officer of the Security Division is, as was previously
stated, a Special Agent-In-Charge. He works at the head-
quarters and is directly responsible to the Director. Three
special agents serve as his immediate assistants, one in

charge of each of three eight-hour shifts. In this respect,

rl

1W-..—__—4

order
Agent
these

:he 0

mma
(spec

Div; .
-u‘

CCHSig
bfiief

Jlrect

'3‘:
A“ n
~\'L

46

orders from the Director are given directly to the Special
Agent-In-Charge for his Division and he, in turn, hands over
these orders to the special agents under his command who pass
the orders on to the agents.16
The Fact-Finding Division, as cited in the preceding
pages, is also headed by one Special Agent-In-Charge. He
commands only four agents, there being no intermediate
(special agent) command personnel. The leader of this
Division is also responsible to the Director.17
The Investigation Division likewise, as stated earlier,
consists of one Special Agent-In-Charge and four agents. The
Chief of this Division is also directly responsible to the
Director and passes on all orders from the Director to his
agents.18
The Personnel and Records Division, as previously
noted, is staffed by one Special Agent-In-Charge and four
civilian employees who are under his control. He receives
orders from the Director or Assistant Director and passes
them down to his immediate subordinates.19

From the above illustrations the staff-type duty

'which Bureau staff members perform, such as preparing and

 

l6Edwards. Prospectus. 22. cit., pp. 2-3
l7Ibid., pp. 5-6.
18Ibid., p. 4.

l91bid., pp. 1-5.

 

 

issuing

may be

47

issuing necessary orders and supervising their performance,

may be visualized.

Summary

Having seen how the present National Bureau of Inves-
tigation is organized and what the staff members' duties are,
the next step is the analysis of the present organization
presented in the following chapter. A thorough discussion
is made of the many organizational defects and personnel
problems, the result of which makes reorganization of the

Bureau necessary.

 

 

Alissa- '

48

CHAPTER III

EVALUATION OF THE PRESENT ORGANIZATION OF
THE NATIONAL BUREAU OF INVESTIGATION

The organization of the National Bureau of Investi-
gation has been prescribed by the National Legislature.l
But it is necessary to define the investigative role of the
Bureau more clearly. An analysis of each of the divisions

of the present organization of the National Bureau of Inves-

tigation is necessary to show the many defects on account of

which a reorganization is necessary.

The Security Division

 

The Security Division, as previously stated, is staffed
with 42 agents who are engaged in protective security details
assigned to the Executive Mansion, the Vice President, and the
Speaker of the House of Representatives respectively. ‘While
the number of personnel assigned to this Division is large, it
does not seem out of proportion to their presently assigned
responsibilities. For example, since the National Bureau of
Investigation was organized, scores of individuals have been
employed two weeks prior to every inauguration day to assist
National Bureau of Investigation agents in giving protective
security to the various dignitaries invited to witness the

ceremonies. During the inaugural period, these men receive

 

.ISee Appendix A.

 

. . P. ...,u ..5 t t. D. .c S .d C ...n La. .3 n5 is \ D a: .2 . L

 

 

 

 

49

almost identical privileges as regular agents Of the National
Bureau of Investigation. When the occasion is over, the men
are immediately discharged. This system of hiring men for prO-
tective security is contrary to the principle of efficient and
effective security and investigative procedure because they
do not pass through the necessary screening processes for
selection and they do not receive adequate training to do
the job. This practice indicates the inadequate strength of
the National Bureau of Investigation.
The present protective security details assigned to
Officials other than the President are under-staffed to
afford real security. The control of these protective
security details, most often, is handled by the official
under protection rather than based on sound security prin-
ciples.2
The greatest fault, and a serious security error
within this field of protective security, is the practice of
having two separate units equally charged with the responsi-
bility for protection of the President--Executive Mansion
Special Security Police under one Chief and the National

Bureau of Investigation agents under a different Director.3

 

2Public Safety Division. "U.S. Agency for International
Development, Operational and Administrative Survey." National

Bureau of Investigation (formerly Bureau of Special Services)
and Executive ManSLOn Spec1al Security Police. MOnrov1a: Pu —

lic Safety Division, A.I.D., February, 1962 (Mimeographed), p.6.

3Loc. cit.

 

50

These units are all separated despite the fact that a legis-
lative act authorizes the Executive Mansion Special Security
Police as a branch of the National Bureau of Investigation.
This factor has caused misunderstanding in command, confusion
of responsibility, disciplinary problems, and some lax secur-
ity practices. The principle of unity of command is that an
employee or an organization should be under the direct con-
trol of one and only one immediate superior. This principle
also dictates that an Operation requiring the action of two
or more policemen must be under the direct control of only
one immediate superior Officer.’4
A policeman, given conflicting orders by several su-
periors, becomes confused and inefficient; the orders are
seldom harmonious because they are usually directed at
different Objectives. The importance of this principle in
the process of coordination and organization must not be
overlooked. In developing an organization structure, it is
often tempting to set up more than one boss for an individual
who is doing a job which has more than one relationship. The
rigid adherence to the principle Of unity of command may have

its faults; these are, however, insignificant in comparison

 

'with the certainty of confusion which arises when the principle

 

“International City Managers' Association. Municipal
Police Administration. Chicago: Brock & Rankin, Inc., l96I,

p. 57.

is via

detail
Agents
but or

Securi

absolx

 

diSQi1
3*. .
:g1'\:e

Ebsol

-OJR \

 

 

51

is violated.5

The men who are presently assigned to these security
details have not had adequate training in protective security.
Agents who have a certain intelligence level can be trained,
but one Of the serious problems involved is the case of many
security agents and uniformed police Officers--the almost
absolute disregard for personal responsibility and self-
discipline. Also, the concept of "team play," or the COOper-
ative spirit in coordinating all security activities is
absolutely missing, with some exceptions, of course.

The assignment of agents for security duties in
advance of the President's tour to another area of the Re-
public is, on the whole, good. The assignment of only one
representative from the National Bureau of Investigation,
charged by law for the protection of the President, to work
on advance security plans for major visits to a foreign
country is inadequate.6

The present method of selecting security personnel
to travel in advance Of a major trip by the Chief Executive
is not prOper. There is no clear-cut procedure for this

selection which appears to be based more on favoritism than

 

 

5Gulick, Luther and Urwick, L. (eds.). "Papers on the
Science Of Administration." New York Institute Of Public
.Administration. New York: Columbia University, 1937, p. 9.

 

 

6Public Safety Division. U.S. A.I.D., 22. cit., p. 7.

52

on the capability of the individual. The Director of the
National Bureau of Investigation is the person most competent
to assign personnel because it is his responsibility to know

the professional capability of the personnel of the Bureau.

The FacteFinding Division

Overlap between the duties of the Fact-Finding and the
Investigation Divisions has led to a wasteful and inefficient
practice. The efficiency factor has been eroded in the prac-
tice of both divisions conducting preliminary investigation
on cases where the suspect is not known. Upon the identifi-
cation Of the suspect, the investigation to this point is
written and forwarded to the Investigation Division. The
Investigation Division then initiates its own investigation
to conclude the case. This is costly in time; wasteful in
agent manpower and clerical work, and results in duplicate
files on the same case in two divisions of the same agency.
In general, this is an inefficient method of conducting any
investigation.7

One need of basic importance to any organization
concerned with internal security is the background investi-
‘gations of its own employees to determine their loyalty,

character, and reliability.8 .Although forms are available

 

7International City Managers' Association, 22. cit.,
‘pp. 286-287.

8Ftherty, John J. Inside the FBI. New York: J. B.
];ippincott Company, 1943, p. 103.

 

‘3
t

..s HI! 1.1 vi! a

1|! 1 Is ..1,‘ ¢~\ . u .
. . L n: ”we .w. My nu. :L 7‘ r ...: a. a s. i ..

J L.
Elie
:t.
o

L
Q

 

 

 

 

53

for this purpose, the investigations have not yet been con-
ducted.

This division needs a complete readjustment into a
special investigation section with specially prescribed

duties covering designated Offenses.

The Investigation Division

The Investigation Division has a broad and indefinite
jurisdictional responsibility which has led to confusion be-
tween it and the Fact—Finding Division, Detective Division of
the National Police Force, as well as with the Bureau of Sta—
tistics and Executive Action Bureau. A positive understanding
of the investigative jurisdiction among these divisions, as
well as that Of other agencies, would be much towards the im-
proving of law enforcement and security within the Republic.

This practice is a violation of the sound principles
or organization. A police unit is organized for the purpose
Of facilitating the attainment of Objectives. Organization
is the arrangement of persons with a common purpose in a
manner to enable the performance by specified individuals of
related tasks grouped for the purpose Of assignment and the
establishment of areas of responsibility with clear-cut
channels of communication and authority. Hence, the princi-
jples violated here are: (l) The work is not apportioned
.among the various units according to some logical plan; and

(2) lines Of authority and responsibility are not made as

‘f

 

definite a

T0
jurisdicti'
recorded f:

cases inve

1961:10

Eli

As
Br
CO"
CO”
Fr
FU:
In;
Mu
At
Na
Pe;
Pr.
P0
P0-
81
SO
Sn.
Tin
Th.

 

54

definite and direct as possible.9

To point out the necessity for definitely assigned

jurisdictional responsibility, the following statistics are
recorded for 1961. These represent the overall number of

cases investigated by the Bureau of Special Services during

1961:10

Z
0

Type of Case

 

.Assault ........ .... ................
Bribery....... .............. ....;..
Counterfeiting ......... ............
Counter-Subversive.... ..............
Fraud against Government ...... .....
Fugitive ................ ...........
Immigration Violations .............
MUrder..... ................. .......
Attempted MUrder ..... . .............
Narcotics......... ....... ..... .....
Personnel Infractions ..............
Protective Security .......... ......
Postal Violations.. ................
Pocket Picking ............. . .......
Slander.... .......... . .............
Sodomy..... ...... . ......... . .......
Smuggling ..........................
Theft (larceny) ...... . .............
Threats..... ..............

|——I

H

mHHHHHrmowwmpHerm

|.—l

.
I
:
la

Total Cases WOrked in 1961.... 82

It will be noted that with ten agents presently
assigned to the Fact-Finding and Investigation Divisions,
the annual caseload is approximately eight inveStigations

INK? agent. This number is estremely low. .A more realistic

9International City Managers' Association, 22. cit., p. 45.
__’E :

lOPublic Safety Division, U.S. A.I.D., 22. p. 10.

 

 

'“h

tote

ably

iHVQ

NOTE

55

figure would be at least eight cases per agent a month. The
total number of 82 investigations for the year is unreason-
ably low and indicates that more effort must be made to detect
and investigate offenses occuring within the state.

From the above statistics, it is Observed that several
investigations that were conducted during 1961 are what are
normally referred to as "police—type crimes." The use of
National Bureau of Investigation agents for investigation of
these types of Offenses is not in accordance with the purpose
for which the Bureau was originally established.

Another problem, damaging to efficient investigative
processes, is the failure tO allow Operational control of
cases under investigation tO rest with the supervision of
the section conducting the investigation. This situation is
also a violation of the fifth principle Of organization which
states, "Responsibility cannot be placed without delegating
commensurate authority, and authority should not be delegated

Without holding the user to account for the use he makes of

it . ”1]-

Personnel and Records Division

 

For the time being, the staff members of the Personnel
and Records Division are either inadequately trained, lack

understanding Of their responsibilities, or lack the basic

4 11International City Managers' Association, 22. cit.,
P- .5.

56

ability to perform their assignment.12 For example, a random
sampling Of the personnel files disclosed the following de-

ficiencies:l3

l. The form used for the recording of per—
sonal data on the employees is inadequate.

2. The professional history or service progress
within the Bureau has not been recorded on

the employees.

3. Some files contain sick-slips and excuses
which were not filed orderly or recorded.

4. Some of the personnel files contain oper-
ational criminal investigative reports.

5. Information in the personnel files is not
filed by date.

6. ,A record of results of fines, suspensions,
or other disciplinary actions is not always
in the personnel file of the employee con-
cerned.

7. Three application forms, and questionnaire
for employment, and examination for position

of agent all require personal data to a
large degree.

This division is an important one in this organization
because it furnishes the administrative logistical support for
the investigative and security units. Without standardized
IProcedures within this division, the investigative and secur—

itby branches cannot be expected tOOperate at maximum efficiency.

12Public Safety Division. U.S. A.I.D., 22° cit., p. 12.
13Loc. cit.

14Loc. cit.

la
Pe
so.

:1 t
t d \ Vs

 

57

The most serious failing within this division is the
lack of standardized employment and personnel practices.
Persons who possess very limited capabilities are sent, by
some government officials, to the National Bureau of Inves-
tigation for employment.15 This causes difficulties in properly
disposing of these personnel matters. The ability and train-
ing Of the employees of this Bureau will determine its future
value to the Republic. In conjunction with employment of
adequate personnel goes the control of Bureau employees. The
final decision as to appointment, discharge, assignment, pro-
motion and discipline of the employees within the Bureau
should rest solely with the Director, with notification
reference reasons for such action furnished the Attorney
General for his general information only.

Table I, which presented the present rank structure
and number of positions authorized for each rank on the
National Bureau of Investigation, disclosed that there are
only 12 agents available for investigative assignments. This
number is inadequate because Of the heavy responsibilities
that the division assumes. Further, in the event Of any
Special activity or emergency, there is insufficient person-
16

'nel in.reserve to place on any such activity.

The training standard of the present bureau personnel

15Ibid., p. 13.

16Ibid., p. 14.

 

0‘“—

 

is low17 ‘:

Investiga:
training .
qualified
permitted.
being done

I":
this Burea.
a general
and Profes

 

58

is low17 because of the lack of qualified National Bureau Of
Investigation instructors to perform the training. Such
training as has been conducted by a few persons considered
qualified has consisted Of lectures as time and other duties
permitted, and on-the-job presentation. That is how it is
being done now.

The prime need Observed for personnel assigned to
this Bureau appears to be specific technical training18 and
a general orientation of their prescribed duties for efficient
and professional performance. On any future training given
this group, emphasis must be focused on professional discipline
and responsibility.

One Of the difficulties in judging the present employ-
ees' qualifications is the lack Of a proven standard and the
lack Of reliable knowledge as to whether the qualifications
listed by the employee are factual. This problem is coupled
with the reorganization plans of this study to place the
best qualified available personnel in the most responsible
positions.

The Bureau's administrative records system is poor.
For example, there is no standardized filing system within
the agency. The following experiences gave evidence of this

assumption: There are no equipment or supply accountability

 

l7Loc. cit.

l8Loc. cit.

 

 

records i
equipment
tinating
by the Bu
Way of de
other tha‘
Property ]
Tl
exPended g
339,311.20
is Very 1F.
SiZe 811d 1
I
divisiOns
tigati‘Ve f
files on t
file SYSte
TherefOre:

 

Th

/

8’
5* /,.

/<‘?/

 

'__

59

records in existence for either expendable or non-expendable
equipment or supplies. As a result, there is no means of es-
timating the amount of expendable supplies utilized or needed

by the Bureau during any preceding period. There exists no

way of determining the amount and type of equipment on hand
other than by physical inventory. Non-expendable Bureau
property has not yet been marked with any identifying numbers.19

There is no recording Of expenses incurred or funds
expended as to each of the several vehicles owned by the
Bureau.20 A cost accounting system for vehicular equipment
is very important for prOper management of a Bureau of this
size and importance.

Investigative files are decentralized since the two
divisions involved in such activity maintain separate inves-
tigative files. In some instances, the Bureau may have two
files on the same offender. There is no cross-index or card
file system of offenders or persons previously investigated.21
Therefore, the method used in locating an investigative file

is cumbersome and not necessarily reliable.

Supplies and Eqpipment

The present Bureau possesses a considerable amount of

19Ibid., p. 17.

20Loc. cit.

2lLoc. cit.

basic enf
conununica
emergency
t."Pewrit e ‘

excess of ‘

0f 76 per.

 

200 Shoulp

S
basic n98
DQteCtor,
quate det.
regiSter 4|
ordering -.
fixation of

C:

 

 

60

basic enforcement equipment such as motor vehicles, firearms,
communication equipment, a lie detector, first aid kits,
emergency equipment and supplies such as stationary and
typewriters. In some instances, the equipment on hand is in
excess Of the foreseeable needs. An example is the 150 new
Colt revolvers for an organization with a personnel strength
of 76 persons. Another example is the recent purchase of
200 shoulder holsters.22

Some items of new equipment are substandard to the
basic needs of the Bureau. For example, a Sirchie B &‘W Lie
Detector, which has been purchased for $325.00, is an inade-
quate detection machine because it is not broad enough to
register reliable evidence. It is not dependable. The
ordering of equipment, in some cases, has been through exam-
ination Of a catalogue without reference to available quali-
fied technical personnel for advice.

The Bureau owns eight vehicles at the present time,
among which are two armored trucks. .All eight vehicles are
fully equipped with two-way MOtorola radios. There is no
reasdnable method of evaluating how economically and properly
these vehicles should be used to the best interest of the
Bureau. For example, the two cars which were purposely
ordered andequipped for all official escorts Of the Chief

Executive are frequently unofficially used by ranking Bureau

 

 

22Ibid., p. 18.

 

personnel

T
tenance 0
some loca-
breach of
modern law
It is but
ment orgaj
Proper ve‘:

A.
base Stat?
the Unite;
Bureau, t}
to be Cour
reason f0:
Persgnnel
CiESire f0:
Elie Burea:~
taming 1:

Ti
Problefl] 1:"
Cell

 

61

personnel.

The Bureau does not have its own garage for the main-
tenance of these vehicles. Therefore, they are repaired by
some local garages selected by the Director. This is also a
breach of security. The indispensability of automobiles in
modern law enforcement activities need not be overemphasized.
It is but impossible to think of running a modern law enforce-
ment organization without placing very strong emphasis on
prOper vehicles and their maintenance.

,Although the Bureau has its own police radio with
base stations at the Executive Mansion, the headquarters Of
the United States Public Safety and the headquarters of the
Bureau, the radio network does not function efficiently enough
to be counted as a dependable enforcement tool. The main
reason for this is because the Bureau does not have trained
personnel capable of maintaining them. There is a strong
desire for a better functioning radio communication system.
‘The.Bureau must be efficient enough to be capable of main—
‘taining its equipment prOperly and economically.

The Bureau is also equipped with telephones but the
pnmoblem lies in the fact that the system can only receive one
cuill at a time. Imagine an organization of such importance
arui size when at least three or four calls cannot be received v
at:'the same time. This creates a serious difficulty in the
possibility Of reaching the Bureau by telephone even for

emergency reasons in that the line is usually busy. There is

 

62

an urgent need to change the Bureau's present telephone system
to one more suitable to accommodate its heavy responsibilities.
The Bureau also possesses adequate supplies of Office
equipment such as stationary and typewriters. There is no
supply Officer specifically assigned to supervise, control,
and care for the existing equipment and supplies. For the
time being, the storage space for investigative equipment and
firearms is inadequate. There is no one central location
where such equipment could be easily found and issued in an

emergency. The care Of stored weapons is inadequate to the

‘\

point that costly weapons have, in several instances, been
allowed to collect rust. The only available dehumidifier is not

adequate to keep the storage area free from moisture.

Building and Grounds

Until a building that is conducive to the purpose of
National Bureau of Investigation activities is constructed,
the present leased building occupied by the agency is come A
pletely inadequate to meet existing needs without even con-
sidering the new agents and other supporting employees
scheduled for appointment in 1963.

The housing needs of this Bureau are paramount. This
.Bureau represents the highest law enforcement agency of the
Republic and, as such, has ranking security and investigative

(xfificials from other nations visiting it.

 

L~i

 

M

 

make it nl
been poinl
sides thei
Specificai
are in adi
fects wari
These pro
tion and

ment ; (2

Disciplin

 

 

 

63

Problems

Many of the organizational defects and problems which
make it necessary to have this Bureau reorganized have already
been pointed out in the preceding pages Of this chapter. Be-
sides the above illustrations, a further attempt is made to
specifically treat with the basic personnel problems which
are in addition to the aforementioned. Organizational de—
fects warrant reorganization Of the present organization.
These problems are basically concerned with personnel selec-
tion and management, specifically in terms of: (1) Recruit-
ment; (2) Training; (3) Assignment; (4) Promotion; (5)
Discipline; and (6) Instructors.

The quality of police protection given in Liberia
must, in the final analysis, depend largely on the quality
Of the National Bureau of Investigation personnel. The major
part of the task of any police administration is the adminis-
tration of police personnel. The problem is further compli-
cated by the fact that police work is not a single occupation l
but a profession requiring a wide range Of abilities, tech-
niques, and sciences. Special intellectual, physical, and
personality traits are now required in a good police Officer.
If a proper job is not done in the selection, training,
assignment, promotion, and discipline of the members of the
organization, it cannot be expected that the individual
officers will be able to satisfactorily perform the complex

‘work of the department regardless Of how well that organi-

 

ll

 

 

 

zation ma
I
Operation
to insure
vice the
This syst
trained,

demonstra

ities wit?

 

 

 

 

64

zation may apply the principles of sound organization.

The selection of competent personnel is vital to the
Operation Of an effective law enforcement agency. TO attempt
to insure the selection of competent personnel in public ser- ,
vice the merit system should be adopted very extensively.23
This system provides that personnel shall be selected, re-
trained, and promoted on the basis of their capacity and
demonstrated ability to perform the duties and responsibil-
ities with which they are charged.24

The Federal Bureau of Investigation, the United States
Secret Service, and Scotland Yard are world-famous investi-
gative agencies because of the calibre Of their personnel.
This recognition has been achieved through the process Of
high standard, aggressive recruitment, effective training,
rigid discipline, impartial promotion and efficient profession-
al instructors. NO matter how well an agency may be structur-
ally organized, if such an organization does not have well-
trained men to staff it, it will end in a complete failure.

The widest purpose of sound personnel administration,

as far as the police are concerned, is to establish and main-

‘tain for the public service a competent, well-trained police

 

23Wilson, 0.‘W. "Toward a Better Merit System.” Annals
of the American Academy of Political and Social Science. PHlI-
adelphia: American Academy Of Political and SociaI Science,
1954. 291:87~96.

24Harrison, Leonard V. Police Administration Survey in
Boston" Cambridge: Harvard University Press, I934, p. 281.

 

 

 

 

f c

IE"

Q“

U

(11
r,

._
or:

( J
1

65

force under such conditions of work that the force is com-
pletely loyal to the interests of the government at all times.
In order to achieve this purpose, it is essential to estab-
lish a career service--a personnel structure which attracts
to the police service its full share of the capacity and
character Of the nation's manpower by Offering successful
applicants an honorable career enduring from youth to retire-

ment.25

A. Recruitment

 

The eligible educational qualification for the National
Bureau of Investigation is high school graduation. However,
currently over 15 agents neither possess a high school certif-
icate nor hold any extra qualification which suits them for
their work. For example, of the number of agents in the
Bureau for whom educational data could be Obtained, four had
college training, 20 graduated from high school, and the rest
attended but not completed high school.

At present, entrance requirements for appointment as

an agent in the Bureau are as follows:

1. Citizenship in Liberia.
2. Residence in Liberia.

3. High school graduation or the equivalent.

 

25Whitehead, Don F. The FBI Story. New York: Random
House, 1956, p. 150.

 

66

4. Good moral character and habits.
5. Not less than 21 years Of age.

6. Presentation Of a medical certificate.

These qualifications have been prescribed by the
Director. It is apparent that "equivalent" of a high school
education has been very broadly interpreted in practice.
Furthermore, modern recruiting methods have not been imposed
on applicants, with the result that a complete physical exam—
ination has not been made. No formalized character investi-
gation has been made, perhaps because it has been assumed that
the applicants were sufficiently known to enable individual
special agents of the Bureau tO approve their character and
habits.

.Although entrance examinations should eliminate as
unqualified many of the applicants initially acceptable as
having the "equivalent" of a high school education instead Of
having graduated, this provision may serve as an Obstacle to
systematic recruitment because of the difficulty of determin-
ing what is an "equivalent." Such a rule makes doubly impor-
tant the develOpment of a comprehensive examining program.

The chief disadvantage Of the recruitment process is
that the Director has not provided a formalized procedure by

which he can select the best Of the available applicants.

B. Training

 

The National Bureau of Investigation faces difficulties

 

 

 

 

in providi
to the pre
‘personal c.
against th

De
National B-
have a Spe‘

abilities .

 

average 130'
has Hot Ye;
the Opposi-
seems to by
Bul‘eau of
equipped t:

tigation he

 

67

in providing adequate training facilities for its agents. Up
to the present time, selection appears to be on the basis of

personal considerations, a fact which has undoubtedly reacted
against the morale of the Bureau.26

Despite the fact that the former Director Of the
National Bureau of Investigation stated that the Bureau would
have a specially trained unit of super police Officers with
abilities and capabilities developed over and above the
average police officer, this phase of the training program
has not yet come to pass. In fact, the situation seems to be
the Opposite in that the average National Police Force man
seems to be better trained than the agents in the National
Bureau of Investigation. Since, in fact, they have a well-
equipped training academy while the National Bureau of Inves-
tigation has nothing even of the equivalent of that.

There exists a training program in the National Bureau
of Investigation, but it needs further development in order
that it may secure the greatest possible efficiency. The
training of recruits lasts for two or three months of five
days of weekly attendance which is frequently interrupted by
emergency events in which the trainees' participation is
usually compulsory. Instruction begins at 8:00 A.M. and ends
at 2:00 P.M.

The training program should be linked with selection

 

26Public Safety Division, U.S. AID, pp. cit., pp. 14-15.

 

 

mione han

rm such co
nmo pract
Of new rec
iflgis ove
HEis brou;
|
DOIice Wor:
recruits i
the method
Br
States:
1‘8
QU
fa
fe
pr
th
Se
tr
Ca
in
11
Dr
Th
ember
CT"-
sunlzati
cf Invest]:
Only
X
‘Iates Y'Sm

68

on one hand and promotion on the other. At present, there is
no such connection. In—service training has not yet been put
into practice. The school Opens only when there is a group
Of new recruits and it closes as soon as the length of train-
ing is over. The recruit is subjected to a cramming process.
He is brought a little closer to the qualifications that
police work demands. Experience gained from the training Of
recruits is not utilized in any of the attempts to improve
the methods of their selection.

Bruce Smith, in his survey Of American policing,
states:

”...completion Of the training course for

recruits and the modicum of experience ac-

quired during a probationary period still

fall short of desirable Objectives in prO-

fessional police training. Additional

practical experience can be acquired

through mere lapse of time in police

service, but supplementary theoretical

training in various police specialties

can be secured only through formal school-

ing. The progress made by municipal po—

lice forces in this respect is not im-
pressive in either bulk or quality."27

The job of training in the police service is to make
the members of the agency effective in the achievement Of
organizational goals. The great bulk of the National Bureau

of Investigation training has been vocational in nature, and

only now is the attention being focused on the area of admin-

 

 

27Smith, Bruce. "Police Developments in the United
States." The Police College Magazine. 3:227, Autumn, 1954.

 

69

istration, human relations, supervisory training, and execu-

tive development.

C. .Assignments

 

Through the process of placement, an appointee after
having satisfactorily met the requirements Of the department,
is assigned to his job.28 The objective of assignment is
essential to any good law enforcement organization.29

Assignment of men especially in the investigative and
protective security divisions must be given a very careful
professional attention, and should take into consideration
their needs, the needs Of the Bureau, and their development
into an effective member of the organizational team. To
arbitrarily assign any agent to an unwanted shift and beat
is a practice supportable only by tradition and those custom-
ary demands Of seniority which Offer the new agent only the
chaff of the agency.

The National Bureau of Investigation consists only of
a hierarchy of ranks with the assignment of responsibility
bearing no essential relationship to the rank. Lines of
responsibility are indefinite; authority is not well defined.

Therefore, members of the Bureau Often are confused as to

 

28Pfiffner, John M. and Presthus, R. V. Public Adminis-
tration. New York: Ronald Press CO., 1953, p. 146.

 

29Germann,.A. C. Police Personnel Management. Spring-
field: C. C. Thomas, 1958, p. 63

 

70

the exact nature of their duties and powers. They experience
difficulty in identifying their immediate superiors and lines
Of authority evolving therefrom.

Assignments are not made for the position for which
the agent is best suited because of "outside" influences.30
Hence, the Director is at a disadvantage tO control his men
since he can hardly use his professional discretion to assign
the men under his supervision accordingly.

Assignments should be the exclusive prerogative of
the Director without any outside interference. Probably
nowhere in government organization is the requirement for a
high order of leadership as great as in a police department.
Police service is characterized by a great amount of physical
danger which might lead men to fail in the performance of
their duties if they are without adequate guidance and control.
A high degree of esprit de corps is indispensable, and this
can be developed only by the intelligent maintenance of firm
and fair discipline and by the strict Observance Of lines of
authority and responsibility.31 The Director of the National
Bureau of Investigation must have adequate authority and be
a real leader.

It is unfortunate that, although the Bureau is a

 

3OPublicSafety Division. U.S. A.I.D. gp. cit.,
pp. 6-8.

3l-International City Managers' Association, 2p. cit.,
pp. 57-58.

 

71

national law enforcement agency, it does not have a single
representative in any of the other integral parts of the
nation except MOntserrado County. The total strength of the
agency Operates only in Monrovia. This contributes to the
ineffectiveness of the Bureau because it is not organized to
meet its national demands. The present organizational struc-
ture does not indicate the national character of the Bureau.
The Federal Bureau of Investigation and the United
States Secret Service are both Federal law enforcement agencies
of the United States; therefore, their functional distribution
is Federal in sc0pe. They are represented in each state of
the Union. This makes immediate administrative information

possible; hence, quick control of a given situation.32

D. Promotion

 

The present promotion procedure in the National Bureau
of Investigation is rather casual. Promotion is determined
by length of service and performance of duty. As a result,
the influence of some non-bureau individuals has been impor-
tant in affecting promotions. The practice is for the Direc-
tor and his assistant to meet jointly and consider a few agents
who appear reliable and, thereupon, make a selection for pro-
motion. This is a partial system of giving promotion and it

weakens the morale of any organization.

 

32Floherty, 22. cit., pp. 89-90.

72

A definite procedure is needed in making promotions
just as in recruiting agents. Promotions should be strictly
based on competitive examinations consisting of written tests,
service ratings, seniority credit, and oral interview given
by the Bureau.

It must be noted that selection is not only the
process by which a police agency strives to Obtain the best
manpower from within the agency. This latter process is
called "promotion," and it consists in moving an employee
from a position involving a given rank, pay and responsibil-
ity to a position which involves, usually, greater rank,
increased pay, and additional responsibility.33

Police leadership is usually "up through the ranks"
and only rarely are "outsiders" allowed to compete for
position in the police service above the entrance level.
Because of this fact, the promotional appointee is poten-

tially the future chief, and must be selected with consider-

ation for this eventuality.

E. Discipline

Under the present arrangement, the Director of the
National Bureau of Investigation handles all disciplinary
matters of the rules and regulations and refers serious cases

to the Attorney General.

 

33International City Managers' Association, 22. cit.,
p. 150.

73

One Of the most serious problems within the organi-
zation is the lack of professional discipline. There exists
a complete absence Of professional responsibility among a
good number of the agents.

During the administration of the former directors of
the National Bureau of Investigation, strict adherence to the
rules and regulations of the Bureau were pursued by each
agent. The directors imposed rigid disciplinary measures on
any one agent who violated any infraction of the rules and
regulations. This kept the Bureau running smoothly. Since
the departure Of those men, and the appointment Of the new
directors, there is a complete disregard for the rules and
regulations; as a result, there is no professional discipline.
The inability and the absence Of professional administrative
leadership in both the present Director and his assistant
have contributed to the situation. There has been no form
of penalty for minor as well as serious delinquencies other
than reprimand except where some personal misunderstanding
has existed between the Director and an agent involved. There
have been few cases of suspension or dismissal.

Complaints that are supposed to pass through channels
of command according to the rules and regulations, are no
longer regarded. .Agents now overlook their immediate comman-
ders, as well as the Director, and make their complaints to
the Attorney General or to the President even though they do

not encourage it.

 

74

Each agent must continuously realize that orders and
instructions of a superior Officer, whether he is the direc—
tor, the assistant director, special agent-in-charge, special
agent, or whether the orders are trifling or important, must
be obeyed without question. It is expected that the orders
and instructions will always be Of such a nature that they
will deserve such unequivocal Obedience, but the men must be
convinced that, regardless Of justices, wisdom, or propriety

of order, they are to be obeyed first and questioned later.

F. Instructors

 

There can be no training in any given organization
without an instructor. The National Bureau of Investigation
lacks professional men to train the recruits as well as to
carry on in-service training. As a result Of this situation,
the National Bureau of Investigation must receive training
now from the National Police Force Academy. Previous
training Of agents was performed by two agent instructors
and a group of visiting lecturers, as previously stated.

The National Bureau of Investigation needs excellent
professional instructors to run its future "Training Acad-
emy." These regular instructors must be experienced and
well-trained, equivalent to the Federal Bureau of Investi-
gation teachers. Federal Bureau of Investigation agents are

available in the teaching of highly specialized courses.34

 

3“Whitehead, 22. cit., p. 151.

75

Summary

The many defects within the present organization of
the National Bureau of Investigation cannot be fairly attrib-
uted to the fault of only one individual, one factor, or one
unit of the government. Many forces and factors inside the
organization and outside the organization have all had their
share in the organizational defects and problems. This, how-
ever, is not peculiar to any law enforcement organization
during its early stage. It must be noted that the National
Bureau of Investigation is only five years Old. This period
of its existence could be technically considered as the ex-
perimental period from which might come a final result which
will be most suitable.

Organizational defects and personnel problems inVolved
in the National Bureau of Investigation have been enumerated.
Many of the causes have also been pointed out. The next
chapter proposes a means to eliminate most of the defects
and personnel problems by means Of a modern organization

plan.

76

CHAPTER IV
PROPOSED REORGANIZATION OF THE

NATIONAL BUREAU OF INVESTIGATION
OF THE DEPARTMENT OF JUSTICE

The proposed reorganization plan of the National Bureau
of Investigation calls for an ultimate organization whose size
and strength is vastly larger than the present organization.
This plan is recommended for the purpose of providing future
organization needs that will arise. The prOposed reorgani—
zation will only need minor modifications in the distant
future. It is a long-rangeorganization scheme designed to raise
the standard of the present organization to that equivalent
to other modern top level law enforcement organizations Of
the world. It is also a long-rangeorganization plan under—
taken tO solve many Of the numerous organizational and per-
sonnel problems that are now plaguing the present organization.

It is not essential that all of the new divisions and
sections created by this proposed organization plan be filled
at once. Future needs will demand the function and operation
of each division gradually as the government and country
develop more socially, economically, educationally, and
politically.

The organizational plan prOposed for the National
Bureau of Investigation seeks to accomplish two main objec-
tives. First, it attempts to eliminate some Of the many

organizational defects which are impeding the existing force

77

as the result of the following:

1. Lack of clear definition of the investigative role
of the National Bureau of Investigation as Opposed to that of
the National Police Force and other law enforcement agencies
Of the country.

2. Two separate units equally charged with protection
of the chief executive Operating under two different leaders
which is the cause of the following:

a. Misunderstanding of command channels
b. Lack Of responsibility
c. Lax security practices

3. Waste of manpower.

4. Duplication of investigative procedures.

5. Lack Of character investigation of bureau person-
nel.

6. Broad and indefinite jurisdictional responsibility.

7. Failure to allow Operational control of cases under
investigation to rest with the supervisor Of the division con-
ducting it.

8. Poor record system.

Second, the proposed reorganization seeks to establish
a prOper and reasonable method of personnel management specif-
ically in the areas of: (1) Recruitment; (2) Training; (3)
Assignment; (4) Promotion; (5) Discipline, and; (6) In-

structors. Such an establishment is necessary as a consequence

78

Of the following:
a. Lack of standardized employment practices
b. Poor Promotion procedures
c. Lack of qualified instructors
d. Lack of proven standard Of employees qualifications
e. Lack of professional discipline

f. Inadequate care of bureau supplies and equipment

The police service Of a state most especially on the
protective security and investigative levels, forms a key-
stone in the structure of government, whether that government
be a democracy or dictatorship. In the police state, the un-
restrained and direct execution of centralized policy and
rigid law results in an enforcement program which is most
Often arbitrary and cruel. This system most Often disregards
a democracy worthy of its name like that of the Republic of
Liberia. Compliance with governmental policy and law is
effected by enforcement which is reasonable and which is
dedicated to the protection and service of each individual
citizen.

Police service is usually rendered by individual law
enforcement officers in a person-tO-person manner. The quality
of that service, even though partially dependent on equipment
and techniques, is ultimately dependent upon the individual
police Officer. Therefore, the competence, integrity, and

dedication of each Officer is vital to the police service,

 

 

 

 

79

and contingent upon sound personnel management.

In considering reorganization of the National Bureau
of Investigation, the problem of personnel administration is
the most crucial issue faced by the Bureau's service today.
Part of this emphasis is due to the extremely sensitive nature
of the police tasks. As one observer put it:

"Policemen must make instantaneous decisions
and these decisions may determine matters of
life or death. At least, those instantaneous
decisions ordinarily affect matters of human
safety, or property rights or of personal
liberty. In no other profession do mistakes
in fact or judgment so frequently have an
irreparable, possible fatal, effect. A
physician may change his diagnosis, and a
lawyer may amend his pleadings. With the
policeman, the die is cast when he makes his
decision.'fl

It is precisely because the individual agent has great
discretion and, in many cases, several alternative solutions
to the emergencies that he encounters, that he must be a high-
ly motivated, carefully educated individual of great capacity.
August VOllmer states that the average police officer is ex-
pected to have:

"...the wisdom of Solomon, the courage of

David, the strength of Samson, the patience

of Job, the leadership of MOses, the kind-

ness of Daniel, the diplomacy of Lincoln,

the tolerance of the Carpenter of Nazareth,

and finally, an intimate knowledge Of every
branch of the natural sciences."

 

lSmalley, Alfred T. "Basic Police Practice and Proced-
ure." The Police Yearbook. ‘Washington: International Asso-
ciation of Chiefs of Police, Inc., 1953, p. 160.

 

2Leonard, V. Anderson. Police Organization and Manage-
ment. New York: Brooklyn Foundation Press, 1951, p. 123.

80

An investigation bureau like the National Bureau of

Investigation where hundreds of agents are expected to be

 

employed, the demands of time, geographical distribution,

types of service, special requirements, and sheer multiplic-
ity of duties make it imperative that units of related work
be designated under the supervision of responsible heads who

can be held accountable for the satisfactory discharge of the

 

peculiar duties of their respective commands. Organization
should not be merely a long word used to describe a police
institution which may long since have been outmoded, but
ought to suggest that a proper grouping of activities and
designation Of responsibility are essential if the Bureau is
to carry on its function effectively.3
Any specific plan of structural organization should
be retained only as long as it provides the proper vehicle
for the realization of the purposes for which a police
department is established. There is nothing either sacred
or all-powerful about a form of organization.“ It is only
the skeleton upon which the department depends for mechanical
convenience. Organization of itself does not think, has no

initiative, and cannot respond to a situation. The effective

work is done by the members of the organization who are

 

3International City Managers' Association. Municipal
Police Administration. Chicago: Brock and Rankin, Inc.,
I961, pp. 64-65.

 

uLoc. cit.

 

81

carefully recruited under the supervision of responsible
administrators and is only facilitated by sound structure.

A law enforcement unit is established for the purpose
of facilitating the attainment of its Objectives. Organi-
zation is the arrangement Of peOple with one purpose in a
manner to enable the performance by specified individuals of
related tasks grouped for the purpose Of assignment, and the
establishment of areas of responsibility with clear cut
channels Of communication authority.5

Organizations are made up of individuals, not things,
and any serious approach to organizations' problems must
recognize this fact. It does not follow, however, that each
police department is confronted by such unique problems as
to make it impossible the application of certain principles
that have been found useful in other organizations. Ont of
the experiences Of many administrators, in all walks of life,
there appears to be at least six principles that are generally
applicable:6

1. The work should be apportioned among the various

individuals and units according to some logical

plan.

2. Lines of authority and responsibility should be

 

5Germann, A. C. Police Personnel Management. Spring-
field: C. C. Thomas, 1958, pp. 151-153.

 

6International City Managers’ Association, pp. cit.,
pp. 45-46.

82

made as definite and direct as possible.

3. There is a limit to the number of subordinates
who can be effectively supervised by one Officer
and this limit should not be exceeded.

4. There should be "unity of command" throughout the
organization.

5. Responsibility cannot be placed without delegating

 

commensurate authority, and authority should not
be delegated without holding the user to account
for the use he makes of it.

6. The efforts of the organization units and of
their component members must be coordinated so
that all will be directed harmoniously toward the
accomplishment Of the police purpose, the compo-
nents thus coordinated enabling the organization
to function as a well integrated unit.

The problems of the National Bureau of Investigation
which have serious effect on its efficient operation and organ-
izational structure have resulted from the failure to place
emphasis on personnel selection. This is vital to the Oper—
ation of an effective police agency.

In a police department the quality of its manpower
surpasses every other asset in importance. Buildings, equip-

ment, regulations, and procedure are insignificant in comparison.7

 

7Harrison, Leonard V. Police Administration Survey in
Boston. Cambridge: Harvard University Press, 1934, p. 28.

 

 

By far t
payment

realizin
would be
members

consider
that emp‘
fore, it

pally de'

lems, th.

tiOnal di

 

 

 

83

By far the greatest portion Of expenditure goes toward the
payment of salaries. Manifestly, then the logical method for
realizing the full value from every dollar Of expenditure
would be to increase the effectiveness Of the individual

members of the organization. But even aside from financial

 

considerations, the very nature of investigative work demands
that emphasis be placed on high standard of personnel. There- |
fore, it is along this line that these proposals are princi-
pally devoted.
In order to remedy some of these defects and prob-
lems, the National Bureau of Investigation has, therefore,
been reorganized. It is now divided into eight major func—
tional divisions and seven sections, as shown in Chart III
following. The heads of these units are definitely respons-
ible to the Director of the Bureau or, in his absence, to the
Assistant Director for Investigation.
This plan of organization provides a clear definition
of the responsibilities and duties of each agent. It estab—
lishes lines Of authority following from each position to

lower positions in each division.

Top Level Reorganization

 

A tOp level reorganization of the National Bureau Of
Investigation is absolutely needed after a thorough analysis
of the defects and the problems of the organization have been

vividly and logically presented. It has been clearly Observed

84

that the greatest fault and a serious security error within
the field of protective security is the practice of the Execu-

tive Mansion Special Security Police unit and the National

 

Bureau of Investigation unit equally charged with the respons-
ibility Of protecting the President while each unit is under
a separate chief and director. This has caused confusion in

command channels and lack of responsibility and discipline. A

 

legal provision has already been made which puts the Executive
Mansion Special Security Police under the National Bureau of
Investigation as a branch of it, yet, both divisions are still
under separate and distinct chiefs and payrolls. ‘With the
foregoing situation, it becomes necessary that the solution to
this problem be the merging of the Executive Mansion Special
Security Police and the National Bureau Of Investigation as
one enforcement family which can be accomplished by pursuing
the organizational structure of the United States Secret Ser-
vice which has a criminal investigative responsibility as well
as protective security duties. The United States Secret Ser-
vice also has a uniformed branch within the protective security
field in the White House police.

It has also been Observed in the evaluation that a
wasteful and inefficient practice exists in preliminary inves-
tigations between the Fact-Finding Division and the Investi-
gation Division which is costly in time, wasteful in agent
manpower and clerical staff and results in duplication Of

files on the same cases in two divisions of the same agency.

 

85

It is therefore recommended that the Fact-Finding

Division be terminated as an entity and that its strength and

 

responsibilities be incorporated with the Investigation Di-
vision. The separation Of the two divisions is not essential
to the effective and efficient Operation of the Bureau.

It is then recommended that the Director of the

National Bureau of Investigation have four immediate assis-

 

tants: one to be the Assistant Director for Investigation
whose responsibility would be the operational control of the
Investigation Division; the second to be known as Assistant
Director for Services whose responsibility would be to direct
the operational functions of the Executive Security; the third
to be known as Assistant Director for Administration whose
responsibilities would include the direction of administrative
Operational functions of the Bureau; and the fourth to be
known as Assistant Director for Field Offices whose respons-
ibilities would include the direction of the Operational
functions and inspection of county, territorial, and pro-
vincial divisions of the National Bureau of Investigation.

It is strongly recommended that the reorganization
places very much attention on the Bureau's personnel section
to be reorganized along modern concepts with current infor-
mation readily available on all personnel, coupled with a
system of periodic performance measurements on all personnel

by their respective supervisors. Specifications for each

class of work prOposed for the Headquarters Of the National

 

Bureau 0

gether u
responsi
characte
them ali
and comp
making 1
each Cla
adVanCe
Clearly
tiOtis, q
emplOS’me

of equal

Agentqn
catiOnS .
duties ,

,4

reguirEd

 

86

Bureau of Investigation is presented in Appendix E.

Position classification is the process Of grouping to-
gether under one title those positions of which the duties,
responsibilities, qualifications, and other distinguishing
characteristics are sufficiently similar to warrant treating
them alike for purposes of recruitment, promotion, transfer,

and compensation.8

Classification expedites recruitment by
making it possible to set requirements and devise tests for
each class of positions, and to prepare employment lists in
advance of Openings. Since the classification plan indicates
clearly the differing characteristics of each class of posi—
tions, questions of promotion, transfer, suspension, and re-
employment are effectively handled. Grouping positions into
classes also permits setting compensation levels on a basis
of equal pay for equal work.

Each rank in the Bureau and the position of Special
Agent—In-Charge are separate classes with separate specifi-
cations. These specifications include a general statement of
duties, the type of supervision exercised and received, the
degree Of responsibility involved, examples of duties, and the
required qualifications. They emphasize the major differences

in the ranks but permit flexibility in the assignment to

specific positions.

 

8Public Administration Service. Survey of the Police
iDepartment Of Greenwich, Connecticut. Chicago: Special
‘Publication No. 3, 1938, p. 38.

 

 

 

 

87

The specification will not serve for all time and
should be kept up to date with changes in lines of authority
and responsibilities assigned in the National Bureau of In-
vestigation. Such changes should be made by the Director with
the approval of the Attorney General.

Rapid communication facilities, an effective system
of records, and scientific identification methods may be
characterized as the seven senses Of police administration.9
In their absence, the business of the National Bureau of
Investigation cannot be handled promptly and with certainty.
The Attorney General, the Director of the National Bureau of
Investigation and supervisory agents will have no assurance
that matters are being fully attended to as the case is now.
The agents will fail in the handling of specific cases, and
the Bureau will not be able to mobilize effectively in com-
bating security problems and hazards in the Republic.

Therefore, this reorganization has taken into con-
sideration the complete separation Of the records section
from the present Personnel Division and making it a Records
and Communications Division. The records section should be
Completely revised to adjust present criminal case files and
all other records to conform to the regulations governing

the formulation of a central Records10 and Communications

9Loc. cit.

10Wilson, 0. W. Police Records, Their Installation and
Use. Chicago: Public Administration Service, 1951,pp. 8-10.

 

 

 

88

Division which will implement a uniform records system for
the National Bureau of Investigation and the National Police
Force. This record and Communications Division thus becomes
a major unit in the Bureau. Since its supervision requires
both administrative and technical ability and entails large
responsibilities, it is suggested that the Attorney General
and the Director consider giving this position the title of
Special Agent-In-Charge of Records and Communications and
placing it on the same level as the heads of the other divisions.
In organizing the Records and Communications Division,
it should be recognized that it is not merely a place of
depository for records and communication messages. The
division should serve as an auditing agency over every aspect
of each agent's business. It is to be responsible not only
for recording crimes committed, but also for following the
progress of such crimes and their investigation through the
final disposition. By means of a systematic review of
reports, the division will be in a position to discover use-
ful leads which may have been overlooked, discontinuances of
cases without proper authority, violations of rules of inves-
tigations, and other irregularities which defeat the success-
ful disposition of police work. It is this unit upon which
the Director and command officers must rely to make certain
that the business of the Bureau is finally cared for. This

follow-up procedure11 is essential to the Operation of the

 

llibid., pp. 194-199.

 

 

 

89

records system and demands the COOperation of all divisions.
There is hardly a single police action taken that does

not involve some sort Of communication. Practically all con-

 

tacts made by citizens for police service are made by telephone.
Police Officers on street duty report to headquarters by
telephone. Radio communication is maintained between the

dispatcher and the officers in the field. Communications

 

between various police agencies may be made by long distance
telephone, a radio—telephone, radio—telegraph, teletype, or
commercial telegraph. Communication with the police head-
quarters building may involve a building telephone exchange,
inter-Office communication system, or some mechanical means
such as pneumatic tubes, and so forth.

The broad purpose of a police communications is to
enable the supervising officers at headquarters to maintain
contact with the personnel at their command and translate
into action those measures necessary to protect the lives and
property Of the community. The system is Often called "the
nerve center of the Department."12 Orders originating at head-
quarters are received at various points in the community by
the field force and carried into execution. Complete unity
Of command is thus theoretically possible.

In the field of investigation and protective security

police communications system is just indispensable. There-

 

12International City Managers' Association, pp. cit.,
p. 49.

 

9O

fore, it is also recommended that, since the present National
Bureau of Investigation organization lacks a communications
division, this reorganization program creates one to be
merged with the records unit.

And finally, the term ”national" should not be annexed
to the title of the Bureau without any meaningful purpose.

The organization should reflect its national character by
establishing field Offices of the Bureau in the different
parts of the Republic.

The National Bureau Of Investigation should be the
investigative arm of the Department Of Justice, functioning
as a fact-finding agency. It would not evaluate the results
Of its investigations or recommend prosecutive action. In
general, it is recommended that it be responsible for the
enforcement of all national criminal statutes except those
specifically delegated tO other national agencies.

The two primary areas of the National Bureau of In-
vestigation activity should be: (1) general investigations;
and (2) security Operations within the latter field. It
would have jurisdiction over espionage, sabotage and subver-
sive activities on a nation-wide scale. It would then be able
to COOperate fully with the Executive Action Bureau of the
Republic, maintaining close liaison. It shall also be capable
Of responding to requests from police authorities for assis-
tance in the investigation of felonious crimes.

In addition to violations Of laws of the Republic, the

 

 

91

National Bureau of Investigation should be charged with collec-
ting evidence in cases which Liberia is or may be a party in
the interest and with other duties imposed by law. Results
of investigations should be reported to the Attorney General,
the chief legal officer to the Republic for decisions as to
prosecutive action. It should also be a service agency to
assist law enforcement agencies in identifications, technical
and training matters.

The major strength which would equip this organi-
zation in effectively pursuing this goal would be derived
from the agency being regarded as a career service, and that
appointments, promotions, and assignments within it be made
on the basis of ability, merit, and competence. To acquire
this, more support is needed from the President and the
Attorney General against any move from any source to inject
the element of political favoritism.

The acts of subversives,particu1arly those inspired
by the communist party and its collaborators, call for the
best and highly trained personnel to man a Bureau of this
nature--men who can capably handle any situation with pro-
fessional tact and vigilance and immediacy of action.

The National Bureau of Investigation should have
jurisdiction over all cases of counterfeiting of currency
and other negotiable instruments of the Republic. And it
should be professionally capable of issuing information to

police agencies regarding the detection of counterfeit money

 

 

92

and how to investigate counterfeit cases.

Functional Organization

 

Functional organization is the grouping of members of

 

the force to carry on work thus divided.l3 (Police duties must
be executed 24 hours of each day and in each part of the
"territorial jurisdiction." Similar activities which are

classified according to their type must, in accordance, be

 

further apportioned according to the hour and geographical ‘
area of performance. Hence, the very members of the force,

thus grouped according to the type of their tasks, must also

be divided into shifts and among geographical sections or

posts. In the determination of those functions and activ-

ities which are related to justify location under unified

command, some factors will influence the decision. These con—

sist of the principal purpose of the activity, the process or

pattern to be used in accomplishing its immediate goal, and

the nature Of clientele with which it must associate.

The proposed functional organization Of the Head-
quarters Of the National Bureau of Investigation is depicted
in Chart IV.

In View of the foregoing principle, the reorgani-
zation of the National Bureau of Investigation includes the

following combination of activities:

 

13
p. 75.

International City Managers' Association, pp. cit.,

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94

1. Director, National Bureau Of Investigation
A. Intelligence Division
B. Records and Communications Division
II. Assistant Director for Investigation
A. Investigation Division
B. Narcotics Squad
C. Interpol Clearing Section
III. Assistant Director for Services
A. Security Division
B. Executive Mansion Special Security Police Division
C. Treasury Department Guards
D. Post Office Department Guards
IV. Assistant Director for Administration
A. Secretarial Section
B. Personnel Division
C. Planning and Research Division
D. Budgetary and Fiscal Division
E. Supplies and Equipment Section
V. Assistant Director for Field Offices
.A. County and Territorial
B. Provincial

VI. Senior Special Agent-In-Charge for County and Territor-
ial Inspection

,A. Montserrado County and Marshall Territory
B. Maryland County and Grand Cess Territory

C. Grand Bassa County and River Cess Territory

 

 

 

VII. 1

The fol

zation

1- Dir

 

 

95

D. Sinoe County and Kru Coast Territory
E. Grand Cape Mount County
VII. Senior Special Agent-In-Charge for Provincial Inspection
A. ‘Western Province
B. Central Province

C. Eastern Province

The following further defines previously enumerated reorgani-

zation combination of activities:

I. Director, National Bureau Of Investigation
,A. Intelligence Division
1. Counter-Intelligence
2. Sabotage
3. Espionage
B. Records and Communications Division
Personnel Files
.Fingerprint Files
Records of Arrest

Investigative Records

1.

2.

3.

4.

5. Photographs

6. Civil Defense
7. Services and Warrants
8. Statistics
9. Communications

II. Assistant Director for Investigation

A. Investigation Division

 

 

 

96 l

1. Crime Against the Government

 

2. Crime Against Persons
3. Crime Against Property
B. Narcotics Squad
1. Administration of Narcotics Laws

2. Enforcement and Issuance Of Narcotics Import
and Export Permits

3. COOperation with Foreign Countries

 

4. Determination of Narcotics Import Quotas

C. Interpol Clearing Section
1. Identification of Fugitives
2. Apprehension
3. Extradition

III. ,Assistant Director for Services

A. Security Division
1. The Executive Mansion
2. The Vice President
3. The Speaker of the House Of Representatives
4. Foreign Official Visitors
5. Subversive Activities

B. Executive Mansion Special Security Police Division
1. The President
2. The Capitol Building and Grounds
3. The Vice President
4. The Speaker of the House of Representatives
5

. The Chief Justice Of the Supreme Court

97

C. Treasury Department Grounds and Annex
D. Post Office Department and Annex

IV. Assistant Director for Administration

 

A. Secretarial Section

1. Correspondence Section

 

2. Filing Section
3. Information Desk
B. Personnel Division
1. Recruitment
2. Training (In-Service and Pre-Service)
3. Assignments
4. Promotion
5. Discipline
6. Instructors
C. Planning and Research Division
D. Budgetary and Fiscal Division
1. Operating Expenditures
2. Equipment
3. Salaries
4. Services, Supplies, and Materials
E. Supplies and Equipment Section
1. Bureau Supplies
2. Maintenance
3. Repair
‘V. Assistant Director for Field Offices

A. MOntserradO County and Marshall Territory

98

B. Maryland County and Grand Cess Territory

C. Grand Bassa County and River Cess Territory
D. Sinoe County and Kru Coast Territory

E. Grand Cape Mount County

F. Western Province

G. Central Province

H. Eastern Province

VI. Supervision

Director of National Bureau of Investigation

 

A. Intelligence Division

 

The Director of the National Bureau of Investigation
must keep himself informed Of conditions in the Republic which
represent actual hazards to the public safety and, therefore,
demand the attention Of the Attorney General. These include
the extent eSpionage, sabotage and subversive activities are
organized: the presence Of subversive groups which might
incite disturbances, riots, the degree to which special influ-
ences are being exerted against law enforcement officers, and
the contacts between members of the National Bureau of Inves-
tigation and the criminal and vice elements of the country.

During‘World‘War II, the Federal Bureau of Investi-
gation fulfilled its responsibility of protecting the internal
security of the United States. Enemy espionage was kept under
control and no acts of enemy-directed sabotage occurred. The

attempt Of the Nazis to land saboteurs in the United States by

 

 

99

submarine for the purpose Of harming the United States, for

example, ended in failure.14

Therefore, the indispensability of an Intelligence

 

Division within the National Bureau of Investigation is very

significant indeed. Intelligence is the product resulting

 

from the collection, evaluation, analysis integration, and fl
interpretation of all available information which concerns
one or more aspects Of foreign nations or areas of Operations
and which is immediately or potentially important to planning.15
Adequate intelligence constitutes the primary basis for calcu-
lation Of risks, the formulation of plans, the develOpment Of
materials, the allocation of resources, and the conduct of
Operations.16
The Intelligence Division should be charged with
gathering intelligence data pertaining to espionage, sabotage,
outlaw bands, and intelligence information pertinent to dissi-
dent and communist activities in the Republic. It should
function with very little publicity and with sufficient and

efficient personnel to pursue leads. This division should

employ trained Special agents and agents and should also make

 

14Whitehead, Don F. The FBI Story. New York: Random
House, 1956, pp. 199—210.

 

15Dictionary of United States Military Terms for Joint
Usage. ‘Washington: Departments of the Army, Navy and Air
Force, May, 1955, p. 53.

 

l6General Matthew Ridgeway in Ladislas Farago's‘War Of
‘Wits, The Anatomy of Espionage and Intelligence. New York:
Funk and wagnalls Company, 1954, p. 7.

lOO

use of civilian agents who will be assigned in various stra-

 

tegic points of the country. This division should be headed
by one Special Agent-In—Charge who will be answerbale to the
Assistant Director for Investigation. Two Special Agents
should be the immediate assistants to the Special Agent-In-

Charge.

 

B. Records and Communications Division

 

It is recommended that all National Bureau of Investi-
gation records be integrated into one centralized system to
enhance effectiveness and facilitate their immediate use.17

The functions and use of the National Bureau of In-
vestigation records system should be designed to provide the
following:

1. Control over the investigation of crimes and
other complaints with follow-up procedures to prevent inves-
tigations being drOpped without adequate review.

2. Adequate information concerning persons appre-
hended, together with reports on each step in the prosecution
until final disposition in court.

3. Reports showing the amount Of crime, the propor-
tion of Offenses or investigations cleared by arrest, the
ratio of recovered property, and similar measures of agents'

activities and results.

 

17Wilson, 0. W. Police Records, Their Installation and

Use, pp. cit., p. 10.

101

4. Statistical analysis showing the time Of day, and
week, at which Offenses are committed, the relative proportion
of various types of offenses, the object against which commit-
ted, the modus Operandi employed, and the particular location
in which crimes are taking place for the purpose of deter-
mining whether the Bureau is effectively distributed tO the
several divisions, is adequate in members, or is employing
the proper strategy in the suppression Of crime.

5. Complete personnel records concerning the work of
each agent, the equipment issued to him, and the principal
events incidental to his service on the organization.

6. Fingerprints, photographs, handwriting, modus
Operandi, and other scientific methods for identifying crim-
inals and missing persons.

7. A complete record of criminal history of persons
charged with crime, for use by the courts and other agencies
of justice.

8. Identifying data of lost, stolen, found property
essential to the recovery and return of lost and stolen
prOperty to its owners.

9. Inventory records of all property taken from
prisoners, evidence, and found and recovered property.

10. Cost information of various makes of automative
equipment to show which type is most suitable, whether it is
effectively distributed, and when new equipment should be

obtained.

 

 

102

It is further recommended that this division be headed
by a Special Agent-In-Charge with two Special Agents under his
command, and that this division also operates directly under

the Director.

 

Control of the Communications Division is also essen-
tial for accurate crime reporting. This division should be

responsible for the Operation of telephone switchboard, tele-

 

type, and radio network of the National Bureau of Investigation.
Superintendent John A. Lyddy, Chairman of Communications
Progress and Problems, in his report to the International
Association of Chiefs of Police, Inc., in 1960, stated that,
"without adequate and modern system of communication police
cannot function efficiently."18 Since no modern law enforce-
ment agency was to be inefficient, every police organization
should create a division of communications. Since the National
Bureau of Investigation theoretically and organizationally
lacks it, it is recommended that a communications division be

created.

Assistant Director for Investigation

 

A. Investigation Division

 

Upon the Investigation Division of the National
Bureau of Investigation falls the duty of solving crimes

against the government, crimes against the people and crimes

 

lélnternational,Association of Chiefs of Police, Inc.
The Pol1ce Yearbook. ‘Washington, D.C.: International Asso-
ciation of Chiefs of Police, 1960, p. 38.

 

103

against property and the apprehension and, if necessary, the

prosecution of such criminals. Because it may be said that

 

certainty of apprehension and conviction is a more effective
crime deterrent than severity of punishment, it is of greatest
importance that the Investigation Division be composed of
agents who have demonstrated their ability to discover the

identity of offenders and to prepare evidence which will

 

"stick" in court.

Therefore, the selection Of the units which the inves-
tigative responsibilities shall be assigned, should be based
on three considerations: (1) Economy of manpower; (2)
Immediate availability of service; and (3) Effectiveness of
performance. Investigative duties require skills that vary
in nature and degree; all other factors being equal, the
assignment should be made to the unit that is best qualified
to perform the job.

The mission of this division is, therefore, to inves-
tigate all crimes against the government and the Republic
which do not fall normally within the jurisdiction of the
National Police Force.

Mbdern police work has become too complex for any
law enforcement organization to attain the peak of efficiency
without specially trained investigators.

The National Bureau of Investigation Investigation
Division, though a small one in comparison with other well-

developed law enforcement agencies Of the world, should have

raw-1

104

highly trained technicians, each a specialist in come type Of
crime.

The investigative agents of the National Bureau of
Investigation should work with the National Police Force and
other law enforcement agencies on request. They should also
work independently in cases which are under the sole juris-
diction of the Bureau.

Frequently, investigations will be conducted for the
Chief Executive, the Attorney General's Office and various
departments of the government.

This division should also maintain a fraudulent check
file in which will be the names and aliases and also specimens
of fraudulent checks.

This division should be under the immediate command
of a Special Agent-In-Charge whose immediate superior will be
the Assistant Director for Investigation. The Special Agent-
In-Charge of this division shall have as his immediate
assistants three Special Agents who will run the three shifts

of the division.

B. Narcotics Squad

 

The problem of smuggling, selling, and smoking Of
narcotic drugs such as marijuana, opium, and heroin, being
one of the felonious Offenses in the Republic, it is necessary
that a Special unit of the National Bureau of Investigation
specialized in this area be authorized to handle the narcotics

laws of the Republic.

105

It is, therefore, recommended that a narcotics squad
be created within the organization Of the National Bureau of
Investigation under the direct command of a Special Agent-
In-Charge to combat drug smugglers, sellers, and smokers all
over the entire country. This unit shall be under the
immediate control of the Assistant Director for Investigation.
0. International Criminal Police Organization (Interpol)

SectiOn

The Republic Of Liberia iS a member Of the Inter-
national Criminal Police Organization.19 Therefore, the
National Bureau Of Investigation has been authorized by the
National Legislature to have an agency of Interpol incorpor-
ated within the organization.

In View of this fact, it is recommended that this
section be empowered with the responsibility of Operating as
a clearing agency for Interpol in Liberia. This section
should investigate all information received from Interpol
with respect to fugitives for the purpose of apprehending
them for extradition.

It is also proposed that this section be under the
direct command of a Special Agent. He, in turn, Shall have
as his immediate superior the Assistant Directorfor Inves-

tigation.

 

 

19International Criminal Police Organization. Inter-
national Criminal Police Review. Paris: Interpol, January,
I961, p. l

106

The personnel to be assigned to this unit must be well
trained in the most modern arts of criminal identification and
scientific criminal detection.

The responsibility Of giving necessary criminal infor-
mation to Interpol by the National Bureau of Investigation
Should fall on the Director who shall seek advice and author-

ity from the Attorney General.

Assistant Director for Services

 

A. Security Division

 

It is proposed that this division be charged with the
protection of the President, his immediate family, the Presi-
dent-elect, the Vice President, the Speaker of the House of
Representatives, the Chief Justice, and high ranking officials
of foreign governments who may officially visit the Republic.
The protection of the chief executive should be the number
one responsibility Of this division.

This division Should Operate with minimum publicity
with sufficient personnel to check known subversive groups
and individuals who may plot to assassinate the Chief Execu-
tive or overthrow the government by any means of force and
violence. This division Should safeguard the President at
home and abroad. The agents of this division should protect
the entire Executive Mansion and grounds and they must be
trained in the scientific art of detection so as to be vig—

ilant at all times.

 

 

107

This division should be under the direct supervision

Of a Special Agent-In-Charge assisted by three Special Agents

 

to be in command Of the three shifts. The commander of this
unit shall be responsible to the Assistant Director for Ser-
vices who, in turn, will answer to the Director of the National

Bureau Of Investigation.

 

B. Executive Mansion Special Security Police Division

 

This division should be the only uniform group within
the National Bureau of Investigation. The officers of this
division should be distributed to the President and the Execu—
tive Mansion; the Vice President, the Speaker of the House of
Representatives, the Chief Justice and the grounds of the
capitol building. This division's Operation should be
limited only to the capital city, Monrovia. That is, they
will not have any field assignments outside of Monrovia except
accompanying the President and other officials mentioned above
to places outside the capital.

This division should be under the immediate command
of three captains and his immediate assistants should be four
lieutenants who shall be in charge of the three eight-hour

Shifts.

C. Treasury Department
It is recommended that a unit of the Executive Mansion
Special Security Police be assigned to the Treasury Department

Of the Republic under the Assistant Director for Services.

108

This unit should be charged with protection of the Treasury

 

Department and all the various annex to it for the purpose
of safeguarding millions of dollars worth of money and secur-
ities in the Treasury Building vaults. It should also be

charged with investigation of counterfeit checks and fraudu-

 

lent vouchers.
This unit should be under the immediate command of

one lieutenant,and three sergeants running the three Shifts.

D. Post Office Department

 

In past years frequent complaints have been made by
citizens and foreigners to police agencies in the country
about loss of important mails, parcels, and jewelries from
the parcel post and the general post Office. The Postmaster
General has often invited an investigation of these criminal
acts by the agents of the National Bureau of Investigation.
The habit of individuals tampering with other people's mail
is very dangerous in any democratic society.

It is, therefore, recommended that a unit of the
National Bureau of Investigation agents be assigned to the
Department Of Post and Telegraph to prevent any further
tampering with mails and parcels and to investigate any
postal corruptions of any sort. This unit Should also work
in uniform and Operate under the Executive Mansion Special
Security Police Division. It should also be under the command

of one lieutenant assisted by three sergeants.

109

These officers should be charged with enforcing the

postal laws of the nation.

 

Assistant Director for Administration

 

A. Secretarial Section

 

The present organization Of the National Bureau of

Investigation has no standardized provision made for a secre-

 

tarial unit. This was responsible for some of the defects
mentioned in the Personnel Division where there is only one
secretary or clerk for the entire Bureau.

It is hereby prOposed that the Bureau have one Single
section under the management of a Chief Clerk of the National
Bureau of Investigation. Civilian clerks and stenographers--
most of them girlS--should be employed to do the job instead
Of agents. Clerks trained and experienced in clerical duties
can do the work better and at far less cost than at present.

The secretarial office Should be organized in several
sections as, for example, the correspondence section, the
filing section and the information desk. Combined in one
section, all this work which is now scattered throughout the
Bureau could be coordinated in a Way that would increase its
effectiveness and greatly reduce its cost. This unit Should
operate directly under the_Assistant Director for Adminis-

tration.

B. Personnel Division

The merit system is most important to any sound

110

personnel management because selection is based strictly on

 

individual competence. Personnel administration, therefore,
is the most primary and essential responsibility of the head
of any organization. Whenever this administrative prepo-

sition is overlooked, the goal of the organization is en-
20

 

dangered.
The purpose of personnel management in any organi-
zation is to assure maximum benefits through superior ser-
vice. The goal in the administration Of police personnel,
hence, is to assist in the accomplishment of the basic police
purpose. TO Obtain this end, qualified personnel must be
selected and trained to carry on essential tasks. They must
be inspired, directed, controlled, and disciplined. Their
welfare must be guaranteed.21
Even the National Bureau of Investigation, given the
best organizational structure and the most effective police
techniques and methods, cannot render satisfactory service

if it has inefficient and incompetent personnel.

a. Recruitment. NO selection process can be

 

profitable except if it is supplied a sufficient number Of
applicants. An agency cannot be expected to keep up full

strength, nor can high levels of selectivity be maintained,

 

20Wilson, O.‘W. "Toward a Better Merit System." The
Annals of the American Academy of Political and Social SEience.
Philadelphia: American Academy of Political and Social
Science, January 1954, 291:87-96.

21Ibid., p. 88

 

111

unless qualified individuals are continuously available.
Effective recruitment in the National Bureau of

Investigation should involve itself with:22

1. Increasing the prestige value of the
police service career.

2. Using every productive device avail-
able to attract qualified manpower.

3. Conducting continuing research to

determine the best techniques and
sources.

It is, therefore, recommended that recruitment in the
National Bureau of Investigation pursue the following require-
ments:

1. Age: 21-35 inclusive, at the time of submitting
applications.

2. Height: Not under 5 ft. 4 in.

3. ‘Weight: Not under 130 lbs. and not more than 225
lbs.

4. Residence: Natural born citizen of the Republic
of Liberia and continuous residence in Liberia for at least
six months.

5. Education: NO less than graduation from an
accredited college or a special professional qualification if
one does not have a college degree. In all cases, college

graduates should be given first preference to high school

 

22Germann, A. C. pp. cit., p. 27.

 

 

112

graduates.

 

6. Personal and Other Attributes: Reputation must
be above reproach. Applicants must have no outstanding debts,
except such as are being regularly paid off. Good moral
character, emotional stability, coolness in emergencies,
resourcefulness, tact, alertness, and willingness to be on

24-hourS call and live and work anywhere in the Republic of

 

Liberia at an assigned post. Willingness to accept command
responsibilities in emergency Situations; favorable work
records; freedom from any association which may embarrass the
Bureau, personal fitness for the position; must possess a
valid Liberian Operator's or chauffeur's license; and must be
willing to work Six days a week and on holidays.

7. Arrest Records.

8. Medical certificate from the National Public
Health Center only.

9. Marital Status: Married, as well as single, men
and women should be accepted.

10. written Examination: Examinations must be admin-
istered by the Personnel Division Of the Bureau at announced
times in various examination centers throughout the Republic.
The required minimum rating on the written examination must
be 75 per cent.

11. Applications: Applicants should submit their
applications to the Director. Application forms Should be

obtained from the National Bureau of Investigation Head-

113

quarters, from the Chief Of the Personnel Division.

b. Training. One Single factor which influences the

 

quality of any law enforcement service is the competence of
the individual members Of the organization.

In his report to the International Association of
Chiefs of Police on behalf of the committee on Education and
Training, Arthur F. Brandstatter, Director of Michigan State
University School of Police Administration, stated that the
Association should consider as a statement of goals and Ob-
jectives:

"...to provide counsel and assistance in

training to the end that all law enforce-

ment agencies become more effective instru-

ments of government and more edifying safe-

guardians of the common good by developing

the capacities of their manpower to the

fullest."24

The develOpment of professional investigative per-
sonnel is greatly assisted by enlightened selection and pay
policy, but depends, ultimately, upon the attitude and philos-
Ophy of the police administrator in reference to education
and training.

Training is concerned with instructing members of the

organization in the duties of their particular jobs. It is,

therefore, strongly recommended that the highest attention be

 

23International Association Of Chiefs of Police, Inc.,
The Police Yearbook. ‘Washington: International Association
of ChiEfS of Police, 1957, p. 52.

 

 

 

114

given to the training program of the agents of the Bureau in
both pre-service and in-service areas by setting up a first-
class National Training Academy.

c. Assignments. One of the main objectives Of

 

assignment is placing the right person in the right place.
That assignments must be made on the basis of the individual
agent's ability and capability to satisfactorily perform his
responsibility accordingly.

It is strongly proposed that the responsibility of
assignment of agents Of the Bureau rest solely with the
Bureau staff without any interference from without. There-
fore, individual agents Should be assigned to places of duty
primarily on the basis of their ability and competence.
Agents Of the Bureau must remember that, regardless of where
and to whom they are assigned, they are subject to the rules
and regulations of the Bureau. Therefore, they Should never
be made to feel that they are only responsible to the officials
to whom they are assigned or to their places of assignment.
It is recommended that the authorities of government give
their full COOperation to the Director of the National Bureau
of Investigation with respect to the assignment procedure.
Agents should realize that, once they accept their badges,
they have no choice as to where they Should be assigned. They
must go and work wherever they are ordered to work without
any argument. They are subject to instant call to duty any

hour of the day or night.

 

115

d. Promotion. The selection of recruits is but the

 

first step in the provision of police personnel. Filling the
quotas of special divisions in the department and filling the
higher posts through promotion are the next steps.

One of the strongest attractions which police service
should hold for the young man is the Opportunity for a career
--a chance to rise through the ranks. For this reason, it
follows that competition for promotion will generally be
fierce. Therefore, the Director of the National Bureau of
Investigation should make every effort to see that promotion
procedures are established to select the best qualified men.
These policies and procedures must be fair, allow for the
widest possible competition, be based on the most valid and
realistic selection devices available, and take into con-
sideration the day-tO-day efforts of each competitor.

To be fully effective, promotional policies within
the National Bureau of Investigation Should accomplish at
least two things, as a minimum: (1) Select for promotion
those agents who are best suited for increased responsibility;
(2) Convince the mass of the unsuccessful competitors that
selection for promotion is based on pertinent, Objective and
fair methods, and is free from personal bias.

It is certain that the morale and effectiveness of
some Of the unsuccessful competitors will suffer, at least
for a time. ‘Wise policies can do much to keep this at a

minimum. The Director or the Special Agent-In-Charge of the

 

116

Personnel Division should talk frankly to those unsuccessful
candidates who are Openly disturbed. Those who will always
lack the basic qualifications for promotion Should be SO told.

A definite procedure is needed in making promotions
SO as to eliminate any political elements. All agents
eligible to compete should be given promotional examinations,
consisting of written tests, service rating, seniority credit
and oral interviews.

It is, therefore, recommended that all promotions,
given in the National Bureau of Investigation be made on the
basis of competitive process examination system and that the
competition be Opened for all positions because, if not, there
will be no claim for full merit and status since there exists
usually a doubt that vacant positions may be given to some
Officers on account of political pressures, fraternal ties,
and personal likeness which will be the source of qualified
men being overlooked. It is further proposed that the type
of competitive examinations be the closed competition type
which is preferable to the Open competition type because of
employee morale.

The qualifications for elevations in the closed prO-
motional system requires that all competitors be members of
24

the organization.

The proficiency or achievement test type is recommended

 

24Germann, pp. cit., pp. 30 and 72.

 

 

117

for the written examination which is concerned with the idea

 

Of agency policy, supervision, administration, law and evi-
dence, investigative, juvenile, patrol and vice units and
knowledge Of the equipment and its handling.

It must be carefully planned, compositions must be
carefully analyzed and developed, it must be sampled and must

be evaluated and revised.

 

The oral interviewing which is a Significant part of
the competitive examination because of administrative qual-
ities and supervisory ability is indispensable to the good
commanding officer. It is recommended that the oral board
consist of: (1) the Director of the National Bureau of In-
vestigation; (2) the Director Of the National Police Force;
(3) the Chief Of the Executive Action Bureau; (4) the Chief
of the Bureau of Statistics; (5) the Commissioner Of Immi-
gration and Naturalization; (6) the Assistant Director for
Investigation; (7) the Assistant Director for Services;

(8) the Assistant Director for Administration; (9) the
Assistant Director for Field Offices; and (10) Special Agent-
In-Charge of the Personnel Division. The oral interview
group is highly recommended for promotional screening. This
is to prevent some difficulties with individual interview.
The candidates can be evaluated through this means in terms
of their reaction to others competing. Signs Of leadership
can be distinguished and Signs Of over-aggressiveness become

evident. This system has been used by Germany in 1938; Great

118

Britain in 1942 and 1945 respectively; and the United States
Office of Strategic Services Assessment Staff examined 5,000
candidates. This system has been used in military and com-
mercial offices in the various countries named above.25
Seniority points should be at 1/4 or 1/8 point a year
Of service and should only be added to passing grades. It
should be limited to 10 per cent or less of the total score.
The following will further illustrate recommended

promotional grading procedure:26

 

 

CANDIDATE EVALUATION
‘Written examinations 50% — 75%
Oral Interviews and Service Rating 20% - 40%

Meritorious Service Points and
Passing Grades 10% or less

 

EQUITABLE WEIGHTING SCALE

‘Written Examinations 60%
Oral Interview-Group Interview 20%
Service Ratings 10% Maximum
Seniority or Meritorious Service 10% Maximum

 

It is recommended, therefore, that the matter of

 

25Bass, Bernard M. "The Leaderless Group Discussion
Technique." Personnel Psychology. 3:17-32, 1950.

26Germann, pp. cit., p. 79.

119

promotions be put squarely Up to the Director of the National

 

Bureau of Investigation. He should be enabled to make use of
the competitive examination process within the Bureau to make
certain limited measurements. He should be permitted to
place his own valuations on the test made by the group, and
make any other test he may see fit in order to arrive at his

decisions regarding promotions.

 

Some such system as this is necessary if the National
Bureau of Investigation is to be saved from lifelessness.
‘With promotions the result of real excellence in police work
under the watchful eye of superiors, much of the present
inertia would disappear.

e. Discipline. The term discipline as here used

 

includes both its narrower and broader definitions. Disci-
pline in its narrow sense relates only to punishment adminis-
tered for some violation of the rules and regulations or
dereliction Of duty. This punishment may take the form of a
cancellation of vacation days, suspension without pay, de—
motion, or dismissal from the Bureau. In its wider meaning,
the word discipline embraces the conduct and bearing of
members of the organization in the performance Of their duty
and the manner in which the force responds to the leadership
Of the variousofficers in charge of Operations.

In its wider meaning, therefore, the discipline of a
police force is of far-reaching significance. The essential

basis of all efficient police operations is the character and

I‘—

120

physical power of the individual man. Alertness, keenness,
self-restraint, and vigor are essential earmarks of a good
police force.

It would be impossible to claim that these character-
istics are particularly noticeable in the National Bureau of
Investigation. .A sufficient number of instances of laxity in

the Bureau have been observed. These instances of laxity have

 

warranted the general conclusion that something is radically
wrong with the standard Of discipline as have already been
discussed in the chapter on evaluation.

It is recommended that final authority in matters of
discipline be given to a Single responsible, expert adminis-
trative head of the National Bureau of Investigation. It is,
therefore, recommended that full powers of disciplinary action
be vested in the Director of the National Bureau of Investi-
gation and that a trial board, composed of the Special Agents-
In-Charge Of the various divisions, the Assistant Director for
Investigation, the Assistant Director for Services, the Assis-
tant Director for Administration, and the Assistant Director
for Field Offices, be designated by the Director to try
delinquent members and submit findings, with recommendations,
to him. The Director Should have the power to accept, reject,
or modify the recommendations of the trial board.

It is recognized that the Objection will be made in
some quarters that if so much power is given to a single

police head in matters of promotion and discipline, he will

121

abuse it by interjecting elements of political favoritism,

and that giving members of the National Bureau of Investi—
gation a Share in determining these matters is dangerous.

This danger is admitted, but the National Bureau of Investi-
gation disciplinary problem will never be solved until the
Opportunity is given to an honest and effective leadership to
show what it can do. There is no chance for progressive im-
provement in the National Bureau of Investigation if the hands
of the responsible executive are tied in his dealings with
his men.

It is also proposed that the National Bureau of In-
vestigation adopt some of the following Federal Bureau of
Investigation disciplinary rules and regulations as set up
by J. Edgar Hoover about the life of a special agent concern-

ing what he may be dismissed for:27

1. He cannot drink intoxicants while on
duty. Even Off duty, excessive use Of
intoxicants is banned, since the agent
is subject to call at any time.

2. He is forbidden tO use brutality or

duress in dealing with persons under
investigation.

He can be disciplined for:

l. Disclosing information to any unauthor-
ized person, not even his wife.

 

27Whitehead, pp. cit., p. 12.

 

122

2. Accepting rewards or gratuities in any
form.

3. Failing to pay his taxes or to meet
other financial obligations.

 

4. Losing official property issued to him.

Briefly, it is not the contention of the writer that

large strides in the improvement of the National Bureau of

 

Investigation service can be achieved under the general
assumption that: (1) Liberia can only have public servants I
who are politically minded and whose natural dishonesty must

be checked and guarded against at all times; (2) That mem-

bers of the National Bureau of Investigation who do the work

can never know their jobs as well as persons on the outside,

for the outside, for example, newspapermen and politicians,

and that agents have little or no natural respect for them-

selves Or pride in the success of their work; (3) That the

public service is only worthy of mediocre men, and no attempt

need be made to get superior men; (4) That power and author-

ity necessary to do a given job well cannot be entrusted to

a public servant.

f. Instructors. J. Edgar Hoover28 once stated in his

 

aims for qualified personnel:

"I want to see our field of activity become
a real career, a profession to which can be

 

28Ibid., p. 150.

123

attracted the decent, honorable, respectable
young men of the country who can go into it
as a career and lOOk forward to making some-
thing out of their life's work rather than
as a dumping ground, as all too frequently
it has been, for some wanipolitician to use
in repaying his Obligations to his political
party."

 

It is recommended that the National Bureau of Investi-

gation have regular instructors who are experienced and well

 

trained teachers in the field of law enforcement. The Special
Agents-In-Charge should also be available and qualified to
teach specialized courses. Educators, criminologists, lawyers
and others Should further be encouraged to give lectures to
both pre-service and in-service trainees.

It is recommended that this division be placed under
the immediate command of a Special Agent-In-Charge assisted

by two Special Agents.

C. Planning and Research Division

 

Administration, which is the duty Of the police chief,
is the process Of directing the organization so that it will
produce results efficiently and economically. Through his
command staff, he deploys his men, coordinates their efforts,
and controls their activities. He prepares the organization's
budget and Operates within its limits. He studies the past

analyses, the present, and plans for the future.29

 

29International City Managers' Association, pp. cit.,

p. 4.

124

Successful administration depends to a large extent
upon comprehensive planning, which is a necessary element and
a fundamental function of administration.30

The Planning and Research Division, therefore, repre-
sents an innovation in police science. Its energies are

devoted fundamentally to evaluation of departmental problems

with the purpose Of determining the most efficient methods of

 

providing police service. This division Should be used as the
means by which the Director of the Bureau can provide a max-
imum of police service at minimum cost. Therefore, the per-
sonnel to be assigned to this division must be intellectually
qualified for the full responsibilities of this unit.

A Planning and Research Division is a valuable admin-
istrative tool and merits being created in any modern organ-
ization because it has been proven that it has increased
service with less men when the Los Angeles Police Department
was faced with a shortage Of men in 1954.31 Law enforcement
is more a matter of quality than quantity. Analysis and
planning throughout the department resulted in more effec-
tive police service to the community. Results were re-
flected in the accomplishments of all sections of the
department.

It is therefore recommended that, because of the

 

30Wilson, pp. cit., p. 25.

31Inter-City Managers' Association, pp. cit., pp. 107-
108.

125

value of planning and research to proper law enforcement, the

National Bureau of Investigation have a division of planning

 

and research for the purpose of accomplishing the following
Objectives: (1) To assist the Director and his assistants in

planning and initiating overall administrative policy; (2)

 

TO study intra-departmental problems with a View to their SO-
lutions; and (3) To provide staff services to bureau and
division heads by reviewing the systems and tools needed to
perform Bureau functions.

It is further recommended that this division be headed
by a Special Agent-In-Charge who will be answerable to the
Assistant Director for Administration. The immediate assis-
tant to the Special Agent-In-Charge of this division should
be a Special Agent. The personnel to be assigned to this
division Should be extensively investigated to determine
those particularly adaptable to this type of work. These
procedures should include thorough background investigations
and the "cooperative English test," which examines for
ready comprehension and the mechanics and effectiveness of
expression. ‘While these agents are selected for their
suitability for this assignment, their background of police
experience enables them to seek and recognize practical

solutions to problems.

D. Budgetary and Fiscal Division

 

It is recommended that this division be created with-

126

in the National Bureau of Investigation organization to be
directly supervised by a Special Agent-In-Charge who Should
be responsible to the Assistant Director for Administration.
His assistant should be one Special Agent.

Expenditures are kept within limits of appropriations
and accurate payrolls are computed. The National Bureau Of
Investigation program must be able to compete with the pro-
grams of other governmental entities for public funds, and
it is likely to receive adequate support only when the prO-
posed expenditures are Shown in terms of effective investi—
gation and protection against criminals. An adequate wage,
of course, is essential to a functional program, SO this is
a particularly important division Of the entire organization
Of the National Bureau of Investigation.

A police department is supported by a legislative
budgetary appropriation. The appropriation enables the chief
to Obtain men, equipment, and other facilities needed to
accomplish the police purpose; success is clearly dependent
on an appropriation that will assure resources adequate to
meet anticipated needs.

The need for budgetary apprOpriation is apparant. Not
so well understood iS the manner in which sound budgetary
requests should be prepared and the importance Of substan-
tiating the requests with incontrovertible facts. Sub-

stantiation of the requests is evidence of its soundness.32

 

32Marx, Fritz Morstein. Elements of Public Adminis-
stration. Englewood Cliffs, New Jersey: PrentiCe Hall, 1948,

pp. 580-588.

 

 

127

The Director of the National Bureau Of Investigation
should be in a position to Obtain, analyze, and present in a
convincing manner, the facts that demonstrate their needs.
The National Bureau of Investigation Planning and Research
Division must coordinate the efforts of all Operating units
of the Bureau in order to marshal facts in support of budget

requests.

E. Supplies and Equipment Section

There should be a Supplies and Equipment Section which
should be charged with supporting the Operational units and
the headquarters in terms of materials, sundry equipment and
supplies necessary to the complete success of Operations. A
program which satisfactorily maintains and repairs property
and equipment is essential in promoting efficiency, morale,
and prestige of the service. Buildings, bureau vehicles,
personnel equipment, and grounds must be kept in suitable con-
dition at all times. Methods of procurement of prOperty and
supplies Should be established to assure that commodities are
of suitable quality and procured at economical prices. These
functions Should be performed by a Special Agent-In-Charge
who shall be answerable to the Assistant Director for Admin-
istration. Furthermore, this unit should perform the task of
the present Personnel and Records Division, the division
charged with the control Of the flow Of supplies and equip-

ment ordered and purchased by the Bureau.

 

128

It is recommended that a supply Officer be selected

by the Director.

 

GeneralfiArea.AssignmentS

 

It is hereby recommended that field offices Of the
National Bureau of Investigation be established throughout

the entire country at the main strategic points for proper

 

and effective control Of security hazards that may arise.
These field offices Should be under the immediate command of
Special Agents-In-Charge and they Should be directly answer-
able to two Senior Special Agents-In-Charge for County and
Provincial Inspection. These Inspectors are directly respons-
ible to the Assistant Director for Field Offices.

The following are the important divisions of Liberia
'where field agents should be distributed:

1. Mbntserrado County

Grand Bassa County

Grand Cape MOunt County

Sinoe County

Maryland County

The Central Province

The western Province

The Eastern Province

KOQDVONUIPOJN

Marshall Territory

H
0

River Cess Territory

'—l
H

Sasstown Territory

"'91

129

12. Kru Coast Territory

Supervision

 

One of the Significant causes of most Of the defects
which have been mentioned in the preceding chapters is the
lack Of adequate supervision of the National Bureau of In-
vestigation Operations as well as that Of the Executive
Mansion Special Security Police Operations. Apparently each
agent or Officer determines for himself just how much he
shall do on a given case and when he Shall regard the inves-
tigation as closed. Of any adequate follow-up on individual
cases, there is none. There is no administrative oversight
to put enthusiasm and determination into the solution of
individual crimes.

Briefly, the National Bureau of Investigation needs
administration badly. It is impossible to spend days in solv-
ing particular crimes and, at the same time, supervise the
Operations Of 76 men who are supposed to be working hundreds
Of cases.

It is recommended that the entire National Bureau of
Investigation be overhauled. The methods of work require a
complete Shaking up and some immediate changes must be made
in the line Of supervision.

It is also prOposed that, with well—trained men in
the.National Bureau of Investigation under competent leader-

ship, constant attention would have to be given to the

 

130

administrative problem. After all, running a Bureau of Inves—
tigation is like running any complicated business. It requires
intimacy with detail and continual follow-up SO that every
agent feels the stimulus of the leadership. In this respect,
the National Bureau of Investigation of the Republic of Li—
beria is conspicuously lacking at the present time. ‘What is
needed is a man in charge who will live constantly with his
investigations and whose guiding principle will be that no
investigation is settled until it is solved.

Agents of the Bureau should do only duties that fall
within their jurisdiction. They should be technical men, well
paid for their abilities, and not job-holders who can be
assigned to any task.

Supervision is the sum total of all techniques used
to get peOple to perform acceptable work. In one definition
it consists of planning, organizing, motivating, directing,
and coordinating the work of a group devoted to accomplishing
a specific purpose. Important tools of supervision are lead-
ership, ability, training, records, and discipline, including
perhaps, counseling.33

The most Significant quality of a supervisor is lead—
ership ability. Intelligence, wisdom, reasonableness, and

ability tO win respect and loyalty, have superseded physical

 

33Kenney, John P. "Police Human Relations in Manage-

ment." The Journal of Criminal Law, Criminology; and Police
Science. 745?2234224, July-August, 1954.

 

 

nan-.1

131

force as qualifications of a good leader.34

The Director of the National Bureau Of Investigation
Should analyze the daily written reports and call frequent
conferences with the commanders of each division. Through
this process, he coordinates the Operation, directing atten-
tion to special needs, giving encouragement and assistance to

a case that is not responding to normal effort, planning and

 

conducting staff meetings to unify and refresh the thinking
of command officers.

The supervision is a continuous, constant process that
expresses the personality of the supervising officers. It
will be most effective when it is consistent, firm, temper-

ate, and constructive.

A. Staffing_of Divisions and Units

The National Bureau Of Investigation is presently
staffed by less personnel than the number of personnel it
will take to staff the prOposed reorganization plan. The
increase in personnel is necessary because of the desire to
perform maximum efficiency. This proposed plan has taken
into careful consideration the vital issue of manpower which
is a critical item in any police organization. The need to
Obtain maximum efficiency with the least number of personnel
involved. The application of the sound principles of organ-
ization eliminates the recurrence of duplication of functions

and responsibilities. Sound organization provides the best

 

34Germann, pp. cit., pp. 205.

132

 

channel for an efficient, positive, and coordinated application
of effort with minimum manpower concerned. AS each man in a
good organization counts, SO it logically follows that no man
is left without a function or purpose.

The manpower needed for this reorganization is also
greater in number than that Of the present organization because

of the need to have the National Bureau of Investigation Oper-

 

ate as a true national law enforcement organization by estab—
lishing field Offices throughout the nation. One evidence to
this fact is the merging of the Executive Mansion Special
Security Police with the National Bureau of Investigation.
Another important evidence is the new responsibilities of
specialization which the legislature has placed on the shoulders
Of the agency which must be taken care of. Therefore, the in-
crease in manpower does not, one way or another, effect the
prOper distribution of personnel among the various entities

Of the organization. The increase is an efficient organiza-
tion necessity.

Table II presents a proposed distribution of personnel
in the National Bureau of Investigation headquarters, together
with the staffing of the divisions and units and the rank
structure of personnel.

A Comparison of the PrOposed Reorganization of the
National Bureau of Investigation with Other Law
Enforcement and National Security Agencies

In the plan for the reorganization Of the National

TABLE II

 

133

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3901330 Plald-JO
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7 7 7 427

8

 

 

 

2 2 10 6O 16 1 46 20 4 4O 4O 1 13 11

1

PROPOSED REORGANIZATION OF THE NATIONAL BUREAU OF INVESTIGATION
ge

Orge

ount Terr.Ins ectlon
ection

erv ces
ent- n-
en - n-

Provincial In
er

I
L;

tor N.B.I

pec.
pec.
a ns
eutenan S
e
en 3
er eants
a rO men
n
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an tors
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AGGREGATE

 

134

Bureau Of Investigation, emphasis has been placed on the func-
tions and organizations of the following law enforcement and
national security agencies: (1) The Federal Bureau of Inves-
tigation Of the United States; (2) The United States Secret
Service; (3) The Central Intelligence Agency of the United
States; and (4) Scotland Yard, whose Objectives and jurisdic-
tions to a certain degree resemble those Of the National
Bureau of Investigation.

It must be noted that when the Special Services Bureau
was initially created in 1948, the original idea was to estab-
lish a law enforcement and internal security agency under the
Department of Justice which would be patterned in some respects
after the Federal Bureau Of Investigation and the Secret Ser-
vice of the United States. The general plan was to create an
organization whose strength would not be less than 55 men for
the entire country, selected from only citizens Of the Repub-
lic whose primary responsibility would be the protection of
the President of the Republic of Liberia and his official fam-
ily. It was also created to protect Official visitors who
are guests of the government, and to collect and maintain
information on subversives, traitors and enemies of the Re-
]gublic and to investigate crimes which fall under its juris-
<iiction and turn over the results of its investigations to

the Attorney General. It was also created to conduct intelli-

 

 

135

35 It is for these reasons

gence and political investigations.
that particular emphasis is placed on a comparative study of
the Federal Bureau of Investigation, the United States Secret
Service, Scotland Yard of England, and the Central Intelli-
gence Agency.

A. Some Similarities and Distinctions Between the National

Bureau of InvestigatiOn and the FederallBureau of Inves-
tigatiOn

 

Among the famous law enforcement agencies in the world,
the Federal Bureau of Investigation personnel are considered
the best in the field Of criminal investigation today.36 This
is generally due to the exemplary efficiency and dedication
and devotion to service of its members and the excellent
standard of professional discipline and training which exists
within the organization. The Federal Bureau of Investigation
like the National Bureau Of Investigation of the Republic of
Liberia, has for its administrative head the Attorney General
of the United States. The Federal Bureau of Investigation is,
technically, a national law enforcement agency like the
National Bureau of Investigation. Its jurisdiction on the
Federal level extends to all the 50 states of the United States

and to all categories of federal crimes and it Operates against

 

35Edwards, Lt. A. Wilson. Prospectus for Spppial Ser-
vices, An Investigative and Security Agency of the Dept. of
JustiEe, MOnrovia: Special Services Bureau, 1958, pp. l03.

 

 

36Coatman, John. Police. London: Oxford University
Press, 1959, p. 52.

 

136

subversive agents of communism, guards secrets Of the nation,
checks upon Spies and detects tax frauds against the govern-
ment of the United States.37 However, in contrast with the
Federal Bureau of Investigation, the National Bureau of Inves-
tigation's jurisdiction extends to protection of the President
of the Republic and his official family, and it has no limited
jurisdiction in any divisions of the Republic except those
crimes Which fall normally within the jurisdiction of the
National Police Force, which has local branches like the
Federal Bureau of Investigation.

As a further Similarity, the National Bureau of Inves-
tigation is not created to perform police-type detective work
in the towns and cities-~it leaves this responsibility to the
National Police Force detective unit and concentrates on the
strategic points of the country. Likewise, the Federal Bureau
of Investigation has field districts in the different states
of the union but it does not interfere with the responsibilities
of the local police forces in the various states.38

The Federal Bureau of Investigation has field dis—

tricts all over the entire United States.39 At the head-

 

37Ibid., pp. 50-54.

38International Association of Chiefs of Police, Inc.,
The Police Yearbook. ‘Washington, D.C.: International Associ-
ation of Chiefs of Police, 1956, p. 7.

 

39Floherty, John J. Our FBI, An Inside Story. Phila-
delphia: J. B. Lippincott Company, 1951, p. 32.

 

137

quarters of the Federal Bureau of Investigation administrative
organization are the following ranks:L‘O
. Director, Federal Bureau of Investigation

. Associate Director

. Two Assistants to the Director

1
2
3
4. Assistant Director Domestic Intelligence
5. Assistant Director for Investigation

6. Assistant Director for Training and InSpection

7. Assistant Director for Records and Communications

8. Assistant Director for Administrative and Identi-
fication Division

9. Assistant Director for the Laboratory

10. Special Agents-In-Charge for Field Offices

At the Headquarters Division of the National Bureau
Of Investigation and the Federal Bureau of Investigation, both
Operate as the brain centers of their respective organizations.
Both possess broad scopes Of jurisdiction.

Another contrast, of course, is the Size and strength
of the Federal Bureau of Investigation of some 1,400 men,41

which is about 18.42 times bigger than the present strength

Of the National Bureau Of Investigation. This, of course, is

 

“OAnnual Report of the U.S. Attorney General, for the

Fiscal Year ended June 30, 1960. WaShington; DIG}: Depart-
ment of Justice, pp. 328-358.

ulAnnual Report Of the Director of the Federal Bureau of
Investigation, for the Fiscal Year ended 1961. Washington,
D.C.: Department of Justice, p. 47.

 

 

 

138

Obvious when one thinks of the size and pOpulation Of the Re-
public Of Liberia. MOre besides, the Federal Bureau of Inves-
tigation is 45 years Old while the National Bureau of Investi-
gation is only five years Old. However, the Federal Bureau of
Investigation and the National Bureau of Investigation have
many similar functional and organizational objectives. It is
for these reasons that, in the proposed reorganization of the
National Bureau of Investigation, a structure which is similar
in some respects to that of the Federal Bureau of Investi-

gation, is recommended.

B. Comparison with the United States Secret Service

 

The National Bureau of Investigation was created in
1948 by order Of the President of the Republic of Liberia,
107 years after the formal creation of the United States
Secret Service, which is considered the Oldest Federal law
enforcement agency in the United States. The Secret Service
was originally created for the purpose of preventing, detect-

42

ing, investigating, and apprehending counterfeiters, while

the National Bureau of Investigation was originally created

for the purpose of protecting the life of the President of the

43

Republic Of Liberia. Later its jurisdiction extended to

 

uzBowen,‘Walter S. and Neal, H. E. The United Spates
Secret Service. Philadelphia: Chilton Company, BoOk Div.,
Publishers, 1960, p. 190.

 

 

“3Edwards, Lt., pp. cit., p. 2.

 

139

other security and investigative matters like those of the
Secret Service counterfeit problem. But in 1901, the number
one responsibility of the Secret Service became the protec-
tion of the President of the United States,"”4 which protective
security system was extended in 1913 to the President-elect
and in 1917 to the members of the President's immediate
family and the vice president at his request.l+5 Likewise, the
primary responsibility of the National Bureau of Investigation
is the protection of the President of Liberia at home and
abroad which protection also extends to his official family
and the vice president of the Republic.“6

The Secret Service and the National Bureau of Inves-
tigation have Similar rank titles and distribution, for
example, the rank Of Special Agents. The Secret Service has
both uniformed and plainclothes personnel,47 and the National
Bureau Of Investigation likewise has special security uni-
formed police and plainclothes agents.

The Secret Service provides protection for foreign
official guests of the government of the United States which

responsibility is also one of the primary responsibilities of

 

44Bowen and Neal, pp. cit., p. 126.

45Loc. cit.
46 -
Edwards, Lt., pp. c1t., p. 2.

47Organization of Federal Executive Depts., and Agencies,
Washington, D. C.: Government Printing Office, Jan., 1962.

 

 

140

the National Bureau of Investigation.

In contrast, the professional qualification Of the
personnel of the Secret Service and the high standard of
training is by far superior for the time being to the per-
sonnel who make up the National Bureau of Investigation.
Another contrast is that the Secret Service is under the
administrative head of the United States Treasury Department
while the National Bureau of Investigation is under the
Department of Justice. Both agencies have separate divisions
under a chief of the official residences of their chief exec-
utives (the White House and the Executive Mansion).

The Secret Service is soundly organized which takes
into consideration all the necessary elements of recruitment
with Special requirements as: (1) Education; (2) Abilities;
(3)‘Written test; (4) Physical examination; and (5) Character
investigation designed to obtain evidence of an applicant's
loyalty tO the United States government, his honesty, integ-
rity, and general character. Evidence of excessive use Of
intoxicating liquors, disloyalty, moral turpitude, disrespect
for law, unethical dealings, or material mis-statements of
fact on the application forms are considered sufficient
48

grounds for rejection.

Some of the sound organizational plans adapted by

 

uaBaughman, U. E. The United States Secret Service,
What it is and What it Does. WaShington, D.C.: Government
Printing Office, 1958, pp. 28-29.

 

141

the Secret Service law enforcement agency enumerated above
have been embodied in the proposed reorganization of the

National Bureau of Investigation.

C. A Comparison with Scotland Yard

To compare the National Bureau of Investigation with
Scotland Yard, of Which the law—abiding British are so proud,
the two have little in common except in that they are both
law enforcement agencies.

Scotland Yard is actually the headquarters of the
iMetrOpolitan Police Department of London. In a more pOpular
sense, it is the detective division Of the organization whose
chief function is maintaining law and order, except in
special cases, within the metrOpOlitan area.“9 The National
Bureau of Investigation, on the other hand, is a Liberian
government agency--the investigative division of the Depart-
ment of Justice, whose administrative head is the Attorney
General.50

The National Bureau of Investigation iS neither a

police force nor a detective force. Its chief function is to

secure the cold hard facts by asking carefully prepared

 

 

“gscou; Sir Harold. Scotland Yard. New York: Random
House, 1955, pp. 34-36.

 

50Special Commission on Government Operations. Tech-
nical Staff: Public Administration Service Department of
Justice. "Administrative Survey Report." MOnrovia: Special
Commission on Government Operations, January, 1962, pp. 9-10.
(Mimeographed).

142

questions without prejudice or emotion. The results of its
investigations are turned over to the prOper authorities and
there its responsibility ends. It is up to those authorities
which have jurisdiction in each specific case to determine
the proper action.

Scotland Yard is not an agency Of the British govern-
ment. Primarily, it is a municipal department under local
administration similar to that of departments of Sanitation
or Public Health.51 It derives its name from the fact that
for many years it was housed in what was one time the London
residence Of a Scottish king. Of recent years, it has occu-
pied a building on the Thames Embankment that is now offici—
ally called New Scotland Yard. It has won fine achievement
in the capture Of criminals.52

The National Bureau Of Investigation sends agents out
to any part of the Republic to solve crimes which fall under
its jurisdiction. Scotland Yard does not send detectives to
solve crimes outside the metrOpOlitan area of London unless

the police force concerned asks for aid.53

The 13 weeks' preliminary instruction which recruits

 

 

5lSt. Johnston, Col. T. Eric and Chapman, Samuel G.
The Policp Heritage in England and America: A Developmental
Survey. E. Lansing: Midhigan State UniVersity, 1962, p. 17.

52Harrison, Richard. The Story of the WOrld's Police.
London: Phoenix, 1955, pp. 17-18.

 

 

53Ibid., p. 18.

143

to Scotland Yard receive is probably the most intensive and

 

best-balanced course in the world. .It is calculated to sift
out the unsuitable and to direct the abilities of the others
into useful channels.54

The organization is democratic in the best sense of

the word. It Opens its ranks to all who can pass the prelim-

inary tests of education, intelligence, and physique, and it

 

Offers all equal opportunity to reach the higher ranks. Pay
is good, promotion goes by merit, retirement after full ser—
vice brings a pension.55

Discipline is strict but reasonable, and the tempo Of
work and play keeps the recruit up to a pitch which he must
maintain through his strenuous years of service.56

One great similarity between the Yard and the National
Bureau of Investigation is that the Yard also performs some
national services such as the protection of the Royal Family
and Ministers by the Special Branch.57

Another similarity is that the Chief Of the Yard is
appointed by the highest Official of the nation. That is the

Crown58 and the Director of the National Bureau of Investi-

 

54Coatman, pp. £35., p. 144.
55Scott, pp. pip., pp. 25-26.
56lpid., p. 13.

57Ipig., p. 193.

58Ibid., p. 14.

144

gation is appointed by the President of the Republic Of
Liberia. The only contrast about the appointments is that

the appointment Of the Commissioner of the Metropolitan Police
is done by the Crown upon the advice of the Home Secretary of
England,59 while it is the Senate that consents and advises the
appointment of the Director Of the National Bureau of Investi-
gation.

Despite the few similarities and many differences in
comparison between the National Bureau Of Investigation and
Scotland Yard, there exists one common goa1--to prevent crime
and disorder as an alternative to their repression by military
force and severity of legal punishment.

Therefore, some of the good organizational principles
adapted by Scotland Yard or the MetrOpolitan Police Force of
England mentioned above have been also used as a pattern in
the prOposed reorganization of the National Bureau Of Investi-
gation. For example, Scotland Yard has the following func-
tional organization divisions Which are worthy of being

mentioned:60

1. The Criminal Investigation Division

2. The Criminal Record Office

 

59See Appendix A.

60Harrison Richard. Scotland Yard. Chicago: Ziff
Davis Publishing CO., 1949, pp. 210-211.

 

 

145

. The Training School Division

 

. The Special Branch

. The Planning Department

. The Finance Department

3
Li
5
6. The Administrative Department
7
8. The Legal Department

9

. Statistics Sections

 

The presence of the Investigations, Records, Training,
Special Branch, Planning, Administrative, Finance, Legal and
Statistics Divisions in Scotland Yard enumerated above, may
likely be misconstrued as an attempt of the staff to control
field Operations. This type Of organization is adapted by the
MetrOpolitan Police Force in order to emphasize the fact that
it is produced by a desire to effect some degree Of functional
supervision over local Operations. .At its best, it represents
nothing more than an effort to propagate uniform standards and
methods Of efficient Operations and a host of other matters.
NO confusion Of responsibility occurs under such circumstances.61

As in illustration: A training division, commonly
reflected in most of the divisions of Scotland Yard, is incor-

porated in the prOposed reorganization to amalgamate training

in personnel administration. This is logical because training

 

6lSmith, Bruce Jr. Police Systems in the United States.
New York: Harper & Brothers,_l959, pp. 222-223.

146

is a function of personnel management. Another example, is
the centralization of all criminal records into one criminal
records Office. This system is practiced in most well organ-
ized police headquarters or investigation bureaus. The pro-
posal adopted this sound feature by laying out a centralized
Records and Communications Division. Even the Records Unit,
which is presently a part Of the Personnel Division, becomes
a part of the Records and Communications Division. Another
meritorious aspect of the organization of Scotland Yard is
the emphasis placed on communications Which warrants the
creation of a Communications Division. This phase is also
incorporated in the reorganization play by creating the
Records and Communications Division.
D. A Comparison with the United States Central Intelligence
enc

The National Bureau of Investigation, since its cre-
ation, has been doing investigation work of all types of
crime including intelligence work such as counter-subversive
and counter-intelligence activities.62

In Similarity, the Central Intelligence Agency, since
its creation in 1947, has been fundamentally involved with
positive intelligence. The primary function of the Central
Intelligence Agency is tO supply the data that the National

Security Council needs for recommendations to the President

 

 

62Special Commission on Government Operations, pp. cit.,

p. 9.

147

of the United States.63

The Central Intelligence Agency performs five inter-
related functions Which include the following:6u

1. It advises the National Security Council in matters
concerning such intelligence activities of the government
departments and agencies as relates to national security.

2. It makes recommendations to the National Security
Council for coordination Of such intelligence activities of
the departments and agencies of the government as relates to
national security.

3. It correlates and evaluates intelligence relating
to national security, and provides for the apprOpriate dissem-
ination of such intelligence within the government using,
where appropriate, existing agencies and facilities.

4. It performs, for the benefit Of existing intelli-
gence agencies, those additional services of common concern that
the National Security Council determines can be more efficiently
accomplished centrally.

5. It performs such other functions and duties related
to intelligence affecting national security as the National

Security Council may, from time to time, direct.

 

63Farago, pp. cit., p. 40.

6”Office of the Federal Register, National Archives and
Records Service, General Services Administration. United
States Government Organization Manual. washington, D.C.:
United States Government Printing Office, 1961, p. 65.

 

148

In the National Bureau Of Investigation, both positive
intelligence and negative intelligence are conducted; but the
Central Intelligence Agency only conducts positive intelligence
while negative intelligence is assigned to the Central Intell-
igence Committee and the Federal Bureau of Investigation
which, in turn, is not permitted to conduct any positive in-
telligence.65

Another contrast is that the Central Intelligence
Agency Operates directly under the Chief Executive Of the
United States, under the administration of the National Secur-
ity Council,66 while the National Bureau of Investigation
operates under the direct administration of the Department
Of Justice.

Just as the Central Intelligence Agency is not the
only intelligence service Of the United States government, the
National Bureau of Investigation, likewise, is not the only
source of intelligence service in the Republic Of Liberia. In
Liberia, there are Special intelligence services within the
Liberian National Guard and the Coast Guard, which is the
nucleus of the Liberian Navy, and scattered among other gov-

ernment departments.67

 

65Farago, pp. cit., pp. 39-40.

66United States Government Organization Manual 1960-61,
pp. cit., pp. 63-65.

67Konvitz, Milton R. (ed.). Liberian Code of Laws Of
1956, Vol. II. Ithaca, New York: Cornell University Press,
1957, p. 852.

 

 

 

149

Collection, evaluation, and dissemination are the
major functions of the Central Intelligence Agency. They are
incorporated in most modern intelligence services. To perform
these responsibilities, intelligence services Operate with
well planned tables of organization. The Central Intelligence
Agency is organized along elaborate lines, with different
divisions for the conduct of various forms Of intelligence,
for evaluation, for surreptitious activities, and for dis-
tribution.68

It is from these profound illustrations and functions
of the Central Intelligence Agency that the prOposed reorgan-
ization has created an intelligence division modelled after
that Of the Federal Bureau of Investigation and the Central
Intelligence Agency intelligence services.

It must be noted that excessive use of positive in-
telligence, as is conducted by the Central Intelligence
Agency, is not at the present time necessary in Liberia.
Liberia, for the time being, is encircled with what could be
considered as friendly neighboring countries and, therefore,
is not confronted with such complex defense problems as that
of the United States. However, the Republic feels that every
preventive measure Should be pursued by establishing an in-

telligence unit within the National Bureau of Investigation.

 

68

United States Government Organization Manual, pp. cit.,
p. 65.

 

150

Summary

A basic comparative observation was made Of the Cen-
tral Intelligence Agency, the Federal Bureau of Investigation,
the United States Secret Service, and Scotland Yard with the
National Bureau of Investigation. Since the above mentioned
organizations Show such a high level Of professional effic-
iency, it is clear that the National Bureau of Investigation
Should be modelled after them.

Some Of the most reasonable ideas and principles of
sound organization were pursued in the attempt to make the
preceding proposals. Likewise, some Of the most appropriate
methods of solving personnel problems were drawn upon in
trying to solve the grave personnel issues in the National
Bureau of Investigation.

The final chapter of this study presents questions
which require research beyond the sc0pe of this investigation.
These questions will be posed to serve as a guide for further
studies. A summary is followed by conclusions and some

recommendations for further improvements.

 

151

CHAPTER V

SUMMARY, CONCLUSIONSJ AND RECOMMENDATIONS

 

Summary

This study presents the organizational defects and
personnel problems of the National Bureau of Investigation of
the Department of Justice. These include evidence of manpower
waste, duplication of functions, lack of clearly defined in-
vestigative jurisdiction Of the National Bureau of Investi-
gation as Opposed to that Of the investigative responsibilities
Of the Detective Division of the National Police Force, and the
eight basic weaknesses involved in current Bureau personnel pro-
cedures as previously mentioned. These are: (1) Recruitment
Procedures; (2) Training Program (In-Service and Pre-Service);
(3) Assignments; (4) Promotion Methods; (5) Discipline; and
(6) the Problem of Instructors. They have been discussed in
general, and then specifically in terms of how they are handled
in the National Bureau Of Investigation.

The prOposed reorganization has been Offered as the best
means to meet the prevailing conditions of the Republic Of Li-
beria in which the National Bureau of Investigation Operates.

As Kenney and‘Williams say, "Each department must develOp its
own organization to best meet the prevailing conditions of the
environment in which it Operates; and that there is no one

best organization."1

 

lKenney, J. P. and‘Williams, J. B. Police Operations.
Springfield: C. C. Thomas, 1960, p. 25.

 

 

 

152

A. Personnel Administration

 

Present personnel practices are unsound and should be
realistically examined and re—appraised SO that the most high-
ly qualified appointees are solicited, examined, and recruited.
Recruitment must be energetic, continuous, and flexible.
Screening and examining processes must be geared to a philos-
Ophy of quality. The examination process must be impartial
and lead to conditions where only the most qualified candidates
are appointed. Probation, relatively ignored, must be utilized
as an effective selection tool. Promotions must be competitive
in nature if the Bureau is to be maintained in a highly moti-
vated condition.

The technical procedures of personnel selection pro-
posed in this study are necessary, in order to provide scien—
tific Objectivity in the selection process. Yet, in the law
enforcement service, although much remains to be done in the
area of validation research, the abstracts Of virtue, character,
and integrity must also be considered as primary selection
criteria.2

The wage scale Of the personnel Of the National Bureau
of Investigation must be based upon sound position classifi-
cation methods, in order that the just requests of the Direc-

tor can be carefully evaluated. An overlapping ranged salary

 

2Wilson, 0. W. ”Towards a Better Merit System." The

Apnals of the American Academy Of Political and Social Sc1ence,
1954: 291:87-96, Philadelphia.

 

153

should be used, and direct pay should be adjustable in terms
of local trends by the provision of a cost-Of-living plan.
Extra pay and prerequisites should be evaluated that any plan
of fringe benefits is not only equitable, but contingent upon
competent performance.

Though the salary Of the agents of the National Bureau

of Investigation has consistently been increased, there has

 

been no corresponding rise in standard of selection. Thus,
the public, Since they have not been able to see any concrete
return for their money, has remained constantly apathetic
toward the National Bureau Of Investigation. However, ade-
quate pay is necessary, and important to any sound personnel
management as Mosher, Kingsley, and Stahl point out:

"The problem of pay is one of the most com-

plex in the whole personnel field and is

surpassed by none in importance for main-

taining a satisfactory staff on a high level
of competence."3

B. Training

 

The problem of training in the National Bureau of In-
vestigation is, as has been observed, in a condition of flux.
The fundamental disagreement as to the type of training that

should be given in the National Bureau of Investigation focuses

 

3Mosher,‘William E., Kingsley, J. D., and Stahl, O. G.
Public Personnel Administration. New York: Harper and
Brothers, 1950, p. 28l

154

upon two issues: (1) should training be vocational in nature,
emphasizing skills and techniques, or (2) should it attempt
the managerial orientation, stressing administration? It
would seem that both types of training are necessary because
the vocational trains the recruit, refreshes the regular, and
prepares the Specialist. Administrative training prepares the
supervisor and the law enforcement executive for his super-
visory role.

A categorical statement about the regulatory devices
essential for effective police personnel management cannot be
made Since each personnel program must be organized and
functioned to suit the organization which it serves.

‘With the marked divergent periods of maturity in var-
ious jurisdictions, it is "impossible" to dogmatically arrive
at a decision that any form Of personnel organization is

universally preferable.Ll

C. Policy Makipg

 

The Director of the National Bureau of Investigation
needs clear-cut personnel laws which will establish basic
policy and yet allow: (1) flexibility and formalized person-
nel policies and procedures; (2) deployment which will maxi-
mize the utilization of sworn and civilian personnel; (3)

sound disciplinary machinery; (4) objective and carefully

 

4White, Leonard D. Introduction to the Study of Public
Administration. New York: MacMillan, 1955, p. 320.

 

 

 

155

planned service rating plan; and (5) personnel records
sufficient to guarantee full control and develOpment of

personnel.

D. Safety, Healthlpand Welfare

 

The safety, health, and welfare of the agents of the
National Bureau of Investigation must be a genuine concern Of
the Director, or the morale will suffer. Supervision is the
key to effective police service, and the special agents and
sergeants of the National Bureau of Investigation must be
trained as able leaders, and possessed Of sound human rela-
tions skills. Recognition and incentives are important to
motivate the effective agent, but other means than seniority
rights are suggested, such as the incentive pay program. Em-
ployee services result in a higher level Of performance and
act as a cohesive agent in cementing the organizational body.
Communications must be provided for and the entire organi-
zation must be frequently informed of organizational objectives
and policies. A sound ethical philOSOphy is necessary for
prOper motivation, and police professionalization will ensue
as soon as highly-motivated law enforcement agencies take the
fifth step, which is the elimination of the incompetent and

immoral.

Conclusions

 

.Although the prOposals and recommendations for the

successful reorganization contained in this study are many,

 

156

there exists a basic structure staffed, for the most part, with
COOperative personnel who Should be receptive to administrative
guidance, training, and basic instruction. Some of the pre-
ceding reorganization prOposals are currently being instituted
by the Bureau. ,Also, the Bureau has a considerable amount Of
adequate basic equipment which is vital for successful enforce-
ment operations. There have been numerous individual instances
when the quality of performance has been observed to be ex-
ceedingly high. ‘With the accomplishment of the proposed re-
organization plus the following recommendations, the National
Bureau of Investigation will, within a reasonable period of
time, become one in Which reliable service to the Republic
will be professional and proficient because every attempt has
been made to group related activities in a group for effic-
ient Operation SO as to stimulate the will Of the personnel
toward a common goal-~which is public service.5

From the reorganization plan, the following results
should be achieved: (1) economy, because needless effort is
wasteful and inefficient Operation is eliminated; (2) defi-
nite lines of authority are established-~this is particularly
necessary to line personnel since no man can serve two mas-
ters at the same time; and (3) efficiency, which is the chief
benefit Since it Often means the difference between success

and failure in police personnel.6

 

5Clift, Raymond E. .A Guide to MOdern Police Thinking.
Cincinnati: The W} H. Anderson CO., 1956, p. 251.

 

6Ibid., p. 26.

 

157

The data presented in this study represents a thorough
examination of certain phases of the present organizational
defects and personnel problems of the National Bureau Of In-
vestigation. It is Of value if it serves as a bisis for an
organizational change, provides a guide for future study or
poses questions for further examination.

Many conclusions and generalizations have been drawn

 

in this study. Further validation of these through a larger
and more detailed study would indeed prove valuable. .A simi-
lar study, for example, of the National Police Force Of Liberia
would provide very interesting comparative material.

It might be possible to set up a point rating system
of the various personnel factors and arbitrarily rate each
new recruit.

The new recruitment qualification requirements present
some problems as do organizational requirements, such as:

1. Is there a test, or can one be made,

which could foretell an applicant's

interest and determination?

2. Is there a possibility of devising a
test to measure physical courage?

3. How can the National Bureau of Inves-
tigation recruitment plan be created
to encourage disinterested individuals
early in the program, thus saving
time and money?

4. Are there thoroughly qualified indi-
viduals who can fill the new divisions
and sections now?

5. ‘What will be done with the present
Bureau personnel with good records,
most of whose educational standard

158

automatically disqualifies them for
continuous connection with the Bureau?

6. If the prOposed reorganization plan
is adOpted, will it solve all the
organizational and personnel problems?

These, and many other questions, present themselves,

and may serve as guides to future studies along these lines.

Recommendations

 

 

«mm:- In
.-
u. -

In View of the conclusions drawn and the data examined,

I?

the following recommendations are made for the effective and
efficient Operation Of the National Bureau of Investigation as
a career agency:

1. That the National Legislature give a clear-cut
distinction between the various crimes that the National
Bureau of Investigation should handle and those which normally
fall under the jurisdiction of the National Police Force which
the National Bureau of Investigation should not investigate.

2. That the Director Of the National Bureau Of Inves-
tigation, by virtue of his status and professional qualifi-
cations, be given the exclusive Opportunity to attend all
annual conferences of the International Criminal Police Com—
mission (Interpol) instead of the Attorney General. Since
the Director of the National Police Force attends all Annual
conferences of the International Association of Chiefs of
Police (IACP) instead of the Attorney General while the
National Bureau of Investigation and the National Police

Force are under the immediate administration of the Attorney

159

General. It is but fair and just that the same privilege be
extended to the Director of the National Bureau of Investi-
gation. The National Bureau of Investigation Director's
attendance at Interpol Conferences is further necessary because
an Interpol Section is embodied in the organization of the
National Bureau of Investigation and the attendance will in—

crease the professional intellect Of the Director from the

 

experiences gained thereof which will enable him to keep the
Bureau Operating on the basis of modern standards and tech-
niques.

3. That the habit of hiring men during the inaugur-
ation period as National Bureau of Investigation agents for
protective security be discontinued, because the practice is
unsound and improper for security reasons. Furthermore, the
Situation weakens the morale and efficiency of the National
Bureau of Investigation in the eyes of the public. The
problem of protecting the lives of foreign dignitaries who are
guests of the government is one of the most difficult and im-
portant issues in law enforcement; therefore, such responsi-
bility Should not be entrusted to a novice with just one week
of protective security training. It is therefore recommended
that the strength of the National Bureau of Investigation be
increased to handle such security measures with the assis-
tance of members of the National Police Force.

4. That any preliminary planning conferences which

the Department of State may have for receiving foreign

160

Official visitors to whom protective security will be given,
shOuld be attended by the Director of the National Bureau of
Investigation because the National Bureau Of Investigation

is legally authorized to Offer full protective security to all
foreign dignitaries who are guests of the government Of Liber-
ia.

5. That the Chief Of Protocol give the legal and pro-
fessional regards due agents of the National Bureau of Inves-
tigation by desisting from ignoring their objections against
any individuals attending official functions or ceremonies
where the Chief Executive is physically present despite the
fact that the individual may possess an invitation. It iS
further recommended that a very close atmosphere of cooper-
ation exist between the authorities Of the Department Of State
and the staff of the National Bureau of Investigation Since
they work together during many official occasions.

6. That all Officials of government give their full
support and cooperation to agents of the National Bureau of
Investigation at all Official functions and ceremonies by
refraining from asking them to serve them in any other manner
than what their assignments there call for. It must be real-
ized that the presence of the National Bureau Of Investigation
agents at any gathering is to protect and save life; therefore,
they are basically trained to be vigilant in that respect.
Hence, if they perform the jobs Of messengers and stewards,

the life and security of the State will be insecure at the

 

161

time they are doing tasks other than their duties.

7. That the Director Of the National Bureau Of Inves-
tigation be given the full and exclusive privilege of selecting
and assigning agents who may accompany the President during his
travels at home and abroad because the Director knows the prO-
fessional qualifications of each man under his jurisdiction.
Of course, the President has unlimited discretion in naming
any Special agent to accompany him without consulting the
Director, but the sole purpose of this recommendation is for
the best and efficient protection of his life, which respons-
ibility falls upon the National Bureau of Investigation which
makes the professional decision of the Director indispensable.

8. That the practice of employing ordinary chauffeurs
to operate National Bureau Of Investigation vehicles who are
not trained as agents be abolished and that they be substi-
tuted by regular agents for security reasons.

9. That only members Of the National Bureau of Inves-
tigation Should ride National Bureau Of Investigation motor
vehicles, and that the practice of giving friendly rides
around town for non-Official reasons be abolished. This
recommendation is also for security reasons. The only ex-
ception to this recommendation being the case of emergency,
where immediate assistance is needed for the protection of
life and prOperty and the maintenance of peace and order.

10. That the Director be authorized to submit a plan

for the construction of a National Bureau of Investigation

 

162

Headquarters Building which will accommodate its new responsi-
bilities in a building that the government will be proud of.
A building which will attract the reSpect and admiration of
visiting members of other law enforcement agencies of other
countries.

11. That the National Bureau of Investigation be given

a budgetary apprOpriation for the construction of a first-

 

class National Bureau of Investigation training academy
instead of the National Bureau of Investigation men being
trained with National Police Force men at the National Police
Force Academy because both groups do not have the same aca-
demic qualifications.

12. That the National Bureau of Investigation agents
be assigned to some of the Liberian embassies Situated in
important countries as intelligence men who will serve as
sources of intelligence information from the country to
which they are assigned. The Director will transmit all
information received to the Attorney General for the Presi-
dent. This is a recognized system which is established in
most embassies of other countries today.

13. That the Director be authorized to employ one
judo expert, one fingerprint and classification expert, and
one records and communications expert from abroad under two
years' contract to train members Of the National Bureau of
Investigation in these areas SO that at the end of their

contract, the agents who earn the highest grades and Show

163

the greatest promise will be promoted and used as instructors
in these areas. This will be less costly and more profitable

than sending three or four agents abroad for this purpose.

 

164

APPENDIX A

ACT OF THE NATIONAL LEGISLATURE
SUBCHAPTER F
AN ACT TO CREATE THE
NATIONAL BUREAU OF INVESTIGATION
Januaryj 1961

 

181. Director of National Bureau of Investigation-

 

The National Bureau of Investigation Shall be under the direc-
tion of a Director of the National Bureau of Investigation who
shall be appointed by the President with the advice and con-
sent Of the Senate. He shall be directly responsible to the

Attorney General.

182. Organization- The National Bureau of Investi-

 

gation Shall consist of the following sections: the Investi-
gation Section, the Records and Identification Section, the
Interpol Clearing Centre, and the Executive Security Section.
It Shall have such subsections and technical services as are
necessary to carry out its functions effectively. Itshall
have its central Office in the Capital and such field Offices

throughout the Republic as may be necessary.

183. Investigation Section- It shall be the function

 

of the Investigation Section to investigate all crimes against
the Republic and the Government which do not normally fall

within the jurisdiction Of the National Police Force.

184. Records and Identification Section- It shall

be the function Of the Records and Identification Section to

 

165

keep accurate and current records on all known criminals with-

 

in the Republic and to devise a central fingerprint identifi-
cation system to include all fingerprint classifications
available within the Republic. Such information shall be
made available to all internal security agencies of the
Republic upon request. It shall also be the function of this

service to compile and publish an annual criminal statistics

 

report.

185. Interpol Clearing Center- It Shall be the

 

function Of this section to keep in constant contact with
the Headquarters office of Interpol in Paris and exchange
necessary criminal information which it may deem of concern

to both the Republic and the Interpol agency.

186. Executive Security Section- It Shall be the

 

function of this section to guard adequately the President,
other high ranking Officials of the Government whom the Pres-
ident may deem entitled tO be guarded, and high ranking
officials Of Foreign Governments who may Officially visit the

Republic from time to time.

187. Classification,gGrade, Pay and Rotation of Mem-

bers- The classification, grade, and pay of all members of

 

the National Bureau of Investigation shall be according to a
uniform schedule to be prepared by the Director subject to
the approval of the Attorney General. Members Of the Bureau

Shall at all times be subject to rotation from place to place

166

as the need may arise.

188. Training_Requirements of Members of the Bureau-

 

All members Of the National Bureau of Investigation Shall be
required to receive, as a prerequisite to admission, a four-
month basic training at the National Police Training Academy
or such other place as the Director may require. .All members

of the Bureau shall be required to receive periodic in-service

 

training as the Director may from time to time prescribe.

189. Rules and Regulations- Rules and regulations

 

for the governance and the effective Operations of the
Bureau shall be drawn up by the Director Of the National
Bureau of Investigation and submitted to the Attorney General

for his approval.

190. Reports- All agents of the Bureau in charge of
field services Shall submit periodic andspecial reports
covering the activities Of the field offices to the Director
of the Bureau. The Director Shall submit an annual report
covering all aspects of the activities of the Bureau to the

Attorney General.

191. Probation, Membership, and Promotion- ,An

 

eighteen month probationary period which shall include the
period required for basic training Shall be required of all
persons desiring to become regular agents of the Bureau.

Promotions within the Bureau shall be determined strictly in

167

keeping with time served within grades, performance Of duty,
and results achieved on a written examination to be adminis—

tered from time to time for this purpose.

 

168

APPENDIX B

EXECUTIVE LAW
SUBCHAPTER A
AN ACT TO PROVIDE FOR THE ORGANIZATION OF THE
NATIONAL POLICE FORCE OF LIBERIA
January, 1961

180. National Police Force Created; Its Organization-

All the police forces of the Republic are organized into a

 

single unit of service to be entitled the National Police
Force Of the Republic Of Liberia, to be under the direction
and control of the Department Of Justice.

Such Force Shall be composed Of a headquarters unit
in Monrovia and, if the President sees fit to establish them,
a unit in each of the counties, territories, leeward dis-

tricts, and provinces.

181. Commissioner of Police to Command Force- The

 

National Police Force shall be under the command Of the
Commissioner of Police and such other subordinate officers Of
the Force as shall be directed by the Department of Justice.
The salary Of the Commissioner shall be fixed by annual

budgetary appropriation.

182. Classification, Grade and Pay of Members- The

 

classification, grade, and pay of the members of all units of
the Force throughout the Republic Shall be uniform; and they
shall be subject to rotation from place to place at all times

as the requirement arises.

169

183. Reports to Attorney General- All Officers in
charge Of units of the National Police Force shall make reg-
ular quarterly reports to the Attorney General of all matters
relating to their Official duties. They shall also make such

special reports as may be required Of them from time to time.

184. Rules and Regulations- .All rules and regu-

 

lations for the governance of the National Police Force
including the Detective Service Shall be drawn up by the
Attorney General and submitted to the President. After re-
ceiving his approval they Shall be submitted to the next
session of the Legislature, but pending enactment, they shall

have the full force and effect of law.

185. Detective Service- There shall be organized

 

within the National Police Force a Detective Service which
shall be under the immediate supervision of an Official to be
known as the Chief of the Detective Service, who Shall be a
Liberian citizen.

Any person who shall falsely represent any Of the
Detective Officers, or use or imitate any Of the signs, badges,
or devices adOpted and used by the Detective Service in pur-
suance of regulations, shall be guilty of a misdemeanor and
subject to a fine of not less than fifty dollars nor more

than two hundred dollars.

170

APPENDIX C

PRESIDENT TUBMAN'S ANNUAL MESSAGE
RELATING TO THE FIVE YEAR PLAN
ON POLICE CONSTABULARY
November, 1952

 

President Tubman, in his Annual Message relating to
the Five Year Plan, stated as follows:

There must be security and safety for development and
investment, hence it became necessary to implement the Five
Year Plan by reorganizing and co-ordinating the Police ser-
vices of the Republic. Consequently, you passed an Act to
Nationalize the Police Forces of the Republic and the insti-
tution Of a Fire Brigade.

The initial cost Of which was as follows:

 

(a) Salaries .............................. . $128,702.50
(b) Fire Brigade

Salaries......... ....... $4,500.00

Operational Expenses.... 1,150.00 5,650.00
(c) Traveling Expense................. ..... 2,063.80
(d) Supplies.. ............................. 2,004.49
(e) Equipment .............................. 6,981.62
(f) Uniforms........................ ....... 13,013.50
(g) Operation and Repairs (motor equipment) 4,461.60

 

$162,877.51
Of the above amount, about $156,000.00 would be an
annual recurring expense--the difference being for equipment

which will not require annual replacement.

171

Trainees in Police Administration
Sent to the United States

 

To implement the Nationalization Scheme for the Police

Forces Of the Republic, it was decided to send some of our
most efficient young Police Officers to the United States to
take basic Police training, as well as training in police,
immigration, and traffic administration and crime detection.
Men from all over the country were invited to take part in

the competitive examination which was prepared by the Police
Specialist. AS a result of the examination the following

persons were decided upon to take training, namely:

Charles L. Cooper, Commissioner of Police, R.L., Monrovia.

 

J. G. B. Davies, Captain of Police and Administrative Assis-
tant, Monrovia.

 

George B. Terry, Chief Detective, R.L., MOnrovia.

 

Edward Cooper, Inspector of Police, Monrovia.

 

Wilmot R. Mason, Superintendent of Police, Lower Buchanan.

 

Allen N. Yancy, Inspector of Police, Harper, Cape Palmas.

 

It was my intention that at least one person from
each of the counties Should have been selected if he Showed
aptitude and proficiency in the examination. Unfortunately,
Sinoe and Grand Cape MOunt Counties did not participate and,
therefore, no one from these two Counties was sent.

Arrangements having already been concluded with the
Police Authorities of the City Of New York to train these

men in the Police Academy, they proceeded to the United States

172

and commenced special studies and Observation on April 25th,
1950. This course was completed in July. On August 7th,
they entered the Recruits School for Basic Training, which
was completed on September 27th, 1950.

It was felt that, although the men had finished their
six months course of study, they were not finished products.
This point of View was shared by the New York Police Author-
ities. AS a result, instructions were given that they remain
for another Six months in order that the nation might get the

best results possible from their training.

173

APPENDIX D

THE DECLARATION OF RIGHTS OF
THE CONSTITUTION OF LIBERIA

 

The end of the institution, maintenance, and adminis-
tration of government, is to secure the existence Of the body
politic, to protect it, and to furnish the individuals who
compose it, with the power of enjoying in safety and tran-
quility, their natural rights, and the blessings Of life; and
whenever these great objects are not Obtained, the peOple have
a right to alter the government, and to take measures necessary
for their safety, prosperity, and happiness.

Therefore, we the PeOple of the Commonwealth Of Liberia,
in Africa, acknowledging with devout gratitude, the goodness
of God, in granting to us the blessings of the christian re-
ligion, and political, religious, and civil liberty, do, in
order to secure these blessings for ourselves and our posterity,
and to establish justice, insure domestic peace, and promote
the general welfare, hereby solemnly associate and constitute
ourselves a Free, Sovereign and Independent State, by the name
Of the REPUBLIC OF LIBERIA, and dO ordain and establish the

Constitution for the government of the same.

Section lst. All men are born equally free and inde-

 

pendent, and have certain natural, inherent and inalienable
rights; among which, are the rights of enjoying and defending

life and liberty, Of acquiring, possessing and protecting

174

property and of pursuing and Obtaining safety and happiness.

Section 2nd. All power is inherent in the people;

 

all free governments are instituted by their authority and for
their benefit and they have the right to alter and reform the

same when their safety and happiness require it.

Section 3rd. All men have a natural and inalienable

 

right to worship God according to the dictates of their own

consciences, without Obstruction or molestation from others;
all persons demeaning themselves peaceably, and not Obstruct—
ing others in their religious worship, are entitled to the
protection of law, in the free exercise of their own religion;
and no sect of Christians Shall have exclusive priviledges or
preference, over any other sect; but all Shall be alike toler-
ated; and no religious test whatever shall be required as a
qualification for civil Office, or the exercise of any civil

right.

Section 4th. There Shall be no Slavery within this

 

Republic. Nor shall any citizen of this Republic, or any
person resident therein, deal in Slaves, either within or

without this Republic, directly or indirectly.

Section 5th. The people have a right at all times,

 

in an orderly and peaceable manner, to assemble and consult
upon the common good; to instruct their representatives, and

to petition the government, or any public functionaries for

175

the redress of grievances.

Section 6th. Every person injured shall have remedy

 

therefor, by due course of law; justice Shall be done with-
out sale, denial or delay; and in all cases, not arising under
martial law, or upon impeachment, the parties shall have a
right tO trial by jury, and to be heard in person or by

counsel, or both.

Section 7th. NO person shall be held to answer for a

 

capital or infamous crime, except in cases of impeachment,
cases arising in the army and navy, and petty offences, un-
less upon presentment by a grand jury; and every person
criminally charged, Shall have a right to be seasonably fur-
nished with a copy of the charge, to be confronted with wit-
nesses against him--to have compulsory process for Obtaining
witnesses in his favor; and to have a Speedy, public and
impartial trial by a jury of the vicinity. He shall not be
compelled to furnish or give evidence against himself; and

no person shall for the same Offence be twice put in jeOpardy

of life or limb.

Section 8th. NO person shall be deprived of life,

 

liberty, property or privilege, but by judgment of his peers,

or by the law Of the land.

Section 9th. No place shall be searched, no person

 

seized, on a criminal charge or suspicion, unless upon

176

warrant lawfully issued, upon probable cause supported by
oath, or solemn affirmation, specially designating the place

or person, and the Object Of the search.

Section 10th. Excessive bail Shall not be required,

 

nor excessive fines imposed, nor excessive punishment in-
flicted. Nor Shall the legislature make any law impairing
the Obligation Of contracts, nor any law rendering any Act
punishable, in any manner in which it was not punishable when

it was committed.

Section 11th. All elections Shall be by ballot, and

 

every citizen (male and female) Of twenty-one years of age
possessing real estate Shall have the right of suffrage.
When applied to Voters in the Provinces of the hinterland of
The Republic, "possessing real estate” Shall be construed to

include possessing a hut on which he or she pays the hut tax.

Section 12th. The peOple have a right to keep and

 

bear arms for the common defence. And as in time Of peace,
armies are dangerous to liberty, they ought not to be main-
tained, without the consent of the legislature; and the

military power shall always be held in exact subordination

to the civil authority, and be governed by it.

Section 13th. Private prOperty shall not be taken

 

for public use without just compensation.

177

Section 14th. The power Of this government shall be

 

divided into three distinct departments: Legislative, Exec-
utive, and Judicial; and no person belonging to one Of these
departments, shall exercise any of the powers belonging to
either of the others. This section is not to be construed

to include Justices Of the Peace.

Section 15th. The liberty Of the press is essential

 

to the security of freedom in a state; it ought not, there-
fore, to be restrained in this Republic.

The printing press Shall be free to every person, who
undertakes to examine the proceedings Of the Legislature or
any branch of government; and no law Shall ever be made to
restrain the rights thereof. The free communication of
thoughts and Opinions, is one of the invaluable rights of
man, and every citizen may freely speak, write and print, on
any subject, being responsible for the abuse Of that liberty.

In prosecutions for the publication Of papers, inves-
tigating the Official conduct of officers or men in a public
capacity, or where the matter published is proper for public
information, the truth thereof may be given in evidence. And
in all indictments for libels, the jury Shall have a right to
determine the law and the facts, under the direction of the

court, as in other cases.

Section 16th. NO subsidy, charge, impost, or duties

 

Ought to be established, fixed, laid or levied under any

'F .

178

pretext whatsoever, without the consent of the peOple, or

their representatives in the legislature.

Section 17th. Suits may be brought against the Repub-

 

lic in such manner, and in such cases as the Legislature may,

by law direct.

Section 18th. NO person can, in any case, be subjected

 

to the law martial, or to any penalties or pains by virtue of
that law (except those employed in the army or navy, and ex-
cept the militia in actual service), but by the authority of

the legislature.

Section 19th. In order to prevent those who are Vested

 

with authority, from becoming Oppressors, the peOple Shall have
a right at such periods, and in such a manner, as they shall es-
tablish by their form of government--to cause their public
officers to return to private life, and to fill up vacant

places by certain and regular elections and appointments.

Section 20th. That all prisoners shall be bailable by

 

sufficient sureties, unless, for capital offences, when the
proof is evident, or presumption great: and the privilege and

benefit of the writ of habeas corpus, Shall be enjoyed in this

 

Republic, in most free, easy, cheap, expeditious and ample
manner: and shall not be suspended by the legislature, except
upon the most pressing and urgent occasions, and for a

limited time, not exceeding twelve months.

179

APPENDIX E

SPECIFICATIONS FOR EACH CLASS OF WORK IN
THE NATIONAL BUREAU OF INVESTIGATION HEADQUARTERS

 

"-
vi

(‘,
1. Class Title: Director, National Bureau of Investigation

 

Class Definition

General Duties: To have chief administrative respons-

 

ibility for the maintenance of order, the enforcement of laws
and ordinances, the prevention of crime and protection of life
and property in the Republic of Liberia, to supervise, control
and coordinate all employees of the National Bureau of Inves-
tigation and activities assigned to it.

Supervision Exercised: Has complete internal control

 

over the activities Of the National Bureau of Investigation;
exercises general SUperViSion over all the divisions of the
Bureau, acting through their respective heads; gives close
review to all activities Of the Bureau.

Supervision Received: Reports the activities of the

 

National Bureau of Investigation to the Attorney General
annually in writing and receives from the Attorney General
instructions as to general administrative policies and methods,
and advice concerning specific procedures which are to be
followed in handling unprecedented problems.

Degree of Responsibility: Has wide latitude Ofdis-

 

cretion and responsibility for performance of investigative
and security functions including the review of work of sub—

ordinates, making independent decisions sometimes subject to

"i\
‘.

180

general review by the Attorney General; makes recommendations
to the Attorney General with regard to major plans and pol-
icies Of the Bureau; has immediate responsibility for all
matters relative to the personnel Of the Bureau; has full
responsibility for bringing charges and carrying out disci-
plinary measures taken by the Attorney General.

Examples of Duties: To handle all matters pertaining

 

to the personnel of the Bureau such as selection, promotion,
assignment, discipline and discharge; to prepare monthly
schedules of beat and desk assignments; to review acts and
reports of subordinate officers; to make personal inspections
of patrolmen's and agents' beats; to read and reply to incom-
ing correspondence; to inspect the records system maintained
by its possible supervisor; when the occasion demands to
assume immediate responsibility for the investigation of
criminal offenses; to analyze crime and police conditions and
plan prevention work; to confer with other law enforcement

and private agencies in law enforcement matters; to deal with
the public; to explain the functions of the National Bureau of
Investigation to residents of the Republic; to aid in planning
special public campaigns for safety and crime prevention; to
prepare an annual report Of the Activities of the Bureau; to
maintain contacts with other law enforcement agencies and with
professional police organizations; to participate in the con-

ferences of Interpol.

181

Minimum Qualifications

 

agp: Not more than 45 years of age if applying for
the position Of Director from outside the National Bureau of
Investigation. NO age limit is set for members of the National
Bureau of Investigation.

Education and Experience: Education equivalent to

 

that represented by graduation from an accredited college or
university with a degree in Police Administration, Law, or
Accounting and at 1east five years of successful police work,
one of which Shall have been in a rank above that of sergeant
or Special agent in the National Bureau of Investigation or
some other public jurisdiction.

Special Knowledge, Abilities, and Skills: Social and

 

general intelligence; a high degree of leadership, tact, good
character; medical and physical fitness; ability to treat the
public with courtesy and when the occasion demands, with firm—
ness; ability to organize the Bureau for the effective perfor-
mance of its functions; ability to plan and maintain a steady
flow of work through the Bureau; ability to delegate details
to subordinate agents yet supervise and control their Oper-
ations; ability to secure and hold the confidence of the pub-
lic on the fairness and effectiveness Of performance of
security and investigation functions; fundamental knowledge

of police problems and procedures; familiarity with current
develOpmentS in police science and administration; acquain-

tance with basic literature in the field Of police adminis-

182

tration; ability to maintain COOperative relations with other
law enforcement agencies of the Republic; ability to issue
intelligible directions and orders and secure their execution;
ability to exercise good judgment in matters pertaining to

the personnel of the Bureau.

2. Class Title: ,Assistant Director for Investigation

 

Class Definition

General Duties: TO be the immediate assistant to the

 

Director and second in command of the Bureau in performing
the administrative responsibility Of the Bureau in the line
of investigation, maintenance of order, the enforcement of
laws and ordinances, the preventioncf crime and protection
of life and prOperty in the Republic Of Liberia.

Supervision Exercised: Has direct charge of personnel

 

of the Bureau and in full command of the Bureau during the
absence of the Director; exercises general supervision of the
Investigation Division, Narcotics Squad, and Interpol Clear—
ing Section acting through their representative heads.

Supervision Received: Reports the activities of the

 

units under his supervision daily in writing and from time to
time, to summarize these activities in monthly reports to the
Director; receives from the Director instructions as to the
general administrative policies and methods and advice con-
cerning specific procedures which are to be followed in hand-

ling unprecedented problems.

183

Degree Of Responsibility: Has immediate responsibil—

 

ity for the work Of the units to which he is assigned; entire
discretion for methods of handling each order within the
limitations set forth by the Director; responsibility of con-
tinual study of his divisions' Operations with a view toward
internal changes for the good of the division.

Examples of Duties: To handle all matters pertaining

 

to the three units under his control and prepare monthly 1
schedules Of assignments; to review acts and reports Of sub-
ordinate agents; to contact agents in the respective divisions
continually to determine discipline, energy and activity,
neatness, accuracy in reporting, courage, thoroughness in
dignity; to make assignments within the division; to follow-

up and review the work of all subordinate agents; to train

the personnel under his direction; to assure the full Obedience
to rules and regulations; to supervise the plan of beat layout
or investigative assignments for his divisions; to assure
prOper reporting; to make all necessary inspections; to
encourage the men to confide freely in him, to recognize the
continuous high quality of service or especially meritorious
act by citation on the agents' personnel records.

Minimum Qualifications

 

Education and Experience: Education equivalent to
that represented by graduation from an accredited college or
university with a degree in police administration, law or

accounting and at least four years of successful police work,

184

one of which shall have been in a rank above that of agent or
patrolman of the National Bureau of Investigation or some
other public jurisdiction.

Height and Weight Measurements: Should conform to the

 

schedule established for agents and patrolmen with minor vari-
ations to be allowed with advancing age.

Specialized Knowledge, Abilities, and Skills: Social

 

and general intelligence; a high degree of leadership; tact,
good character; medical and physical fitness; ability to
treat public with courtesy and, when the occasion demands,
with firmness; ability to organize the Bureau for the effec-
tive performance of its functions; ability to plan and main—
tain a steady flow of work through the Bureau; ability to
delegate details to subordinate officers yet supervise and
control their Operations; ability to secure and hold their
confidence; ability to COOperate the work Of all divisions
under his control; ability to secure the confidence of the
public in the fairness and effectiveness Of performance of
police functions; fundamental knowledge Of police problems
and procedures; familiarity with current develOpments in
police science and administration; acquaintance with basic
literature in the field of police administration; ability to
maintain cooperative relations with law enforcement agencies;
ability to issue intelligible directions and orders and
secure their execution; ability to exercise good judgment

in matters pertaining to the personnel of his divisions.

185

3. Class Title: Assistant Director for Services

Class Definition

General Duties: On assignment to serve as Chief Of

 

the uniformed division of the National Bureau Of Investigation
and the plainclothes security division as well, third in com-
mand of the National Bureau of Investigation; to carry out the
orders and assignments of the Director; to assure the mainten-
ance of order; enforcement Of laws and protection of the lives
of the President of the Republic of Liberia; his immediate
family and other Officials of government and foreign digni-
taries that the President orders protective security for; and
to provide security for the Executive Mansion grounds; the
capitol building and grounds, the treasury department and the
post Office department.

Supervision Exercised: Over all personnel of the

 

National Bureau of Investigation assigned to the Executive
Mansion Special Security Police Division and the Security

Division; shall assume full administrative command of the

National Bureau of Investigation during the absence of the
Director and the Assistant Director for Investigation.

Supervision Received: Reports the activities of the

 

divisions under his supervision to the Director daily in
writing and, from time to time, summarize these activities in
monthly reports; receives from the Director instructions as

to the General Administrative policies and methods, and advice

concerning specific procedures which are to be followed in

186

handling unprecedented problems.

Degree of Responsibility: Has responsibility for the

 

work of the divisions to which assigned; entire discretion
for methods of handling each order within the limitations set
forth by the Director; responsibility of continual study of
his divisions' Operations with a View toward internal changes
for the good Of the division.

Examples of Duties: Study crime, surveillance and

 

protective security problems; contact men in the respective
divisions continually to determine discipline, energy and
activity, neatness, accuracy in reporting, courage, thorough-
ness and dignity; to make assignments within the divisions, to
follow up and review the work of all subordinate Officers; to
train the personnel under his direction; to assure the full
obedience to the rules and regulations; to plan the beat lay-
out or investigation assignments for his division; to assure
prOper reporting; to make all necessary inspections; to en-
courage the men to confide freely in him; to recognize a con-
tinuous high quality Of service or especially meritorious act
by citation on the officers' and agents' personnel records.

Minimum Qualifications

 

Education and Experience: Education equivalent to
that represented by graduation from an accredited college or
university with a degree in police administration, law, or
accounting and four years of successful police work, one of

which shall have been in a rank above agent or patrolman Of

187

the National Bureau of Investigation or some other public
jurisdiction.

Height and Weight Measurements: Should conform to the

 

schedule established for patrolmen and agents with minor vari-
ations to be allowed with advancing age.

Specialized Knowledge,.Abilitieslpand Skills: Social

 

and general intelligence; a high degree Of leadership; tact,
good character; medical and physical fitness; ability to
treat public with courtesy and, when the occasion demands,
with firmness; ability to organize the Bureau for the effec-
tive performance of its functions; ability to plan and main-
tain a steady flow Of work through the Bureau; ability to
delegate details to subordinate Officers yet supervise and
control their Operations; ability to secure and hold their
confidence; ability to cooperate the work Of all divisions
under his control; ability to secure the confidence of the
public in the fairness and effectiveness Of performance of
police functions; fundamental knowledge of police problems
and procedures; familiarity with current developments in
police science and administration; acquaintance with basic
literature in the field of police administration; ability to
maintain cooperative relations with law enforcement agencies;
ability to issue intelligible directions and orders and
secure their execution; ability to exercise good judgment

in matters pertaining to the personnel of his divisions.

188

4. Class Title: Assistant Director for Administration

 

Class Definition

General Duties: TO be the fourth in command of the

 

Bureau in performing the administrative responsibility of the
Bureau in the line Of administration, maintenance of order,
the enforcement of laws and ordinances, the prevention of
crime and protection of life and prOperty in the Republic of
Liberia.

Supervision Exercised: Has direct charge Of all per-

 

sonnel assigned to the Secretarial Section, the Personnel
Division, the Planning and Research Division, the Supplies
and Equipment Section, and the Budgetary and Fiscal Division,
acting through their respective heads; and in full command of
the Bureau during the absences of the Director, the Assistant
Director for Investigation, and the Assistant Director for
Services.

Supervision Received: Reports the activities of the

 

divisions and sections under his supervision daily in writing
and from time to time to summarize these activities in month-
ly reports to the Director; receives from the Director in—
structions as to the general administrative policies and
methods and advice concerning Specific procedures which are
to be followed in handling unprecedented problems.

Degree Of Responsibility: Has immediate responsibil-

 

ity for the work of the units to which he is assigned; entire

discretion for methods Of handling each order within the

189

limitations set forth by the Director; responsibility of con-
tinual study Of his divisions' Operations with a View toward
internal changes for the good Of the division.

Examples of Duties: TO handle all matters pertain-

 

ing to the five units under his control and prepare monthly
schedules Of assignments; to review acts and reports of sub-
ordinate agents; to contact agents in the respective divisions
continually to determine discipline, energy and activity,
neatness, accuracy in reporting, courage, thoroughness in
dignity; to make assignments within the division; to follow-
up and review the work of all subordinate agents; to train

the personnel under his direction; to assure the full Obedience
to rules and regulations; to supervise the plan Of beat layout
or investigative assignments for his divisions; to assure
prOper reporting; to make all necessary inspections; to
encourage the men to confide freely in him, to recognize the
continuous high quality of service or especially meritorious
act by citation on the agents' personnel records.

Minimum Qualifications

 

Education and Experience: Education equivalent to

 

that represented by graduation from an accredited college or
university with a degree in police administration, law or
accounting and at least four years of successful police work,
one of which shall have been in a rank above that Of agent or
patrolman Of the National Bureau of Investigation or some

other public jurisdiction.

190

Height and Weight Measurements: Should conform to

 

the schedule established for agents and patrolmen with minor
variations to be allowed with advancing age.

Specialized Knowledge, AbilitiesJ and Skills: Social

 

and general intelligence; a high degree of leadership; tact;
good character; medical and physical fitness; ability to
treat public with courtesy and, when the occasion demands,
with firmness; ability to organize the Bureau for the effec-
tive performance of its functions; ability to plan and main-
tain a steady flow Of work through the Bureau; ability to
delegate details to subordinate Officers yet supervise and
control their Operations; ability to secure and hold their
confidence; ability to COOperate the work of all divisions
under his control; ability to secure the confidence Of the
public in the fairness and effectiveness Of performance of
police functions; fundamental knowledge Of police problems
and procedures; familiarity with current develOpments in
police science and administration; acquaintance with basic
literature in the field of police administration; ability

to maintain cooperative relations with law enforcement agen-
cies; ability to issue intelligible directions and orders
and secure their execution; ability to exercise good judg-

ment in matters pertaining to the personnel of his divisions.

191

5. Class Title: Assistant Director for Field Offices

 

Class Definition

General Duties: TO be the immediate Assistant to the

 

Director for all general area assignments and fifth in command
of the Bureau in performing the administrative responsibility
Of the Bureau in the line of investigation, maintenance of
order, the enforcement of laws and ordinances, the prevention
of crime and protection of life and prOperty in the Republic
of Liberia.

Supervision Exercised: Has direct charge Of personnel

 

of the Field Offices and may serve as acting Director during
the absences of the Director, the Assistant Director for In—
vestigation, the Assistant Director for Services, and the
Assistant Director for Administration; exercises general super-
vision of the County, Territorial, and Provincial details,
acting through the Senior Special Agents for County and Pro-
vincial Inspection.

Supervision Received: Reports the activities of the

 

areas under his supervision daily in writing andfrom time to
time to summarize these activities in monthly reports to the
Director; receives from the Director instructions as to the
general administrative policies and methods and advice con-
cerning specific procedures which are to be followed in hand—
ling unprecedented problems.

Degree of Responsibility: Has immediate responsibility

 

for the work of the units to which he is assigned; entire

192

discretion for methods of handling each order within the
limitations set forth by the Director; responsibility of con-
tinual study of his areas' Operations with a view toward in-
ternal changes for the good of the Offices.

Examples of Duties: To handle all matters pertaining

 

to the General Area assignments under his control and prepare
monthly schedules of assignments; to review acts and reports
of subordinate agents; to contact agents in the respective
areas continually to determine discipline, energy and activity,
neatness, accuracy in reporting, courage, thoroughness in
dignity; to make assignments within the units; to follow-up
and review the work of all subordinate agents; to train the
personnel under his direction; to assure the full obedience
to rules and regulations; to supervise the plan Of beats,
layout or investigative assignments for his divisions; to
assure prOper reporting; to make all necessary inspections;
to encourage the men to confide freely in him, to recognize
the continuous high quality of service or especially meri-
torious acts by citation on the agents' personnel records.

Minimum.Qpa1ifications

 

Education and Experience: Education equivalent to

 

that represented by graduation from an accredited college or
university with a degree in police administration, law or
accounting and at least four years of successful police work,
one of which Shall have been in a rank above that Of agent

or patrolman of the_National Bureau of Investigation or some

193

other public jurisdiction.

Height and‘Weight Measurements: Should conform to

 

the schedule established for agents and patrolmen with minor
variations to be allowed with advancing age.

Specialized Knowledge, Abilities, and Skills: A

 

high degree of social and general intelligence; medical, men-
tal, and physical fitness; fundamental knowledge of police
science, problems, methods, and administration; knowledge of
modern techniques of criminal investigation and identification;
knowledge of the principles of protective security; ability to
lead and have the respect of fellow Officers; good character;
tact; ability to treat the public with courtesy and, when the
occasion demands, with firmness; skill in planning and check-
ing on work; ability to delegate details to others and super-
vise and control their activities; ability to maintain coop-
erative arrangements with the Assistant Director for Investi-
gation; ability to issue intelligible directions and orders
and serve their execution; ability to apply good judgment and

practical sense to the work Of the Field Offices.

6. Class Title: Senior Special Agent-In-Charge

 

Class Definition

General Duties: On assignment tO serve as supervisor

 

of the county and provincial details directly supervising the
duties of the Special Agents-In-Charge of the field Offices

and to carry out orders and assignments Of the Assistant

194

Director for Field Offices; to assure the maintenance of
order, enforcement of national laws and ordinances, and pro-
tection of life and prOperty in the Republic of Liberia.

Supervision Exercised: Over Special Agents-In-Charge

 

assigned to the Field Offices; or in the absence of the Direc-
tor and his assistants over all officers and agents present
at any emergency.

Suparvision Received: Under direct supervision Of

 

the Assistant Director for Field Services and general super-
vision Of Director; reports the activities of the areas under
his supervision daily in writing and from time to time to
summarize these activities in monthly reports to the Assistant
Director for Field Services; receives from the Assistant
Director for Field Services instructions as to the general
administrative policies and methods and advice concerning
specific procedures which are to be follOwed in handling un-
precedented problems.

Degree Of Responsibility: Has immediate responsibil-

 

ity for the work of the county and provincial units to which
he is assigned; entire discretion for the method of handling
each order within the limitations set forth by the Director;
responsibility of continual study of his unit's Operations
with a View toward internal changes for the good of the unit.
Examples Of Duties: Study crime and security in-
vestigative problems which fall under the Bureau's juris-

diction; contact men in respective divisions continually to

 

 

195

determine discipline, energy and activity, neatness, accuracy
in reporting; courage; thoroughness and dignity; to make
assignments within the units; to follow-up and review the
work of all subordinate Officers; to train the personnel under
his direction; to assure the full obedience to the rules and
regulations; to plan the beat layout or investigative assign-
ments; to assure prOper reporting; to make all necessary in—
spections; to encourage the men to confide freely in him; to
recognize a continuous high quality of service or especially
meritorious act by citation on the agent's personnel record.

Minimum Qualifications

 

Education and Experience: Education equivalent to that

 

represented by graduation from an accredited college or uni-
versity with a degree in any specialized field and three
years' successful experience as a member of a 1aw_enforce-
ment agency, at least one of which was Spent as an agent or
a patrolman in the National Bureau of Investigation or some
other public jurisdiction.

Height and‘Weight Measurements: Should conform to the

 

schedule established for agents and patrolmen with minor vari-
ations to be allowed with advancing age.

Specialized Knowledge, Abilities, and Skills: A high
degree of social and general intelligence; medical, mental,
and physical fitness; fundamental knowledge of police science,
problems, methods and administration; knowledge Of modern

“techniques of criminal investigation and identification;

 

196

knowledge of the principles of traffic control; ability to

lead and have the respect of fellow Officers; good character;
tact; ability to treat the public with courtesy and, when the
occasion demands, with firmness; skill in planning and check-
ing on work; ability to delegate details to others and to
supervise and control their activities; ability to maintain
cooperative arrangements with the heads of the other divisions;

ability to issue intelligible directions and orders and secure

 

 

their execution; ability to apply good judgment and practical

sense to the work of his division.

7. Class Title: Special Agent-In-Charge

 

Class Definition:

General Duties: On assignment to serve as commander

 

of the security, investigation, personnel, records and com—
munications, planning and research, intelligence, budgetary
and fiscal and field Offices divisions including all other
functional units of the National Bureau of Investigation and
to carry out orders and assignments of the Director and his
assistants; to assure the maintenance Of order, enforcement
Of national laws and ordinances, and protection Of life and
property in the Republic Of Liberia.

Supervision Exercised: Over Special Agents assigned

 

to him; or in the absence of the Director and his assistants,
over all Officers and agents present at any emergency.

Sppervision Received: Under general and direct

 

197

supervision of the Director and his assistants.

Degree Of Responsibility: Has immediate responsibility

 

for the work of the divisions to which he is assigned; entire
discretion for the method of handling each order within the
limitations set forth by the Director; responsibility of con-
tinual study of his division's Operations with a view toward
internal changes for the good of the division.

Examples Of Duties: Study crime and Security inves-

 

tigative problems; contact men in respective divisions con-
tinually to determine discipline, energy and activity, neat-
ness, accuracy in reporting, courage, thoroughness, and
dignity; to make assignments within the division or detail;
to follow-up and review the work of all subordinate Officers;
to train the personnel under his direction; to assure the
full Obedience to the rules and regulations; to plan the beat
layout or investigative assignments; to assure proper report-
ing; to make all necessary inspections; to encourage the men
to confide freely in him; to recognize a continuous high qual-
ity of service or especially meritorious act by citation on
the Officer's personnel record.

Minimum Qualifications

 

Education and Experience: Education equivalent to that

 

represented by graduation from an accredited college or uni-
versity with a degree in any Specialized field and three
years' successful experience as a member of a law enforce-

ment agency, at least one of which was Spent as an agent or

 

198

a patrolman in the National Bureau Of Investigation or some
other public jurisdiction.

Height and Weight Measurements: Should conform to the

 

schedule established for agents and patrolmen with minor vari—
ations to be allowed with advancing age.

Specialized Knowledge, Abilities, and Skills: .A high

 

degree Of social and general intelligence; medical, mental,
and physical fitness; fundamental knowledge Of police science,
problems, methods and administration; knowledge of modern
techniques of criminal investigation and identification;
knowledge Of the principles Of traffic control; ability to
lead and have the respect Of fellow Officers; good character;
tact; ability to treat the public with courtesy and, when the
occasion demands, with firmness; skill in planning and check-
ing on work; ability to delegate details to others and to
supervise and control their activities; ability to maintain
COOperative arrangements with the heads Of the other divisions;
ability to issue intelligible directions and orders and secure
their execution; ability to apply good judgment and practical

sense to the work Of his division.

8. Class Title: Captain
Class Definition

General Duties: On assignment in uniform to serve as

 

immediate commander of the Executive Mansion Special Security

Police Division; to carry out the orders and assignments of

 

 

199

the Director; tO assure the maintenance of order, enforcement
of national laws and ordinances, and the protection of the
lives Of the Chief Executive, his official family and other
designated dignitaries of foreign governments; and the pro-
tection of life and property in the Republic of Liberia.

Supervision Exercised: Over Lieutenants assigned to

 

him; or in the absence Of the Director and his assistants

over all Officers and agents present at any emergency.

 

Supervision Received: Under general supervision of

 

the Director and under direct supervision Of the Assistant
Director for Services.

Degree of Responsibility: Has immediate reSponsibility

 

for the work of the division to which assigned; entire dis-
cretion for method of handling each order within the limita-
tions set forth by the Director; responsibility of continual-
study of his division's Operations with a View toward internal
changes for the good of the division.

Examples of Duties: Study crime and security inves-

 

tigative problems; contact men in respective divisions con-
tinually to determine discipline, energy and activity, neat-
ness, accuracy in reporting, courage, thoroughness, and
dignity; to make assignments within the division or detail;
to follow-up and review the work of all subordinate officers;
to train the personnel under his direction; to assure the
full Obedience to the rules and regulations; to plan the beat

layout or investigative assignments; to assure proper report-

200

ing; to make all necessary inspections; tO encourage the men
to confide freely in him; to recognize a continuous high qual-
ity of service or especially meritorious act by citation on
the officer's personnel record.

Minimum Qualifications

 

Education and Experience: Education equivalent to that

 

represented by graduation from an accredited college or uni-
versity with a degree in any Specialized field and three
years' successful experience as a member of a law enforce—
ment agency, at least one of which was Spent as an agent or
a patrolman in the National Bureau of Investigation or some
other public jurisdiction.

Height and‘Weight Measurements: Should conform to the

 

schedule established for agents and patrolmen with minor vari-
ations to be allowed with advancing age.

Specialized Knowledge, Abilities, and Skills: A high

 

degree of social and general intelligence; medical, mental,
and physical fitness; fundamental knowledge of police science,
problems, methods and administration; knowledge of modern
techniques of criminal investigation and identification;
knowledge Of the principles Of traffic control; ability to
lead and have the respect of fellow officers; good character;
tact; ability to treat the public with courtesy and, when the
occasion demands, with firmness; skill in planning and check-
ing on work; ability to delegate details to others and to

supervise and control their activities; ability to maintain

 

201

cooperative arrangements with the heads of the other divisions;
ability to issue intelligible directions and orders and secure
their execution; ability to apply good judgment and practical

sense to the work Of his division.

9. Class Title: Lieutenant

 

Class Definition

General Duties: On assignment in uniform to serve as

 

supervisor of the Treasury Department and Post Office guards
and the various units and Shifts of the Executive Mansion
Special Security Police Division and all other functional
units of the National Bureau of Investigation; to carry out
the orders and assignments of the Director through channels;
to assure the maintenance Of order, enforcement of national
laws and ordinances; and the protection of the lives of the
Chief Executive, his Official family and other designated
official dignitaries of foreign governments, and protection
of life and property in the Republic of Liberia.

SUpervision Exercised: Over Sergeants and patrolmen
assigned to him; or in the absence of the Director, his
assistants, and superior Officers, over all sergeants, agents
and patrolmen present at any emergency.

Supervision Received: Under general supervision Of the

 

Director and under direct supervision Of the Assistant Direc-
tor for Services and a Captain of the Executive Mansion

Special Security Police Division.

 

202

Degree Of Responsibility: Has immediate responsibil-

 

ity for the work of the units and Shifts to which assigned;
entire discretion for the method of handling each order
within the limitations set forth by the Director; responsi-
bility Of continual study of his division's or shift's Oper-
ations with a View toward internal changes for the good of
the division or shift.

Examples of Duties: Study crime and security inves-

 

tigative problems; contact men in respective divisions con—
tinually to determine discipline, energy and activity, neat-
ness, accuracy in reporting, courage, thoroughness, and
dignity; to make assignments within the division or detail;
to follow—up and review the work Of all subordinate Officers;
to train the personnel under his direction; to assure the
full Obedience to the rules and regulations; to plan the
beat layout or investigative assignments; to assure proper
reporting; to make all necessary inspections; to encourage
the men to confide freely in him; to recognize a continuous
high quality of service or especially meritorious act by
citation on the Officer's personnel record.

Minimum Qualifications

 

Education and Experience: Education equivalent to

 

that represented by graduation from an accredited college or
university with a degree in any Specialized field and three
years' successful experience as a member of a law enforcement

agency, at least one of Which was Spent as an agent or a

 

203

patrolman in the National Bureau of Investigation or some
other public jurisdiction.

Height and‘Weight Measurements: Should conform to the

 

schedule established for agents and patrolmen with minor vari-
ations to be allowed with advancing age.

Specialized Knowledge, Abilities, and Skills: A high

 

degree of social and general intelligence; medical, mental,
and physical fitness; fundamental knowledge Of police science,
problems, methods and administration; knowledge of modern
techniques of criminal investigation and identification;
knowledge of the principles of traffic control; ability to
lead and have the respect of fellow officers; good character;
tact; ability to treat the public with courtesy and, when the
occasion demands, with firmness; Skill in planning and check-
ing on work; ability to delegate details to others and to
supervise and control their activities; ability to maintain
cooperative arrangements with the heads Of the other divisions;
ability to issue intelligible directions and orders and secure
their execution; ability to apply good judgment and practical

sense to the work of his division.

10. Class Title: Special Agent

 

Class Definition

General Duties: On assignment to serve as supervisor

 

of the Interpol Clearing Section and the various shifts of

the plainclothes divisions of the National Bureau of Investi-

 

204

gation, including all other functional units Of the National
Bureau of Investigation; to carry out the orders and assign-
ments Of the Director; to assure the maintenance of order,
enforcement of National laws and ordinances, and the protec-
tion of life and prOperty in the Republic of Liberia.

Supervision Exercised: Over agents assigned to his

 

section and Shift; or in the absence of all superior officers
over all sergeants, agents, and patrolmen present at any
emergency.

Supervision Received: Under general supervision Of

 

the Director and his assistants and under direct supervision
of a Special Agent-In-Charge.

Degree of Responsibility: Has immediate responsibil-

 

ity for the work of the division, section, and shift to which
assigned; entire discretion for the method of handling each
order within the limitations set forth by the Director; re-
sponsibility of continual study of his division, section,

and shift Operations with a View toward internal changes for
the good Of the division, section, or Shift.

Examples Of Duties: Study crime and security inves-

 

tigative problems; contact men in respective divisions con-
tinually to determine discipline, energy and activity, neat-
ness, accuracy in reporting, courage, thoroughness, and
dignity; to make assignments within the division or detail;
to follow~up and review the work Of all subordinate officers;

to train the personnel under his direction; to assure the

 

 

 

205

full obedience to the rules and regulations; to plan the beat
layout or investigative assignments; to assure prOper report-
ing; to make all necessary inspections; to encourage the men
to confide freely in him; to recognize a continuous high qual-
ity of service or especially meritorious act by citation on
the Officer's personnel record.

Minimum Qualifications

 

Education and Experience: Education equivalent to

 

that represented by graduation from an accredited college or
university with a degree in any Specialized field and three
years' successful experience as a member Of a law enforcement
agency, at least one of which was Spent as an agent or a
patrolman in the National Bureau of Investigation or some
other public jurisdiction.

Height and‘Weight Measurements: Should conform to the

 

schedule established for agents and patrolmen with minor vari-
ations to be allowed with advancing age.

Specialized Knowledge, Abilities, and Skills: ,A high

 

degree of social and general intelligence; medical, mental,
and physical fitness; fundamental knowledge of police science,
problems, methods and administration; knowledge of modern
techniques of criminal investigation and identification;
knowledge Of the principles Of traffic control; ability to
lead and have the respect of fellow Officers; good character;
tact; ability to treat the public with courtesy and, when the

occasion demands, with firmness; skill in planning and check-

 

 

206

ing on work; ability to delegate details to others and to
supervise and control their activities; ability to maintain
COOperative arrangements with the heads of the other divisions;
ability to issue intelligible directions and orders and secure
their execution; ability to apply good judgment and practical

sense tO the work of his division.

11. Class Title: Sergeant

 

 

Class Definition

General Duties: On assignment, to have responsibility

 

for supervision and coordination, and control of men assigned
to general patrol duty Of the Executive Mansion Special Secur—
ity Police; to handle complaints and calls at desk; to carry
out investigations and inspections and to perform related
work as assigned.

Supervision Exercised: Over foot and motor patrol-

 

men whose work they are charged with inspecting, controlling,
and reporting upon.

Supervision Received: Under immediate direction of

 

the head of the division to which assigned, and the general ,
supervision of the Director; always subject to the direction
of the ranking Officer in any emergency.

Degree of Responsibility: Have direct responsibility

 

for the smooth functioning Of the complaint desk duties; dis-
cretion under approved rules in assigning Officers to com-

plaints; responsibility for a high type Of public relations

 

207

in dealing with the public both by telephone and in personal
contact. When on patrol inspection trips, independent judg-
ment iS exercised; sometimes in moments Of crisis, subject
to the close post-review by the Director and the head Of the
patrol division; to exercise discretion in assisting, re—
assigning, and criticising the officers supervised on patrol
duty.

Examples Of Duties: To make notes on complaints re-

 

ceived at the desk; typing the complaint form from such notes;
to meet and tactfully deal with visitors from the Bureau; to
give orders by telephone and to officers calling at the desk
in person; to answer inquiries Of citizens; to Operate the
communication system; to dispatch cars and patrolmen to scene
of crime or unusual occurance reported; to receive and trans-
mit messages from and to supervisory officers and patrolmen;
to assist in the maintenance of the National Bureau of Inves-
tigation's record system; to keep log record of periodic
National Bureau Of Investigation calls; to patrol in a cruis—
ing car all beats within their jurisdiction, checking National
Bureau of Investigation patrolmen and agents in the perfor—
mance of their duties; to assist patrolmen and agents whenever
in need of help; to answer adequately all questions Of patrol-
men and agents concerning security performance and methods;

to report any breach of duty or inefficiency; to Observe the
minor faults of patrolmen and agents on duty and correct them

by prOper instructions; to give evidence in court; to make

 

 

208

such reports as the lieutenant of the Executive Mansion
Special Security Police Division may require; to identify
persons wanted; to report matters which require attention
of other National Bureau of Investigation agencies.

Minimum Qualifications

 

Education and Experience: Graduation from an accred-

 

ited college or university or its equivalent, and at least

two years Of successful experience as patrolman or agent Of
the National Bureau Of Investigation or other public juris-
diction.

Height and Weight Measurements: Should conform to

 

the schedule established for patrolmen and agents with minor
variations to be allowed with advancing age.

Special Knowledge, Abilities, and Skills: Social and

 

general intelligence; medical and physical fitness; complete
knowledge of patrolman's or agent's work; up-to-date famili—
arity with the latest developments in police science;
knowledge of modern methods of detection, identification,
protective security, and investigation; familiarity with
traffic control principles; skill in the use of fire arms,
ability to meet the public with courtesy; but when the
occasion demands, with firmness; aptitude for leadership;
the respect of other members Of the force; tact; good char-
acter; ability to understand and carry out complex directions
both oral and written; complete familiarity with the laws,

ordinances, rules and regulations affecting police work in

 

 

 

209

the Republic Of Liberia.

12. Class Title: agents

Class Definition

General Duties: To be personally reSponsible in an

 

assigned district or beat during a specified period, in
plainclothes, for the maintenance Of order, the enforcement
of laws and ordinances and the protection of the lives of the
President, his immediate family, other Officials of govern-
ment and foreign dignitaries whom the President may require
protective security for; and protection Of life and property;
to assist in the investigation of criminal Offenses and

other National Bureau Of Investigation problems assigned;

to handle other related assignments by superior Officers.

Supervision Exercised: Ordinarily none except when

 

assigned to patrol duty as acting sergeant or acting special
agent to complaint desk in absence of supervising Officer
whose authority he assumes.

Supervision Received: Under immediate supervision of
a sergeant, captain, or lieutenant; a special agent or Special
agent-in-charge who checks and supervises his activities;
gives instructions and assigns work.

Degree of Responsibility: Often required to exercise
independent judgment affecting human lives; sometimes in
moments of crisis, which is subject to close review by

superior officers. Sound judgment is required, particularly

 

 

 

210

when on foot patrol or in patrol car, in absence.of superior
Officer.

Example Of Duties: To patrol a specified beat either

 

on foot or in a patrol car; to serve in all divisions Of the
Bureau; to try doors and windows of government property and
banks when unoccupied; to direct traffic when necessary; to
make an arrest for violations of National laws and statutes
and city ordinances which fall under National Bureau Of Inves-
tigation jurisdiction; to locate missing persons; to give
evidence in court; to have custody Of prisoners; to serve on
the desk at National Bureau of Investigation headquarters

when assigned; to decide on duty when a particular act con-
stitutes a criminal Offense; to identify persons wanted in

the Republic of Liberia and Interpol or other jurisdictions
and place them under arrest; to take fingerprints; to make
reports; to Operate Bureau's motor vehicles; to Operate
motorcycle; to give general information about any part Of

the Republic where they may be assigned; to report matters
which require attention of other law enforcement agencies Of
the Republic; to look out for subversive activities, dis-
turbances and suspicious activities which concern the internal
security of the Republic and the government and administration;
to answer questions asked by the public and to give directions.

'Minimum Qualifications

 

5gp: Twenty-one to 35 years of age at time final date

is set for receiving applications for any examinations.

 

211

 

Education: Education equivalent to that represented

 

by graduation from an accredited college or university with
a degree in any field Of endeavor.

Height and‘Weight Measurements: In accordance with

 

the table Shown in classification for Patrolmen (number 13).

Special Knowledge, Abilities, and Skills: Good

 

Social and general intelligence; medical and physical well
being; fitness to be out of doors under any bad weather con-

ditions; ability to treat the public with courtesy, but when

 

the occasion demands, with firmness; aptitude for police work;
tact; good character; ability to understand and carry out
complex directions. Strength and agility are desirable traits
for this position, but are considered as less important than

the traits listed above. L

13. Class Title: Patrolmen

 

Class Definition

General Duties: To be personally responsible in an

 

assigned district or beat during a specified period, in uni-
form, for the maintenance of order, the enforcement Of laws
and ordinances and the protection of the lives Of the Presi-
dent, his immediate family, other officials of government
and foreign dignitaries whom the President may require pro-
tective security for; and protection of life and property;
to assist in the investigation of criminal offenses and

other National Bureau of Investigation problems assigned;

 

212

to handle other related assignments by superior Officers.

Supervision Exercised: Ordinarily none except when

 

assigned to patrol duty as acting sergeant or acting Special
agent to complaint desk in absence Of supervising Officer
whose authority he assumes.

Supervision Received: Under immediate supervision Of

 

 

a sergeant, captain, or lieutenant; a special agent or special
agent—in-charge who checks and supervises his activities;

gives instructions and assigns work.

 

Degree of Responsibility: Often required to exercise

 

independent judgment affecting human lives; sometimes in
moments of crisis, which is subject to close review by
superior Officers. Sound judgment is required, particularly
when on foOt patrol or in patrol car, in absence of superior
officer.

Example Of Duties: TO patrol a specified beat either
on foot or in a patrol car; to serve in all divisions of the
Bureau, totry doors and windows Of government prOperty and

banks when unoccupied; to direct traffic when necessary; to

 

make an arrest for violations Of National Laws and Statutes
and City Ordinances which fall under National Bureau of In-
vestigation jurisdiction; to locate missing persons; to give
evidence in court; to have custody Of prisoners; to serve on
the desk at National Bureau of Investigation headquarters
when assigned; to decide on duty when a particular act con-

stitutes a criminal offense; to identify persons wanted in

 

213

the Republic Of Liberia and Interpol or other jurisdictions
and place them under arrest; to take fingerprints; to make
reports; to Operate Bureau's motor vehicles; to Operate motor-
cycle; tO give general information about any part Of the Re-
public where they may be assigned; tO report matters which
require attention of other law enforcement agencies Of the
Republic; to look out for subversive activities, disturbances
and suspicious activities which concern the internal security
of the Republic and the government and administration; to
answer questions asked by the public and to give directions.

Minimum Qualifications

 

5gp: Twenty—one to 35 years Of age at time final date
is set for receiving applications for any examinations.

Education: Education equivalent to that represented

 

by graduation from an accredited college or university with
a degree in any field of endeavor.

Height and Weight Measurements: In accordance with

 

the following table:

 

 

 

Height Minimum‘Weight Maximum Weight
5 feet 4 inches 130 lbs. 135 lbs.
5 feet 5 inches 135 lbs. 140 lbs.
5 feet 6 inches 140 lbs. 145 lbs.
5 feet 7 inches 145 lbs. 150 lbs.
5 feet 8 inches 150 lbs. 155 lbs.
5 feet 9 inches 155 lbs. 160 lbs.

5 feet 10 inches 160 lbs. 165 lbs.

 

 

 

Height

5 feet ll inches
6 feet

6 feet 1 inch
6 feet 2 inches
6 feet 3 inches
6 feet 4 inches
6 feet 5 inches

Special Knowledge, Abilities, and Skills:

Minimum'Weight

 

165
170
175
180
185
190
195

lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.

2l4

Maximum‘Weight

 

170
175
180
185
190
195
200

lbs.
lbs.
lbs.
lbs.
lbs.
lbs.
lbs.

Good social

and.general intelligence; medical and physical well being;

fitness to be out of doors under any bad weather conditions;

afloility to treat the public with courtesy, but when the

occasion demands, with firmness; aptitude for police work;

tact; good character; ability to understand and carry out

complex directions.

Strength and agility are desirable traits

for this position, but are considered as less important than

the traits listed above.

215

BIBLIOGRAPHY

 

BOOKS

 

Baughman, U. E. The U.S. Secret Servicel‘What it Does and
What it Is. Washington, D.C.: Bureau of Secret
Service, 1958. 30 pp.

 

Bowen, Walter S., and Neal, Harry E. The United States
Secret Service. Philadelphia: Chilton Company--
Book Division Publishers, 1960. l96pp.

 

Clift, Raymond E. .A Guide to Modern Police Thinking. Cin-
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Coatman, John. Police. London: Oxford University Press,

1959. 2EU‘EET

Farago, Ladislas. 'War of Wits, The Anatomy of Espionage and

Intelligence. New York: Funk and'Wagnalls Company,
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Floherty, John J. Inside the FBI. New York: J. B. Lippin-
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, Our FBI, An Inside Story. Philadelphia: J. B.
Lippincott Company, 1951. 155 pp.

 

 

Fosdick, Raymond B. Police Administration. Cleveland:
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Germann, A. C. Police Personnel Mana ement. Springfield,
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Harrison, Leonard V. Police Administration Survey in Boston.
Cambridge: Harvard Press, 1934. 203 pp.

 

 

Harrison, Richard. The Story of the WOrld's Police. Londonzz
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. Scotland Yard. Chicago: Ziff Davis Publishing
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Kenney, John P., and Williams, John B. Police Operations.
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Konvitz, Milton R. (ed). Liberian Code of Laws of 1956.
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216

. Liberian Code of Laws of 1956. Vol. II. Ithaca,
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pp. 542-550.

 

 

Leonard, Vivian Anderson. Felice Organization and Mana ement.
New York: Brooklyn FoundatiOn Press, 1951. 50 pp.

 

Lowenthal, Max. The Federal Bureau of Investigation. New
York: William Sloane Association, Inc., 0. 465 pp.

 

Marx, Fritz MOrstein. Elements of Public Administration.
Englewood Cliffs, New Jersey: Prentice Hall, 1959.
621 pp.

 

Maugham, R. C. F. The Republic of Liberia. London: G.
Allen and Urwin, Ltd.,l920. 299 pp.

 

McCants, T. and Stewarts. Revised Statutes of the Republic
of Liberia. Vol. I, C1848-19117. Paris: McCants
and Stewarts, 1928. pp. 604-612.

 

 

Mosher, William E., Kingsley, J. D., and Stahl, O. G. (3rd
ed.). Public Personnel Administration. New York:
Harper, 1950. 588 pp.

 

Pfiffner, John M. The Supervision of PersonngligHuman
Relations in fhe Management of Men. Englewood Cliffs,
New Jersey: PrentiCe Hall, 1958. 500 pp.

 

 

. Public Administration. New York: Ronald Press
Company, 1960. 570 pp.

 

 

Reith, Charles. .A. New Study of Police History. Edinburgh:
Oliver andBoyd, I956. 286 pp.

 

Richardson, Nathaniel R. Liberia's Past and Present. London:
Diplomatic Press and Publishing Co., 1959. 338 pp.

 

St. Johnson, Col. T. Eric and Chapman, Samuel G. The Police
Heritage in England and America: A Developmental
Surve . E. Lansing: Michigan State University,
1962. 45 pp.

 

Scott, Sir Harold R. Scotland Yard. New York: Random House,
1955. 250 pp.

 

Smith, Bruce Jr. Police Systems in the United States.
Harper and Brothers, 1959. 338 pp.

217

Strong, Richard P. (ed.). The African Republic of Liberia

and the Belgian Congo. (Harvard Expedition, 1926—

1927). Vol. I. Cambridge: Harvard University
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White, Leonard D. Introduction to the Study of Public Admin-
istration. New York: Macmillan, 1955. 45l.pp.

Whitehead, Don F. The FBI Story. New York: Random House,
1956. 357 pp.

Wilson. 0. W. Police Administration. New York: McGraw-
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. Police Records, Their Installation and Use.

Chicago: Public AdmifiiStratiBn ServiEe, 1951.
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PUBLIC DOCUMENTS

Dictionary of U.S. Military Terms for Joint Usagu. 'Washing-

ton, D. C.: Departments of Army, Navy and Air Force,
1955.

Liberian Information Service. Cit of Monroyia, Capital of
Liberia. London: Staples Printers, Ltd., 1966?
25 PP-

. LiberialLand of Promise. 'London: Staples
Printers, Ltd., 1961. 50 pp.

 

. The Plot that Failedy_The Attempted Assassination

of President Tubman. London: Staples Printers,lltd.,
1959. 45 pp.

 

 

. LiberiaLyStory of Progress. London: Staples
Printers, Ltd., 1960. 76 pp.

Public Service Institute. Department of Public Instrugtion,
Commonwealth of Pennsylvania. Pennsylvania: Penns
Valley Publishers, Inc., State College, 1955. 247 pp.

United States Statutes aEyLarge. Vol. III (1813-1823).
Boston: Little Brown & Company, 1861. pp. 214-532.

218

PERIODICAL ARTICLES

 

American Journal of International Law. 10(1910). washington,
D.C.: The Society, I921. p. 211.

 

Bass, Barnard M. "The Leaderless Group Discussion Technique."
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Kenney, John P. "Police Human Relations in Management.” The
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Smith, Bruce. "Police DevelOpments in the United States."
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Wilson, 0. W. "Toward a Better Merit System." The Annals of
The American Academy of Political and Social Science.
Philadelphia: AmeriCan Academy of PolitiCal and
Social Science. 291:87-96, January, 1954.

 

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Gulick, Luther H., Urwick, L., and MOoney, James D. "Papers
on the Science of Administration." New York Insti-
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UniVersity, 1937. 195 pp.

 

International Association of Chiefs of Police, Inc. The
Police Yearbook. ‘Washington, D.C.: International
AssociatiOn of Chiefs of Police, 1953. 160 pp.

. The Police Yearbook. 1956. 257 pp.

 

 

The Police Yearbook. 1957. 338 pp.

 

. The Police Yearbook. 1960. 330 pp.

 

International City Managers' Association. Municipal Police
Administration. Chicago: Brock and Rankin, Inc.,
l954. 533 pp.

 

. Municipal Police Administration. 1961. pp. 1-515.

 

International Criminal Police Organization. International
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Public Administration Survey of the Police Department of
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tion, No. 3, I938. 130 pp.

219

UNPUBLISHED MATERIALS '

 

Craig, John F. "Liberia/Sierra Leone Desk Officer." Inter-
national COOperation Administration, Office of the
Director, U.S. Department of State, Washington, D.
C.: I.C.A., 1961. 7 pp.

Dean, Col. David F. M. ”Organization of the Liberian
Frontier Force." MOnrovia: Department of National
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Edwards, Lt. A.'Wilson. "A Handbook for Special Services.”
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”Prospectus for Special Services, An Investigative
and Security Agency of the Dept. of Justice." Mbn-
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8 pp.

 

"Rules and Regulations for Agents Manual." De-
partment of Justice. Monrovia: Special Services
Bureau, 1958. (Mimeographed). 7 pp.

 

Public Safety Division. "United States Agency for Inter-
national Deve10pment, Operational and Administrative
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Bureau of Special Services), and Executive Mansion
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Division, A.I.D. February, 1962. (Mimeographed).
39.pp.

Special Commission on Government Operations. Technical
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.Annual Reports of the Attorney General for the Fiscal Year
ended June 30, 1958. ‘Washington, D.C.: Department
of Justice, 1958, 1960.

 

 

220

Annual Report of the Director of the Federal Bureau of Inves-
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Washington, D.C.: Federal Bureau of Investigation,
1961.

 

 

Annual Report of the Secretary of the Treasury for the Fiscal
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States Government Printing Office, 1961.

 

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Headquarters, 1961. (Mimeographed).

 

 

Annual Report of the Commissioner of Police, Fiscal Year
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Annual Report of the Director of the National Police Force
of Liberia for the Fiscal Year l96l. Monrovia:
National Police Force Headquarters, 1961. (Mimeo.).

 

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