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ABSTRACT
A STUDY OF THE UNIFICATION OF THE

POLICE AND FIRE PROTECTION SERVICES
OF MICHIGAN STATE UNIVERSITY

by Allen Hastings Andrews, Junior

A number of United States and Canadian cities have
unified their police and fire departments--commonly called
”police-fire integration"--as a means of securing more ade-
quate service at lesser cost. This study applies the uni-
fication concept to the police and fire protection of a
large university which pays for its own police and fire
protection. The study has value for institutions which
provide or contract for their police and fire protection,
and is a contribution to the literature of police-fire uni-
fication feasibility studies.

The purpose of the study was to determine whether
a unified police-fire department is adaptable to university
police and fire protection conditions and whether such an
organization would offer financial advantages to the uni-
versity. It was hypothesized that the nature and occurrence
of police and fire incidents and called-for services on
the campus are such that the same personnel of‘a single
organization could effectively perform both types of duties.
It was also hypothesized that performance of police and

fire duties by the same personnel would provide a higher

Allen Hastings Andrews, Junior

level of service from the protection budget, allowing the
university the option of increasing protection or reducing
costs.

The study involved a detailed analysis of police
and fire conditions during the five year period 1958-1962,
including the incidence and severity of occurrences, service
duties, personnel scheduling and time expended on various
duties.. A prominent, unified police-fire department was
observed for extended periods of time over an eight year
period. Police and fire protection literature was examined
with particular emphasis on fire fighting methods and the
pro and con of police-fire unification.

The study revealed unification to be feasible if
the excessive police workload and personnel turnover condi-
tions can be rectified, and pointed to unification as a
means for remedying these problems. Fire fighting methods
and minimum necessary manpower for fire fighting operations
was determined, and from this a unified police-fire organi-
zation and a plan for its operations was designed. '

The personnel expense of the design organization
providing service equal to the existing separate agencies
was shown to be 3.5% less each year with five fewer employees.
A unified organization having the same number of employees
as the separated departments would increase the police man-
power by seven men (36%) at a 6.3% increase in salary ex-
pense. A unified department designed to operate at the

same annual personnel cost as the separated departments

Allen Hastings Andrews, Junior

would increase police personnel 20% and provide improved
fire manpower response.

The study pointed to the need for additional research
into the possibility that provision by the city (possibly
with a unified police-fire department) of both police and
fire protection under a more specific contract with meas-
urable standards for protection of university interests
might be an attractive alternative to a university-operated
agency. If the results of the additional study still re-
vealed a university Operated unified police-fire department
to have superior operating or financial advantages, then
the unified plan was recommended to the university as pro-
viding superior operational and financial benefits to the
university than is obtainable from two separate police and

fire departments.

 

___.-__..4_.V ..- .. i

A STUDY OF THE UNIFICATION OF THE
POLICE AND FIRE PROTECTION SERVICES

OF MICHIGAN STATE UNIVERSITY

BY

Allen Hastings Andrews, Junior

A THESIS

Submitted to
Michigan State University
in partial fulfillment of the requirements
for the degree of

MASTER OF SCIENCE
School of Police Administration and Public Safety

1964

/7 . .
Approved: _1 “Wowl (J C) (Lk‘k';
670 (ChairmanT

f ~-)11J1L§QJ ct (gisé7fi 041£Lz

(Membef7'

    

TABLE OF CONTENTS

CHAPTER
I. INTRODUCTION. . . . . . . . . . . . . .
PURPOSE . . . . . . . . . . . . . . .
HYPOTHESES. . ._. . . . . . . . . . .
IMPORTANCE OF THE STUDY . . . . . . .
SCOPE AND METHOD. . . . . . . . . . .
SURVEY OF THE LITERATURE. . . . . . .
Basic Theory. . . . . . . . . . . .
Descriptive Works . . . . . . . . .
Individual City Evaluations . . . .
Police and Fire Administration. . .
Periodicals . . . . . . . . . . . .
PLAN OF PROCEDURE . . . . . . . . . .
II. THE CONCEPT OF POLICE-FIRE UNIFICATION.

THE CONCEPT O O O O O O O O O O O O O

The Theory of Utilizing Fire Manpower

Forms of Unified Organizations. . .
Unification Defined . . . . . . . .
THE PROBLEMS OF UNIFICATION . . . . .
Arguments for Unification . . . . .
Arguments Against Unification . . .

TRENDS IN POLICE-FIRE UNIFICATION

Opposition Weakening. . . . . . . .

ii

PAGE

uptown:

10
14
15
19
20
21
21
22
3O
32
35
35
37
48
48

CHAPTER

Use by Larger Cities. . .

Unification to Reduce Costs

III. THE NATURE OF PUBLIC SAFETY PROTECTION AT

MICHIGAN STATE UNIVERSITY .

UNIVERSITY CHARACTERISTICS.

FIRE PROTECTION AND SERVICE

Fire Protection Agreement

Fire Protection Agency. .

Fire Prevention Agency. .

Fire Incidence and Conditions .

ADEQUACY OF FIRE PROTECTION

The NBFU Grading Schedule

Water Supply. . . . . . .

Fire Alarm System . . . .

Building and Structural Conditions.

Police Department . . . .
Fire Prevention . . . . .

Fire Department . . . . .

Summary of Fire Protection Adequacy

POLICE PROTECTION AND SERVICE

The Police Service. . . .
Criminal Incidents. . . .
Traffic Conditions. . . .

Community Services. . . .

ADEQUACY OF POLICE PROTECTION

Needs of a University Community

iii

SERVICE

PAGE

51
52

55
56
6O
6O
62
65
66
77
77
78
80
81
83
84
85
100
102
102
109
120
123
126
127

CHAPTER

Police Manpower . . . . . . . . . . . . .
Patrol Time . . . . . . . . . . . . . . .
Patrol Availability . . . . . . . . . . .
Miscellaneous Factors . . . . . . . . . .
Summary . . . . . . . .3. . . . . . . . .
IV. PLANNING FOR POLICE-FIRE UNIFICATION. . . . .
FUTURE PROTECTION AND SERVICE DEMANDS . . .
Campus Population . . . . . . . . . . . .
Area Growth ... . . . . . . . . . . . . .
Fire Protection . . . . . . . . . . . . .
Police Protection . . . . . . . . . . . .
Public Safety Manpower Forecast . . . . .
Summary . . . . . . . . . . . . . . . . .
GENERAL CONSIDERATIONS. . . . . . . . . . .
Legal Basis for Unification . . . . . . .
Political Considerations. . . . . . . . .
Organizational Considerations . . . . . .
ORGANIZATION. . . . . . . . . . . . . . . .
Administration. . . . . . . . . . . . . .
Safety Division . . . . . . . . . . . . .
Records Office. . . . . . . . . . . . . .
Police-Fire Division. . . . . . . . . . .
UNIFIED POLICE-FIRE OPERATIONS. . . . . . .
Police-Fire Priorities. . . . . . . . . .

The Basic Platoon--Minimum Duty Manpower.

iv

PAGE

130
137
139
141
143
145
145
145
146
147
150
151
152
153
153
154
155
156
156
157
157
158
160
160

160

CHAPTER

Manpower Availability . . . . . . . . . .
Fire Fighting Operations. . . . . . . . .
Inhalator—Resuscitator Service. . . . . .
Transportation of Sick and Injured. . . .
Use of Specialists for Fire Fighting... .
Duties of Fire Apparatus Operators. . . .
Fire Prevention Inspection. . . . . . . .
PERSONNEL CONSIDERATIONS. . . . . . . . . .
Uniformed Force Manpower Requirements . .
Salaries. . . . . . . . . . . . . . . . .
Student Firefighters. . . . . . . . . . .
Training. . . . . . . . . . . . . . . . .
PLANT AND EQUIPMENT FACTORS . . . . . . . .
Police-Fire Building. . . . . . . . . . .
Fire Fighting Apparatus . . . . . . . . .
Miscellaneous Equipment . . . . . . . . .
EFFECTING THE CONVERSION. . . . . . . . . .
Separation from East Lansing. . . . . . .

Apparatus Operators and Student Fire-
fighters. . . . . . . . . . . . . . . .
Pre-unification Fire Training . . . . . .
V. FINANCIAL ASPECTS OF POLICE-FIRE UNIFICATION.
UNIVERSITY POLICE-FIRE EXPENSES . . . . . .
THE COST OF UNIFICATION . . . . . . . . . .

Immediate Personnel Costs . . . . . . . .

PAGE
161
162
168
168
169
170
171
172
173
182
183
185
189
189
192
193
194

194

195
195
197
198
200

200

CHAPTER PAGE
Future Personnel Cost Benefits. . . . . . . 208
Non-personnel Costs . . . . . . . . . . . . 210
Cost of Implementing Unification. . . . . . 211

SUMMARY . . . . . . . . . . . . . . . . . . . 216

VI. CONCLUSIONS AND RECOMMENDATIONS . . . . . . . . 218
CONCLUSIONS . . . . . . . . . . . . . . . . . 218
General . . . . . . . . . . . . . . . . . . 218

Benefit Summarized. . . . . . . . . . . . . 223
Guidelines for the Unification Process. . . 225
RECOMMENDATIONS . . . . . . . . . . . . . . . 226
Additional Research . .g. . . . . . . . . . 227

The Existing Fire Protection Contract . . . 227

The Decision to Integrate . . . . . . . . . 229

vi

TABLE
I.
II.
III.
IV.
V.
VI.
VII.
VIII.

IX.

XI.
XII.
XIII.
XIV.

XV.

XVI.

XVII.

XVIII.

XIX.

LIST OF TABLES

Eight-Year Fire Alarm Experience . . . . . .
Cause of Fire Run Incidents and Fires. . . .

Eight-Year University Fire Losses. . . . . .

Total Fires Known and Method of Extinguishment

Incidence of Arson Known . . . . . . . . . .

Incidence of Major Building Fires. . . . . .
Distribution of Major Fire Losses by Month .
Distribution of Fire Alarms (1955-1962). . .
Distribution of Inhalator Alarms (1955-1962)
Distribution of Police Personnel (1962-1963)
Uniformed Police Personnel on Duty . . . . .
Minimum Desirable Uniformed Police on Duty .
Length of Service of Police Personnel. . . .
Uniformed Force Man Day Analysis, 1960-1962.
Average Annual Working Days Per Uniformed

Officer, 1960-1962 . . . . . . . . . . . .

Crime Index Offenses Known: 1951—1962 . . .

Uniform Crime Report Offenses Known, 1958-1963

Sex Offenses Known Affecting Patrol Activity,

1958-1963. 0 o o o o o o o o o o o o o o o

Offenses Known by Area of Occurrence . . . .

Incident Reports Written by Time, Day, Month,

1960-1962. 0 o o o o o o o o o o o o o o 0

vii

PAGE
67
68
69
71
71
72
73
75
76

103
104
105
107
109

109

110

113

114

116

118

TABLE

XXI.

XXII.

XXIII.

XXIV.

XXVI.

XXVII.

XXVIII.

XXIX.

XXXI.
XXXII.

XXXIII.

 

PAGE
Incident Reports Written by Platoon,

1960-1962 0 o o o o o o o o o o o o o o o o 119

Traffic-Related Activity, 1961-62 . . . . . . 121

Increase in Traffic Activities Since 1957-58. 121
Comparison of Michigan State University Char-
acteristics with the Police Units of 17
Other Large State-Supported Universities--

UCLA Study. . . . . . . . . . . . . . . . . 132
Police Personnel of Four Big 10 Universities
over 20,000 Enrollment. . . . . . . . . . . 133
University of Iowa Survey of University

Police Personnel. . . . . . . . . . . . . . 133
Crime Index and Full-Time Police Employees in

Selected Michigan Cities of 25,000 to
50,000 Population . . . . . . . . . . . . . 136

Annual Patrol Time of University Police . . . 138

Per Cent of Duty Time of Uniformed Officers
Below Lieutenant by Duty Shift and Type of

Activity, 1962. . . . . . . . . . 140

Estimated Availability of Uniformed Police
for Dispatch to Fire Alarms, 1961 and 1962. 141

Third Platoon Per Cent of Workload. . . . . . 179

Daily Uniform Police On-Duty Manpower Needs . 180
Reduction in Uniformed Police Needs by Use of

Specialists and Student Firemen . . . . . . 181

viii

TABLE

XXXIV.

XXXVI.

XXXVII.

XXXVIII.

XXXIX.

XLII.

 

PAGE

Proposed Unified Salary Schedule . . . . . . 183
Fire Apparatus . . . . . . . . . . . . . . . 192
Communications Equipment Cost. . . . . . . . 193
University Police and Fire Expenditures,

1951-1962 . . . . . . . . . . . . . . . . . 199
Comparison of the Personnel Positions and

Cost of Three Possible Approaches to an

Integrated Police-Fire Organization with

the Traditional Separated Organization

Existing in 1962-63 . . . . . . . . . . . . 201
Personnel and Cost Changes Through Unifica-

tion Shown by Per Cent Change from 1962-63

Separated Organization. . . . . . . . . . . 203
Cost of Achieving Through Separated Depart-
ments the Service Potential Obtainable

Through the Use of Existing 1962-63 Per-

sonnel Paid from University Funds in the

"Equal Personnel" Integrated Police-Fire

Organization Plan . . . . . . . . . . . . . 205
Cost of Dividing Unified 35-Man Department

into Two Separate Departments with Same

Personnel Service Level . . . . . . . . . . 206
Accumulation of Savings from Reduced Salary

Expenses to be Achieved from Integration on

the Proposed Plan and Assuming Police-Fire

ix

TABLE PAGE
Manpower Increases Based on Past Experi-
ence and Achievement of a 56-Hour Work
Week for Firemen. . . . . . . . . . . . . . 210

XLIII. Schedule of Non-recurring Costs of Unification 213

LIST OF APPENDICES

APPENDIX PAGE
I. Fire Protection Agreement . . . . . . . . . . 232
II. Michigan State University Fire Alarm Inci-
dence by Year and Time, 1955-1962 . . . . . 240
III. Michigan State University Fire Alarm Inci-
dence by Day, Month and Year, 1955-1962 . . 241
IV. Michigan State University Inhalator Runs by
”Time and Year, 1955-1962. . . . . . . . . . 242
V. Michigan State University Inhalator Runs by
Day, Month and Year, 1955-1962. . . . . . . 243
VI. University Police Expenditures, Fiscal Years
1951-1962 . . . . . . . . . . . . . . . . . 244
VII. East Lansing Fire Department Expenditures,

Fiscal Years 1951-19629 0 o o o o o o o o o 245

xi

 

CHAPTER I
INTRODUCTION

In recent years the concept of unifying police and
fire protection duties in one body of public employees--
commonly called "police-fire integration"--has received
a great deal of attention as a means for securing more pro-
tection from a given dollar expenditure. As salaries and
fringe benefits increase, the workweek of firemen and po-
licemen decreases, and all other costs of local government
increase at a time when the public is tending to resist
tax increases even as the increasing size of the urban pop-
ulation requires more service and protection. Because of
these trends a number of cities have examined the effective-
ness of their police and fire personnel.

Personnel expenses commonly run over 80% of the
police and fire budgets1 and police and fire budgets average
eighteen per cent of the municipal budget.2 Cities which
have adopted some form of police-fire integration claim a

definite financial benefit as a result.3

 

1George H. Tryon, Editor, Fire Protection Handbook,
Twelfth Edition, 1962 (Boston: National Fire Protection
Association, 1962), section 10, p. 33.

2Compendium of City Government Finances in 1962
(Washington, D.C.: United States Department of Commerce
Bureau of the Census, 1963), p. 4.

 

3Missouri Public Expenditure Survey, Combined Police

Like cities, colleges and universities commonly have
police forces or guard or watchmen services. Efforts to
find any large college or university which does not have
expenses for police or security protection have been unsuc-
cessful. A few colleges and universities also have expendi-
tures for fire department protection. Among those known
are Stanford, Illinois, Michigan, Notre Dame, Iowa State,
State University of Iowa, Purdue, Alabama Polytechnic In-
stitute, Brigham Young, and Michigan State University.4

Cost of police services for universities, in terms
of personnel, can be very substantial, involving as many
as 2.5 police employees per thousand enrolled students.5
Fire protection costs can also be considerable, exceeding
$100,000 at Michigan State University in 1961-626 and in-

volving a contribution of 18% by the University of Michigan

 

and Fire Services for Medium-Sized andSmall Cities (Jeffer—
son City: Missouri Public Expenditure Survey, February,
1960), p. 7; cites Evanston, Illinois; Oak Park, Michigan;
Winston-Salem, North Carolina; Chicago Heights, Illinois;
Oakwood, Ohio. See also: Perry Scott, ALDecade of Public
Sgget (Sunnyvale, California: City of Sunnyvale, March 13,
1 1), p. 1.

4James W. Harvey, The University and the City (Berke-
ley: Bureau of Public Administration, University of Cali-
fbrnia, December, 1958), p. A-4-5.

5Calculated from figures by Nils D. Wagenhals, Eval-
uating a Public Service Function: The_Large State Univer-
égty Campus Police Unit (Los Angeles: Bureau of Governmental
Research, University of California, 1962), p. 20.

§A_Report to the Citizens...City of East Lansing,
.£2§§_(East Lansing, Michigan: City of East Lansing Annual
Report, 1962), p. 19.

toward the Ann Arbor fire department budget.7

I. PURPOSE
It is the purpose of this study to determine whether
the concept of police-fire integration can be applied to
the police and fire protection needs of Michigan State Uni-
versity, and whether such an integrated organization would

be in the economic interests of the university.

II. HYPOTHESES

The existence of two major sets of conditions are
necessary if police-fire integration is to be appropriate
for Michigan State University and these are hypothesized
as follows:

1. The nature and occurrence of police and fire
incidents on the Michigan State University campus are such
that the same body of personnel can perform both types of
duties.

2. Performance of police and fire duties by the
same body of personnel will provide more service from the
protection dollar, allowing the university the option of

increasing protection or reducing costs.

III. IMPORTANCE OF THE STUDY
The rapidly increasing influx of college-age stu-
dents into the universities is a severe strain on univer-

sity finances. Michigan State University faces a potential

 

7Harvey, op. cit., p. A-4.

enrollment of 48,000 to 51,000 by 1972.8 The university

has been extremely hard-pressed for funds and is likely

to be increasingly so as the enrollment increases from its
present East Lansing campus figure of 25,000.9 Any means
which could reduce the university's public safety expendi-
tures or retard the rate of growth of those expenditures
would be greatly appreciated by the institution. If this
study can point to such an efficiency measure it would be
of value not only to Michigan State University but also

may aid other universities which have expenditures for both

police and fire protection.

IV. SCOPE AND METHOD

Preparation of this study has involved very detailed
analysis of the police and fire protection of Michigan State
University during a five-year period. This analysis has
included the incidence and severity of police and fire oc-
currences, manpower scheduling and the personnel time ex—
pended in various activities. These factors were analyzed
for a period of not less than three years for personnel,
five years for police incidents and more than ten years
for fire incidents. Various aspects of personnel, police

and fire incidents were analyzed in even greater depth where

 

8State News (East Lansing: Michigan State Univer-
sity), April 5, 1963, p. 1.

91963 Fall Term East Lansing campus enrollment ob-
tained from the Michigan State University Registrar's office.

the information was available. The activities of the Oak
Park, Michigan, Department of Public Safety have been ob-
served for a continuous two-week period and for additional
periods of time during the past five years. This depart—
ment and the Sunnyvale, California, department are the two
prominent completely unified departments in the United
States, and the experience of Glenford Leonard, Oak Park's
Director of Public Safety during this period of years, has
greatly benefited this study.

Since 1954 the writer has been procuring data and
material descriptive of the police-fire integration concept.
This has been supplemented by access to the even more ex-
tensive library of Glenford Leonard, the specialized fire
protection literature in the library of the University De-
partment of Public Safety, and the Michigan State Univer-
sity Library.

Police and fire operations on the university campus
have been closely observed for more than five years includ-
ing, in particular, the tactical operations of the fire
department and its state of training and leadership. Field
research and experiments in operational methods have been
conducted in the areas of officer availability, miniatur-
ized communications equipment for individual officers, pa-
trol car response time, problems of recruiting, training
and supervising student assistants, and similar matters
of importance to an integrated police-fire organization.

Many of the techniques recommended in this study are supported

 

 

 

by research in use of the techniques.

It is not intended here to provide an extensive
description of police-fire integration as it is now prac-
ticed in the United States and Canada since two recent works
excellently accomplish this function.10 Further, this study
does not present in detail the arguments for and against
unification. Arguments against will be presented if they
are pertinent to the decision process of the university
in considering adoption of police-fire integration. Argu-
ments for integration will generally be ignored with the
thought that analysis of the application of the concept
to the university's conditions should provide sufficient
data for the reader to reach his own conclusions on the
merits of police-fire unification for protection of Mich-
igan State University.

The benefits from integration may be measured in
terms of personnel efficiency and personnel costs, if pro-
tection conditions of the university are amenable to the
use of the integrated scheme of organization and operation.
Extensive analysis of the service and protection needs will
determine the operational feasibility of unification in
the university situation. The effect of unification on

costs and numbers of personnel required will be demonstrated

 

loBruce, op. cit. See also Dale E. McNeil, An In-
guiry into the Feasibility of Integrating the Pglice and
Fire Serviges of an American Municipality (M.S. Thesis,
Michigan State University, 1960).

by comparing with the existing separated organizations three
different unified organizations designed to:

1. Secure maximum service from the same number of
personnel as serving the separated departments.

2. Provide the same level of on-duty manpower serv-
ice as provided by the separated department.

3. Show what level of increased service can be
provided through unification at equal cost with the sep-
arated departments.

This study also recommends the structure and Opera-
tional principles for an integrated public safety depart-
ment on the campus to illustrate the principles of unifi-
Cation by describing its Operating procedures. Development
of this organizational model required analysis of the fire
fighting manpower needs of the university for response to
fire alarms and recommendation of a minimum on-duty fire
fighting manpower strength. This strength was then related
to the requirements for police on-duty manpower and recom-
mended uniformed manpower strength established from these

analyses.

V. SURVEY OF THE LITERATURE
The literature on police-fire unification theory
and practice provides little opportunity for scholarly re-
search, particularly the writings of those opposed to the

concept.

Basic Theory_

11 and a

Charles S. James has written a pamphlet
book which are the basic references in the theory of police-
fire unification. His book, A Frontier of Municipal Safety,
is particularly noteworthy for its first four chapters which
consider the broad spectrum of municipal safety activities
with emphasis on the similarities in purpose and method.12
In the last three chapters, he presents a design for inte-
grated public safety departments in single-station cities
and in a city of 75,000 population, and considers the prob-
lems involved in installation of a unified system. Both
James' works are objective and cautious in approach, and
suggest organizational patterns and operational methods
drawn from accepted police and fire administration prac-
tices and experience and which are related to observed
police and fire protection conditions, budgets and manpower
typical of municipalities in the United States in the early
1950's.

Fundamental to unification theory in James' mind
is the application of basic police and fire organizational

13

theory to the integrated scheme. His suggested organizations

 

11Charles S. James, Police and Fire Integration in
the Small Cit (Chicago: Public Administration Service,
1955), 84 pp.

12Charles S. James, A Frontier of Municipal Safety
(Chicago: Public Administration Service, 1955), 169 pp.

l3Ibid., p. 79.

apply the basic police organization theory that, " . . . the
field force, engaged in general duty work, is the primary
element in furnishing service to the public and it should

be assisted and supported by sufficient staff, service,

14 The broader nature of the unified

and specialist units."
public safety organization's responsibility, " . . . does
not alter the fact that the prime organizational require-
ment is to assign personnel to fill all necessary positions
and to provide sufficient supervision and specialist assist-
ance to the patrol force."ls James believes the value of
unification lies in achieving a single purpose for the pub-
1ic safety activities, the potential increase in patrol
personnel and, hence, an increase in preventive services.16
James' discussion of an integrated organization for a large
city also points to the possibility that the minimum fire
fighting crew manpower may be increased.17 The real finan-
cial incentive for use of the integration concept lies in
the realization of greater productivity and higher quality
performance from employees working fewer hours for more

money and it is this use of unification which provides the

real justification for police-fire integration in James'

 

l4Loc. cit.

lSIbid., p. 80.

161bid., p. 81.

17Ibid., p. 109.

10
I O 18
opinion.

Descriptive Works

A reasonably large quantity of information on uni-
fied operations is available, primarily from the cities
having integrated organizations. Interest in unified po—
lice-fire operations has been high and almost every city
using the theory has been obliged to publish some form of
descriptive literature. TWO major efforts have been made
to describe comprehensively the practice of integration
theory in the United States, both done as theses in 1960.

Dale E. McNeil, a commissioned officer of the United
States Air Force, doing graduate work at Michigan State
University, described the integrated systems of eighteen
cities and villages in the United States, discussed eight
cases of abandonment of the plan, considered the arguments
for and against police-fire unification and gave enough
attention to the relationship between size of a municipal-
ity and the integration concept to make the reader wish
more attention had been given the subject. McNeil then
discussed the process of planning for a unified operation,19
and he concluded that police-fire integration is feasible
and practical primarily because of the wide variety of or-

ganizational forms existing which have established its

 

l8 .
Ibid., pp. 159-160.

19
McNeil, op. cit., footnote 10.

11

adaptability to a whole range of local conditions.20 McNeil
feels most arguments against integration are without merit,21
but emphasizes the importance of legal restrictions as ob-
stacles to adoption of integration and the danger of sub-
ordination of one service to the other through the integra—
tion process.22 McNeil seems to agree with James that the
primary virtue of police-fire unification is the increased
patrol coverage and better inspection procedures which re-
sult in more effective prevention of crime, fire and acci-
dents.23

The descriptive survey of police-fire integration
by Howard I. Bruce, originally a Master's thesis at Ohio
State University, provides a good insight into the inter—
national and historical basis of integrated police-fire
practices in Great Britain, France and Canada, as well as
its development in the United States.24 Bruce describes
seventy-three cities and villages in the United States and
Canada having some degree of police-fire unification as

of January 1, 1961. Fourteen of the locations are in the

state of Michigan, including Dearborn, Farmington, Garden

 

2°Ibid., p. 3.

21Ibid., p. 2.

221bid., p. 129.

23Loc. cit.

24Bruce, OE. Cite, pp. l-So

12

City, Grosse Pointe Shores, Grosse Pointe Woods, Hunting-
ton Woods, Lapeer, Manistique, and Oak Park.25 Bruce or-
ganized his study in terms of various functional considera-
tions of integration including administration and organi-
zation, operations, personnel, economy, legal problems and
abandonments. Bruce is in accord with James that the inte-
gration emphasis is on the patrol force and this must be
supplemented by adequate specialized assistance following
usual police and fire department administrative practice.26
Bruce's detailed description of the unified operational
practices of ten United States cities shows the extremes
<3f integration theory as it has been adapted to local con-
<flitions and illustrates the wide variation of practices
«existing under the system. Evaluating the personnel fac-
tors in combined police-fire organizations causes Bruce

to conclude that training is an important factor in success
of unification, that complete utilization of individual
employees' skills and time benefits morale and lowers the
unit cost of protection, and that improved salaries accom-
panying integration improves the recruiting position of

the agency.27

Bruce gives careful consideration to the costs of

police-fire unification and writes:

 

ZSIbid., pp. 6-8.
26Ibid., p. 22.
27

Ibido’ pp. 53-540

"' ’UJ'JW

13

The administrator should not expect financial
miracles. . . . An immediate reduction in . . .
expenditures . . . is unlikely. . . .28

In a relatively stable environment the unifi-
cation of departments should not be expected to
reduce the size of the total force. . . . 9

If the city is in the midst of rapid growth, . . .
it is possible that fewer men will have to be
added. . . . Therefore, . . . a necessary increase
in the budget . . . will be less than under the
more conventionally organized concept. . . .30

Of all writers to consider the subject, Bruce gives
the greatest attention to the subject of a possible increase
.Ln.fire insurance premiums and fire losses in cities using
fiLthegrated organizations, as well as their crime experience,
c oncluding :

Experience in both the United States and Canada
has not borne out the contentions of the anti-
integrationists. Crime and fire have not run ram-
pant. Fire losses, insurance premiums, and crime
losses have not increased as a result of unifica-
tion.3l

Bruce summarizes by saying:

Integration is a positive step; it is one that
the administrator can take to improve both the pres-
ent and future financial structure of the munici-
pality as well as to improve the important, but
intangible factor: service. Integration is not
an end in itself; rather, it is a means of obtain-
ing two desirable goals: improved economy and
service.

281bid., pp. 55.

29Loc. cit.

30Ibid., p. 56.

311bid., p. 64.

32Loc. cit.

 

14

Individual City Evaluations

Studies of individual cities to determine their
suitability for use of the integrated police-fire operation
concept include some of high caliber containing excellent

material. George E. Bean, presently city manager of Grand

Rapids, Michigan, did studies of Peoria, Illinois,33 and

San Diego, California,34 while he was city manager for these
cities. Each study included analysis of police and fire
incidents and duty time involved before recommending an
iintegrated plan, and the San Diego study is particularly
zijnformative on the nature of police patrol workloads.
The Citizens Research Council of Michigan has done

several studies on the application of police-fire integra-

1Lion theory to individual cities, including Port Huron,35

36 . 37 38

C3rosse Pointe Woods, Lincoln Park, and Oak Park.

33George E. Bean, Integgation of the Fire and Police
IDepartments--A Report to the City Council (Peoria, Illinois:
l\dministrativefl Report No. 22, .June 24,1957) (mimeographed).

34George E. Bean and Howard L. McCalla, The Case
fer Better Utilization of Fire Manpower (San Diego: Report
(Df the City Manager to the City Council, June 1, 1961), 47 pp.

35Integration of Police and Fire Services in Port
Huron, Michigan, Parts I and II (Detroit: Citizens Research
Council of Michigan, Report No. 188, April 8, 1957).

36A Survey of the Integrated Police and_ Fire Opera-
tions of the rGrosse Pointe Woods Department of Public Safety

Detroit: Citizens Research Council of Michigan, Memorandum

191, June, 1957).

 

 

7Integration of Police and Fire Services in Lincoln

53§§)(Detroit: Citizens Research Council of Michigan, May,

38
Public Safety Services in Oak ParkL Michigan (De—

‘ra‘L. rv -A-’\

 

15

The Port Huron study is notable because it recommends inte-
gration in spite of the fact that,
Almost every obstacle to police and fire
efficiency has been "built-in" to the city . . .
long distances . . . international border . . .
transients . . . river front . . . old buildings
on small lots . . . railroad lines, drawbridges,
short blocks with narrow streets . . . are a few
of the more obvious problems. . . .39
In spite of these conditions, the Council felt integration
was desirable. The Oak Park study, while critical of a
number of operational conditions, and particularly so of
an inadequate number of staff, supervisory and command per—
sonnel to assist the Director, concluded that:
It is the opinion of the Research Council, as
a result of this survey, that the citizens of Oak
Park receive a substantially higher level of serv-
ice from the integrated public safety department
than would be possible for the same cost under the 0
traditionally separate police and fire department.
Police and Fire Administration
Police administration literature is relatively abun-
dant. Fire literature is essentially oriented to fire equip-
ment, operations and prevention. The International City
Managers' Association publishes two books which provide

authoritative information on current practice and theory

in police and fire administration.

 

39Integration...in Port Huron, Part I, pp;_gip.,

p. 21.

40
Public Safety Services in Oak Park, Michigan, 22-

cit., letter of transmittal dated May 18, 1956, from Loren B.
MIller.

16

Municipal Police Administration41

r Fire Administration42 are aimed entirely at the protective

and Municipal

 

 

department administrators and concern themselves with the
administrative interests of finance, budgeting, purchasing,
organization, personnel, distribution of equipment and man-
power and other administrative techniques. Each volume
is written by acknowledged authorities in the respective
fields and copy is reviewed by others before publication.
Municipal Police Administration states that the
opportunities for improving public safety through unifica-
tion are greatest in the field of prevention, using the
eyes and ears of the patrolman in all public safety under-
1:afl<ings within his capabilities. Several organizational
Eutinciples are set forth, including (1) generalization should
be carried to an extreme only with respect to patrol offi-
cers; (2) there must be adequate specialist and staff fa-
<Zilities; and (3) there must be provision for use of spec-
ialists in situations beyond the knowledge or skill of the
FNJblic safety officer.43 Need, through proper supervision

and dispatching, to avoid involvement of a large part of
44

._ -. "g...- ‘0”

the force in an area on routine matters is mentioned.

. 1Municipal Police Administration (Chicago: Inter-
nat1°nal City Managers' Association, 1954).

2Municipal Fire Administration (Chicago: Inter-
national City Managers' Association, 1956).

43 . . .
; MuniCipal Police Administration, op. c1t., p. 87.

441bid., pp. 87-88.

17

This volume suggests that the fire prevention inspector
may be analogous to the traffic specialist and the fire 1

fighting expert to the detective.45

The companion volume on fire administration presents
a.very neutral discussion of police-fire integration involv-
ing long quotations from the NBFU Bulletin No. 300 on police—
fire integration (the 1953 edition of the bulletin) and
eVen longer excerpts from James' A Frontier of Municipal a
§E£2§1, On balance, this volume takes no position on the

subject of police-fire integration.
Patrol Administration is a 1961 volume of substan-
tial size and authority describing the problems and prac-
tices of administering the police patrol force.46 It de- 3
scribes the various methods and special systems of patrol,
conSniders planning, manpower distribution, supervision,
reFKD-trting methods, communications and equipment, and gen—
”alle represents the most thorough examination of the sub-
.“cti available. The authors consider police-fire unifica-
Hot; and state that successfully integrated organizations
tend to maintain maximum patrol strength at minimum cost.47

flu: authors state that reduction in crime cost would be

\

451bid., p. 87.

466. Douglas Gourley and Allen P. Bristow, Patrol

Administration (Springfield, Illinois: Charles C. Thomas,
blisher, 1961).

47Ibid., p. 66.

 

18

the factor establishing any economy through integration

in a community/1’8 cite the advantage of manpower flexibil-

1ty obtainable,49 speak cautiously of the weakening effect

necessary specialization would have on the integrated force,50

and conclude that police-fire integration would be a satis-
factory method of supplementing patrol strength in some
communities with the decision based on crime and fire con-

ditions, personnel and political factors and population

attitudes . 51

The Grading Schedule of the National Board of Fire
figderwriters is the standard by which the fire protection
of United States cities is measured.52 Its primary orien-
tation is toward prevention of conflagration and large loss

filtes. The standards of the grading schedule are intended

Primarily as a tool for insurance rating, and are not in-

teluded as an administrative yardstick.53 However, this

Vary grading process amounts to use of the schedule as a

yardstick since the economic pressure of the insurance

\

48Loc. cit.

491bid., p. 67.

50Loc. cit.

511bid., pp. 67-68.

szmd Schedule for Grading Cities and Towns

9f the United States with Reference to Their fire Defenses
and Ph sical Conditions (New York: National Board of Fire
Underwriters, 1956).

53Municipal Fire Administration, op. cit., p. 26.

 

19

i .
n(lustry is constantly exerted against a City to comply

w -
1th the schedule standards in order to prevent insurance

 

premium penalties against its citizens. In fact, most of

t . .
he PrOViSions of the schedule seem appropriate for use

a . . . . . .
8 an administrative yardstick for evaluation of the fire

ad ‘ .
. mmlstrator's understanding of and preparation for deal-

ing .
Wlth a city's fire defenses, as pointed out in a study

of
the economic effects of the schedule.54

This study by the League of California Cities is
the fit
- st effort to interpret the effects and meaning of
t]:
QprOt/Zisions of the grading schedule to municipal admin-
jshratog-s and its discussions clearly emphasize the admin-

istrative yardstick use and value of the schedule.

W

Firemen and Fire Engineering frequently contain

egccellent articles on progressive developments in fire ad-

minis’cration and fire operational methods. Public Manage-

ment, Published by the International City Managers' Asso-

‘ ciations frequently reports developments in the use of po-

0 lice-fire unification. The Special Interest Bulletins of

the National Board of Fire Underwriters are published at

random intervals and conCern themselves with current problems

 

' of the fire service including a heavy emphasis on administrative,

‘ 54"The Fire Protection Gradin Process as Related to
he Economics of Fire Protection (Berkeley and Los Angeles:

:eague of California Cities, April, 1961), p. 3.

 

i !I' ma

 

20 j

mEmpower, training and prevention standards and discussions

TheSe bulletins are necessary to assist in interpretation

6
S the use of the grading schedule published by the NBFU.

|
of trends developing in the fire service fields of interest. )
l
I
f
1
VI. PLAN OF PROCEDURE {

i

o

Chapter II presents a discussion of the nature of
the concept of integrating police and fire services. In- I
eluded are discussions of integration history, major organi- 1

zational forms, its definition, trends in development of

integration applications and problems of its application.
The characteristics of police and fire protection
at Michigan State University are presented in Chapter III.
Chapter IV describes the application of integration
t0 Michigan State University by presenting a suggested uni-
fiecl police-fire department organization and discussing
maj or features of unified operations and manpower needs.
The financial effects of unification are considered
in Chapter V, including suggested salary scales, the cost .
0f Several different levels of integrated service contrasted
with the cost of separated police-fire protection organiza—
_ tions and considers the future financial effects of the
unified operation suggested in Chapter IV.
Chapter VI presents the conclusions drawn from this
study and makes certain recommendations concerning adoption

0
f the integrated plan of operation at Michigan State Uni-

Versity .

 

CHAPTER II

 

THE CONCEPT OF POLICE-FIRE UNIFICATION

While the performance of police patrol and fire .4

protection by the same personnel of a single organization

 

may be traced back as far as the Vigiles of ancient Rome,1 5
significant practice of the concept in the United States
seems to be a post-World War II development, although it
has been a fairly common form of organization in Canada

for many years.2 Significant in the discussions of the

 

r subject in the literature has been the problem of defining

the concept .

7 I. THE CONCEPT ’
The most satisfactory definition of police-fire

unific: ation is in terms of its objective. The purpose of

c0'Y1b.i.r1.:i_ng police and fire duties is to secure better man-

Power utilization-—to utilize the time spent in fire sta-

tions

by fire fighting personnel waiting for fires to oc-

CUI for other, more productive purposes than merely waiting

x

Fall 1: 1A. C. Germann, Frank D. Day and Robert R. J.
1111: 3!- , Introduction to Law Enforcement (Springfield,
0L8: Charles C. Thomas, Publisher, 1962), p. 38.

2Bruce, op. cit., p. 2.

 

 

 

 

 

 

 

 

 

22

on "standby" duty.3 1
‘F
T_he Theory of Utilizing Fire Manpower I

The concept of integrating fire fighting duties
with other occupations is traditional in the history of
fire fighting and to this day the largest number of fire .
fighters in the United States are the volunteer firemen {I
supporting themselves by pursuit of their normal occupations 5
until a fire occurs, when they adopt the role of fire fight-

ers.4 This volunteer organization has generally proven

very satisfactory in terms of effective fire protection

as well as in terms of reduced costs. However, many vol-

,unteer organizations (which might be called multiple occu-
pation-fire integration!) in urban and suburban situations
have had difficulty in providing effective manpower response
because their manpower may work away from the suburb in
which they live or certain areas of larger cities may not

have adequate numbers of volunteers properly distributed

to provide protection at all times.

3George E. Bean and Howard L. McCalla, The Case
fol: Better Utilization of Fire Man ower (San Diego: Report
of the City Manager to the City Council, June 1, 1961),
P- 7, and letter of transmittal.

4Municipal Fire Administration (Chicago: Inter-

na‘tional City Managers' Association, 1956), p. 42.

F1 5J. C. Robertson, "The Combined Paid and Volunteer
IEE3 Department--with Some Suggested Palliatives," Fire

~38“ ineering, Volume 115, No. 1 (January: 1962): P- 38-

61bid., p. 39.

 

23

Full-paid fire fighters were hired as the solution

‘t
° this Problem and to provide proper attention to increas-

 

:::1Y complicated fire fighting equipment. The establish-

. t 0f a full paid fire department, however, fails to pro—
Vlde the answer in many communities which simply are not .
large enough to justify employing the number of full-time

employees to have an adequate fire fighting crew always f‘

on duty. The budget effect of hiring an adequate number 5’!

 

would be overwhelming! These communities typically resort M
to combined paid and volunteer departments, and include
among their number some sizeable cities in the northeast
United States.7
The integration of many occupations with that of
‘ fire fighting is seen, therefore, not to be unconunon. In ‘
5 ffiat, fire administrators and city officials frequently 5
haVe problems with firemen who want to "integrate" their
fire fighting job with outside employment and controversies
°Ver "moonlighting" are not unusual.9
In the 1950's several cities adopted a "new" form
of integration of occupations with fire fighting. Sunny—
vale, California; Oak Park, Michigan; Glencoe, Illinois;
Dearborn, Michigan; Elgin, Illinois; Evanston, Illinois;
.\

71bid .

8 o . o
p, 201. l“inflicipal Fire Administration, 1956, op. c1t.,

91bido, pp. 109-1100

 

 

 

 

24

Winston-Salem, North Carolina; and a number of less prom-
inent cities10 integrated police duties with fire duties--
and the police-fire integration controversy commenced and
Q0ntinued with great bitterness through the 1950's.11

James pointed out that the historical fire depart—

xneait practice of assembling men at the fire station in an-
tjx:ipation of fire alarms is no longer necessary because
rmmdern.radio communications in police and fire vehicles
allows effective assembling of personnel at the scene of
the occurrence.12 He also pointed out that good police
patrol manpower distribution provides rapid response to
emergencies and that fire manpower could be placed on pa-
trol performing crime and fire prevention activities until
a:Ej_re alarm was received.13 Fire authorities feel police
have an important role in fire prevention through their
alertness to construction and remodelling conditions while

on patrol and stress the necessity of dispatch of police

k

10Bruce, op. cit., p. 2.

f1 llReaders interested in the opposition to police-
re - integration are referred to: Why We Are Opposed to

:nte ration of Fire and Police De artments (SecondfiEHition;
as1'13—1'igton,

er D.C.: International Association of Fire Fight-
Boas”; ”L‘CIO: November, 1957). Also: Integration Fact
1957 1957 (Peoria, Illinois: Fire Fighters Local 544,

12Charles 5. James, A Frontier of Municipal Safety

t:

égg‘sfhington, New York and Chicago: Public Administration
ice, 1955), pp. XVi-XViio j

 

25

t“ fires for crowd and traffic control.14

James' suggestions that firemen be sent out into

h
e Streets for prevention duties did not represent an in-

0v
“a ati0n in fire administration theory. The 1950 edition
wipal Fire Administration in Chapter 7 attributed

by the preface to Warren Y. Kimball and Horatio Bond, both

nationally known fire protection authorities, described

such a system as follows:

The fact that under present operating condi-
tions an individual fireman in an average company
goes to an alarm only about once in two days and
does not work even at a trivial fire more than once
a week does not prevent fire officials from keeping
hundreds of men sitting idle, waiting for a call
which may occur on the other side of the city,
simply to keep up required paper strength in their
scattered units. It is obviously extravagant to
have large numbers of firemen sitting waiting for
fires which they could go out and prevent.

., Vie of Radio

The fact that under a consolidation of stations
a substantial part of the on-duty fire force would
be out of quarters on active fire-prevention work
would not reduce the potential fire-fighting force
0f the department. Bach district fire prevention
Crew would work within a limited area under the
command of an officer. They would be in constant
touch with headquarters by two-way radio the same
as police cruisers on patrol. Should a fire occur
the inspection force would be quickly rounded up
by blowing the siren on their patrol vehicle. Where
Ehe fire alarm operator finds his in-quarters force
eCCDIning depleted by simultaneous calls he can order
Cattain patrol units to return to their stations

\

4 . . - a .
Defense Police De artment Coo eration in Munici a1 Fire
Special (New York: National Board of Fire Underwriters,
Interest Bulletin No. 304, April, 1958).

 

 

 

.4.
i
94
!
§
2.
.-‘

 

 

26

or dispatch them to cover other districts.15

Here is the blueprint for police—fire integration
oPerations written in 1950 by fire authorities. All one

51 .

as to do is change some of the duties advocated by the
s.
l I O O O 0

be authorities to include police patrol duties.

Studies of fire department operations lend much

support to the concept of integration. Various studies

531 Los Angeles,16 San Diego,17 Peoria, Illinois,18 Greens-

boro, North Carolina,19 as well as Evanston, Illinois, ex-
perience,20 show that less than 2% of firemen's duty time

is spent in fire fighting activities.

15Municipal Fire Administration, 1950 Edition. 22,
££§.,, p. 251. It should be noted that the 1956 edition,
wnittzen at the height of opposition to integration by the
Mflfll and NBFU, IAFF, IAFC and others, did not include these
Paragraphs .

16Missouri Public Expenditure Survey, Combined Po-
1ice and Fire Services for Medium-Sized and Small Cities
' 5Jefferson City: Missouri Public Expenditure Survey, Feb-
rUary, 1960), p. 7, footnote 7.
17George E. Bean and Howard L. McCalla, The Case

337 I3£atter Utilization of Manpower (San Diego: City of
San Diego, Office of City Manager, June, 1961), p. 11.

, 18George E. Bean, Integration of the Fire and Po-
%1_ce Departments--A Report to the City Council (City of
eoria Illinois, Administrative Report No. 22, June 24,

,
.1957) , p. 3.
l9

POliCe and
JEffe
SurVey

 

Missouri Public Expenditure Survey, Combined
Fire Services for Medium-Sized ang_Small Cities
Irson City, Missouri: Missouri Public Expenditure
, 1960), p. 7, footnote 7.
20Kent MacDougall, "Integration of Police—Fire
Spreading," The Herald-News (Passaic—Clifton, New
January 24, 1957.

Force 3
Jersey )

  

27

The trend toward shorter work weeks for firemen
has been a major factor in encouraging adoption of police—
fire integration, and many cities having integration in
Illinois adopted the plan after the state legislature re—
sPended to the urgings of firemen and required a maximum
work week of 56 hours.21 Integration offers a good chance
to give fire-fighters a shorter work week and a duty routine
which is more nearly typical of our society by bolstering
the work forces of both police and fire departments through
combined duties. A shorter work week is the major goal
of the fire fighters union and the work week continues to
be shortened in many cities each year.‘?'2
What to do with the non-fire-fighting time of fire-
men is a subject which has not received adequate attention.
Repair of parking and water meters, repair of motor vehicles,
Police protection and fire prevention are some duties which
have been suggested. Increasing police patrol protection
in this day of expanding population and increasing crime
Problems and police costs is one frequently expressed solu-

thor1.. The concept of integration holds promise of providing

 

21Maurice W. Scott, Illinois Tax Facts (Springfield,

fillinois: Taxpayers' Federation of Illinois, Column #528,
lgngéairy 17, 1958). Also: MacDougall, op. cit., January 23:
75- Also: Bruce, op. cit., p. 2.

Cit 22The Munici a1 Yearbook (Chicago: The International
andY5 Bdanagers' Association), Vol. 29 (1962), pp- 386-387;

 

28

a substantial increase in police patrol protection for a
relatively low increase in cost. For example, Peoria, Illi-

nois, in 1957 could have increased its police patrol force

from 67 to 89 men23

24

at an annually recurring cost of

$20,340. Fire prevention is an activity strongly favored

by James, who states:

No longer will any competent fire official ar-
gue that his sole job is to put out fires; rather,
he is likely to maintain stoutly that prevention
is his first responsibility. This change in atti-
tude and objective strikes straight at the heart
of the factors that previously made for police and
fire separateness. If firemen are basically pre-
ventive personnel, then obviously they cannot do
their jobs in a fire station. . . . If prevention
is the goal, social aspects are introduced into
the fire service through the work of men engaged
in home inspections, public education, and even law
enforcement. If fire prevention is to be taken to
the people, as crime and accident prevention are,
then the duties of policemen and firemen have iden-
tical objectives--to stimulate and provide leader-
ship in the community safety effort.25

Fire prevention is now recognized by most writers
in the fire protection field as the only fire department
acti:\rity likely to have much success in halting the rise
in fii_re losses in the United States. The emphasis on fire
PPEVention is so strong that the National Board of Fire
undet‘writers makes no deduction of credit for on-duty
———~__r

23 .
George E. Bean, Integration of the Fire and Police

D
‘xffissggtments--A Report to the City Council (Peoria, Illinois:
lnistrative Report No. 22, June 24, 1957), Chart XIII.

24Ibid., Chart XIV.

25
E; James, A Frontier of Municipal Safety, op. cit.,

‘ xvii.

 

15 29

manpower for those men out of the fire station inspecting
buildings.26

The attractions of police-fire integration are great
5 even in the absence of prospect for reducing police and
fire protection costs. Large increases in protection for

relatively minor increases in salaries and equipment would

 

be a. source of satisfaction to most administrators. A num-
ber of cities now have some form of police-fire unification.
Their administrators originally were notably cautious in
Predicting reductions in police-fire expenditures and gen-
erally estimated police-fire expenditures might rise in

the initial stages of the combination process. All these
administrators were quick to report a substantially better

level of service received from their expenditures.27 Recent

 

liter ature on the subject of the economy of the integration
concept describes savings of large sums of money in terms
Of the numbers of personnel (primarily firemen) not needed
becaklse of unification, but the literature does not reflect
any city which reported a reduction in actual expenditures
for police-fire protection, with the possible exception

of . . . .
Peoria, IllinOis, the success of whose integrated pro-

gram cannot yet be evaluated.28

\

the zsi’pandard Schedule for Grading cigies and Towns of
Nnited States with Reference to Their Fire Qefenses and
Nahslcal Conditions (New York, Chicago and San Francisco: ,

ional Board of Fire Underwriters, 1956), p. 55. j

27Bruce, op. cit., pp. 55-56.

28Peoria Journal-Star, January 24, 1962, p. 1.

 

 

 

 

30

Forms of Unified Organizations

7'

The outstanding characteristic of the use of the
polhixze-fire integration concept is the great variety of
orgyaunizational forms which have resulted. Almost no examples
of citiplicating organizational pattern are to be found, indi-
cai:erlg that so long as sound organizational and administra-
tixrea principles are followed, the community may tailor its
US€3 (bf the concept of police-fire unification to its local
Conditions. McNeil,29 Bruce,3O the Missouri Public Expendi-
‘busrea Survey,31 Michigan Municipal League,32 and others de-
scribe three major forms of integrated organization and
Point out that few departments falling within the general
Class actually operate in a similar manner. These three
foltnns are characterized as: 1) functional; 2) partial;
or 3) complete unification.

Functional Unification. The functional form of
intlea-gration involves preservation of two separate depart-
meat"14:5 with provision for personnel of one department to
per::Eorm duties commonly thought of as "belonging" to the

other, and for this reason is frequently referred to as

 

 

 

\
29McNeil, op. cit., p. 4.
30Bruce, op. cit., p. 13.
31Missouri Public Expenditure Survey, 9p. cit.,

pp - 2‘5.
32 . . .

bq- Police-Fire Integration in Michigan (Ann Arbor:

tfk<2higan MuniCipal League Information Bulletin No. 95, 5

QQember, 1960), pp. 2-3.

31

"<:<>c>perative" integration. Several versions of this scheme
eacj.stu Glencoe, Illinois, policemen fight fires-~its fire-
mmeri do not perform police patrol duties, although they do
pxazrform certain station duties.33 Evanston, Illinois, uses
EDCDJLice officers to provide additional manpower for large
fires. Its firemen do no police work.34

Partial Unification. A partially unified organi-
:zaaizion generally involves establishment of a third force
<31? employees performing both police and fire duties. It
1&3 a logical scheme for a city with established police and
fiiire departments whose personnel are opposed to integration,
15<>rr it allows employment of all new employees as public
Eiélfety officers and provides a means for gradual conversion
t-‘-<> total integration. Under this plan, the "unified" per—
S5<>nnel are considered police patrolmen between fires and

Elassigned to the fire department as fire fighters when an

ElJLarm is received until they are released by the fire chief

13<D become patrolmen again.35 It would also appear that

L1rider this classification lies the integrated police-fire

Eizrson squad used by Detroit for so many years and regarded

E343 a model arson organization.36 Cities using this scheme

 

\
3Bruce, op. cit., p. 15.
34Ibid., p. 16.
35 . .
McNeil, op. Cit., p. 6.
36
E) 334 Municipal Fire Administration, 1956, 0p. cit.,

 

 

‘ITI5"

32

for police-fire patrol and fire fighting duties are Bear
38

._. ' ‘—_.
‘—

5 born, Michigan, 7 Winston-Salem, North Carolina, and

Peoria, Illinois,39 among others.

41..—
A“

Total Unification. The significant characteristic

of total integration is the combination of the police a..d

' “I. r‘.._4..14‘_‘
7 ' T u.—

fire departments into one organization commonly called a

PUblic safety department. Oak Park, Michigan,40 and SunnY“
-= this

vale, California, are the two prominent examples 0.

SYStem.

 

 

Unif ication Defined
From the foregoing description of the various :orms

OE integrated police-fire operations, it is apparent that

a r11.1mber of differing definitions could be derived. Some

definitions would appear to be too all-encompassing to pro-

Vide a basis for effective discussion of police-fire inte-

grEl'tion. McNeil, for example, describes the direction of

p 4 37Missouri Public Expenditure Survey, op. cit.,

8John M. Gold, et al., Report of Fire-Police Co-

W (Winston-Salem, North Carolina: Report of City
axleger, May 14, 1958), pp. 1- 2.

39Personal observation of the writer and from con-
Ke e‘t‘Saations with the Peoria police and fire chiefs, Bernard
e11hedy and Lester Manace.

(D 40Public Safety Services in Oak Park, Michigan
Qtroit' Citizens Research Council of Michigan, May,

, p. 5.
41 .
Scott, Op. Cit., p. 2.

 

 

 

 

 

33

cranngoletely separated police and fire departments by a single
Director of Public Safety as a form of unification.4 While
triigs may be so in terms of pure logic, classifying the many
cjltzies having such administrative and policy coordinating
S){ssi:ems as "integrated police-fire departments" would not
c1 arify any discussion of the nature or extent of police-
fliaree unification. Nor does citing Detroit's police-fire
arson squad as an example of police-fire integration fur-
tlleazr the clarity of unification discussions.

The absence of controversy over this type of admin-
j—Strative and functional organization, as is the case for
a Single dispatcher providing radio service to separate
PCIJMice and fire departments, indicates these types of co-
°F>€aration do not encompass the basic issues underlying the
cc>rItroversy.

It is only when one proposes to put the bulk of
tkleé firemen on patrol as policemen, use policemen on patrol
as fire fighters and/or contemplate a possible reduction
ir1 ‘the total number of employees assigned to police patrol
ar1<3. fire fighting that the heart of the unification contro-
VeJZ‘sy is reached. For it is this version of integration
‘mblfiLch raises the questions concerning the ability of the
‘xrlfilfied organization to provide adequate protection and

seaJ:vice. These questions cover many aspects of police and

4':
"i-t'e operations and merit carefully considered appraisal.

\

 

42McNeil, op. cit., p. 6.

34

In view of this discussion, it is not difficult to
derive a definition of police-fire unification for this
study which is based on the idea that manpower assigned
in a fire station to wait for a fire alarm is manpower
wasted—-manpower which could more profitably be employed
in fire and crime prevention by assignment to patrol re-
stricted areas of a jurisdiction performing all the accepted
functions of police patrol and the additional function of
fire prevention education and inspection.

Unification is, therefore, defined as the perform-
ance of police patrol and fire fighting and routine fire
PreVention inspection duties by the same body of employees
rather than by two separate groups of employees.

It should be understood that the writer does not
contemplate that integration will necessarily affect the
spefilialist positions found to be necessary in traditionally
Orga-Ilzized police and fire departments. Fire inspectors,
investigators, training officers, records and communications
SpecsLalists would be required in an integrated organization
as in separate organizations. If the conditions of the
specialty performance are such as to warrant establishment
of a full-time specialist, it is unlikely that unification

wo
uld change the requirements.43

\

43James, A Frontier of Municipal Safety, op. cit.,
pp“ 61-62.

 

 

35

II. THE PROBLEMS OF UNIFICATION

Integration has produced one of the most bitter
controversies in the field of public safety administration.
The police, after being told that unification will tend to
ensure high salaries, will produce immediate pay raises,
will mean very little additional work for them and may tend
to better the public image of the policeman, have generally
Still been opposed to the idea but have not fought integra-
tion with the energy and bitterness characteristic of the
Opposition of the fire service personnel.44

Firemen have done everything in their power to stop
unification in any place it has been proposed. The Inter-
national Association of Fire Fighters provides financial
and legal support to any of its locals fighting integration.
The issue is a real one for the firemen, for they see in
integration the end of their profession in its traditional

fc>1:]n.

mments for Unification

Only a brief summary of arguments in favor of po-
l:LQe-fire unification will be presented here in the belief
that the study itself will develop the advantages which
a‘t‘e significant to the university.

Most frequently cited advantages claimed for the

DO lice—fire unification concept are:

\

44Michigan Municipal League, op. cit., p. 4.

36

l. Elimination of the time of firemen wasted while
they VVEiit in fire stations for alarms of fire.
2. Opportunity to increase police protection by

usecoi? the time of the firemen for the minor cost of retrain-

ing, ee<1uipment and salary increases.

3. The potential that combining the duties of the
firmneari and policemen will attach to the police some of
the Eainorable public images of firemen and remove from fire-
men tile: unfavorable image of the public employee paid to

play Checkers and watch television.

4. The opportunity to provide a challenging and
stimLIJ.Eiting occupation to both firemen and policemen by
replacing some of the tedium of the job with worthwhile
activity,

5. The opportunity to provide a work week for fire-
men more favorably comparable to prevailing work weeks of
Other public employees.

6. The opportunity to increase the level of fire
prevention activity.

7. The existence of a larger pool of personnel
adaptzealale to whatever the current public safety urgency
may k’EE rather than limited to the more infrequent major
prohlems of the fire or police service alone.

8. Through payment of higher salaries to fewer
men, lit is possible to attract a better caliber of person-

nel ‘Vllo, in turn, may provide a more enlightened, imagina-

tave, emd.competent service to the public.

6.
i!
It
3
I
3
6
3,5

 

I‘m- 1‘4”;

W

Iv v-

 

37

Arguments Against Unification

 

Because arguments and discussions of police-fire
unification by fire service personnel have commonly been
very emotional and unsupported by verifiable statements,
many of these arguments against integration will not be
discussed in the following material considering arguments
and reasons against police-fire integration. Only those
arguments will be considered which appear to have some pos-
sible basis in fact or which would have significance to
the university will be presented, in the topics below.

"Unification Will Hurt Fire Insurance Ratings."

It has been stated45 that effecting a unified police-fire
operation will result in higher fire insurance rates. Fire
insurance rates are determined by statewide loss experience,
the insurance class rating assigned a city by application

of the grading schedule of the National Board of Fire Under-
writers and the local hazards, construction, occupancy ex-
posure and private protection of the individual property
being insured.

The statement has usually meant that the grading
schedule application will penalize a city that unifies its

police and fire departments. This is not the case, according

 

4SCharles Chambers, Integrated Police and Fire De-
partments as Operated in the City of Oak Park Michigan,
as printed in Integration Fact Booki 1957 (Peoria, Illinois:
Fire Fighters Union, Local No. 544, 1957), p. 21.

38

6
to the N.B.F.U.4'

"Unification Has Not Worked." Opponents of inte-
gration have pointed to a number of cities and villages
which have discarded the unified scheme of organization
after various levels of experience and trial and cited
these to "prove" that the concept will not actually func-
tion satisfactorily. McNeil and Bruce gave careful atten-
tion to these claims.

McNeil cites lack of public acceptance, opposition
by fire and police personnel, and city and department ad-
ministrators who " . . . were not behind the program, did
not support it, and did not give it a chance for success."47

Bruce demonstrates that a number of the supposed
abandonments of the unified operational concept never re-
ally happened for the cities never actually operated an
integrated organization, and concludes:

Where integration has failed the causes can

be readily observed: poor operational policies,
inadequate preparation, poor personnel relationships,
strong political and union pressures, and above all,
weak administration. These particular problems are
not indigenous to just integration, but can be ob-

served under any form of organization.48

The Missouri Public Expenditure Survey study paid

 

46Fire and Police Depgrtments--Combining of (New
York: National Board of Fire Underwriters, Special Inter-
est Bulletin No. 300, August, 1961).

 

47McNeil, o . cit., p. 350

48Bruce, 0p. cit., p. 76.

39

scant attention to this argument, commenting:
. . . Of the six cities reported as having
rejected or abandoned an integration plan, only
three have been integrated on more than an experi-
mental basis.49
It seems obvious that where "unification has not
worked," a major factor has been an unstable political at-
mosphere which could not ensure an adequate trial of the
plan, because of weak or unwilling administrators, or the
inability to maintain control of the police and fire em-

ployees involved.

"Fire Response Time Is Unfavorably_Affected." This

 

argument, presented by the International Association of
Fire Fighters, raises a potentially serious objection to
integration. Its validity rests entirely on whether there
are enough patrolmen-fire fighters properly distributed
through the community in relation to the total number of
police and fire incidents and the location and time of their
occurrence to provide adequate assurance of prompt response
by the necessary number of fire fighters.

However, if this argument validly applies to police—
men-firemen on patrol, it equally applies to the practice
of sending an entire fire company out on property inspec-
tion, or the equally approved practice of sending individual
members of a fire company out on fire inspections. The

delay in returning to the apparatus and the possibility

 

9Missouri Public Expenditure Survey, op. cit.,
p. 11.

40

that the apparatus will be at a greater than normal distance
from the alarm location is just as likely (if not more so)
in these cases as it is that a radio-equipped patrolman

will be so delayed. Yet the fire authorities do not regard

this as an obstacle to company fire inspections. Municipal

 

Fire Administration states:

 

The rules of the fire department should pre-
scribe that fire company officers must arrange to
have inspections made. . . . Frequently up to 50
per cent of the fire companies are given inspection
assignments each week-day. . . . Experience has
shown that with the use of two—way radio there is
little delay in answering alarms and frequently
response has been speeded up where units on in- 0
spection have been near the location of the fire.
It seems obvious that with 50 per cent of the com-
panies having inspection assignment, even when care is taken
to " . . . see that enough men are in quarters for immedi-

51 there will

ate response to fire calls in every district,"
be many companies short of men when the men are sent out
alone from the station, other companies will be delayed
while they assemble their men for response and others will
have longer running distances to the alarm--exactly the
situation that would prevail with a unified operation. It
would seem that if firemen are away from their apparatus
on fire business the fire authorities have no objection,
but if they are away from their apparatus on other types

50Municipal Fire Administration, 1956, op. cit.,

 

Loc. cit.

 

 

 

41

of public safety business such as police work, then the
practice is undesirable and unsafe.

From the fire literature on the subject of inspec-
tions, it seems apparent that if patrolmen are equipped
with individual radio receivers on their person as they
go about their business, and if department regulations es-
tablish clear-cut priorities favoring fire alarms over non—
life-threatening police incidents, and if there are adequate
numbers of patrolmen-firemen for workload conditions, there
is no reason why the unified operation system should not
be entirely acceptable and practicable.

Little information is available on the actual ex-
perience of unified departments, and there seems to be some
variance between the experience of large and small communi-
ties in the response time of‘their integrated patrol cars.
Evanston, Illinois, reports that in five months' experience
police arrived before or simultaneously with the pumper in
61.8% of the occasions.52 Sunnyvale, California, reports
that the first two public safety officers on patrol showed
an average response time to alarms shorter than the fire
apparatus in residential and commercial locations and equal
in time in industrial areas and averaged half a minute slower

than the apparatus at vehicle fires.53 Winston-Salem, North

. 52Bert W. Johnson, "Evanston's Fire-Police Coopera-
tlon," The American City, LXXV (September, 1960), p. 175.

53

 

Scott, op. cit., Appendix B, p. B4.

 

42

Carolina, experienced the arrival of the fire-police patrol
car with or before the fire apparatus 79.6% of the time
in a six-month period.54 Peoria, Illinois, reports its
"Cooperating Patrolmen" arrived ahead of or with the fire
apparatus in 60.7% of the 1,694 fire alarms in the first
six months of their integrated operation, stating that they
deliberately de-emphasized response speed by patrol cars
as a safety measure.55

These figures apparently satisfy the public offi-
cials who must satisfy the public, indicating that in prac-
tice (and probably because so few fires are actually seri—
ous) such a response pattern is acceptable when balanced
against all the other pressures of public safety adminis-
tration. \

"Balance Between Fire and Police Suffers." This
is an argument against unification which has a valid basis,

56 It is incontrovertible that there

as McNeil points out.
are very few individuals trained in both police and fire
administration. Equally true is the fact that many fire-
men are completely uninterested in police work and that

the corollary is true for many policemen. However, the

coordination of diverse specialties in an organization is

S4Gold, et al., op. cit., p. 8.

55August A. DeBard, Jr., Report on Police and Fire

Dégartments (Peoria, Illinois: Report of City Manager to
City Council, No. CMD-26m63, undated), p. 8.

S- . .
EMCNEIJ, op, c1t., p. 75.

 

43

not new to the field of public administration. Mayors,
city managers, public safety commissioners, and public
safety directors in cities with separated departments have
always had the problem of securing proper balance of atten-
tion between the police and fire services with generally
successful results over a period of time. This problem

can be resolved by employing a professionally-prepared ad-
ministrator as director of police-fire activities, recog-
nizing that administrative skill is the prime concern, not
his performance as a fireman or policeman.

"Police and Fire Emergencies Conflict." This argu-
ment focusing on simultaneous emergencies can be easily
disposed of since the problem exists even when separated
departments are provided. If a city has a major fire or
conflagration, the traffic and/crowd control and building
evacuation problems of the police are very substantial.
Should they have a bank robbery at the same time, what
would they do in a small community? They would do the
best they could under the conditions by doing what seemed
most important at the time.

If simultaneous emergencies occur frequently, then
the on—duty manpower must be adequate " . . . to handle
efficiently any work load that may be reasonably antici—

pated."57 This statement in an authoritative handbook on

 

S7Tryon, op. cit., section 10, p. 10.

44

fire protection also applies to police operations and,
therefore, applies to combined police-fire operations.

Beyond the question of adequate forces on duty for
prevailing conditions, is the question of certain policy
judgments. Reading the anti-integration literature pub-
lished by the fire service gives one the impression that
police work is one emergency after another, or at least
this appears to be the Opinion held by the fire people.

Actually, relatively few of the thousands of police
calls handled each year represent emergencies in the sense
that fire alarms represent emergencies.58 For the defini-
tion of "emergency" when considering the possibility of
conflicting demands and, therefore, the necessity for es-
tablishing a priority policy, is obviously centered almost
entirely on the degree of apparent or likely threat to life
or safety or destruction of the city.

Fire alarms, unless the lack of life threat is
clearly known when the alarm is received (and this, based
on fire protection experience, is limited almost entirely
to fire situations reported outside a building), obviously
represent an emergency. Calls for inhalator-resuscitator
service also represent an obvious emergency as do reports
of suicide attempts, muggings, armed robberies, injury ve-
hicle accidents and the like. It seems unlikely, except

58James, A Frontier of Municipal Safety, op. cit.,

p. 50.

 

 

45

in isolated communities (which must, therefore, strengthen
their on-duty force because of their isolation) that in
these days of mutual aid fire agreements, and increasingly
cooperative police work that suitable priorities and pro-
cedures cannot be implemented which will deal with most
simultaneous emergencies in a manner satisfactory to the
citizens being served.

"Police and Fire Duties Dissimilar." Reference to

 

the large number of volunteer and industrial fire depart-
ments of high caliber easily refutes this argument. Com-
petency of a fire department appears more related to qual-
ity of administration than to the occupations or backgrounds
of those performing fire duties. Director Leonard of Oak
Park, Michigan, has frequently described to the writer the
relative ease with which men having competence in police
work have adapted to fireafighting duties. This would ap-
pear to be related to the flexibility of thinking which

is essential to competent police performance, making the
transition to learning fire fighting skills not too diffi-
cult if the willingness exists.

However, it is apparent that any organization will
have individuals who cannot (or will not) adjust to chang-
ing demands which their occupations make of them. Solutions
to this problem, such as separation from the service, trans-
fer to other duties or departments, re-education and indoc—

trination are problems of personnel administration and not

 

 

 

 

46

pertinent to this discussion. Again, the problem is an
administrative one, for to contend that the members of the
police and fire service are generally of such low ability
that they cannot learn firefighting and police work, in
the face of the navy wartime fire fighting experience and
the example of the thousands of volunteer fire departments
in the United States, is to hold a low opinion, indeed,

of our police and fire service personnel--an opinion which
is contrary to existing knowledge of human capabilities.

"Training Is Adversely Affected." This argument
merits serious consideration. Few police chiefs are sat—
isfied with the level of training they are able to provide
and it seems that few fire chiefs are satisfied, either.
When carefully analyzed, a comprehensive training program
in either branch of the public safety services is an expen-
sive program which requires skillful and competent manage-
ment.

Of the two public safety services, police training
at the generalist (patrolman) level appears more complex
than does the fire training at the comparable rank (fire-
man, hoseman, etc.). For police work deals to a much greater
degree with intangibles such as human nature, trends in
court decisions and social science concepts, while the fire
service is dealing in its fire fighting activities with a
subject matter primarily physical and mathematical in nature.

Ladders are raised at certain angles, hydraulic

 

 

47

systems operate in a predetermined manner, water supply
through hose streams and the performance of pumps are well
understood, as are most of the matters such as knots, forc-
ible entry, use of tools and appliances and the like which
the fireman-level of the fire service hierarchy must under-
stand. Indeed, fire training involves primarily skills

for the lowest level fire fighter and fire training activ-
ities at this level of employee have been referred to as
"drill" for years with good reason, since repetitive drill
is probably the best way in which to teach these matters
originally and then maintain a level of proficiency and
teamwork necessary for effective performance of essentially
manipulative skills.

Command and direction of fire fighting operations,
pre-planning of fire fighting at target hazards, and tech-
nical fire inspections are subjects which require consider—
ably more ability and interest than does learning the basic
fire fighting manual skills. These are specialist areas
which should be performed by specialists and the importance
of their successful performance probably justifies even
the smallest communities having at least one full—time fire
protection Specialist. It would appear that recruit train-
ing in both services is less a problem than is advanced
training in specialties, supervision and administration,
and refresher in-service training.

Because of the undeniable importance of adequately

48

trained public safety personnel, the public safety admin-
istrator must determine the necessary training time and
then convince his policy and budget making superiors of
its importance so that adequate funds and personnel and

facilities may be allocated.

III. TRENDS IN POLICE-FIRE UNIFICATION

It cannot be categorically asserted that something
as geographically diffused and involving such a relatively
small number of cities and embracing such a wide variety
of organizational and operational schemes as does the con-
cept of police-fire integration is showing a trend, and
yet, certain indications exist which are suggestive of sev-
eral trends.

The controversy over police-fire unification which
was fanned to its highest heat by national fire protection
organizations in the middle 1950's seems to be dying and
the opposition to the concept is manifesting itself at the
local level with each new prOposal for use of the concept,
rather than nationally.

McNeil points in his thesis to a trend toward use
Of the concept by increasingly larger cities, and recently
Peoria, Illinois, a city of 100,000 population, has become
the first to use police-fire integration to reduce costs

and personnel outright.

Opposition Weakening

Except for opposition from the International

49

Association of Fire Fighters AFL-CIO and its locals and

certain regional fire chiefs associations, resistance to

the integration concept by the professional fire protection
agencies appears to be lessening.
of this is obtained by comparing the first and second ver-
sions of the NBFU special interest bulletin on the subject
of combining police and fire departments.
by side are excerpts from the November 30,

its revision of August, 1961.59

1953

Fundamentally, a fire
department must be in con-
stant readiness to answer
an alarm. . . . This prime
requisite cannot be accom-
plished when firemen are
out performing the duties
of a policeman.

It seems evident
that the two types of

work . .
patible. No community has
yet develOped a plan of

combined fire-police service

which has proven feasible
and practical.

The 1961 statement on inadequate manpower must be

. are quite incom-

1953,

1961

A fire department must
be constantly available to
respond to an alarm. . . .

Such conditions generally can-
not be met when personnel are

performing police duties.

. no community has yet
developed a combined fire-

police service which has pro-
vided a properly manned and
adequately trained fire force.

evaluated in light of other authoritative statements on

the subject of fire department manning.

ial Interest Bulletin No.

59

230 published September,

For example,

1959:

Fire and Police Departments--Combining of (New

York:

National Board of Fire Underwriters,

est Bulletin No. 300, November 30, 1953); superseded by
revision published August, 1961.

An illuminating example

Following side

issue and

Special Inter-

Spec-

'

 

 

SO

. . . No departments are adequately manned
today except for those in a few of the larger
cities. . . . Between 1950 and 1959 the strength
of paid fire departments has been reduced to an
average of 0.43 members on duty per thousand pop-
ulation, and 3.4 members per company; only 11 of
the 308 departments were maintaining an average
of S or more members on duty with all companies.

Special Interest Bulletin No. 300 then goes on to
say in its revised 1961 version:

In those municipalities in which there is some
form of combined fire-police service, fire defenses
are evaluated by the National Board of Fire Under-
writers on the basis of the protection furnished,
irrespective of the specific plan in use for pro-
viding manpower. The important factor is the abil-
ity of the city to provide an adequate number of prop-
erly trained and readily available fire fighters,
rather than the specific plan under which these men
are organized.61

It can be seen that the NBFU has greatly modified
its stand on integration from outright opposition to a de-
termination to measure its results. In practice, the ap-
plication of the grading schedule by the NBFU to the uni-
fied police-fire departments has not been revised to con-
form with Bulletin No. 300. The grading schedule counts
police-fire officers on patrol as paid call-men and gives
credit for them on the basis of four police-fire officers

on duty equalling one fireman on duty in the station.62

60Fire Department Manning--On-Duty Strength (New
York: National Board of Fire Underwriters, Special Inter-
est Bulletin No. 230, September, 1959).

61

 

Fire and Police Departments--Combining of, op. cit.

62Statement to the writer by Oak Park Director of
PUblic Safety Glenford Leonard, commenting on the grading
Of his department by the NBFU.

51

If the prestige of the national fire protection
organizations is removed from the opposition to unification,
it would appear likely that other cities may be encouraged
to attempt the plan.

The police organizations, apart from some local
opposition, have generally not taken a definite stand on

unification, as McNeil shows.63

Use py Larger Cities

McNeil pointed out the change in thinking concern-
ing the supposed relationship between size of city and feas-
ibility of integration.64 Originally most persons supposed
it was a "small town" system not adaptable to larger cities,
even though James had hinted/at its adaptability to larger
cities in his work on the small city65 and had then presented
a specific model for a city of 100,000 population in A Fron-
tier of Municipal Safe’py.66

Recently, Peoria, Illinois, with over 100,000 popu—

lation, has adopted a scheme of integration,67 joining such

cities as Evanston, Illinois; Dearborn, Michigan; and

 

63McNeil, o . cit., p. 62.

64Ibid., pp. 100-101.

65James, Police and Fire Integration in the Small

City, 0p. cit., p. 62.

66James, A Frontier of Municipal Safety, pp. cit.,
PP. 101-141.

67

 

Peoria Journal-Star, February 14, 1962, p. l.

 

r wry

Vii? JW

 

52

Winston-Salem, North Carolina; which are other cities of
this population group using some form of police—fire uni-
fication. The Peoria operation is still in effect as of
the time of this writing, although under heavy political

attack which has continued from its beginning.68

Unification to Reduce Costs

Occasionally integration has been discussed as a
means of reducing manpower in a stable public safety sit-
uation. The idea has usually been rejected as unrealistic

although possible.69’

The political implications of lay-
offs and public demands for better levels of service are
commonly cited as reasons why unification should not be
used in this manner. Recently, Peoria, Illinois, defied
unification tradition and did just this. Peoria firemen,
commenting on the abolition of 39 fireman positions, in a
statement to the city manager, correctly labelled the plan
as " . . . unlike any other effort of consolidation of Fire
and Police Departments ever proposed before."70 A Coopera-
tive Police Officer Division was established and volunteer
police officers were trained in fire fighting. Ten firemen

68Peoria Journal-Star, March 4, 1963, editorial

 

page.

69James, A Frontier of Municipal Safety, op. cit.,

 

p. 160.

70August A. DeBard, Jr., Police-Fire Partial Com-

 

bination (Peoria, Illinois: Report of the City Manager

to the City Council, March 8, 1963), p. l.

53

were transferred to the police department and assigned
duties such as wagon driver, turnkey and the like not in-
volving exercise of police arrest authority. Nine firemen
retired or resigned and twenty were laid off.71 The money
saved was used to provide a 4-6% salary and wage increase
to all city employees.72
Peoria started considering unification in 1955 when
George E. Bean was city manager. His report on November 7,
1955, pointed to the trend of increasing personnel costs,
an upcoming 56-hour firemen's work week and the gradual
erosion of the city's capital improvement budget to meet
increasing salary costs.73 The plan was rejected, and then
revived again in 1957 after the state legislature adopted
a mandatory requirement for the 56-hour work week for firemen.
The 1957 plan proposed a 32% increase in the patrol
force by transfer of firemen to policing, adoption of a
56-hour fire work week and a 40-hour police work week, and
no decrease in on-duty fire manpower at a conversion cost

of $25,000 and annually recurring cost of $20,340.74 The

 

7lIbid., p. 3.

72Peoria Journal-Star, January 24, 1962, p. 1.

73George E. Bean, AReport on the Reguest for Re-
gpced Hours and Increased ng for Police and Fire Personnel,

020 Cite, ppo 4-60

74George E. Bean, Integration of the Fire and Po—

lice Departments/A Report to the City Council (Peoria,
Illinois: Report of the City Manager to the City Council,
June 24, 1957), Charts XIII and XIV.

54

cost for work week reductions under the traditional sep-
arated-department system was estimated at $143,000 annually
after the second year.75 The plan was rejected; and then
adopted in 1962, as related above, but required the lay-
off of 29 men to provide the same cost advantage to the,
city. This is the first known time that unification has
involved lay-off of existing employees. The significance
here is that a plan for integration was presented demon-
strating significant savings. It was rejected as too rad-
ical until citizen resistance to tax increases and an ob-
vious need for additional revenue and employee salary in-
creases caused its revival and adoption. '

From this discussion it can be seen that unifica-
tion of the police and fire protection functions in a single
organization has been adopted successfully by a number of
cities in various states of the United States. These cit-
ies have generally measured "success" in terms of more ef-
ficient service and in terms of dollar value. The value
of this concept of unification for a university has not
been studied and the following chapter will begin such a
study by considering the nature of police and fire protec-

tion at the East Lansing campus of Michigan State University.

75Ibid., Chart v1.

CHAPTER III

THE NATURE OF PUBLIC SAFETY PROTECTION
AT MICHIGAN STATE UNIVERSITY

The general public seems unaware of the similarity
between cities and large universities in their operations
and public service responsibilities. Most large univer—
sities perform many or all the functions of cities of com-
parable population, including police protection, water sup-
ply, street construction and maintenance, operation of park-
ing facilities, sewage disposal, and utility services such
as steam and electrical distribution, as well as the main-
tenance of sidewalks, grounds and buildings to an extent
which exceeds the responsibilities of a city of similar
population or area. A few institutions maintain fire de-
partments,l although most rely on the protection of munic-
ipal fire departments if adequate municipal protection is
available.2 Police protection is invariably a function
of any sizable college or university, although many prefer
not to describe their protective agency as a police depart-

ment.

1Among them, Stanford, University of Maryland,
University of Illinois, Oklahoma State University, Uni-
versity of Notre Dame.

2James w. Harvey, The University and the City

(Berkeley: University of California Bureau of Public
Administration, December, 1958), p. A-2.

55

56

I. UNIVERSITY CHARACTERISTICS

The pioneer land grant college, Michigan State
University, has an area of more than seven square miles
with an on-campus resident population of approximately
18,500 persons in Fall, 1962. The campus at East Lansing
is actually located in the cities of Lansing and East Lan-
sing, and in four townships-—Lansing, Meridian, Alaiedon
and Delhi. The built-up area of the campus occupies approx-
imately 900 acres and is expected to expand into an addi-
tional 900 acres within a very few years. The campus in-
cludes 422 permanent and 128 temporary buildings as well
as 40 miles of roadway, 55 miles of sidewalk, 3 1/2 miles
of bicycle path and more than 12,000 surfaced parking
spaces.3 University buildings, equipment and land had
an at—cost value of $168,280,620 in June, 1962,4 contrasted
with the assessed valuation of East Lansing property of
$39,047,200 and estimated true cash value of East Lansing
property in 1962 of $117,000,000.5 Currently (June, 1963)
nine major buildings are under construction, including a

3John Green and Jerry Moskal, "MSU 'Sun' Sheds

Light Across Mid-Michigan," The State Journal (Lansing,
Michigan), May 21, 1963, p. B—8.

 

4Michigan State University Publication: Financial
Report 1961-62 (East Lansing: Michigan State University,
Volume 57, No. 7, December, 1962), p. 3.

S_A___Report to the Citizens...City of East Lansing,
$962 (East Lansing, Michigan: City of East Lansing Annual
Report, 1962), pp. 18-19.

 

 

57

1,000-car parking ramp, and additional buildings already
authorized will bring the value of buildings under construc-
tion in Fall, 1963, to $56,000,000.6
The university has the largest resident population

on its campus of any university in the United States and
also has the largest resident female population of any
United States college or university. The population in-
cludes 6,600 persons in 203 married-housing apartment struc-
tures. The balance of the population lives in 23 dormitory
buildings and two dormitories are being opened each Fall

to add a designed capacity of 2,400 new residents to the

7 The 1962 Fall Term en-

campus every year through 1965.
rollment exceeded 25,000 students on the East Lansing cam-
pus and total enrollment could exceed 40,000 by 1970 or
go even as high as 48,000 in that year, although the uni-
versity would prefer to hold its enrollment at not more
than 35,000 if adequate facilities are built throughout
the state to provide for the expected enrollment demand.8
Traffic is a major problem for the university. It

is the largest single attraction for state trunkline traffic

in the Lansing Metropolitan Area which included a population

6The State Journal (Lansing, Michigan), July 10,
1963, p. l.

 

7Green and Moskal, op. cit., p. B-8.

8Michigan State News (East Lansing: Michigan State
University), April 5, 1963, p. l.

58

of almost 300,000 in 1960.9 Traffic volumes peak on the
hour throughout the academic day and produce more traffic
congestion than a city of similar population would experi-
ence. Manual direction of traffic at intersections has
been maintained for years and traffic-actuated traffic sig-
nals are being planned for two problem intersections. Uni—
versity planners have concluded that construction of addi-
tional parking ramps in the future may be the only feasible
means for providing adequate parking while still providing
a reasonably compact academic area. Campus planners are
also studying the use of an intra-campus bus system for
future use which would be a greatly expanded version of

the present intra-campus bus service.

Fall Term, 1963,‘wi11 witness the opening of Inter-
state freeway 496 along the west border of the university
with a major interchange on university property. Within
five years construction is planned for the extension of a
high-volume crosstown arterial highway through the campus,
expected to carry in excess of 32,000 average daily traffic

10

vehicles by 1980. The state highway department expects

25,000 vehicles to enter the campus each day from this

single highway route by 1980.

9§§psing Area Trunkline Plan (Lansing, Michigan:
Michigan State Highway Department, September, 1961), un-
numbered page discussing "Proposed Trunkline Relocation
Across M.S.U. Campus."

lOIbid.

uqu—v—vfi

 

 

 

59

The university traffic characteristics resemble
those of a central business district in a metropolitan area
in contrast to the traffic characteristics of the usual
city of 20,000--the university is the destination for high
traffic volumes rather than an artery for these high traffic
volumes passing through the city enroute to the central
business district of the core city.

The population of a university community is unlike
that of the typical city of comparable size, if for no other
reason than the proportionately high number of young adults
and older adolescents. The community exists to educate
thousands of youngsters just starting an independent life
of their own away from home. The education process requires
an exceptional degree of freedom from disorder and the
threat of violence so that the students may circulate about
the campus as their educational needs require.

Police protection is a primary function of any city,
but the bulk of a university population seems to doubt the
need for police protection in a university, and time and
funds are not available to impress the university popula-
tion with its police problems. The educational problems
of the university have far greater priority in the univer—
Sity communication process and police protection must al—
ways remain an auxiliary function of the educational com-
munity.

Regulating a population such as this under these

60

conditions is a difficult and exasperating task. Univer-
sity police personnel have a human and public relations
problem which is not faced by most other law enforcement
agencies. The artificial environment of the educational
process and the regulatory duties of university police com-
bine to make the police the personification of all the varied
"evils" which the students, faculty, staff and visitors

see in the administration of a major university. The frus-
trations of thousands of youngsters who encounter all the
complex social and regulatory controls of a large residen-
tial university (instead of the "adult freedom" they had

expected) add to the police problems.

II. FIRE PROTECTION AND SERVICE

The prevention, fire fighting and service activi-
ties commonly associated with municipal fire protection
activities are all necessary at a university. A written
fire protection agreement and financial support to the city
secures the fire fighting protection of the East Lansing
Fire Department for university property, and also secures
inhalator-resuscitator service. The university provides

its own fire prevention service.

Eire Protection Agreement
In September, 1946, the university and the City
Of East Lansing entered into a written agreement for pro-

Vision of fire protection to the university by the city--

 

61

an agreement authorized by special act of the legislature,
although the city and university had jointly undertaken
maintenance of a fire department since a fire department

11 The full text of

was established by the city in 1924.
the agreement is included as Appendix A, but it is worth
noting here that the agreement may be terminated by either
party with three months' notice and with appraisal and set-
tlement of all fire fighting equipment purchased subsequent

to the agreement, and that the university is obligated to

pay one-half the fire department expenditures except those

for fire prevention activities.

This agreement has several obvious defects in light
of present conditions. These include:

1. The absence of any standard for measuring whether
the "adequate and ample" protection provided for in the
agreement is actually being furnished.

2. The fire department is specifically relieved
of any obligation for making fire inspections on the cam-
pus—-yet it is an axiom of the fire service that " . . . fires
will be much more readily controlled when fire fighters are
familiar with the premises."12

3. The university is committed to a "blank check"

expense each year without participating in any process to

 

11A Report to the Citizens...City of East Lansing,
1962, op. cit., p. 6.

12Tryon, op. cit., section 10, p. 100.

 

62

determine in advance the value of the expenditure to the
university.

4. The 50 per cent university share of fire depart-
ment expense might also be questioned after sixteen years

of growth and change by the city and the university.

Fire Protection Agency13

 

According to the fire protection agreement, the
East Lansing fire chief is responsible for fire fighting
activities on the university property. He directs a depart-
ment that has grown to 31 men and eight vehicles (including
three automobiles) since its establishment in 1925. The
31 personnel include the chief, an assistant-chief-fire
marshal, three lieutenants, four sergeants and twenty-two
firemen. The chief and assistant-chief-fire marshal work
eight-hour days, five days a week, and provide vacation
relief for the lieutenants. The lieutenants work twenty—
four—hour shifts on a 56-hour week which amounts to approx—
imately one day on duty and two days off duty.

Organization. The sergeants and firemen are di-

 

vided into two shifts of 24 hours on--24 hours off, with
a standard "Kelly Day" off every twelve days to provide

a 70-hour work week. Each shift in the campus fire station

l3Data about the fire department taken from: Inter-

views with the Chief and Assistant Chief in March, 1963,
and annual reports of the fire department, unless other-
Wise cited.

 

 

——_é—‘—-

 

63

has a sergeant and six firemen assigned. A sergeant and
five firemen are assigned to each shift in the city's fire
station. Allowing the standard 10% for vacation, sick
leave and other scheduling problems, there should be nine
men on duty at the two fire stations every day if vacations
are properly scheduled.l4 In addition, a lieutenant or
chief officer is on duty at all times, providing ten men

on duty and available for fire fighting on any normal day.

Should the work week of personnel with less than
the rank of lieutenant be reduced to 56 hours per week,
comparable to the hours of the lieutenants and of the Lan-
sing fire department, six additional firemen would be nec—
essary to maintain the present on-duty strength. The short-
age of company officers existing under the 70-hour work week
would be further aggravated and two additional company of-
ficers would have to be designated.

In terms of the 50% financial support from the uni-
versity, exCluding the fire marshal as provided by the agree-
ment, the university can be said to "employ" 15 fire fight-
ing personnel of various ranks, and would employ 18 men
if the 56-hour work week prevailed.

Fire department records reveal that fire personnel

Spent approximately 0.8% of an estimated 46,800 available

14Based on work week factor of 2.59 for a 72-hour
Work week, modified to 2.66 for a 70—hour work week. Fac-
tor taken from: Tryon, op. cit., table lO-27B.

64

man hours in 1959 in response to fires and fire alarms.
This figure of approximately 1% spent on alarm response
seems in accord with the reported experience of other fire
departments.15

Egpipment. The fire department has purchased a
considerable quantity of apparatus in recent years. A
750-gallon per minute pumper and a service ladder truck
are housed in first line service in the city station along
with an inhalator car, a command officer's car and a sta-
tion wagon used by the fire marshal.

The campus station houses two 750-gallon per min-
ute pumpers and an aerial ladder truck with 85-foot aerial
ladder.

Except for water carrying capacity for rural fire
fighting, the basic types of apparatus are adequate for
the varied fire protection responsibilities of the fire
department, which range from very large rural buildings
in the university farms through single family dwellings
in the city to multiple—story residential and laboratory
buildings on the campus. Equipment carried on the apparatus
is adequate and appropriate for the normal fire fighting
activities of the fire department in one or two story res-
idential structures, but the equipment needed for effective
and efficient fire fighting in large, multi-storied build-
ings is not generally available as measured against the

15See p. 14, Supra.

 

 

a} ‘

65

standards of the National Board of Fire Underwriters.l6

Items of equipment most noticeably lacking on the fire
apparatus are those essential for efficient handling of

2 l/2-inch hose streams at large fires including hose clamps,
hose jackets, hose holders or portable deluge guns. "Cost
of such equipment when measured against its useful life

and its great utility at such fires makes such expenditures
a good investment in fire protection and effective utiliza-

tion of limited fire fighting manpower."l7

Fire Prevention Agency

 

Fire prevention on the campus is the responsibility
of the Director of Public Safety exercised through the fire
safety officer in four major functional areas:

1. Review of proposed building and remodelling
blueprints and submission of recommendations for fire safety
features. I

2. Routine and continuous inspection of structures
for discovery and abatement of fire hazards.

3. Planning, inspection and patrol of public events
to secure adequate attention to fire safety.

4. Conducting educational programs among the employee

l6§pggifications for Motor Fire Apparatus (Boston:

National Fire Protection Association standard No. 19, May,
1961), ppo 48-530

17The Fire Protection Grading Process as Related
£Q_the Ecogpmics of Fire Protection (Los Angeles, Berkeley:
League of California Cities, April, 1961), p. 22.

 

 

66

and student groups.

The department of public safety also maintains all
fire extinguishers, standpipe hose and inspects local fire
alarms in university buildings, using two men in 1961-62
responsible for 4,300 fire extinguishers, 52 fire alarm
systems and 36 sprinkler systems--an increase of 1,000 ex-

tinguishers (30.3%) since the fiscal year 1958—59.18

Fire Incidence and Conditions

The lack of comparability between university and
fire department records of fires and fire alarms because
of the different uses which\the agencies make of their rec-
ords forces referral to both records systems in analyzing
university fire conditions. Wherever necessary, the infor-
mation used has been reconstructed to produce data of reas-
onable reliability and accuracy and to produce comparability
where necessary either for presentation in this report or
for ensuring a reasonable standard of accuracy. Generally,
fire department records have been used for analysis of fire
runs and alarms and for actual fires and university records
have been used for analysis of the causes of actual fires
involving large losses and for arson records.

Fire Incidence. Tables I and II show the prin-

cipal characteristics of fire runs made by the fire department

18Annual Reports of the Department of Public Safety,
flichigan State Universipy.

67

TABLE I

Eight-Year Fire Alarm Experience19

 

1955 1956 1957 1958 1959 1960 1961 1962

 

I_

Actual Fires

 

 

 

 

 

 

 

 

 

Apartment buildings 2 2 S 2 2 2 5 0
Dormitories 0 5 3 4 7 4 12 6
Hotel/Hospital 0 0 0 0 1 0 0 l
Class/Laboratory 3 l 0 1 l 0 2 4
Farm Structure 0 3 0 l 2 1 l 1
Other Structure 2 3 3 4 2 p01 1 L
Sub-total 7 14 ll 12 15 7 21 15
Vehicle 3 3 1 5 5 8 6 9
Other Non-structure 15 11 12 17 13 16 15 28
Total Fires 25 28 24 34 33 31 42 52
§p_Fire Involved
False, accidental
alarms 4 4 8 8 5 10 5 5
Smoke, odors,
ballasts 28 33 34 59 53 75 79 77
Overheated oil
burners 14 25 24 19 8 0 0 0
Miscellaneous &
Service 16 25 55 41 29 30 43 33
Total Non-fire 62 87 121 127 95 115 127 115
Total Fire Runs 87 115 145 161 128 146 169 167
Inhalator Runs 34 31 21 27 26 32 27 53
121 146 166 188 154 178 196 220
19

Annual Reports, 1955-1962 (East Lansing: East
Lansing Fire Department, 1955-1962).

 

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69

on the campus. Actual fires are defined by the fire depart-
ment as fires at which fire department personnel performed
extinguishment or salvage activity. Therefore, these "ac-
tual fire" figures are not comparable with university fig-
ures which include all fires regardless of how extinguished,
including many fires never reported to the fire department.
Fire losses in the eight years of fire department

records studied are summarized below.

TABLE III

Eight-Year University Fire Losses21

(rounded to nearest $100)

 

 

 

 

Total MiEcéll. o a Fires over
Year Structure Contents Building & Vehicle Loss $1,000 Build-
ipg Loss

1955 $2,300 $4,300 $6,600 $100 $6,700 3
1956 14,700 4,700 19,400 500 19,900 2
1957 300 1,000 1,300 3,800 5,100 2
1958 4,300 4,700 9,000 1,300 10,300 3
1959 15,800 10,700 26,500 1,300 27,800 5
1960 4,300 1,500 5,800 1,300 7,100 l
1961 8,800 12,800 21,600 1,300 22,900 1
1962 10,600 5,000 15,600 900 16,500 ._2

$116,300 19

 

Fire Conditions. The figures presented above indi-

 

cate that university expansion brings with it an increasing
number of fires in spite of improving structural conditions
on the campus. The years covered have seen the removal of
the barracks married housing units, removal of a number of
older farm structures (and construction of very much larger

ZlIbid.

7O

farm structures), removal of a number of temporary instruc-
tion and office buildings with the complete removal of such
structures probable within three years. The frequency of
fires in terms of both resident population and building
area protected would seem to be decreasing steadily, as
shown by reference to the dormitory and apartment fire fig-
ures and to the total fires shown by both fire department
records and the university records. It is possible that
the sudden increase in 1962 may indicate only an unusual
year, although it would not be surprising to see this in-
crease continue in future years as the resident population
increases.

The following figures provide an interesting insight
into the nature of the fire problem on the campus. Taken
from the annual reports of/the university Department of
Public Safety, they indicate that the proliferation of fire
extinguishers and standpipe hoses in university buildings
is a very effective and inexpensive fire department. One
can also conclude that the lack of a central fire alarm
system offers potential for a serious, if not disastrous,
fire since the university records indicate that most fires
extinguished without fire department aid were also fires
at which the fire department was not called or was called
only after some extended delay.

Set fires, including arson and pranks, represent

a severe hazard potential in the university community.

 

71

 

 

 

TABLE IV
Total Fires Known and Method of Extinguishment22
"L m
Extinguished by: 1959-60 1960-61 1961-62 Total of Total
Fire Department 23 28 63 114 40
Building fire equipment 30 39 34 103 36
Other means/burned out 36 22 10 68 24
Total fires known 89 89 107 285 100%

 

Without an automatic fire detection and alarm system, the
university is vulnerable to serious losses. Further, the
tendency of students to use fire in their pranks can nullify
a great deal of the protection which the university builds
into its buildings through good design and circumvent the
prevention and inspection program. The following table
shows the known incidence of arson fires.

/

TABLE V

Incidence of Arson Known

 

 

 

 

 

Year Police Records 5 Year Fire Dept. Recordszz.

1953-54 14 1954 1
54-55 8 1955 0'
55-56 7 1956 0
56-57 14 1957 0
57-58 13 1958 1
58-59 9 1959 1
59-60 10 1960 3
60-61 9 1961 2

_y61-62 20 1962 l

_y, 104 H 9

22

Annual Reports of the Department of Public Safety,
Michigan State Universipy, 1959- 60 - 1961- 62.

231bid., 1953-54 - 1961-62.

24Annual Reports, 1955-1962 (East Lansing Fire De-
partment), op. cit.

72

TABLE VI

Incidence of Major Building Fires

 

 

 

 

Date BuiIdipg Cause Loss
2/22/55 Agriculture Hall electric hot plate $1,728.42
5/14/55 Horticulture Bldg. unknown 1,350.00
‘12/8/55 Animal Husbandry propane gas leak 3,097.36
“ 1/27/56 Home Economics transformer failure 4,896.00
‘ 1/30/56 Anthony Hall arc welding 1,000.00
12/15/56 Animal Disease
Barn overheated stove 16,090.00
‘ 2/2/57 Student Services overheated stove 996.65
‘ 8/6/57 Stadium welding 3,716.00
7/7/57 Berkey Hall defective fuse panel 1,200.00

‘ 1/8/58 Farm Lane Pump
House salamander 3,805.00
3/3/58 Fairchild Theatre clothing near light 1,363.40

4/19/58 Federal Poultry
Plant lightning 2,700.00
1/25/59 906-C Maple Lane defective wiring 4,130.28
7/22/59 939-D Cherry Lane children & matches 3,500.00

“‘10/29/59 Kedzie Chemical
Building / explosion 10,000.00

12/28/59 Quonset Post

Office arson 4,700.00

12/31/59 Federal Poultry
Plant defective oil burner 4,000.00
4/29/60 3974 College Road sparks on roof 3,195.10

‘ 8/19/60 Owen Graduate

Dormitory welding 6,000.00

2/10/61 Federal Poultry
Plant heater motor 19,750.00
3/2/62 Horticulture Barn spontaneous ignition 7,800.00
7/25/62 WMSB-TV defective wiring 6,678.24

'building under construction.
“fire department not called.
“‘laboratory experiment exploded; one killed, three injured;

loss figure does not include medical or similar expenses.

73

The incidence of serious loss fires, deaths and
injuries is low, as might be expected under the structural
conditions found in the university. Table VI (page 72)
presents information on major loss fires compiled from both
fire department and university records.

Analysis of fire causes and fire losses reveals
that six of the 22 large loss fires involved buildings
under construction and six involved buildings on univer-

sity farms and the Federal Poultry Research installation.

TABLE VII

Distribution of Major Fire Losses by Month

 

January 4 fires $13,831.28 loss
February 3 22,475.07
March 2 9,163.40
April 2 5,895.10
May 1 (1,350.00
June 0

July 2 10,178.24
_August 2 9,716.00
September 0

October 1 10,000.00
November 0

December 4 27,887.00

 

The winter months of December, January and Febru-
ary experience 52% of the fires and 58% of the losses, a
not unusual pattern in most cities due to heating plant
difficulties. This is also the case at the university

where the eleven winter-month fires were attributed to:

heating systems 6
electric hot plate
transformer failure
welding

defective wiring
arson

ththr-

74

Fire Alarm Incidence Distribution. The incidence
of fire alarms is a matter of vital concern in any study
of integration, because it must be determined whether fire
alarm response will be compatible with police manpower dis-
tribution needs. Table VIII indicates the distribution
of fire alarms by time of day, month and day of week. Other
analyses have shown that fire alarms during rush hour traf-
fic volumes are surprisingly rare, that an average of four
occasions each year will present the conflict of a second
fire alarm being received while fire apparatus is at a pre-
vious alarm and that on only one of these four occasions
will they occur so close together that they are actually
simultaneous and would call for a mutual aid response under
an integrated police-fire scheme.

Inhalator Alarms. The fire department provides
inhalator service to the university from its East Lansing
fire station--stripping two of the men on duty in the sta-
tion to make each inhalator run. Following is the occur-
rence of inhalator calls in the years 1955-62 showing rank
order and per cent occurring by time of day, month and day
of week. Detailed yearly showing of these figures is pre-
sented in Appendix IV.

The monthly figures show the effect of the school
terms, and the July and August conferences. Saturday re-
flects the football games. In general, these alarms follow

closely the population shifts on the campus.

TABLE VIII

Distribution of Fire Alarms

 

(1955-1962)25

 

 

 

 

 

 

 

’Hour Fer '1 Per
Beginning_ Number Rank Cent Month Number Rank Cent
12:00 M 38 16 3.2 Jan. 111 4 9.3

1:00 A 19 18 1.6 Feb. 91 9 7.6

2:00 15 20 1.2 Mar. 109 5 9.1

3:00 11 21 .9 Apr. 127 3 10.6

4:00 7 23 .6 May 129 2 10.8

5:00 7 24 .6 Jun. 109 6 10.6

6:00 10 22 .8 Jul. 57 12 4.8

7:00 19 19 1.6 Aug. 63 11 5.2

8:00 37 17 3.1 Sep. 67 10 5.6

9:00 62 11 5.2 Oct. 130 1 10.8
10:00 73 4 6.1 Nov. 100 8 8.3
11:00 62 12 5.2 Dec. 106 7 8.8
12:00 N 60 13 5.0 1,199 100.0%

1:00 P 68 8 5.7

2:00 69 9 5.7 Per

3:00 55 14 4.6 Day Number Rank Cent

4:00 72 6 6.0 Sun. 108 7 9.0

5:00 73 5 6.1 Mon. 207 1 17.3

6:00 93 l 7.7 Tue. 177 3 14.8

7:00 74 3 6.2 Wed. 195 2 16.3

8:00 81 2 6.8 Thu. 176 4 14.7

9:00 71 7 5.9 Fri. 170 5 14.2
10:00 69 10 5.7 Sat. 166 6 13.8
11:00 P 54 15 4.5 1,199 100.1%

1,199 100.0%
25

Ibid.

 

76

4

TABLE IX

Distribution of Inhalator Alarms (1955-1962)26

 

 

 

 

 

Hour Per Ber
Beginningprumber Rank Cent Month Number Rank Cent
12:00 M 10 13 4.0 Jan. 21 6 8.5

1:00 A 6 18 2.4 Feb. 19 9 7.7
2:00 2 20 .8 Mar. 23 3 9.3
3:00 1 24 .4 Apr. 26 2 10.5
4:00 2 21 .8 May 22 4 8.9
5:00 2 22 .8 Jun. 21 7 8.5
6:00 2 23 .8 Jul. 11 11 4.4
7:00 6 17 2.4 Aug. 21 8 8.5
8:00 7 16 2.8 Sep. 11 12 4.4
9:00 10 11 4.0 Oct. 38 1 15.3
10:00 13 8 5.2 Nov. 22 5 8.9
11:00 14 7 5.? Dec. ._13 10 5.2
12:00 N 19 3 7.7 248 100.1%
1:00 P 21 2 8.5

2:00 28 1 11.3 Ber
3:00 12 10 4.8 Day Number Rank Cent
4:00 19 4 7.7

5:00 14 6 5.7 Sun. 31 6 12.5
6:00 16 5 6.5 Mon. 39 2 15.7
7:00 13 9 5.2 Tue. 33 5 13.3
8:00 9 14 3.6 Wed. 37 3 14.9
9:00 4 l 1.6 Thu. 29 7 11.7
10:00 8 15 3.2 Fri. 35 4 14.1
11:00 ._19 12 4.0 Sat. _42. 1 17.7

248 99.9% 248 99.9%

 

 

26Ibid.

 

 

 

Pr '.

77

III. ADEQUACY OF FIRE PROTECTION

The provision in the fire protection agreement for
"adequate and ample units" indicates the intention of the
university to secure effective fire protection, though quan-
tity of fire fighting units as a measure of fire protection
adequacy would leave much to be desired even if the term
"units" were defined. The inference that the university
intends to secure adequate protection is inescapable, however.

Determining adequacy of protection could be a very
controversial process if absolutes were to be proposed.
However, if minimum standards of adequacy were proposed
in terms of the output to be expected related to the likely
fire experience of the university, then the process would
seem to be possible.

Experience in fire protection would indicate that
minimum standards could be developed for the university by
adapting the National Board of Fire Underwriters" Grading

Schedule for municipalities to the university.

The NBFU Grading Schedule
The grading schedule, as it commonly is referred
to, represents an attempt by the NBFU to provide an objec-

tive evaluation of local fire defenses based upon fire ex—

perience throughout the country.2/ Although some deficiency

27Standard Schedule for Grading Cities and Towns
gfgthe United States with Reference to Their Fire Defenses
gpd Physical Conditions (New York, Chicago, San Francisco:
National Board of Fire Underwriters, 1956), p. l.

 

 

._.
- 1-

 

78

point weightings and the manpower requirements have been
criticized very strongly, few have questioned most of the
other features evaluated. Major features of the schedule
include water supply, fire alarm system, building and struc-
tural conditions, police department, fire prevention and

the fire department.

The requirements of the grading schedule are appro-
priate for evaluating adequacy of fire departments except
for the schedule's manning standards and deficiency point
weightings. Therefore, use of the grading schedule has
been limited herein to comparing the fire protection con-
ditions, equipment and practices of university fire protec-
tion with the provisions of the grading schedule and the
fire protection literature for areas where the grading
schedule is not explicit, supplemented by NBFU Special

Interest Bulletins and the fire protection literature.

Water Supply

Application of the formula for determining the re-
quired water flow for individual buildings, as given in
the NBFU Special Interest Bulletin No. 266, indicates that
the university water works system should supply somewhere
in the neighborhood of 3,500 gallons per minute for fire
fighting purposes over and above the volume of water re-

. . .. 2
quired for normal univerSity use. 8

28Water Works Requirements for Fire Protection (New
York: National Board of Fire Underwriters Special Interest
Bulletin No. 266, May 4, 1948), p. 3.

 

\ ‘x'JAI‘l. Illumllb'tbbLllnl. 11.1: L

 

 

 

Hum
."I _ |

79

The combination of inadequate pumping station ca-
pacity, long runs of eight-inch water main with inadequate
cross-connecting on north campus, and the possibility of
failure in portions of the system which are not adequately
duplicated shows that the university system will not deliver
this volume of water for fire fighting purposes even in
the face of the expected condition that a major fire in a
university building would attract a large crowd and might
decrease the normal use of water.

However, this is not necessarily a serious problem,
since the large pumping capacity of fire department pumpers
immediately available in the two cities and townships can
provide good water volumes from the river if adequately
prepared drafting locations were constructed. Such draft-
ing points have not been prepared because of the expressed
view of the fire chief that they were not needed and he
preferred to use fire hydrants.29 Some of the university
fire hydrants in critical locations have four-inch barrels
and are located on four-inch extensions from the eight-inch
main system. Thus they not only have an inherently weak
delivery potential but also are located on mains which are
relatively distant from the pumping station and vulnerable,

29Related to the author by Norman Steere, Assistant

Director of Public Safety for Safety Services, Michigan
State University, during various conversations concerning
fire protection provisions for planning and construction
Of Bessey Hall.

80

because of inadequate cross-connecting, to a serious drop
in capacity should any single hydrant or main develop a
leak of consequence during fire fighting requiring large

water volumes.

Fire Alarm System

The university has no fire alarm system although
it has local evacuation alarm systems in many buildings
which ring only in the building and do not summon the fire
department. The sprinkler systems also are not connected
to a central alarm system and the university has suffered
several damaging water losses to buildings and contents
due to breakages in sprinkler systems which were not dis-
covered for substantial periods of time.

Lack of a fire alarm system is more important in
the university than in most communities of similar popula-
tion because its buildings are locked at night and on holi-
days, have relatively few persons in them during these times
(although some of these may be working on hazardous experi-
mental processes), and persons discovering a fire after
it had progressed to the point it would attract attention -
from outside the building have to travel long distances
before reaching a telephone. The lack of a central alarm
system encourages delayed reports or a complete failure
to report fires, since many persons assume that activating

the local alarms also calls the fire department. The

81

university should display prominently signs informing the
citizenry otherwise. Related to this is the difficulty of
locating the fire in a large building, causing long delays
in placement of apparatus, selection of proper standpipe
and assembling of fire fighting manpower when the fire is
finally located. Until now, this has not resulted in seri-
ous losses although the fire on May 14, 1955, in Agricul-
ture Hall illustrates the potential. Fire and police per-
sonnel were distributed throughout the building seeking

the location of the fire. It was found by police who at-
tacked the fire and had to send a man to the attic to find
the firemen.30 Fire detection systems have been installed
in many buildings around the country to counter these prob-
lems and the even more dangerous problem of delayed alarms
in unoccupied buildings--a major cause of large loss fires.
The university should consider installation of this type

of alarm system since it accomplishes several of the most
important fire protection objectives at once by discover-
ing the fire, transmitting the alarm without delay to the
fire department and showing the exact location of the alarm

to arriving fire units.
Epilding and Structural Conditions

The university buildings, although of large area

30Related by former university police sergeant
Lester Jones.

 

 

82

and increasingly of greater height, have very favorable
fire protection characteristics. Although the university
does not install sprinkler systems in its new construction
except in below-grade storage areas, incinerator rooms and
areas of some unusual hazard, installations of fire depart-
ment hose line standpipes have been good in recent years,
and, except in below-grade areas, should be entirely ade-
quate for fire fighting if the fire department is thoroughly
familiar with the buildings and knows the location of the
fire. Lack of the elaborate fire alarm system frequently
found in industry means that the fire department rarely

has specific information on fire location in the larger
buildings and increases the delay in reporting the fire,
since many persons try to determine the exact location when
the local alarm system sounds before calling the fire de-
partment.

The difficult fire fighting caused by heat, smoke
and gases, and difficulty of ventilation and access in below-
grade building areas warrants the installation of a complete
sprinkler system in all such building areas, especially
since the occupancies of such spaces tend to change rapidly
in the expanding and flexible university community and ex-
pansion of storage or other fire hazards into unsprinklered
Spaces in below-grade areas of a building is not likely to

be accompanied by the expansion of the sprinkler system

 

83

into the rooms.31

The separation of buildings from each other on the
campus in all but one area of older buildings on north cam-
pus ensures that the worst fire loss would involve only
one building at most. Ultimate planning of the university
calls for demolition of the old buildings placed very close
together on North campus which presently constitute a seri-
ous exposure loss hazard. The volumes of water necessary
to prevent the exposure in these old structures are barely
available in the water main system, as far as fire flow
tests of individual fire hydrants in 1959 would indicate,
and well planned use of the river for water supply would
be necessary if one of these buildings became fully involved
in fire.

The central heating plant system of the university
is its major asset in fire protection after building sep-
aration is considered, followed by the generally good house-
keeping practices of management and the nature of the struc-

tural materials used in newer buildings

Eglice Department

The police force of the university routinely

31Cellar Fires (New York: National Board of Fire
Underwriters Special Interest Bulletin No. 67, September,
1953); also Ventilating as an Aid in Fire Fighting (New
York: National Board of Fire Underwriters Special Interest
Bulletin No. 225, November, 1945); also Basementjgipe Inlets
(New York: National Board of Fire Underwriters Special Interest
Bulletin No. 242, February, 1947).

 

r.
I." 1 ‘

'I

._.l'. if” Evy???" 7' 1W1" ‘1'“--
>‘_ ‘ II- . ‘ ..

  

84

dispatches officers to every fire alarm in sufficient quan-
tity to shut off traffic on the streets affected by fire
fighting operations. The officers,through their training
and indoctrination as public safety officers, are exception-
ally alert for fire and safety hazards of all sorts and
report these whenever they suspect such a condition exists.
The rules of the department and its procedures comply in

all respects with the NBFU recommendations and all officers
are trained in use of rescue breathing equipment which is
available in the department and in critical building loca-

tions.

Fire Prevention

Fire prevention activity is generally good, but
inadequate in the inspectional area. Additional inspection
manpower should be assigned in view of the increase in build-
ing area to be inspected.

The recent expansion of building construction on
the campus has severely restricted routine fire prevention
inspection of existing structures because of the time re-
qUired for review of plans and inspection of construction
Sites. Because fire extinguishers are distributed accord-
ing to building area and hazards, the 30.3% increase in
fire extinguishers on the campus since 1958-59 presents
a good indication of the increased need for fire prevention

inspection. It seems clear that the university should have

 

 

85

the time of more than one man devoted to fire prevention
inspection alone and the time required for construction
programs should be in addition to and not interfere with
the routine, consistent and on-going prevention of fire
in existing buildings.

The university's lack of fire prevention ordinances
would be regarded as a deficiency under the grading sched-
ule, but can be overlooked because of the central adminis-
trative authority relationship enjoyed by the Department

of Public Safety.

Fire Department

Evaluating the equipment and procedures of a fire
department is made relatively simple by use of the grading
schedule and related explanatory literature. The only sig-
nificant area of controversy over grading schedule stand-
ards for a fire department is the standard of manpower re-
quired for manning apparatus and for response to fires.
This controversy is not applicable to the university's fire
protection situation since the minimum small department
fire fighting manpower for effective performance is gener-
ally agreed upon and the rationale for the figure is obvious
even to laymen in the field of fire protection. The follow-
iflgdiscussion of the fire department effectiveness is based
orl'the equipment and procedures called for in the grading

s"—‘1'1'3<:11.11e, supplemented by appropriate fire protection

86

literature, and represents a selection of grading schedule

items under which the author rates the fire department as

being deficient. Controversial items such as company man-
0

ning are excluded from the discussion.

Number of Engine and Hose Companies and Apparatus.

 

East Lansing should have five engine companies in service.
It has three pumpers, which is more pumping capacity than
it has manpower or large stream appliances to utilize.
This apparent apparatus deficiency can be fully offset
under the grading schedule without additional apparatus
if the city will secure written mutual aid agreements with
neighboring fire departments. Ultimately, the city should
have a reserve pumper of adequate capacity to remove com-
pletely a deficiency under this item.

Number of Ladder Companies and Apparatus.33 East
Lansing should have no deficiency under this item if it
has proper mutual aid arrangements. It is mentioned only
in order to note 1) the value of mutual aid arrangements,

and 2) that the city would not need an aerial ladder truck

except for the existence of the university's buildings over

three stories in height.

Powerful and Special Stream Appliances.34 This

 

32Standard Schedule for GradingyCities and Towns
of the UnitedjStates with Reference to Their Fire Defenses
gpd Physical Conditions, op. cit., pp. 46-50.

331bid., pp. 50-51.

34Ibido, ppo 62"630

32

87

item requires siamese connections, monitor nozzles on ap-
paratus, portable deluge sets or turret nozzles, large spray
nozzles, cellar pipes, distributing nozzles, foam equipment
and ladder pipes. This is equipment necessary for handling
large fires, fires in basements and sub-cellars and flam-
mable liquid fires such as are experienced in tank truck
accidents. East Lansing apparatus has only the ladder pipe
and its accessories and limited siamese equipment. The
League of California Cities concluded from its considera-
tion of this item that
These appliances will permit the city to do

a more effective job of fire fighting. Since the

service life of most of these appliances is 20, 30

or even 50 years, a long amortization period makes

their purchase worthwhile in that a single outlay

of funds can erase as many as 50 [deficiency]

points.35

Small Stream Appliances.36 This item is complied

 

with in all respects with the exception of 300 feet of pre-
connected 1 l/2-inch fire hose, a deficiency easily reme-
died without significant expense.

Amount of Hose.37 While the exact amount of hose

 

footage on pumpers and in reserve is not known in relation

to the required 1,200 feet of 2 l/2-inch hose on each pumper

35The Fire Protection Grading Process, op. cit.,

p. 21.

36Standard Schedule for Grading Cities and Towns
of the United_§tates with Reference to their Fire Defenses
gpd Physical Conditions, op. cit., p. 63.

37

 

Ibid., p. 64.

88

and an equal amount in reserve, observation Of the appara-
tus indicates that the hose bodies are not fully loaded.

In view of the fact that hose footage loaded on a
pumper in excess of the footage required is counted as spare
hose, and because long lays of hose may be necessary in
event Of serious structural or farm fires on the campus
or in areas of weak water supply, good practice is to load
fire pumpers with all the large volume hose they will carry
on the theory that spare hose in the station which is not
loaded on a vehicle is of no value at the fire.

Minor Equipment.38 This includes items listed in

 

the NBFU Pamphlet 19 on specifications of fire apparatus.
The following discussion is pertinent:

Hose line appliances are considered to be Of
particular importance. Also, a deficiency here,
as in other gear items, can influence the charge
when Fire Methods (item 31) are evaluated. Again
the necessity in good fire control Operations pro-
vides every justification for the purchase Of this
required minor equipment and, also, 50 points Of
deficiency are present.

Training.40 This item requires training facilities

 

which the East Lansing fire department does not have, but

for which university structures and particularly the new

381bid., p. 65.

39Fire Protection Grading Process, Op. cit., p. 22.

40Standard Schedule for Grading Cities and Towns
2£_§p§_United States with Reference to their Fire Defenses
329 Physical Conditions, op. cit., p. 67.

 

 

 

 

 

 

 

89

parking ramp being constructed would provide adequate sub-

stitutes.41 Use of such structures for drill training is

essential and required by the grading schedule,42 if a fire

department expects to achieve an effective state Of train-
ing and readiness.

Effective fire fighting cannot be left to an
intensive training of the rookie and the actual
experience of fires. Years may pass before a fire
company will be called upon to use its pumper to
full capacity or to place its longer ladders for
rescue work . . . there must be continuous train-
ing . . . with operations of the nature actually
used at fires, and with detailed study Of the gen-
eral conditions existing in the particular com-
munity.43

Similar statements abound in the fire protection literature.

Lectures on methods Of taking hose lines to
the rOOf are a good basis, but practise in these
evolutions is of greater value. . . . Training
for the fire to come must be an every-day affair;
it must include detailed inspection of buildings,
the making Of outline plans showing the stairs,
elevators, fire escapes and other structural fea-
tures; . . . knowledge is necessary of the storage
Of film and other hazardous materials; and the
strategy to be employed at the fire will have to
be planned ahead. 4

41The Education Of Firemen, Part II: Equipping
§_Fire School (New York: National Board of Fire Under-
writers Special Interest Bulletin NO. 235, August, 1946).
42The Fire Protection Grading Process, Op. cit.,
p0 23.

432E2$2$pg (New York: National Board of Fire Un-
ggrwriters Special Interest Bulletin NO. 136, January 1,
42).

44Fire Department Efficiency (New York: National
Board of Fire Underwriters Special Interest Bulletin NO.
131, December, 1960).

90

The municipality does not receive the full
benefits Of large expenditures for manpower and
equipment unless the men are trained to work as 45
a team and effectively use the equipment available.

Planning a system of training is important,
but carrying forward this program religiously is
even more important.46

A fire department is a success or failure de-
pending on its training program, as no other one
factor has as much ultimate effect on the depart-
ment's operation. . . . The best departments devote
part Of every day to drill and training work.47

It should be ingrained in all fire department
Officers that the efficiency Of fire fighting Op-
erations is directly proportional to the effective-
ness Of the training program. . . . A plan that
will prove outstanding in solving the problem is
pre-arranged schedules prepared by the training
division Officers. This plan assigns topics cover-
ing several subjects . . . further assigns drill
periods which include fire fighting problems and
evolutions. . . . There is a training session
scheduled daily. . . .

Application of this section of the grading sched-
ule by the grading engineer includes the following require-
ments:

1. Designation of a training Officer.

2. Existence Of a drill manual geared to depart-
ment problems, equipment, manpower.

 

4SIbid.

46Induptrial Fire Brigades Training Manual (Boston:
National Fire Protection Association, International, 1954),
pp. 3-4 0

47Municipal Fire Administration, Op. cit., pp.

 

91-92 0

4BOffiEger Training} Fire Fighting Facilities,
Planning and Procedures (Stillwater, Oklahoma: Oklahoma
State University Department Of Fire Technology, 1962), pp.
33-35.

 

 

 

91

3. Existence of a complete training program cover-
ing all levels of training from recruits through
chief.

4. Pre-fire planning.

5. Examination Of the department records Of train-
ing to determine type Of training provided and
amount Of time involved.49

Of all factors considered in evaluating the quality

Of fire protection the university is receiving, the lack
Of training, together with other deficiencies which are
attributable to the lack Of training orientation in the
fire department administration, presents the most striking
weakness in the fire department's role in university fire
protection.

Any evaluation of the training program Of the de-

partment in the light of the well established understanding

of what fire department training should be requires the

conclusion that a training program as a planned and contin-

 

uing process does not exist. There is no drill manual es-
tablished. The company Officers are not required to con-
duct any minimum level Of training activity. Hose and lad-
der evolutions on actual buildings have almost never been
held in recent years. Company members do not inspect uni-
versity buildings as part Of a pre-fire planning program--
in fact, there is no pre-fire planning program.50

49The Fire Protection Grading Process, pp. cit.,

pp. 23-24.

50Personal interviews with the fire chief, and per-
sonnel of the campus fire station, during January, February,
and March, 1963.

 

92

From this lack of training program can be traced
some Of the deficiencies in department operations Observed
by the writer, including:

1. Inability of campus-based apparatus drivers
to find the building at which the fire was reported, pri-

marily married housing.

2. Apparatus drivers taking longer routes to a
fire alarm than necessary.

3. Fire personnel not able to find their way about
inside campus buildings when given specific room numbers.

4. Fire personnel, when given sufficiently accur-
ate locations Of fire alarms, failing to spot their ap-
paratus properly in relation to the location due to un-
familiarity with building layout.

5. Statements and Observed actions of firemen to
the effect that they would not enter rooms containing radio-
active research materials because Of the hazard to them-
selves, although the department has radioactivity measur-
ing equipment provided by civil defense funds, and the
"hazard" is almost non-existent with most materials being
used.51

The lack of serious fires on the campus, the very
large area and complexity Of interior layout of its build-
ings, the nature of certain special hazards on the campus
such as radioactive materials, botulism cultures, and highly
toxic research materials of various sorts, the irreplace-
able value Of research materials which may be destroyed
in fire, as well as some buildings which could produce

dangerous and difficult fires require a full-scale, highly

competent, continuing and imaginative training program for

1Degree of hazard estimation provided by univer-
Sity Radiation Safety Officer Richard Nocilla.

 

 

93

the fire fighters who are to protect the university.

Response to Alarms.52 This grading schedule item
requires a pre-determined response of men and apparatus
to all parts Of the fire department's jurisdiction and en-
sures an automatic, pre-planned dispatch Of apparatus by
requiring use of "running cards" which specify which com-
panies shall respond to every location based upon the fire
protection problems at the location. The fire department
does not have a pre-determined response system. The dis-
patch Of apparatus is decided upon by the fire lieutenant
on duty at the time the alarm is received, based upon the
information given him by the East Lansing police desk Of-
ficer. It can be truly said that at least three separate
dispatching systems exist since there are three lieutenants,
and a fourth and fifth system can be considered added when
the chief and assistant chief provide relief for the lieu-
tenant Or make the decision in his stead.

This dispatching method leaves a great deal to be
desired and results in conditions such as the following:

1° The aerial ladder truck responded to only 11

fire alarms in 1962 for both the campus and city, only 12
times in 1961, and only 12 times in 1960.53

52Standard Schedules for Grading Cities and Towns
0f the United States with Reference to their Fire Defenses
32d Physical Conditions, 9p. cit., pp. 68-69.

53Annual Report of the East Lansing Fire Department
for years 1960, 1961, and 1962.

 

 

94

2. The aerial ladder did not respond to fire alarms
reported to the fire department for upper floors of dormi-
tories when the occupants were momentarily trapped in their
room because the only door was involved in the blaze. An-
other time, when informed an actual fire was in progress,
the aerial ladder was not originally dispatched, was called
for by the assistant fire chief, but could not be sent be—
cause there was no man left in the station to drive it to
the fire.

It can be seen from the number of runs the ladder
truck makes that the routine practice of the fire depart-
ment is not to send the ladder truck to alarms. Normally,
they leave a driver in the station in case it is needed,
which amounts to having neither the ladder at the first
critical moments of a fire when rescue problems may be
pressing or having the necessary services Of its driver
as a fireman if the ladder is not needed but a working fire
is in progress. This system, or lack Of it, is not consist-
ent with good fire apparatus dispatching nor is it in the
interests Of the safety Of the students and property en-
trusted to the university.

Another defect in the dispatching procedure is the
fire department practice Of sending campus-based fire units
to campus fire alarms without regard to the distances in-
volved to the alarm. This results in the campus-based ap-
paratus travelling 1 1/2 miles to the Union Building, Cowles
House or Gilchrist Hall when the East Lansing-based appara-
tus is only three blocks from the fire. The likelihood

that the university and citizenry will incur unnecessary

PrOperty damage in this situation is Obvious, as is the

f

 

‘. .1 “ ‘ 0
h" ' . i
'r ‘ ' \x
' v

 

95

potential risk to life.

The lack of a pre-determined dispatching system
has also resulted in sending East Lansing-based apparatus
1.3 miles travel distance to a fire alarm located only a
few blocks from the campus fire station. This situation
was a human error--but illustrates the defective nature
Of a system in which this kind of error is inherent.

Standard practice Of the fire department is to send
the complement of one fire station or the other to an alarm
of fire unless the seriousness Of the situation is Obvious
at the time the alarm is received. Therefore, the typical
response in terms Of manpower is four-six men including
the fire lieutenant, except for the few times each year
the ladder truck driver responds, adding another man for
fire fighting duty.

In actuality, the maximum effective manpower sent
to most university fire alarms is one two-man hose team
including a company Officer, one pump Operator, a lieuten-
ant tO coordinate the activities of several companies and
Provide command and direction rather than fire fighting
assistance, a second engine with an Operator to provide
Water from a hydrant when the tank of the first pumper needs
replenishing and a ladder truck Operator, if the ladder
truck is dispatched.

It could be argued under the grading schedule that

because the city is under 50,000 population ladder companies

96

are not_needed on response, but the schedule requires "ade-
quate" ladder equipment for structural conditions.54 Ar-
riving at a fire without ladders able to reach the roof

Of the structure would not be regarded as adequate in most
situations, since the ability to effect rescues and conduct
fire Operations in upper stories, attics and roofs is se-
verely limited without ladders. The ladders Of the pumpers
are not adequate above the third floor Of a building.

The effect of the fire apparatus dispatching pro-
cedure Of the fire department is to Operate the department
as if it were two separate fire departments under the com-
mand Of a single administration; the campus station protects
the campus and East Lansing residents south of the river
and the East Lansing station protects East Lansing with
the units Of each station acting as "second alarm" support
for the other station.

Fire Methods.55 In combating small incipient-type
fires, the methods used by the fire department are excellent
in terms Of equipment. The men are adequately equipped
with breathing masks, small-line fog streams are used very

effectively, and the personnel are unusually quick to insti-

tute salvage Operations to prevent smoke and water damage.

 

S4Standard Schedule for Grading Citiep and Towns
of the United States with Reference to their Fire Defenses
and Physical Conditions, pp. cit., p. 68.

SSIbid., p. 69.

97

Direction and coordination of the fire fighting
efforts in university buildings is lacking, in the writer's
Observation. A major problem is the dispersal of the small
number of men responding to alarms in tall buildings of
large areas--making it very difficult for company and_com-
mand Officers to communicate with the apparatus or men.
This has resulted in substantial delay in securing movement
and placement Of apparatus, misunderstood orders when they
are shouted at distances and has made it difficult to as-
semble the men to secure coordinated operations on upper
floors.

If the fire department were to use miniature two-
way radio equipment, command and supervisory Officers could
issue instructions by radio which would be heard by each
first-alarm fireman and would be repeated through the loud-
speakers On the fire apparatus. This system, along with
a standard Operating procedure for handling this type of
alarm in tall buildings, would greatly improve fire depart-
ment efficiency and aid in overcoming the difficulties caused
by lack of an elaborate fire alarm system in the buildings.
The investment in such equipment would be minor when com-
pared tO the cost of additional manpower which would be
necessary to provide the same efficiency.

Other deficiencies in fire department operations
which would be penalized a second time under grading sched-

ule fire methods requirements include the lack of equipment

 

...M

i "36%“.- i-H‘anw ~"-

98

for developing powerful streams for use at large fires,
the inadequacy of ladder equipment at the university's tall
buildings because the ladder truck is not dispatched, the
general practice not to connect to fire hydrants at a fire
unless it appears the apparatus tanks are being emptied,
general failure to use standpipes provided in university
buildings, and the lack Of training Of fire companies, since
these deficiencies weaken or negate otherwise good fire
methods.56
In buildings such as the university's, the lack
of pre-fire planning would be considered a deficiency under
fire methods, especially in view Of the limited manpower
available, potential water supply problems if both sprink-
lers and pumpers are to be Operated, the rural locations
of relatively large-area farm structures and similar "tar-
get hazard" conditions.
Pre-fire planning involves three different types
of planning: (1) a standard Operating procedure for com-
mon fire alarm and structural situations, (2) pre-planning
for a specific area giving special attention to exposure
conditions, water supply available and physical conditions
conducive to defense from exposures, and (3) specific Op-
erating plans for individual structures or structural com-

plexes, usually termed target hazards because Of concentrations

56
pp. 24-25.

The Fire Protection Grading Process, op. cit.,

 

99

of hazards, life threat, unusual values or irreplaceable
materials.57

The desirability and great value of pre-fire plan-
ning is now an accepted matter in fire protection adminis-
tration and is Obvious even to the layman. Fuller details
58

are available in standard works on the subject.

Building Inspections.59 Direct quotation from the

 

grading schedule presents the position of fire protection
experts on the subject.
Systematic and frequent inspections of build-

ings shall be made by company members and depart-

ment Officers to acquaint them with local fire

hazard conditions. Records of such inspections

shall be kept both by notes and sketches, and be

available for use in company training.6
Similarly, the explanatory interpretation provided by the
League Of California Cities for the guidance of city admin-
istrators in understanding and evaluating the grading sched-

ule is explicit.

The foregoing lengthy list Of bulletins on the
subject attests to the importance of regular and

 

57Officer Training, Op. cit., pp. 47-49.

58Lloyd Layman, Fire Fighting Tactics (Boston:
National Fire Protection Association, 1953):also Officer
Egaining: Fire Fighting Facilitiesprlanning and Proggg-
pges, Op. cit., Section Two, Pre-Fire Planning, pp. 47-73,
inclusive.

59Standard Schedule for Grading Cities and Towns
9f the United States with Reference to Their Fire Defenses
gpd Physical Conditions, Op. cit., p. 71.

60Ibid.

 

 

100

systematized building inspections. It is Of most

import that each company keep adequate records of

its building inspections, complete with sketches

and notes on each floor of each building inspected.

This is an item where Effort expended will pay off

far more in effective fire control than it does in

deficiency points possible to be removed.61
Summary Of Fire Protection Adequagy

Building and structural conditions are exception-
ally good from the fire fighting point Of view; water sup-
ply would need supplementing from the river for a major
building fire, especially in the high exposure hazard area
on the east end of West Circle Drive; a central fire alarm
system and fire detection system would prevent the condi-
tion most likely to cause a serious fire loss--delayed fire
discovery and alarm transmittal; but all things considered,
the Opportunity for effective fire protection and preven-
tion on the campus is exceptionally good. Fire department
Operations leave much to be desired from the standpoint
of applying effort and progressive fire administration
techniques to the protection of the campus, particularly
in the area of training and preparedness.
Considering that preparing for the worst is an

inherent responsibility Of the public safety services Of

a community and that the worst only rarely happens, the

lack of an imaginative and consistent training program

 

61
pp. 25-260

The Fire Protection Grading Process, Op. cit.,

101

coupled with adequate building inspection and pre-fire
planning procedures labels the fire department as either
deficient in essential knowledge of current fire adminis-
tration practices or for some reason unwilling or unable
to implement them.

Whatever the reason, the conclusion is inescapable
that the weak link in university fire protection is the
fire department--a department which is fifty per cent sup-
ported by the university, but which uses methods Of fire
alarm dispatch, apparatus manning, and training prepared-
ness which can be acceptable only in a small city of a
residential nature with few large structures. It is not
difficult to form the Opinion that university financial
support has produced a fire department which provides su-
perior protection to city residents but has failed to ori-
ent itself to produce an equally superior level Of protec-
tion to the university.

Finally, it is apparent that the growth of the
university requires additional manpower devoted to fire
prevention inspection--the job is simply too large for
one man. Whether this additional inspection is provided
by a full-time inspector or by part-time use Of existing
public safety department personnel or by use of fire de-
partment personnel is a matter warranting additional con-
sideration Of the nature of the workload and the costs and
benefits of the various methods, but additional fire pre-

vention inspection is necessary.

 

102

IV. POLICE PROTECTION AND SERVICE

The university Department of Public Safety is re-
sponsible for all public safety interests and responsibil-
ities of the university except fire fighting. The polic-
ing portion Of the department will be referred to as the
university police or the police service. The Director of
Public Safety is responsible to the president of the uni-
versity and has under him three distinct areas of depart-
ment Operations: the police service under the direction
of a lieutenant, a centralized records and clerical serv-
ice, and the non-police safety service functions Of the
Safety Engineer, Radiation Safety Officer, Fire Safety
Officer, Pest Control Officer, Sanitarian, and two safety
equipment maintenance men. These safety service personnel

report to the Director individually.

The Police Service

The line police functions are performed under the
direction and control of the lieutenant who is responsible
to the Director for prior approval of all policy matters
but otherwise exercises relative independence in directing
the affairs of the police service. In the absence of the
Director, the lieutenant functions in his place with all
authority of the Director except alteration of existing
policies or implementation Of new policies not made neces-

sary by urgent or emergency conditions.

 

103

Organization and Supervision. Four sergeants re-
port tO the lieutenant and supervise police activities;
one is the supervisor of two patrolmen assigned as investi-
gators and is himself a working investigator; three sergeants
each supervise a uniformed shift (or platoon, as they are
known in the department) on a three-month rotation scheme.
Each platoon also has a corporal assigned to act as super—
visor in the absence of the sergeant and function as a pa-
trolman when the sergeant is on duty.

One patrolman (public safety officer is the Offi-
cial job title) is detached from the police service and
supervises the central clerical service provided the entire
Department Of Public Safety.

Thus, nine of the 25 Officers below the rank of
Director are assigned to administrative, supervisory or
staff ranks, two are assigned as specialist investigators
and the remaining 14 are patrolmen assigned to the uniformed
force platoons. Following is a tabulation of the distribu-
tion of police personnel.

TABLE X

Distribution of Police Personnel (1962-63) (excludes Director)

 

 

 

 

 

SEaff & Investi- First Second ‘Third Per
__Rank Command gation Platoon Platoon Platoon Total Cent
Lieutenant l l 4%
Sergeant l l l l 4 16%
Corporal l 1 l 3 1 2%
Patrolman 1 2 2 5 7 17 68%
Tot:al 2 3 4 7 9 25
_§er~ Cent 8% 12% 16% 28% 36% 100%

 

 

104

Uniformed Force. The uniformed force, excluding

 

the lieutenant, has an authorized strength Of 20 men, and
is provided with continuous supervision at all times except
the day shift on certain holidays when school is not in
session. Following is a breakdown of platoon manpower dis-

tribution, showing a normal weekday with school in session.

TABLE XI

Uniformed Police Personnel on Duty
(excludes Lieutenant)

 

Author. Oh-duty

 

Men Weekday‘
First Platoon (11:30 p.m.-7:30 a.m.) 4 3
Second Platoon (7:30 a.m.-3:30 p.m.) 7 4-5
Third Platoon (3:30 p.m.-11:30 p.m.) 6 4
" " (7:30 p.m.-3:30 a.m.) 3 2

‘Assumes no position vacancies; records show two
position vacancies are common at one time for extended
periods.

The working schedule of Officers frequently varies
from day to day in terms of the number of men on duty at
a given time, reflecting a basic characteristic of the po-
lice service in a large universityw-the extreme variability
of university activity.

While classes are in session and the campus is oc-
cupied by its resident student population in Fall, Winter
and Spring terms, the police service endeavors to maintain

the following on-duty patrol force and regards this force

as an absolute minimum.

 

 

105

TABLE XII

Minimum Desirable Uniformed Police on Duty
(weekday with school in session)

 

 

Reporting Duty Strengtp:by Activityy

 

 

 

Time Period for Duty Superv. Desk Patrol Ofi—Buty
7:30 a.m.-3:30 p.m. 5 1 l 3 5
3:30 p.m.-7:30 p.m. 4 l 1 2 4
7:30 p.m.-11:30 p.m. 2 l l 4 6

11:30 p.m.-3:30 a.m. 3 1 l 3 5
3:30 a.m.-7:30 a.m. l l 1 3
' l4

 

On weekends and holidays and between terms, only
three men are needed on the day shift. When the campus
residents have mainly left campus between terms, the 7:30
p.m.-3:30 a.m. shift is reduced by one man and frequently
by both men to give accrued compensatory time Off.

The manpower shown in the table above represents
a force adequate to provide protection during the night
hours at the high level which is necessary on the univer-
sity campus. This force is also adequate to provide for
the high level of service demands characteristic of a uni-
versity police organization, and finally this size force
will allow an adequate level of enforcement of ordinance
and student regulation parking violations as judged by the
incidence of faculty-staff complaints on parking conditions.

Analysis of the department working schedule shows
that each year the police service can expect one full posi-
tion vacancy during the year, and that commonly this actu-

ally involves two position vacancies for an extended period.

106

Personnel. For several years the police service

 

at the university has recruited (so far as it could) young
men or police Officers from other jurisdictions who wish
to secure an education in the field of police administra-
tion or in other fields. The police Officers secured under
this policy, which now includes a minimum of two years'
college education unless waiver is justified by unusual
conditions of qualification--primarily police experience,
are a young, vigorous and sincere group who adopt the pol-
icies of the department concerning police ethics, courtesy
and methods as a matter of general belief rather than be-
cause of the need to hold a job. The personnel so secured
do an exceptional job Of police-public relations. Only a
few complaints are received against an officer each year
in spite of the thousands of regulatory contacts with the
public that these officers make and the great unpopularity
of some of the regulations they must enforce. The police
service investigates rigorously every citizen complaint
against an officer and they are generally found attribut-
able to poor communications between the officer and the
citizen or to a citizen so an ered at circumstances that
he is not amenable to reason. Officer fault is almost in-
variably attributable to haste or to inexperience in hand-
ling the type Of citizens in the community.

Because few of the officers intend a career with

the university (and because there are few career incentives

 

 

'1 Y'T
. ) u ..

at the officer level which make university policing in any

way competitive with municipal policing in a progressive

city department), the police service has a high personnel

turnover and slow replacement,

1962 and 1.3 vacancies in 1961.

averaging 1.2 vacancies in

The measure of vacancies

is not an accurate indicator of the turnover, as is Obvious

when the experience level of the personnel is shown.

TABLE

XIII

Length of Service of Police Personnel
(as of April, 1963)

 

 

 

EiperIEnce
Period Men Per Cent Rank Distribution

vacancies 3 11.5 patrolman
0-1 year 2 7.7 patrolman
1-2 8 30.8 1 corporal, 7 patrolmen
2-3 3 11.5 1 corporal, 2 patrolmen
3-4 3 11.5 2 sergeants, l corporal
4-5 0 0.0
5-6 2 7.7 l lieutenant, l sergeant
7-8 1 3.8 patrolman
11-12 1 3.8 patrolman
12-13 1 3.8 patrolman
13-14 1 3.8 Director
16-17 _1_ 3.8 sergeant

26 99.7

 

A turnover of from three to six or more men in a

year is not at all unusual--a range of 12% to more than

25% each year. The training and supervisory problems re-

sulting from such a turnover are Obvious.

The police are given a great deal of training. In

1962, ftm instance, 6.8% of the uniformed force working

tine: was spent in training, including attendance at training

 

 

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108

schools held outside the department by non-department per-
sonnel. Primarily, these schools have been month-long re-
cruit schools and two-week investigator schools conducted
jointly by continuing education, the School Of Police Admin-
istration and the Michigan Association of Chiefs of Police.

Advanced in-service training in the department has
declined in 1961 and 1962 because of the heavy recruit train-
ing Obligation. The recruits (three) employed in March,
1962, received six weeks' schooling in recruit school taught
exclusively by the command and supervisory and Officer per-
sonnel Of the police service. The high level Of education
among police personnel simplifies securing adequate instruct-
ors. However, the police service has a noticeable diffi-
culty securing time for its instructors to prepare for their
teaching role, since they normally must continue their full-
time supervisory duties and service Obligations in a uni-
formed force drastically Shorthanded at the time Of the
recruit school.

Following is an analysis of the uniformed force
working time, days off and position vacancies for a three—
year period.

Calculation from the figures in Table XIV shows
the number of scheduled working days which the police serv-
ice Can expect from its uniformed officers after giving

all compensatory time, sick leave and other required time

Off.

 

109

TABLE XIV

Uniformed Force Man Day Analysis, 1960-1962
(from monthly work schedules)

 

All WOrking Average
Calendar Working Training Compens. Other Day Posi- Monthly

 

Year Days Days Time Off Days tions Author-
Off Vacant ized
1960 4,253 108 161 2,451 72 19.3 men
1961 3,914 88 173 2,167 287 18.2 "
'1962 3,939 289 240 2,329 264 19.3 "

‘Two additional positions authorized beginning July,
1962, positions vacant one month.

TABLE XV

Average Annual Working Days Per Uniformed Officer, 1960-1962
(counts training assignment as a working day)

ScheduIed Scheduled

Working Days Working Hours Positions Required to

 

 

Year Per Man Per Man Cover 24 hrs., every day
1960 225.9 1807.2 4.84 men per position
1961 219.9 1759.2 4.98 n n n

1952 219.0 1752.0 5.00 " " "

 

From Table XV above it can be seen that to man a
position around the clock in the uniform force required
exactly five men in 1962. In practice, this tends to vary

between shifts and ranks and the various months of the year.

Criminal Incidents

A large university has a surprisingly large number
of criminal Offenses, if Michigan State University is any
indication Of the experience Of others. Table XVI presents
thee"crime index Offenses known," as reported to the Fed-

eral Bureau of Investigation by the university police over

110

TABLE XVI

Crime Index Offenses Known: 1951-1962
(from university police reports to the FBI)

 

 

 

Year Crime Index Offenses
u
m
u u
n 05 m
m P c >
s H -H O x o
m S H m m
H m m o O a»
m m p c a
a a 2 8 w H a
z m o O O
m 0 w m a E C
+) m ‘m’ m vi 5
C m H U‘ m utn
0 -4 >. m s >. .c ()0 x
M Ci 9 u > -H c a m a
m -H od 8 m x m -id 0
O .H u .Q n m O O no: u
a s." ‘6 8 8 a :3 ‘3 :2: r:
2". Z Eu 0: 4 CD A 4: E40 r-J
1951 0 0 O 0 0 7 41 3 51 217
1952 0 0 0 0 0 11 36 4 51 207
1953 2 0 0 O 0 89 17 3 111 61‘
1954 0 O 1 O 0 118 12 3 134 92‘
1955 0 0 0 l 0 112 28 l 142 138‘
1956 1 0 0 0 O 223 42 5 271 187‘
1957 0 0 l O 1 232 91 6 331 617
1958 O 0 1 0 0 228 71 16 316 468
1959 O O 2 1 0 396 101 5 505 637
1960 0 O O 0 2 361 128 6 497 845
1961 O O 0 0 0 337 178 14 529 841"
1962 0 0 0 0 0 354 154 4 512 706

 

'Bicycle thefts not reported.
"Bicycle control program instituted September, 1961.

111

62 Also shown beside the main grouping

a period Of years.
of Crime Index Offenses are the figures for larceny under
$50 in value.

Other Offenses of the Uniform Crime Reports ("Part
II Offenses") represent offenses which are not reliably
reported by the public to the police and for which the po-
lice report only arrest information to the Uniform Crime
Reports.63 However, the university police record these
Offenses as they are reported, since included among them
are a number Of Offenses which the university police have
a particular interest in repressing.

In evaluating the criminal activity on the campus,
it is essential that the following points be considered:

1. The university has the largest dormitory pop-
ulation Of any university in the United States--a youthful
and highly transient population.

2. University authorities cooperate in a program
to secure a high level of reporting in the interest of ap-
prehending Offenders who frequently are emotionally dis-
turbed youths needing proper guidance from the university

counselling facilities, and in the interest Of maintaining

a high level of freedom from the disturbing influence criminal

 

62Uniform Crime Reports for the United States--l96l,
Federal Bureau Of Investigation, United States Department
Of Jiistice (Washington: 1961), p. 2.

63Ibid., p. 25.

 

112

activity exerts in an educational institution.

3. A university campus, especially one with a large
female resident population, attracts sex offenders, and
repressing their activities is a major responsibility of
university police forces everywhere when a university is
located in or near reasonably large cities or metropolitan
areas.64

Crime Index Offenses. The table on Crime Index
Offenses shows a steady rise in such Offenses over the years.
The larceny under $50 Offenses are heavily weighted by bi-
cycle thefts and show a large fluctuation in 1953 when the
university police ceased writing offense reports on most
such thefts and again in 1957 when the writing of bicycle
theft reports was resumed. The years 1961 and 1962 show
a sharp departure from the rising trend of thefts under
$50, coinciding with a sharp drop in bicycle thefts attrib-
utable to the adoption Of a bicycle control ordinance ex-
erting more effective control over unlicensed and unlocked
bicycles. A special report analyzing these thefts showed
the bicycle control ordinance revision reversed the trend
Of bicycle thefts and returned them to the level of several
years prior to adoption of the ordinance. They are again

on the rise as the dormitory population continues to expand

64Informal consensus received by author from at-
tendees at the 1961 and 1962 conferences of the National
Assmziation of College and University Traffic and Security

Direc tors .

 

113

TABLE XVII

Uniform Crime Report Offenses Known, 1958-1963
(from DPS Annual Reports)

FiscalYears (July through JEEET--'
1958-59 1959-60 1960-61 1961-62 1962-63

 

Crime Index Offenses

 

 

Criminal Homicide 0 0 0 0 0
Forcible Rape l l 0 0 1
Robbery 0 l 0 0 0
Aggravated Assault 0 l 1 O 2
Breaking & Entering 295 ' 413 322 361 408
Larceny--$50 and over 63 124 163 155 131
Larceny--under $50 661 760 891 761 773
Auto Theft 10 5 9 8 9
Other Offenses
Other Assaults 10 12 28 18 12
Forgery-Counterfeiting l 5 3 2 1
Embezzlement—Fraud 10 8 ll 1 7
Stolen Property 1 4 3 2 5
Weapons Laws 1 2 0 6 8
Prostitution 1 0 0 0 0
Sex Offenses 94 113 84 118 222
Family & Children 2 11 5 2 3
Narcotic Drug Laws 1 l 0 3 4
Liquor Laws 13 8 23 18 39
Drunkenness 4 3 8 5 ll
Disorderly Conduct 32 32 26 27 18
Vagrancy O l 0 O 0
Gambling 1 0 0 l 0
Driving while Intox. 2 1 l 8 6
All Other Offenses:
Arson 9 10 9 20 4
False Fire Alarm ll 9 6 5 13
Malicious Mischief 73 97 132 112 117
Miscellaneous 118 131 92 96 113
Suspicion 0 0 O 0 0

 

1,414 1,753 1,817 1,730 1,908
Offenses Cleared:

 

Part I (Crime Index) 106 102 124 149 124
Part II (Other) 131 101 172 155 211
Total 237 203 296 304 335

Per Cent 16.8% 11.6% 16.3% l7.5%~ 17.5%

114

and the increasing use of bicycles has added more than a
thousand bicycles to the campus each of these years.

All Offenses Known. Table XVII shows a uniform
crime reporting breakdown of offenses known on the campus
during recent years. The Part II Offenses are analyzed
a great deal more by the university police than is custo-
mary for the Uniform Crime Reports. This breakdown is of
value for effective police management. Fire-related of-
fenses are included for this study.

Sex offenses constitute a major area of police re-
pression and investigation activity in a university com-
munity. A number of unpleasant incidents have convinced
the police that even window peekers are not to be taken
lightly, and vigorous preventive patrol effort is necessary
to deal with the prowler-window peaker problem.

Following is a breakdown of the sex offenses which

are affected by patrol force activity.

TABLE XVIII

Sex Offenses Known Affecting Patrol Activity, 1958-1963
(from DPS Annual Reports)

 

 

 

:r-O?fense
Rape and attempts 1 1 0 0 1
Sex—motivated assaults 2 4 2 1 1
Window peeking-prowler . 51 46 20 14 38
Indecent exposure 17 11 15 37 40
Breaking & entering ._1 ._g _2_ _2_ _Q_
72 62 37 52 80
Per Cent Cleared 22.2% 20.9% 45.9% 34.6% 45.0%

’July 1 through April 30, 1963.

 

 

X

‘13 31b";

115

Patrolmen are equipped with miniature radio receiv-
ers in order that they may maintain intensified foot patrol
in residential areas without limiting the response strength
of the police. This program received strong command and
supervisory emphasis beginning in 1960-61 and police super-
visors are convinced the decline in the window peeking of-
fenses resulted from this program. Results have been much
less successful in 1962-63, although the number of appre-
hensions is higher and involves a surprisingly high propor-
tion of non-university residents. It is suspected that the
university is now attracting many more non-university of-
fenders whose appearance on campus is so infrequent that
they fail to recognize the existence of intensive patrol.
It is also suspected that this explains the indecent ex-
posure increase.

Offense locations are analyzed by general area in
the annual reports of the university police and show a reas-
onably close relationship over the years, as seen in the
following table.

It can be seen that 55.2% of all offenses known
occur inside the university's buildings and are not amen-
able to any system of preventive patrol which would have
a cost proportional to the benefit. A certain proportion
of these offenses occurring inside buildings might be dis-
covered through patrol officer apprehension of the offender

with stolen property in his possession, but relatively few

116

TABLE XIX

Offenses Known by Area of Occurrence
(adapted from 1961-62 Police Annual Report)

Per Cent of CriminaI Offenses Known

 

 

 

 

 

Location 1957258 1958-59 1959-60 1960-61 1961-62
Dormitories:

Men 17.0 13.5 9.8 12.2 15.4

Women 17.0 13.1 20.0 16.4 20.6
Married Housing 9.0 2.6 2.0 3.2 1.3
Other Buildings 23.0 25.7 22.2 19.1 17.9
Streets, Grounds
& Parking Lots 33.0 43.5 44.8 48.5 43.3

Farms & Constr.
Sites 1.0 1.6 .8 .6 1.5
100.0%) 100.0%) 99.6% 100.0% 100.0

 

offenses involve property the possession of which would be
regarded as suspicious by a patrolman.

The Breaking and Entering figures need some careful
attention lest they mislead the reader. Michigan law makes
the technical breaking and entering of a room to commit a
theft a Breaking and Entering just as if the room were a
separate building or structure being entered and almost
all university offenses involve thefts from rooms rather
than forcible entry of buildings. Actually, there are so
few actual burglaries, in the normal use of the word, that
university police have not found it necessary to segregate
such happenings in their reporting system. Considering
the values in property inside the university buildings,

this is something of a phenomenon. Police attribute this

117

good record to the fact that the janitorial staff primarily
works night hours in university buildings which would other-
wise be unoccupied. The janitors are careful to see that
the buildings are kept locked and quick to call police if
they become suspicious. Because of this night janitorial
service, the university police administrators see no value
whatsoever in use of building or night watchmen patrolling
inside the buildings. So far as is known, Michigan State

is the only large institution which does not use night watch-
men inside its buildings. And yet, so far as can be deter-
mined among comparable schools represented at a recent con-
ference of university security officials, MSU has a very
favorable burglary and fire experience.

Occurrence by Time. The hourly distribution of
criminal activity is not known. It is typical of the type
of offenses which occur on the campus that few are of such
nature that time of occurrence is known. However, the time
of reporting of all criminal and non-criminal incidents
on which reports are written provides an index which may
be substituted for occurrence of offenses by time with reas-
onable results, and the police have used this index for
several years in evaluating their work load by time of day.
The following table presents the distribution of incident
reports by time, day and month of reporting. There has
been no significant change through the years except for a

gradual trend away from the day shift to the afternoon shift.

 

 

118

TABLE XX

Incident Reports Written by Time, Month and Day Reported
(1960-1962)

 

 

 

 

 

Hour IPer '155?‘
Beginning Number Rank Cent Month Number Rank Cent
12:00 M 253 17 2.8 Jan. 829 6 9.0

1:00 A 239 18 2.6 Feb. 863 5 9.4
2:00 131 19 1.4 Mar. 763 7 8.3
. 3:00 79 21 .9 Apr. 930 4 10.1
4:00 51 22 .6 May 1086 1 11.8
5:00 36 24 .4 Jun. 767 8 8.3
6:00 47 23 .5 Jul. 428 10 4.7
7:00 117 20 1.3 Aug. 419 11 4.6
8:00 344 15 3.8 Sep. 398 12 4.3
9:00 446 11 4.9 Oct. 1081 2 11.8
10:00 596 6 6.5 Nov. 993 3 10.8
11:00 503 9 5.5 Dec. 637 9 6.9
12:00 N 627 4 6.9 Total 9194 100.0%
1:00 P 683 2 7.5 l Ave. 766 8.3%
2:00 632 S 6.9 r—
3:00 652 3 7.2 Day Number Rank Czit
4:00 743 1 8.2
5:00 548 7 6.0 Sun. 841 7 9.2
6:00 508 8 5.6 Mon. 1598 1 17.4
7:00 461 10 5.0 Tue. 1390 5 15.1
8:00 411 12 4.5 Wed. 1474 2 16.0
9:00 367 14 4.0 Thu. 1435 3 15.6
10:00 374 13 4.1 Fri. 1434 4 15.6
11:00 266 16 2.9 Sat. 1022 6 11.1
Total 9114 100.0% Total 9194 100.0%
Ave. 380 4.2% Ave. 1313 14.3%

 

119

A recent analysis of incident reports by the week in which
they were written showed a pattern which was quite constant
between years when comparing the same weeks in relation to
the beginning of the school terms. Each year showed in-
creased numbers of reports, but the fluctuation between
weeks appears to be predictable. This study indicates the
weekly figures may be of greater value in manpower sched—
uling than the monthly figures now used.

Incident reporting times were also analyzed in terms
of the platoon which wrote the report. The figures presented
in the table below show an average 11% increase in reports
written by all platoons in 1962 from 1960, and indicate

the afternoon platoon is writing a larger share of reports.

TABLE XXI

Incident Reports Written by Platoon, 1960-1962
(from radio logs)

 

er en
Platoon 1960 1961 1962 Increase

lst 318 10.9% 332 10.9% 349 10.8% + 9.7%
2nd 1353 46.4% 1433 47.2% 1487 45.8% + 9.9%
3rd 1244 42.7% 1272 41.9% 1406 43.4% + 13.1%
2915 100.0% 3037 100.0%7 3242 100.0%7 + 11.3%

 

 

 

 

 

 

 

 

 

 

Summary. To summarize criminal activity on the
campus is not easy. Generally, the offenses are larcenies
or destruction of property and losses are relatively minor.
However, the sex offense rate is unquestionably high and
the nature of the community requires vigorous police action

in this area.

 

120

Enough serious offenses occur each year to warrant
maintenance of an effective investigative agency, since
experience has shown an intimate knowledge of the community
and its activities is essential for successful criminal
investigation among a youthful population which tends in-
stinctively toward an "anti-cop" attitude.

Criminal activity indicates need for maintaining a
very intensive patrol of the campus as a preventive measure.

The question is frequently asked of the university
police, why a university needs a police department? It
would appear that the record of offenses known is suffici-
ent answer without resort to the additional police service
areas of traffic duties and non—criminal services to the

public and to the university.

Traffic Conditions

 

Traffic is a major function of the university po-
lice,as their 1961-62 Annual Report demonstrates. The re-
port records the introduction of a police-sponsored intra—
campus bus system operated by the local bus company as a
means of reducing congestion and overcoming the distance-
time problem which increasingly burdens the university people
travelling between classes. The police reported traffic-
related activity figures as follows in the 1961-62 annual

report.

 

121

TABLE XXII

Traffic-Related Activity, 1961-62

 

Motor vehicle accidents 489
Motor vehicles registered (student) 11,392
Motor vehicles registered (employee) 1,954
Bicycles registered 3,551
Bicycles impounded 454
Moving violation tickets written 805
Parking ordinance tickets written 9,133
Student vehicle regulation tickets 12,166

 

As absolute figures, the above data are reasonably
impressive as indicators of police traffic and parking serv-
ice demands for a community of the universityls size. But
it is the trend of these figures which demonstrates the
true nature of the situation. Following are the same items
of activity compared on a per cent basis with the figures
of fiscal 1957-58, the first year the university police
had 24 officers--the same strength which still existed in

TABLE XXIII

Increase in Traffic Activities Since 1957-58
(from police annual reports)

 

 

Activityg 1957-58 1961-62 % Cfiange
Motor vehicle accidents 200 489 144%
JInjury motor vehicle accidents 12 35 191%
Student vehicles registered 9,445 11,392 21%
Bicycles registered 1,111 3,551 219%
Enmdoyee vehicles registered 1,146 1,954 - 42%
Traffic and parking tickets 3,896 9,938 155%

.Student vehicle regulation
tickets 44824 12,166 152%

122

These figures and the percentage increase in traffic-
related output of the university police support graphically
the claim of the police that the traffic burden is increas-
ing in an overpowering expansion of problems. The trends
continue in the year 1962-63. Police records showed at
the end of Fall Term registration in the October, 1962,
monthly report the following increases in certain traffic
indicators from the same period in 1961-62:

student vehicles registered up 17.9%
bicycles registered up 37.0%

There is every reason to believe the trend will
continue in 1963-64 with the planned opening of dormitories
with a capacity of more than 2400 residents.

The traffic accident picture, while a burden in
quantity, is really quite favorable in quality. There are
few injury accidents and of these only a few involve severe
injuries; however, 1962-63 had shown a 33% increase in in-
jury accidents by the end of April, 1963.

Traffic congestion continues to increase, as does
the necessity for intersection control. In 1957-58, four
intersections were manned with officers and students dur—
ing 8:00 a.m. rush-hour traffic. In 1958-59, the police
had to provide traffic control at the noon rush hours at
two intersections. In 1962-63, the need for traffic con-
trol is met by manning seven locations during the 8:00 a.m.

rush hour with eight students, four positions during the

 

 

 

123

noon and 1:00 p.m. rush hours each, and three positions
during the 5:00 p.m. rush hour--a total of 19 man-positions
each weekday-—and this exists after a pedestrian crossing
signal was installed on Harrison Road, eliminating manual
traffic control at a position which required three man-
positions each day before the signal was installed. Cur—
rently, the police are receiving requests to increase the
traffic direction at two intersections by several more times
each day to handle the increasing congestion resulting from
the opening of new buildings in the east portion of south

campus.

Community Services

The university police are more than just the equiv-
alent of a municipal police department concerned almost
exclusively with crime and traffic problems, for they serve
an institution which in turn serves youngsters in an in_

locogparentis relationship and this "plant protection agency"

 

responsibility imposes demands for police service which
the police of a comparably sized city would not experience
in any volume.

A major service function of the police is the area
of first aid and transportation of casualties. The depart-
ment required each officer to hold a valid American Red
Cross Advanced First Aid card long before other area police

agencies, and places great emphasis on rendering a high

 

 

124

quality of first aid service to the community. This serv-
ice reached such a peak and became such a burden, to the
extent that it involved the transportation of students for
relatively minor conditions such as colds, flu and similar
afflictions, that the department found itself transporting
1,040 persons to the hospital in 1959-60 and, consequently,
in 1960-61, took steps to restrict "minor" transportations
in daylight hours. This reduced the transportation runs
to the hospital to only 737 in 1961-62, but they have climbed
again in 1962-63, and it appears that a continuing steady
increase is practically irreversible under the conditions
of university expansion.

Other services include unlocking building spaces
for staff members who have locked themselves out, recover—
ing property lost or left behind in locked buildings, and
services of a similar nature. To render this service, the
police have master keys to all university buildings. The
officers make a special point of helping motorists on the
campus who experience mechanical difficulty or run out of
gas, and commonly change tires for female drivers or drive
the motorist to a gas station for gasoline and return him
to his vehicle.

Other services include impoundment of dogs, cats,
cattle, taking reports of damaged property where there may
be some question of university or private person liability,

guiding strangers to their destination, transporting persons

125

and materials for the president's office, providing escorts
and bodyguard service for prominent or controversial per-
sons, posting officers at ticket sale lines, or at events
where attendance exceeds capacity and the officers' pres-
ence helps assure order and facilitates equitable control
of the waiting line.

Officers also look for lost children, cope with
mentally disturbed persons--some of them not connected with
the university, provide an officer at Olin hospital when
a violent mentally disturbed patient is in residence; render
aid to suicide attempt victims, provide daytime foot patrol
to curb over-amorous displays of affection among student
couples, report safety and security hazards and utility
and roadway system defects, make inspections of buildings
during the hours they are locked, take custody of lost prop-
erty, provide money escorts including continuous protection
of the money areas at registration each term, and spend
a great deal of time providing service for public events.

Public Events. These activities require a great
deal of manpower to ensure proper standards of protection,
safety, order and public convenience and involve a good
deal of advance preparation on the part of supervisory and
command officers.

University officers below the rank of lieutenant
spent 1663.5 hours (equal to .9 officers) planning and op-

erating events in 1961. The officers now receive special

 

126

event overtime pay at a straighttime rate for duty at pub-
lic events which require the scheduling of officers in
greater numbers than would normally be scheduled for duty
on that day. A departmental study revealed that the former
system of providing event officer assignments as part of
the monthly scheduling process was depriving the university
of the services of almost two full—time officers each year,
although the time spent on the events themselves seldom
exceeded the time of one officer. The university then ap-
propriated additional funds to pay for these assignments
at an overtime rate on the basis described above if the
event requires more than one officer assigned.

In addition, the police service hires a great many
students to provide traffic and parking control at events-—
a duty which the police service simply does not have enough

men to perform.

V. ADEQUACY OF POLICE PROTECTION AND SERVICE

The police service, unlike fire departments, has
no agreed-upon set of standards for measuring adequacy.
Because police work does not deal with physical materials
and properties, development of an objective standard does
not appear likely in the reasonable future.

Therefore, evaluation of police efficiency must
be almost entirely subjective. One can measure certain

items of police output such as tickets written, arrests

127

made and similar matters but we cannot know whether in-
creases or decreases in such items are "good" or "bad" in
terms of their contribution to overall protection of the
community.

Because the population of law breakers cannot be
measured accurately, and funds for such measurement efforts
are not available generally to law enforcement people, we
must be content with the subjective evaluations of law en-
forcement administrators supplemented by such objective

measurements as are available.

Needs of a University Community

Some conclusions can be developed from the general
need of a university for protection based on its past prac-
tices and certain obvious characteristics of university
functioning and population.

The record shows and the Director of Public Safety
supports the fact that the university has desired and gen—
erally received a high level of police service--a level
of service and protection which would be regarded as lux-
urious in many of our cities where crime and violence in-
hibit the freedom of the population to move about after
dark. To a university, such a standard of protection is
not a luxury--it is a necessity. This is shown in the ex-
perience and practice of other universities as well as being

the opinion of those familiar with the problem at Michigan

State.

 

 

128

Several factors operate to make such service a nec-
essity. First is the fact that when parents send their
children away to a university they seem to think their off-
spring are attending a form of utopia which is a haven from
the unpleasant things of life. This view is shared by much
of the university population itself and is encouraged by
the very purposes of a university and by the nature of the
life involved in the pursuit and teaching of knowledge.

When crime shows itself on the campus in the form
of assaults, rapes, indecent exposures and even murders,
the reaction of the parents is a strong one. A "city cam-
pus"--one which can hardly be distinguished from the city
blocks of which it is a part--can transfer the pressure by
.reference to the fact that the institution is part of the
city and has little control over its standards of protec-
tion. The separate and distinct campus at Michigan State
prevents this type of adjustment to the problem.

A second factor is the nature of a highly residen-

tial campus. Any institution which has a large resident
population, particularly one housed in dormitory-type hous—
ing, has a well developed but hardly accurate rumor mill.
A minor annoyance to a dormitory girl can be quickly mag—
nified to a "rape" before the rumor has been in existence
more than a few hours--to the consternation of many hun-
dreds of the female residents.

Should the female population develop a reluctance

129

to go about the campus at night because of fear of criminal
activity, the process of education at the university would
be placed under a very undesirable constraint. The univer-
sity police provide the patrol and investigative force which
is necessary to ensure a universal feeling of security among
the residents and thus encourage the purposes for which

the university exists.

Another characteristic of the university is the
service demands made upon the police. It is clear that
manpower to meet these service demands should be manpower
in excess of that necessary for protective services and
this principle should particularly be applied in the hours
of darkness. One reason the police are asked to provide
these services is the continuous availability of the offi-
cers and the fact that many of the service demands can be
met in periods of relative quiet. An excellent example
of this is the enforcement of student motor vehicle regu-
lations which, until recent years, was almost entirely a
weekday task to be performed in the daylight hours when
the university police are primarily a standby force and
have very few preventive patrol responsibilities. Recently,
however, enforcement of these regulations has become a heavy
burden for the midnight shift and the afternoon shift and
thus conflicts directly with police protective responsi—
bilities.

Another factor for evaluation is the geographic

130

area to be protected. Reference to the maps of the univer-
sity in recent years shows that the areas of nighttime fe-
male pedestrian movement have been enlarged from North
Campus to include almost the entire South Campus. Womens'
dormitories are now found throughout the campus, increas-
ing the area of female pedestrian movement from 184 acres
to a total of 608 acres--a 230% increase in the area which

should receive intensive patrol supervision by police.

Police Manpower

Prior to the state fiscal crisis years of 1958-61,
manpower of the university police increased rather propor-
tionately and regularly as the university population in-
creased until, by 1957-58, with the addition of two men
in that year, it had reached a size of 24 men devoted en-
tirely to police duties.

For the next four fiscal years, there was no in-
crease in manpower, while student enrollment increased
19.8% on the East Lansing campus to 22,724 students and
campus residents increased from a designed capacity of
12,477 in Fall, 1957, to a designed capacity of 15,000
in Fall, l961--a 20.3% increase. The campus resident pop-
ulation in Fall, 1961, was actually over 16,700 since the
dormitories were housing students well over the designed
capacity.

In Fall, 1962, the campus resident population was

 

131

an estimated l8,500--an increase of 48% over the 1957 de-
signed capacity. Police personnel increased by one officer
in this period--a full-time Director was appointed and a
lieutenant's position abolished in 1960, which cost the
police service almost a full-time functioning line police
officer. Two officers were added in Fall, 1962--represent-
ing a net increase of 4% in officer manpower against 48%
increase in residents and almost 20% increase in student
enrollment.

For the purposes of this study, the Director‘s po-
sition is excluded from manpower analysis. The Director
cannot materially contribute to the performance of line
police activities without creating chain of command con-
flicts and impairing his ability to perform duties essen-
tial to the police and the safety activities which can be
performed only by the Director.

A recent UCLA study in 1962 compared certain char-
acteristics of large state university campus police units
and spoke very highly of the organization and administra-
tion of the Michigan State University unit.65 Five systems
having integrated public safety organizations were cited
as being set apart from the other 13 universities polled

in " . . . presenting an image of dynamism, integration,

 

65Nils D. Wagenhals, Evaluating a Public Service
Function: The Large State University Campus Police Unit
TLos Angeles: University of California Bureau of Govern-
mental Research, 1962), pp. 18-19.

132

resourcefulness, and greater worth."66 These five systems,

of which Michigan State University was one, were reported
as having an average of 42 men servicing an average of
18,500 students.67 Michigan State, at the time of the
survey, had 24 men servicing 22,593 students and had the
largest resident population and largest campus to protect
of any of the 18 schools surveyed.

A tabulation made from the findings of the UCLA
survey is presented below, showing the university's rank
among the other 17 for the various items presented by the

study.

TABLE XXIV

Comparison of Michigan State University Characteristics
with the Police Units of 17 Other Large State-Supported
Universities—-UCLA Study

 

 

fiem flan
1. Campus acreage l
2. Resident student population 1
3. Total student population (campus enrollment) 3
4. Total full-time police officers (incl. Director) 8
5. Full-time officers per 1,000 resident students 14
6. Full-time officers per 1,000 enrolled students 15

 

The police force of the University of Iowa conducted
a survey of twelve institutions including Colorado, Colorado
State, Illinois, Iowa, Kansas, Minnesota, Missouri, Bowling
Green, Houston, Wisconsin, Arizona and Michigan State. Of

66Ibid., p. 18.

67Ibid., p. 18.

 

133

this group, four had populations exceeding 20,000_(Illinois,
Minnesota, Wisconsin and Michigan State). Following is a

tabulation taken from the Iowa figures for those four schools:

 

 

TABLE XXV
Police Personnel of Four Big 10 Universities over 20,000
Enrollment
IIIinois Minnesota WisconEIn’MiChigan State
Population 24,169 33,000 21,000 25,040
No. officers 47 46 48 26'
Officers/M pop. 1.94 1.39 2.28 1.04

’Includes Director of Public Safety.

The other schools were tabulated as follows and
some are clearly not comparable, judging by the extreme

variance from the pattern presented by the others:

TABLE XXVI

University of Iowa Survey of University Police Personnel

 

 

Fall No. Officers7

Institution Enrollment Officers 1,000gpgp.
U. of Colorado 12,500 6 (+5 0.48

part-time)

Colorado State 7,500 6 0.80
Illinois 24,169 47 1.94
Iowa 12,400 24 1.93
Kansas 11,000 20 1.82
Minnesota 33,000 46 1.39
Missouri 14,000 15 1.07
Bowling Green 8,000 12 1.50
Houston 13,587 7 0.51
Wisconsin 21,000 48 2.28
Arizona 17,000 12 0.70
Michigan State 25,040 26 1.04

 

134

Another study of a similar nature, but unpublished,
was made by the Michigan State University police in 1959,
using data from six other schools which were known to have
protection problems or campuses somewhat similar to Mich-
igan State University or which were known to have well-
administered Operations. This survey included Indiana,
Cornell, Syracuse, Minnesota, Illinois and Stanford. Stan-
ford is excluded from the following discussion of this sur-
vey because of its small enrollment.

Of the six schools (including Michigan State) con-
sidered, Michigan State was sixth for ratio of officers
to residents and enrollments, and sixth in number of full-
time officers, watChmen and guards; it was second in terms
of enrollment, residents and campus acreage.

From these comparisons with actual practice at
other major universities, it is clear that Michigan State
is operating with many fewer officers than comparable in-
stitutions.

The UCLA study showed a median ratio of officers
to enrollment of 1.37 per 1,000 and an average of the seven-
teen institutions, excluding Wayne State, of 1.44 per 1,000.
Michigan State's ratio per thousand enrollment was 1.06--

a difference of 10 men between Michigan State's police force
and the median figure for the seventeen schools and a dif-
ference of 12 men from the average figure.

The rank correlation finding in the UCLA study of

135

.753 in the ratio between officers and enrollment indicates
some importance may be attached to this comparison of of-
ficer-population ratios among large education institutions,
just as James is of the opinion that prevailing practice
as an index of popular and political judgments on protec-
tion adequacy deserves considerable attention in evaluating
municipal police and fire protection.68
Some reference should be made to comparable manpower
manning practices in Michigan cities of reasonably compar-
able characteristics. Reference to the 1961 Uniform Crime
Report information provides the following table of Crime
Index Offenses for certain Michigan cities in the popula-
tion range 25,000-50,000 having police forces less than
60 men and thus comparable to the largest university police
forces. It should be retognized that in 1961 the campus
portion of the East Lansing population was 16,700, or more
than half the census population of 1960 shown in Table XXVII.
The dangers of comparisons between crime index in-
formation for various cities are well known and carefully
pointed out in the 1961 Uniform Crime Reports on page VII,
and it is abundantly clear.that many of the cities are ob-
viously not comparable--for example, East Detroit, Ferndale,

Inkster, Madison Heights, Southfield and Southgate are

 

68Ibid., p. 23; also Charles 5. James, Police and
Fire Integration in the Small City (Chicago: Public Admin-
istration Service, 1955), p. 21.

136

TABLE XXVII

Crime Index and Full-Time Police Employees in Selected Mich-
igan Cities of 25,000 to 50,000 Population
(from 1961 Uniform Crime Report)

 

 

. m l0:

E a) a) 4J0)

o o. m §<u

:2 m o QJC >«

m T) w Ln U E<D CLO

u m «a o 4. «4m QJOrd

: m 4J mm u» m uw Eco.

In) u—c >1 r044 cc >a >«n .c: UO "-1 E

. mm b u >H ww+ cm a B .pmm
POM-Ge m-a H m m :5 a: u m :3 m u H x IU

Agency '33» 8 3 8.53 83 up 8% 8 13% :22

Jurisdiction :50) o o ow: us: :33 “1C: :3 0:: son)

22 En m 4:43 mm A :43 < EH CI-aOaE
Allen Park 0 l 4 8 111 124 533 53 781 49
Birmingham 1 63 79 391 25 559 37
East Detroit 1 3 12 15 265 199 702 36 1233 51
East Lansing 38 42 104 9 193 26
MICHIGAN ‘
STATE U. 337 178 529 14 1058 27
Ferndale 4 4 16 9 175 119 459 72 858 48
Hazel Park 1 7 2 182 66 652 65 975 35
Inkster 12 31 61 382 205 612 116 1419 41

Madison

Heights 2 6 11 166 74 404 53 716 27
Midland 2 51 44 576 28 701 30
Port Huron 1 2 7 177 46 711 26 970 55
Southfield 3 3 6 7 272 203 459 44 997 39
Southgate l 1 16 5 94 173 510 36 836 29

‘Includes civilian non-officers.

clearly not comparable with the others because of the volume
of violent crime they experience. Objections can be raised
against use of most of the other cities, but Birmingham,
East Lansing and Midland quite apparently have a pattern

of Crime Index offenses which is somewhat comparable to

that of Michigan State University in lack of violence and
predominance of offenses against property. Persons famil-

iar with these communities will recognize a certain similarity

 

 

 

137

in the nature of their population characteristics as well

as the fact that they enjoy high levels of police protection.
Comparison of the cities of Midland, Birmingham

and East Lansing reveals a clear disparity between number

of officers and volume of criminal activity in the Crime

Index categories. Efforts to refute this by reference to

severity of the offenses in the four jurisdictions can be

countered by the fact that the university makes every ef—

fort to solve all of its offenses, recognizing that many

of the offenders need assistance in their progress toward

maturity and also being desirous of eliminating undesirables

from the university community.

Patrol Time

 

A peculiarity of uniformed police work is the fact
that "spare time" of the uniformed patrolmen is a highly
valued output of the police agency, if it is utilized for
vigorous and well channeled patrol activity. Police admin-
istrators believe that vigorous and conspicuous patrol ac-
tivity has a high value in preventing criminal activities
in areas which can be patrolled effectively.69

Since a primary objective of the university police
is to deter assaults and annoyance to students and ensure

their ability to move about the campus without fear of harm,

 

69G. Douglas Gourley and Allen P. Bristow, Patrol,
Administration (Springfield, Illinois: Charles C. Thomas,
Publisher, 1961), p. viii.

 

 

 

VI)! l£.1.l|.1l. . 0.3. 1

138

the amount of time expended on patrol activity is a matter
of considerable importance in evaluating the adequacy of
police protection on the campus.

Very little data are available on how patrol forces
in city police departments expend their time and what pro-
portion of this is devoted to patrol. The City Manager
of San Diego reported that patrol officers in the San Diego
police department were "on patrol" 76.2% of their duty time

70

during an 8-hour shift. In contrast, are the figures

for recent years from the university police.

TABLE XXVIII

Annual Patrol Time of University Police
(from daily activity report tabulations)

 

 

 

iatrol % of Total Authorized
Year Hours Man Hours‘ Positions
1954-55 12,475 39.44 17
1955-56 11,699 31.78 20
1956-57 11,410 27.53 22
1957—58 11,423 29.77 24
1958-59 11,832 31.14 24
1959-60 10,927 29.91 24
1960—61 9,977 22.84 24
1961-62 9,510 22.01 24

‘Variations in percentage figures apparently at-
tributable to changes in number of lieutenants.

The importance of these figures and the overall

trend in manpower adequacy of the police is emphasized by

70George E. Bean and Howard L. McCalla, The Case
for Better Utilization of Fire Manpower (San Diego: Report
Of the City Manager to the City Council, June 1, 1961),
p° 150

 

 

139

the comparison between 1954-55 when the department had 17
men and 1961-62 when the police had an authorized strength
of 24 men including the Director. In 1954-55, the police
spent 12,475 hours on patrol. Seven years later, with 41%

more men, the police spent 23.77% fewer hours on patrol.

Patrol Availability

Important to integration is the belief that police
patrolmen can be dispatched with reliability and speed to
fires to ensure a coordinated team of fire fighting person-
nel. The 25 per cent of patrol force manpower available
for response is not promising if only the raw figures are
considered. However, examination into the working figures
of the uniformed force provides a more encouraging outlook.
Table XXIX presents the per cent of uniformed officer duty
time spent in various activities by the duty shift to which
the men are assigned. These figures are from the daily
activity reports of every officer below the rank of lieu-
tenant.

For the purpose of accurately estimating availabil-
ity of uniformed patrol and supervisory personnel, a com-
parison was made of the time breakdown from the officer
activity reports. The criteria established was the nature
of the duty as it affected availability for immediate dis-
patch, assuming the officers and supervisor were equipped

at all times with a miniature radio receiver. A good deal

 

140

TABLE XXIX

Per Cent Duty Time of Uniformed Officers below Lieutenant
by Duty Shift and Type of Activity, 1962
(from daily activity reports)

After- 7:30 P- TotaI

 

 

 

"-‘ ‘n‘ 4

=4‘:‘_u 1 t .

 

._A ._.—

 

Night Day noon 3:30 A Uniform
Activity Shift Shift Shift Shift Force
Patrol by car 27.4% 19.4% 24.7% 40.3% 24.6%
Patrol on foot .4 .2 1.2 3.6 .8
Non-event traffic control .5 .2 .1 .3
Event traffic control .3 1.3 .8 1.2 .9
Traffic enforcement &
surveys 2.8 4.3 2.7 2.5 3.3
Criminal incident inves-
tigation 3.5 6.6 6.8 11.5 6.7
Non-criminal incident
investigation .4 1.0 .7 1.0 .7
Public and department
services 2.5 5.9 3.7 4.1 4.3
Report writing 1.3 3.8 3.9 4.4 3.4
Other clerical duties .8 .9 .7 1.1 .8
Training, meetings,
school attendance 6.4 13.7 7.1 1.5 8.9
Public event planning
and duties .9 2.4 1.7 .4 1.7
Maintenance duties .4 .9 .8 1.0 .8
Investigation of appli-
cants .3 1.1 .5 .6
Other special assignments 1.4 3.2 2.2 1.0 2.3
Supervision 13.2 7.2 11.9 9.4
Desk duty 28.8 19.8 19.9 13.1 21.0
Property inspections 4.1 .2 2.0 5.2 2.0
Briefing 1.6 2.1 2.0 3.0 2.0
Lunch and coffee breaks 1.9 3.5 3.3 2.2 3.0
Illness .8 .8 2.0 1.8 1.3
Other .8 1.3 1.1 .9 1.1
Total Per Cent 100.0 100.1 99.9 99.9 99.9

 

141

of judgment involving a detailed knowledge of the nature
of the activities and locations in which they occur enters
into the evaluation. The following table presents the com-

parison by work shifts for two years.

TABLE XXX

Estimated Availability of Uniformed Police for Dispatch to
Fire Alarms, 1961 and 1962 (excludes desk officer)

 

 

 

 

AvailabIe-- AvaiIable-- Not
No Delay Some Delay, Available

1961 1962 1961 1962 1961 1962
Night Shift 74% 82% 19% 11% 7% 7%
Day Shift 67 57 22 23 11 20
Evening Shift 69 68 18 20 13 12
7:30 p.m.-3:30 a.m. - 75 - l8 - 7
Average entire
uniform force 67% 67% 22% 19% 11% 14%

 

 

 

The increase in availability on the night shift
is due to the additional manpower made available by use
of the 7:30 p.m.-3:30 a.m. overlapping shift. Addition-
ally, it should be recognized that, after 7:30 p.m., the
overlapping shift manpower is a major factor in providing
availability of personnel during these hours of the even-
ing shift. The increase in unavailability of day shift
men is attributable to the higher level of training of

recruits in 1962.

Miscellaneous Factors

 

The very high personnel turnover rate is a factor

of inefficiency which should receive careful attention from

 

142

the university. If the department is to Operate with an
authorized strength which is inadequate and causes long
working hours and a great deal of overtime among personnel,
who, to a great extent, are motivated toward their academic
objectives, then it may be questionable policy to continue
a recruiting policy which ensures high turnover and posi-
tion vacancies which extend for long periods, and presents
additional training burdens when the vacancies are filled.

The police need at least one additional automobile
and two would be desirable. Personnel wait in the station
for transportation on the increasingly frequent busy days
of the department.

Police efficiency is absolutely dependent upon pub-
lic cooperation which, in turn, is dependent upon the image
of the police which the public carry in their minds. The
image of the university police has been a poor one over
the years, but increasing student newspaper publicity of
a factual nature is demonstrating to the public that they
do have a police force instead of just a group of "mickey
mouse ticket writers." The Director has spent a great deal
of time seeking out persons with criticisms of the depart-
ment and has accomplished much in changing unfavorable
images, and a faculty committee has been established for
the primary purpose of improving police-faculty relations.
Veteran officers of the police service report they feel

the student attitude toward the department has never been

' ‘~ W‘meme "mm 9n~w~ "~

143

better and attribute the betterment in student opinion to

the newspaper publicity and the reporting of police activity

with criminal incidents.

Summary

In all significant respects the efficiency of the
police protection seems to be as good as it can be without
more manpower.

Morale is generally excellent and personnel are
expecting salary and benefit adjustments in the 1963-64
budget. The officer caliber is quite high, the officers
work long hours without complaint and the quality of their
work is excellent, but increasingly hurried by the pressure
of work demands.

Supervision of the department is intensive, train-
ing is of a good quality, although recently unduly oriented
to training of recruits because of officer turnover. Dis-
ciplinary problems are almost unknown, although the command
and administrative personnel investigate each citizen com-
plaint with such thoroughness as to cause some uneasiness
among the officers, who are constantly reminded of the vul-
nerability of a police officer to malicious or misguided
citizens.

In view of manpower conditions, service activities
of the department occupy far too much of its time, and the

department is able to secure only 25.4% of its working

144

uniformed manhours for patrol duty.

The officers, particularly investigators, spend
an unreasonable amount of time typing reports--a function
which could more efficiently be performed by a dictaphone-
typist. This position is requested in the 1963—64 budget.
Two such positions will probably be needed to provide ap-
preciable assistance to uniformed officers.

The central efficiency problem is personnel-~the
number of positions and their turnover. There seems to be
no really significant way in which to stretch the efforts
of the officers appreciably further. The university has
clearly reached a point when it must choose between serv-
ice cutbacks or steadily increasing protection deficiencies
unless it is able to add more officers to the police force.
For the basic problem is that the university, in 1962, re-
ceived 17% less patrol protection in man hours than it did
in 1954—55, with a 47% larger police force patrolling a

primary protection area increased 230% in size.

 

 

CHAPTER IV
PLANNING FOR POLICE-FIRE UNIFICATION

I. FUTURE PROTECTION AND SERVICE DEMANDS
Central to the question of estimating What the

future will bring to police and fire protection problems

at Michigan State is the question of its own population
increase. Pertinent also is the growth and development

of the Lansing and East Lansing communities around the uni-
versity, because of the effect they might have on univer-
sity crime problems and growth of the East Lansing Fire

Department.

Campus Population

While the university has been estimating its future
enrollments for years, these estimates have been consistently
below the actual enrollment, as for example the 1961 Fall
Term enrollment of 24,104 had not been expected until 1963.1
The most current public estimate of possible enrollments
was made by President John Hannah April 4, 1963, in which
he stated that Michigan State's enrollments could reach

32,447 by 1965, 40,266 by 1968 and 51,517 by 1972. In

1Annual Report of the Registrar, 1961-62 (East
Lansing: Michigan State University, 1962), p. 10; also
graph on p. 11.

146

this address he proposed a maximum enrollment of 35,000
students be established.2
In view of the possibility of establishing an en-
rollment limit, the future of the university will be dis-
cussed here as if the limit is a reality, since it provides

a much less speculative basis for planning than figures

varying from 35,000 to 51,000.

Area Growth

 

Exact prediction of the growth of an urbanized area
around the university and of the Lansing Metropolitan area
is not necessary for purposes of this study. It is suffi-

cient to know the population history of the area.

 

% Change

1940 1950 1960 1940
East Lansing3 11,065 20,325 30,198 172.9%
Lansing4 5 78,753 92,129 113,058 43.5%
Ingham County 6 130,616 172,941 211,034 61.5%
Lansing Metro. Area 191,411 244,159 299,300 56.3%

The trend of growth around the university is obvi-

ous. Lansing is growing fastest to the South and East,

 

‘State News (East Lansing: Michigan State Univer-
sity), April 5, 1963, p. 1.

 

A Report to the Citizens...City of East Lansing,

 

 

 

362, gp. cit., p. 17.

4M.S.U. 1962 Facts Book (East Lansing: Michigan
State University, 1962), p. 40.

51bid.

6

Ibid.

 

 

147

East Lansing ultimately will expand on the East of the cam-
pus or the charter township of Meridian will urbanize on
the East side of the campus and to the South of it.

The planned extension of Lansing's Main Street through
the campus will bring through the heart of the campus a
volume of highway traffic heavier than is now experienced
on Grand River Avenue and will probably serve to familiar-
ize a great many more people with the nature of the campus
and thus increase its transient problem. The public events
of a university of 35,000 persons will serve to bring many
more thousands onto campus than now experienced.

Ultimately the campus will be surrounded by urban-
ized area and will receive increasing attention from casual
and transient traffic. At other metropolitan campuses this
has meant an increase in crime, disorder and traffic con-

gestion.

Fire Protection

The East Lansing Fire Department will undoubtedly
expand in the future. The city manager thinks a second~
fire station in the city is probable and a second fire sta-
tion on the campus is possible, depending on the physical
expansion of the campus.7 The fire chief hopes to expand

the department by seven men as soon as possible to reduce

7Related to the author by City Manager John Patri-
arche and Fire Chief Murle Croy.

 

 

148

the work week and provide a six—man response on the campus
without regard to future expansion of the city or univer-
sity.8

Examination of the locations of the existing fire
stations on the map shows their inefficient protection of
the city and the campus and shows how quickly a second city
station will be needed in the North and East area of the
city if future annexations take place.

Increasing population will bring increasing numbers
of fire alarms as well as the need for more fire stations.
It is not too extravagant to project a fire department which,
under present standards of fire department administration,
would be operating four pumper companies and two ladder
companies.

The ladder companies will be necessitated by the
planned expansion of apartment housing in East Lansing an-
nounced in the Lansing State Journal in recent months and
shown also in the East Lansing building permit applications.

A six—company fire department projected on present
manning standards on the campus of one man on the ladder
and three men on a pumper with a second pumper driven by
One man would not be adequate for a fire department with
four stations. Therefore, the projection assumes three—
man pumper companies in each station and the present practice

8Related to the author by Fire Chief Murle Croy.

 

C611

149

of one man on a ladder company.
Such manning would require a fire department per-

sonnel strength approximately as follows:

4 pumper co. x 3 men 12 men on duty
2 ladder co. x 1 man 2 " " "
1 fire command officer 1

is. n n 00

Assuming a 56-hour work week which is probable
within a very few years, either because of social or leg-
islative pressure, it would require 3.33 men to maintain
each round-the-clock position, plus an assumed number of
administrative and staff personnel as follows:

15 men on duty x 3.3 50 men

fire chief

Fire Marshal
fire inspector

m
uH4F4H

men
Actually, the assumed one-man ladder company is
so minimal as to be almost ridiculous and it seems unlikely
that a department of more than 50 men would operate a lad-
der truck in such manner.
But assuming such to be the case in order to use
a very conservative manpower requirement for estimation
purposes, and assuming that the police continue to provide
fire alarm and communication service to the fire department,
it is clear the university can expect at least a 65% in-
crease in its contributions toward the salaries of 51 men
(excluding the fire inspection personnel). Salary increases

cannot be calculated but an increase of 3% per year is

150

{nobably not excessive in the absence of unusual economic
conditions.

When acquisition of apparatus and its replacement
is considered, as well as university payment toward supplies
and maintenance costs, it appears likely that the univer-

sity's fire protection payments will increase at least 75%

within a relatively few years.

Police Protection

It seems obvious that the university already has
a serious need for additional police officers without any
consideration being given for future growth. In terms of
a 35,000 enrollment it is likely that a ratio of 1.2 offi-
cers per thousand students enrolled will be necessary to
provide police services. The 1.2 per thousand ratio with
a 35,000 enrollment would put 42 officers on the university
payroll, a growth of 68% over the present figure of 25 ex-
cluding the Director. To this cost would be added the ex-
pense of public event police protection and whatever in-
creases in salaries develop, as well as proportionate
increases in cost of vehicles, and the usual supply and
equipment expenses.

An additional factor in police protection projec-
tions is the very likely development of need for foot patrol
beats and fixed post protection of classified research ac-

tivities. These developments seem inevitable when the

 

151

problems of other large universities in urbanized areas
are observed.

It is probable that police costs would double by
the time the university expands to an enrollment of 35,000

students.

Public Safety Manpower Forecast

In order to get reasonably positive figures to work
with, it is assumed that the campus enrollment estimates
of the registrar are accurate and that the university will
reach the upper limit of 35,000 enrollment in fiscal year
1967-68. It is also assumed that the police will not be
able to add more than three men per year on the average
in those five years, reaching 40 officers. It is further
assumed that the fire department will reach a 56—hour work
week by that time, either through its own activity or through
legislative action. It is assumed that there will be no
expansion to a second fire station in this time and that
fire manpower will increase to the immediate goal of the
fire chief--a six-man response in each station on a 56—hour
work week with a command officer responding, also.

This would require a fire department strength of
40 station personnel, and the existing three lieutenants
and one chief; the university would thus be paying for ap-
proximately 22 fire personnel by 1967—68. It is further

assumed that the fire department will increase by two men

152

each year as it has tended to do in the past and thus will
fall short of necessary manpower by reaching only 40 men
in 1967-68.

Thus, under the assumed conditions, neither depart—
ment will achieve the assumed minimum standard of manning
but will have to be content with less manpower than it would
like--40 police and 40 fire personnel. In 1967-68 the uni-
versity would then have 1.14 police per thousand enrollment
and will be paying for 0.57 firemen per thousand enrollment
for a total of 1.71 public safety employees per thousand
enrollment paid for by university funds. The 1962-63 fig-
ure was 1.6 public safety employees per thousand enrollment
including 1.0 police personnel (excluding the Director)

per thousand.

Summary

It is obvious that the future promises nothing but
increasing expense for the university in providing adequate
police and fire protection. It is equally obvious that
the bulk of the expense will be for personnel. The ques-
tion, then, is that of determining some way of economizing
on manpower needs. If public safety manpower can be reduced
below the eventual 50% university share of a 40-50 man fire
department and 100% support of a 40-45 man university police
department, substantial savings can result over a period

of years. In short, can the university use less than 60-70

153

public safety (police and fire) employees when it reaches
an enrollment of 35,000?

Potential for such a reduction in personnel lies
with the concept of police-fire integration, or utilization
of fire manpower, as George Bean realistically terms it.9
The next chapter will demonstrate how an integrated police-
fire operation can reduce the number of police—fire person—
nel necessary for the university's protection.

This chapter will consider the application of
police-fire integration to the public safety protection
of the university by proposing an organization, manpower
and basic operational procedures adequate, in the writer's
judgment, to provide police and fire protection to the uni-

versity in the year 1963-64.

II. GENERAL CONSIDERATIONS
It is important that the political, legal and or-
ganizational difficulties of such a change be considered
first, in order that fundamental obstacles be discovered

quickly.

Legal Basis for Unification
Michigan State University, or rather, its Board
of Trustees, is a constitutional corporation established

by the Constitution of 1908 (still in effect at the time

 

9Bean and McCalla, op. cit., pp. 9-13.

 

 

154

of this writing) and will continue to be so under the new
constitution. The Board of Trustees has plenary power to
administer the affairs of the university--a power which,
in its own sphere, has been held to be independent of and
on a parity with the power of the legislature.10
There seems to be no question that it is the duty
of the Board of Trustees to provide for the public safety
on its property and that the operation of its own fire de-
partment probably would not meet any legal challenge. The
statute authorizing the City of East Lansing to provide
fire protection to the university is evidence of legisla-
tive recognition of the need for fire protection.11
Thus there seems to be no legal obstacle to estab-
lishment of a fire department by the university or to its

assuming responsibility for its own fire protection through

an existing public safety organization.

Political Considerations

The finances of the city of East Lansing would
receive quite a shock if the university should assume re-
sponsibility for its own fire protection. The city would
face the question of whether to continue its large fire

department and thereby double its fire department expense,

 

loBane v. State Board of Agriculture, 164 Mich. 417.

11Act 98, Michigan Public Acts of 1929 as amended
by Act 214, Michigan Public Acts of 1937.

 

155

or to cut back the fire department to some lesser size.

Separation of fire protection from the city need
not in any way effectively reduce the fire protection re-
ceived by the residents of East Lansing since a mutual aid
agreement between the university and the city for mutual
assistance and response to second alarms or simultaneous
alarms would amount to a continuation of the existing re-
sponse system which amounts to operation as if two separate
departments were involved.

Assuming such a mutual aid agreement, the separa-
tion would amount in the long run to a mere organizational

change.

Organizational Considerations

A major upheaval in the university public safety
organization could conceivably result from the integrating
process. However, this seems unlikely, since the existing
organization of the Department of Public Safety is already
an integrated organization--a11 safety functions of the
university are now integrated together except fire fighting.
Personnel problems should be minimal. The police personnel
are of unusually high caliber and already are adept at ad-
justment to rapidly changing university conditions. The
Director of Public Safety is a former fireman and is sym-
pathetic to the concept of integration of police and fire

forces.

156

Should police personnel dissatisfaction develop
(and this is probable only if they are given what appears
to them to be an insufficient salary increase to warrant
the additional duties and training) the rapid turnover and
the ability of the university to transfer employees among
all of its many non-academic departments should allow good
prospect for coping with personnel dissatisfaction.

Thus the basic philosophical orientation now exists
in the department of public safety for implementation of
a plan for police-fire integration, and organizational

problems would appear to be relatively minor.

III. ORGANIZATION
Certain organizational changes will be necessary
in the Department of Public Safety. Administrative and
specialty relationships will need re-aligning and a new

organizational unit will be necessary

Administration

The Director of Public Safety, responsible to the
president, will command three major divisions of the De-
partment of Public Safety--the Safety Division, the Records
Office, and the Police-Fire Division.

The Director would retain primary responsibility
for liaison outside the Department of Public Safety and
represent the department on the numerous committees he now

attends, delegating any representation necessary.

 

 

157

Safety Division

The Safety Division corresponds to the former Of-
fice of Safety Services and would provide through its spec-
ialist personnel the following public services:

1. Fire prevention.

2. Radiation safety.

3. Safety engineering.

4. Traffic safety education.

5. Pest control.

6. Sanitation.

7. The other functions now provided.

If, in the future, a competent administrator can
be found to direct and control these varied activities,
the safety division should be placed under a single admin-
istrator. Recent experience in attempting to employ such
a person indicates that the Director is best qualified to

continue the direction, control and coordination of these

safety activities at present.

Basically, this division will be unchanged in func-
tion except as it assumes responsibility for traffic safety
education--a logical extension of the preventive functions

of this group of personnel.

Records Office

This division would continue its present functions,
including:

1. Records maintenance and management.

2. Purchasing and bookkeeping.

3. Property management and maintenance.

4. Operation of the Disaster Control Center and
communications activities of the disaster plan.

5. Administrative research and planning for the
Director.

158

Police—Fire Division

This division would be commanded by a captain and
would consist of three subdivisions, as follows:

1. The Uniformed Force.

2. The Investigations Office.

3. The Fire and Training Unit.

Uniformed Force. The uniformed force would con—
sist of the existing three shifts (platoons) on the present
working schedule. The Midnight and Day shifts would be com-
manded by sergeants with a corporal assigned to each shift
to provide supervisory relief. The afternoon shift, because
of its substantial responsibility for more than 50% of fire
alarms and most major fires as well as its primary respon-
sibility for police protective duties when compared with
the duties of the other shifts, would be commanded by a
lieutenant with a sergeant and corporal also assigned, to
ensure that there are always two supervisors on duty on
this shift.

Investigations Office. Specialist investigations

 

service to the uniformed force would be provided by this
unit under command of a sergeant. However, an additional
officer would be assigned to meet the obvious need for more
manpower and in recognition that assumption of fire train—
ing and fire fighting duties by the uniformed force would
probably reduce their ability to conduct investigations.

Experience may show the need for assignment of still another

159

officer to this unit after integration is operating.

Fire and Training Unit. This unit would be com-
manded by a sergeant responsible to the captain for the
following:

1. Maintenance of fire fighting apparatus and
supervision of the fire apparatus operators.

2. Supervision of the fire fighting students.

3. Training of all police personnel, fire oper—
ators and student firemen in police and fire subjects.

4. Direction, control and coordination of pre-
fire planning with platoon commanders and fire safety of-
ficer.

5. Scheduling and supervision of uniformed offi-
cer and fire apparatus operator building inspection activ-
ities in cooperation with the fire safety officer.

Six apparatus operators would be required working
a 56 to 64-hour work week on a 24-hour day. Two operators
would be on duty at all times. Nine students would be em—
ployed as firemen, provided room and board, and given the
further opportunity to earn spending money working other
duties now performed by students if this does not interfere
with necessary fire fighting standby duties or their aca-
demic obligations. Specifics of the student fireman duty
schedule are provided later.

The sergeant in charge of this unit can be recruited

from within the department if suitable ability is available

H 160

or recruited from outside the department if necessary.

IV. UNIFIED POLICE-FIRE OPERATIONS
This section presents police and fire operations
H which are directly affected by the integration system or
which are necessary to understand the functioning of the

integrated department.

Police-Fire Priorities

 

Priorities must be established to prevent confusion
and delay in dealing with simultaneous incidents. The pri-
ority will be based on apparent threat to life, and all
fire incidents involving buildings are arbitrarily defined
as being a threat to life. Dispatching procedures for
potential conflicts must be prescribed in the rules and
regulations of the department and provision for assistance
from neighboring agencies must be made through mutual aid

agreements.

The Basic Platoon--Minimum Dutnganpower

Department regulations will establish a minimum
or basic fire fighting platoon strength below which the
duty platoon will not be allowed to fall and will require
call-back Of off-duty men to maintain this basic platoon
strength. This concept of a basic platoon is necessary
to provide a constant on-duty fire fighting potential.

The common police practice of being "short" on the shift

 

161

because of illness or for other reasons would be detrimental
to proper protection of the public and property from fire
and explosion.

Foreseen Situations. The public events of the uni-
versity frequently require attendance on duty of all its
police personnel. The basic platoon strength can be pro-
vided under these conditions with either a combination of
apparatus operators and student firemen or by use of appa-
ratus operators alone with appropriate supervision provided
in each case. Therefore, a football game will require at-
tendance on duty of all fire apparatus operators on special
event overtime pay in the same manner police personnel are
now required to work and be reimbursed for their services.

Unforeseen Situations. Illness provides a common
potential for reducing the basic platoon strength below
its mandatory minimum. This can be compensated for by re-
call of off-duty personnel if a specialist such as apparatus
operator is involved, or by resort to required standby duty
of an increased number of student firemen as the situation
and particular position vacant requires. Thus shortage
of a patrolman on a quiet night would be no problem because
a student fireman could be held in the station to provide

fire fighting manpower.

Manpower Availability

 

The function of dispatch and communications is

 

 

162

basic to the successful operation of an integrated police-
fire department. An essential feature of this proposed
organization is a communications system which would provide
to each on-duty patrolman and supervisor his own individual
radio receiver. With this he can proceed about his normal

duties and always be available for fire alarm response.

Fire Fighting Opgrations

This section assumes the existence of an appropri-
ate fire alarm manpower response. The necessary elements
of this response will be developed in the subsequent dis-
cussion of personnel requirements and considerations.

Fire Alarm Response. Farm and rural structure alarms

 

will receive response from two pumpers, each preferably
equipped with water tanks of approximately 500 gallons'
capacity. Currently only one of such capacity is avail-
able in the East Lansing fire department inventory of fire
apparatus. Because the records show that an alarm of fire
in the farm structures is usually an actual fire, the mu-
tual aid provision will call for an automatic response of
a tanker truck from a neighboring fire department to those
structures which have a limited water supply.

Grass and vehicle fires will receive a response
of one pumper, a supervisor, a patrolman and such student
firemen as might be in the station.

Married housing apartments will have a response of

163

two pumpers. Longer ladders would be put on the pumpers
to make available adequate ladder service to reach the roofs
of the faculty bricks and the farm structures.

Dormitories will receive a response of one pumper
and one ladder truck to all alarms, with a pre—planned pro-
cedure for water supply to each wing of each building.
Existing alarm systems will provide adequate information
for this level of pre-planning.

All other buildings will receive a response of one
pumper and one ladder truck except those with roofs which
can be reached from ladders carried on the pumpers.

Pre-fire Plannipg. Pre-fire planning will be of

 

vital importance if efficient fire operations are to be
assured. Because of the close relationship between plan-
ning and training, the pre-fire planning will be the re-
sponsibility of the training sergeant. The plans will be
developed in consultation with the Fire Safety Officer,
platoon commanders and the Captain and will include:

1. Standard procedures for certain common fire
situations such as the dormitory buildings of similar de—
sign.

2. Individual plans for buildings deemed to be
target hazards, such as the farm complexes.

Emphasis of the pre-fire plans will be upon the
first-due duties to ensure effective use of available water

supply and building structural features. The plans will

164

also include building floor plans showing utility systems
and known hazards and an area map showing necessary pro-
cedures to develop maximum available water supply in the
event the alarm should be a major fire. The pre-fire plans
will be filed near the first-due pumper so that the plan
for the individual building involved can be taken to each
alarm. The building master key will also be taken to the
alarm.

Multiple and Subsequent Alarms. Provision for deal-
ing with these alarm situations must be made in mutual aid
agreements with East Lansing and other neighboring fire
departments. A multiple alarm is one which requires addi-
tional men and apparatus beyond the first-due complement
which reSponded. Because of the limited manpower sent to
university alarms, most working fires would require a second
alarm. A subsequent alarm is one received while the fire
apparatus is out of service at a previously received and

different fire alarm.12

East Lansing and the university
would provide for each other the response for second alarm
apparatus and manpower in a multiple alarm situation on

a reciprocal basis just as the other fire station comple-

ment is now dispatched to assist the first station crew.

Apparatus and men needed beyond a second alarm could come

 

12Officer Training: Fire Fighting Facilities, Plan-
ning and Procedures, op. cit., p. 81.

165

from personnel called back to duty or from still another
fire department, depending on the arrangements made at the
time the mutual aid agreements were prepared. It is obvi-
ous that a small department will never be able to cope with
a fire totally involving buildings such as Agriculture Hall
or Wells Hall. Such a fire would require several aerial
ladders alone to provide ladder pipe streams and large
capacity pumpers to supply them, as well as other pumpers
to provide water from the river if the water supply were
overtaxed as it probably would be under conditions requir-
ing use of heavy streams.

When extended duty is required at a multiple alarm
fire, the mutual aid agreement must also provide for sta-
tioning of a fire company from another jurisdiction in the
city or the campus to provide for response to any subsequent
alarm received while the major fire is in progress.

Response to a subsequent alarm received while uni-
versity apparatus is at a prior alarm would be provided
normally by East Lansing's first alarm companies. If the
university alarm is to be time consuming, such as a grass
fire or dump fire, but does not require more manpower, then
the agreement would probably provide for recall of off-duty
men to provide for subsequent alarm response and East Lan—
sing would be limited in obligation to covering only until
the off-duty manpower has arrived at the station.

Command of fire fighting operations at a multiple

 

166

alarm fire involving mutual aid assistance from other de-
partments would be vested in the chief of the agency being
assisted, according to recommended fire protection procedure.l3

Initial Fire Attack Procedures. A standard operat-

 

ing procedure for each type of building (or each building,
if study proves this necessary) should be drawn up to ensure
maximum efficiency in pumper placement and use of available
water supply for standpipe and/or sprinkler system opera-
tions.
Whenever an actual fire is reported, regulations
should require a pumper hook-up to a hydrant and use of
the standpipe system for hose lines. A "doughnut roll"
of single-jacket, lightweight l l/Z-inch hose should be
taken into the building whenever a fire is reported to en-
sure adequacy in length and number of standpipe lines for
fire fighting.14
A training program of repetitive drill on weekends
and holidays will be carried out on the actual buildings
based on a training "by the numbers" system such as is used
so effectively by the United States Navy in its structural

15

fire fighting drill evolutions. This method could be

 

lBIbid., p. 43.

14Donald M. O’Brien, editor, The Fire Chief's Hand-
book (New York: The Reuben Donnelley Corporation, 1960),
_p. 358.

 

lsStructural Fire-Fighting Manual (Washington:
United States Navy, 1953, as revised), p. 81.

167

modified to assign numbers to arriving patrolmen in terms
of the order of their arrival and the apparent nature of
the alarm.

Each supervisor and command officer at the scene
must be equipped with a two-way miniature radio and each
patrolman with a miniature receiver. When the fire or
situation is accurately located this radio will allow ef-
fective coordination of men and apparatus and will prevent
lost time and motion.

Department administrators will have to be careful
that shift personnel are not allowed to avoid making hydrant
connections when a fire is reported, since this practice
has had disastrous effects elsewhere in fire protection
history. It requires less time to make such a connection
as part of a pre-planned initial attack than it does to
relocate apparatus, make U—turns and perform other similar
maneuvers to make a hydrant connection after the fire at-
tack is under way and the minimal force which will respond
on first alarms is depleted by rescue and fire fighting
obligations.

Minor equipment such as variable volume spray noz-
zles, gated wye hydrant connectors, single—jacket light
weight 1 1/2—inch hose, and tactics such as use of hose
clamps, and in-line hydrant-to-fire hose lay for water
supply with 3-inch or 3 l/2-inch hose must be used to se—

cure maximum fire fighting and rescue potential from the

168
limited number of men available.

Inhalator-Resuscitator Service

Modern developments in this type of equipment and
the expansion of the campus area make it undesirable and
inefficient to provide this service from a centrally lo-
cated station.

The new lightweight equipment costs only half as
much as the traditional equipment and can easily be car-
ried by one man. Such a unit should be placed in each
patrol car, thus placing the service as much as two or
three minutes closer to the victim--literally a matter
of life or death in cases of breathing stoppage.

The equipment will operate for fifteen minutes,
allowing adequate time for the second patrol car dispatched
to bring an extra oxygen bottle to the scene, for use until
transferral to an ambulance which has its own supply of

oxygen.

Transportation of Sick and Injured

This service, so far as it related to stretcher
transportation to off-campus hospitals, must be reconsid-
ered in terms of an integrated operation. It is not wise
to have less than two trained men involved in a stretcher

transportation.l6 Two men will represent a substantial

 

16Carl B. Young, Jr., First Aid and Resuscitation
(Springfield, Illinois: Charles C. Thomas Publisher, 1954),

pp. 88-90 0

 

 

169

portion of the fire fighting response personnel of the uni-
versity and to have them in Lansing many minutes away from
effective fire response is not desirable.

Either commercial ambulances will have to be sum—
moned for off—campus hospital trips or the admittance pol-
icy of Olin Health Service hospital will have to be altered
to allow admittance and emergency care of non-students un-
til they can be transferred to another hospital, or addi-
tional manpower must be provided for performance of this

specific function.

Use of Specialists for Fire Fighting

 

The records officer, staff officer (if this posi—
tion is created) and the fire safety officer would respond
to fire alarms on the weekday day shift.

Investigators, because of their highly unpredict-
able hours and location while working, would be trained
for fire fighting but expected to do so only in emergen-
cies or while assigned to uniformed duties.

Whether the safety equipment maintenance men should
perform fire fighting duties is a question to be decided
later, if additional fire fighting personnel is needed
on the day shift.

The safety officers need not be trained in fire
fighting or expected to perform fire fighting duties. The

radiation safety officer is important to effective protection

170

of fire fighters and should be required to be available
always when on duty through proper use of a radio equipped

vehicle.

Duties of Fire Apparatus Operators

These six men are adequate in number to work a 56
to 64-hour schedule. To start with, the longer schedule
will be desirable to provide services of an apparatus op-
erator for the extensive training exercises which will be
necessary. After relief operators have been trained among
interested patrolmen, the apparatus Operators can go on
a S6-hour work week.

A cardinal purpose of this program is to use the
services of the fireman's standby time. These men should
be required to perform other duties beyond merely standby
and apparatus maintenance. Two of the men should be trained
in apparatus maintenance and the making of minor repairs
and adjustments. Such a service is indispensable in a de-
partment having limited apparatus of diverse manufacture.
In addition, some of the following duties could be assigned
to these men as actual experience proves desirable and feas-
ible:

1. Cleaning and maintenance of the station.

2. Assistance to the desk officer on day shift.

3. Performance of routine clerical duties such

as tabulation of officers' daily activity reports, and

171

platoon and department activity reports.

4. Maintenance and preparation of fire extinguish-
ers and other safety equipment, thus freeing the safety
equipment men's time for actual work in the rapidly expand-
ing number of buildings.

5. Building inspection for fire and safety hazards
and for familiarization with the building.

It is obvious that there are a great many duties
these men can perform. However, on a 24-hour duty day it
is equally obvious there should be a limit to the number
of hours of actual work they should perform. This limit
probably lies somewhere between four and six actual work

hours each day.

Fire Prevention Inspection

Integration would be a failure, in the writer's
opinion, if it did not materially bolster the force applied
to fire inspection, and to general safety conditions in
the university buildings.

It is proposed, therefore, that the apparatus driv-
ers perform building inspections in good weather. In bad
weather, when time required to clean up the apparatus would
offset the inspection time gained, these men can perform
other duties as necessary.

In addition, it is essential that patrol personnel

be assigned building inspection obligations according to

172

a planned program drawn up by the fire and training ser-
geant. This inspection process should involve assignment
to a specific portion of a building, include taking of the
pre—fire planning package with the inspecting officer, and
inspection of the fire attack features noted on the plans
for that building area, as well as notification of the
safety division of any apparent safety deficiencies noted
in the area. Work demands on the day shift will limit the
time available for this duty on weekdays, but it can be
performed exceptionally well on weekends and holidays.
This activity will provide the additional benefit of the
police presence in buildings to deter unauthorized use of
buildings and property.

Assignment and control of these inspections by the
Captain through the staff arrangements and supervision of
the fire and training sergeant should ensure that the im-
portance of building familiarization and fire prevention

is not subordinated to the press of daily police work demands.

V. PERSONNEL CONSIDERATIONS
This section is concerned with the manpower aspects
of punyviding a combined police-fire operation on the uni-
versity campus. Included are determination of the size
cxf the basic platoon fire alarm response force, the effect
of jthegration on salaries and benefits, the role and posi-

ticni of the student fire fighters, the recruitment of

173

personnel and the training obligations in an integrated

organization.

Uniformed Force Manpower Requirements

Necessary manpower of the uniformed force is deter-
mined from two factors: (1) the personnel necessary at
all times for fire alarm response; and (2) the requirements,
if any, for police manpower over and above that needed for
fire fighting response.

Basic Platoon Manpower. Normal fire fighting man-
power response for buildings of the nature of the univer-
sity's would be at least 12 men and authorities would pre-
fer twice that under some conditions which fortunately do
not exist on campus.17 However, the insurance companies
have established the fact of very low fire risks in univer-
sity-type buildings and it seems unreasonable to provide
manpower and companies for a normal risk when experience
justifies a very low insurance rate for this institution.

However, any reduction in manpower should come

through reduction in the number of companies responding,

not in the company manpower.

 

17Warren Y. Kimball, "Manning a Response Group for
Normal Urban Fire Hazards," Firemen (October, 1959), p. 13;
for discussion of "minimum fire forces that would provide
reasonably effective fire companies and which could be
maintained reasonably by cities of various size," see:
Warren Y. Kimball, "Fire Department Manning," Firemen

(June, 1959), pp. 12-16.

 

174

Following are authoritative statements which pro-
vide guidance in determining effective manpower response
for the university.

A private fire department's function is to
provide a force of fire fighters specifically for
the needs of the property, the members of which
are acquainted with the property in a way impos-
sible for members of any outside public fire de-
partment to know.18

One of the gravest mistakes made by a majority
of fire departments is to try to operate more ap-
paratus on a first-run basis than can be effective-
ly manned with the men on duty or immediately avail—
able.19

. . . is almost impossible to obtain effective
teamwork and coordination with undermanned crews. . .
A.four-man crew on a pumper is not 80 per cent as
effective as a required five-man crew, but perhaps
only two-thirds as effective. A three-man crew
is not 60 per cent as effective, but less than 25
per cent as effective. A general practice should
be to avoid attempting to operate more units than
can be effectively manned even if some of the re-
sponse distances must be somewhat increased.20

Greater than five-man engine companies are not
suggested as a minimum manning because experience
has shown that five-man crews can be highly effi-
cient either with one-piece or two-piece engine
companies. We prefer to use available manpower
to strengthen the ladder companies as much as pos-
sible.21

. . . no fire company should be operated with
less than four men at any time. . . . 2

 

l8Tryon, op. cit., section 11, p. 22.

19Warren Y. Kimball, "Grouping Fire Companies,"
Firemen (August, 1962), p. 12.

20Tryon, op. cit., section 10, p. 10.

21

221bid., p. 14.

Kimball, "Fire Department Manning," 0p. cit., p. 14.

175

. . . l l/2-inch hose is adequate for attacking
the majority of fires that can be fought with in-
side hose lines.

For use inside buildings, 1 1/2—in. hose is com-
monly used and the 2 l/2-in. hose is largely reserved
for outside work.24

. . . is conceivable that the time may come
when all buildings are of such construction and
so protected automatically that the number of men 25
required for manual fire fighting may be reduced. . . .

From the above and other sources on progressive fire
fighting methods, and considering the nature of most univer-
sity buildings, it seems that a six—man response to fires
would be appropriate.

Use of self-contained breathing equipment would
allow a prompt, effective and sustained attack on building
fires from within the building using 1 l/2-inch hose lines
which can each be handled by one man if necessary. Any
fire which is beyond control by several such hose lines
would be a multiple alarm fire and additional men would
be summoned, very probably to fight the fire from outside
the building. It should be pointed out that even use of

this size hose line is not feasible with proposed manpower

except for the standpipe systems in the buildings, which

 

23Tryon, op. cit., section 13, p. 75.

24ng£ating Fire Department Pumpers (Boston: Na-
tional Fire Protection Association, 1960), p. 112.

25§i£§_2gpartment Manning--On—duty Strength (New
York: National Board of Fire Underwriters, Special Inter-
est Bulletin No. 230, September, 1959).

176

eliminate the manpower—consuming task of dragging heavy
hose lines up flights of stairs.

A six-man response would consist of the following:

1. A supervisor in command with a two—way minia-
ture radio.

2. A pumper operator positioning the first-due
pumper according to pre-plan arrangements to supply water
to the standpipe of the affected wing of the building using
an in-line water supply system capable of delivering not
less than 400 gallons per minute.26

3. A ladder truck operator to operate the aerial,
assist in pumper supply line connections as necessary, pro-
vide small tools, power supply, smoke ejector service, etc.

4. A first-due patrolman to respond as first ar-
riving officer, locate fire for arriving units if possible
and attack with extinguishing equipment provided in all
university buildings, and/or take suitable steps to evac-
uate occupants and restrict spread of flame and smoke.

S. A second-due patrolman (or on some shifts a
student fireman or specialist officer assigned to the sta—
tion) to take lightweight 1 1/2-inch hose with adjustable-
'volume spray nozzle attached inside the building.

6. A third—due patrolman (or on some shifts a

student fireman or specialist officer assigned to the

 

261bid., pp. 113-115.

177

station) to assist in pumper connections to the building,
take additional hose or appliances into the building, as-
sist in ladder or hose operation or perform other duties

as the supervisor directs.

This six-man basic platoon is adequate, when prop-
erly trained and supervised, to deal with almost all fires
that occur on the university property. This size crew could
put as much as 375 gallons of water on a fire each minute
without additional assistance. This manpower is adequate
to place the largest ground ladder carried by a fire depart—
ment if this unlikely duty were necessary the first thing
on arrival at a fire, or perform any of the duties neces-
sary at a small fire. It is adequate only by virtue of
university construction practices and its adequacy is doubt-
ful under some easily possible conditions in certain of the
older buildings and some of the farm complexes of the uni-
versity.

But the first-due assignment of manpower in even
the largest cities is not adequate for all of the easily
possible fire conditions that might be encountered on first-
due arrival at target hazard structures as the number of
multiple alarm fires shows. No city can provide an always
adequate response and neither can the university, but this
six-man crew should be adequate for all but one or two fires
a year. Few city fire chiefs would be unhappy with this

percentage of adequacy in first alarm situations.

178

Personnel to Maintain Basic Platoon. In the para-
graphs above, it was determined that a six-man fire response
crew was appropriate to university needs as a minimum crew.
To this must be added a seventh man on each platoon, the
desk officer.

Two of the seven men are provided by the apparatus
operators on a 24-hour shift. Thus five men must be pro-
vided from the uniformed force. Police records demonstrate
that eight men are necessary on a shift to provide five
men on duty at all times, or a total of 24 men and super-
visors.

Additional Police Patrol Needs. Currently, the
police are providing four patrol officers and a supervisor
on car and foot patrol from 7:30 p.m. to 11:30 p.m. and
are prevented from providing the same force until 3:00 a.m.
only by lack of manpower and position vacancies. The uni—
fied force should certainly not reduce police patrol man-
power and should provide at least the six men on duty after
7:30 p.m. If possible, the unification process should pro—
vide this force until 3:30 a.m.

The role of the third platoon (3:30 p.m.-11:30 p.m.)
will be an important one in an integrated department, as
it is in most police departments. Following is a listing
of some pertinent workload items showing the percentage

of the total of such incidents which arise on the third

platoon.

179

TABLE XXXI

Third Platoon (3:30 p.m.-11:30 p.m.) Per Cent of Workload
(from various unpublished university police studies)

 

Criminal incident reports written by patrols

('60-61) 46.5%
Non-criminal reports written by patrols ('60-61) 38.7%
All incident reports written (1959-62) 47.6%
All fire alarms (1955-62) 53.5%
Simultaneous incidents (1958-59) 57.3%
Simultaneous incidents (1962) 70.0%
Fire losses over $1,000 (1955-62) 35.0%
Inhalator runs 42.3%
Motor vehicle accidents (1958-59) 44.5%
Structural fire losses over $1,000 (1955-62)

(excluding construction sites) 46.7%

 

In the 1962-63 fiscal year, police records show
for the first time in department history that the third
platoon is writing more reports than the day shift. There
appears to be a solid trend in the past three years for
police workload to shift toward the hours of darkness.

In view of this pattern and because of the protec-
'tion needs on this shift, the need for supplementary patrol
manpower to assist the midnight shift, and the fact that
, during this shift neither fire fighting students nor per-
sonnel assigned to station duties will be dependably avail-
able if fire calls should conflict with emergency police
affairs, it is recommended that the third platoon have
eleven men.

Effect of Position Vacancies. High turnover should
Jbe considered in evaluating the need for personnel in ex—

actly the way vacations and illness must be provided for

 

 

 

:ie

A
8.1

7.15

m

(2

rf'

[ml—1(1) I

180

in order to provide a guaranteed minimum of men on duty.
The year 1962 showed an average of 1.3 positions vacant
with two positions vacant simultaneously as a common expe-
rience. Therefore, two extra men are needed to provide
adequately trained men to cover position vacancies and re-
cruit inexperience.

Reducing Personnel Needs. Need for full-time man-
power can be reduced by appropriate use of specialist per-
sonnel working in the station for fire response, and by
use of student firemen living in the fire station and re-
quired to be in attendance in certain minimum numbers to
complement the on-duty police patrol force. Use of students
will obviate the need to have more policemen on duty than
conditions warrant while still guaranteeing an adequate
fire alarm response manpower.

What are the policing manpower needs? Consensus
of the university police force is that the on-duty manpower
needed to provide an adequate level of police protection
(but not comparable to the level of 1957-58) would be six-

teen men each day, distributed as shown below.

TABLE XXXII

Daily Uniform Police On-Duty Manpower Needs (1963-64)
(weekday with school in session)

 

 

 

kPlatoons
7:30 p.m.—
Position . First Second Third 3:30 a.m.
Supervisor 1 l 1
Desk Officer 1 l 1

Patrolmen l 3 3 3

181

It is agreed by all consulted that the present prac-
tice of reducing day shift strength on weekends and holi-
days will still be feasible in 1963-64 and that the present
practice of reducing police manpower on-duty between terms
and on long holidays when the campus is relatively unoccu-
pied will also be feasible.

The table below presents the manpower required for
the uniformed force to provide the basic platoon strength

of five police plus the two apparatus operators.

TABLE XXXIII

‘Reduction in Uniformed Police Needs
by Use of Specialists and Student Firemen

 

Eight men on three shifts to provide five men on-duty 24
Reduce one man by providing for inter-shift transfers
to secure scheduling efficiency -:;L
23
Add three men on 7:30 p.m.-3:30 a.m. shift now exist-
ing to provide heavy police patrol at night f_3
26
Add two for position vacancies and training fi_§
28
Reduce by use of weekday day shift specialists 1_l
27
Reduce by use of students:
6 on duty 10:30 p.m.-7:30 a.m. (reduce 4 men)
2 on duty weekend and holiday day shift (reduce 1)
position vacancy coverage not needed due to students
available for fire duty (reduce l) 1_§
21

Add one lieutenant made necessary by integration to
ensure adequate supervision from 3:30 p.m.-11:30 p.m. L_l
2

N

Thus employment of nine students (to provide them

adequate time off) will eliminate the need for six full-time

182

public safety officers and will ensure a very large fire
response manpower during the hours of darkness when life
hazard is high, when the chance of fires burning undetected
for long periods is high and when the small number of on-
duty police personnel are more likely to become involved
with time-consuming duties without being able to call on
other working personnel at the station if a fire alarm is

received.

Salaries

It is generally conceded in the literature on police-
fire integration that performance of double duties merits
a substantial salary increase. It is proposed here that
the salary increase be at least 5% for patrolmen and 10%
for supervisory and command officers following the reason-
ing that the supervisory and command personnel must not
only learn the fire fighting skills as must the patrolmen,
but they must also learn fire fighting tactics and command,
instruct, and assume responsibility for making proper decis-
ions--therefore, the learning job and the responsibilities
of the supervisory and command personnel are at least double
those of the patrolmen.

It is proposed here that the apparatus operators
not be paid as much as patrolmen since they will not be
required to learn and perform police duties. No raise is

proposed for the fire safety officer since he now routinely

183

assists the fire department in fire fighting as part of
his duty performance and will not be called upon under uni-
fication to exercise more responsibility.

Following the above principles, a proposed salary
schedule for integration is presented below with proposed
salaries rounded off to even figures for easy manipulation

in Chapter V.

TABLE XXXIV

Proposed Unified Salary Schedule

 

 

 

1962:63 Maximum
Position Maximum Salary Prgposed Salary

Captain $8,220 $9,000
Lieutenanti 7,200 7,900
Sergeant 6,600 7,200
Corporal 6,060 6,600
Patrolman 5,872 6,200
Apparatus Operator 5,800 5,800

 

Student Firefighters

 

It is proposed that the university provide room
and board in the fire station for nine student fire fight—
ers, who would be required to be in the station for re-
sponse to alarms according to the following schedule:

6 student firemen available from 10:30 p.m.-

7:30 a.m. every night

2 student firemen available on weekend and

holiday day shift

During certain public events requiring large amounts
of police manpower, the fire fighting response would be

prcwided by these students and the apparatus operators on

a special event pay basis. These students would also be

184

given first opportunity to work for the department of pub-
lic safety performing the many jobs which students pres-
ently perform in traffic and parking control.

Thus it should be possible for a student fireman
to receive his entire education and living expenses with
an obligation to undergo necessary preliminary training
and be available in the fire station approximately 48 hours
per week. During these hours of availability he would have
no duties (in the absence of fire alarms) except to keep
his own quarters clean and so could utilize them for study-
ing.

The fire and training sergeant would be responsible
for the supervision of these students, their scheduling,
and ensuring their satisfactory adjustment to their educa-
tional responsibilities, and would refer any having diffi—
culty to the advisory and counseling agencies of the uni-
versity.

If a stronger fire manpower response should become
necessary, students could be required to respond to any
fire alarm received while they were in the station occur-
ring more than 30 minutes prior to their next scheduled
class. This would leave them time to return from the nor-
mal fire run and leave for class. This procedure could
be modified to apply only when the desk officer has patrol
officers out of service and calls for student fireman re-

sponse. It is estimated that such a system would add one

185

to three more fire fighters to almost every fire alarm.

Arrangements could be made for students to eat
meals on staggered hours at a dormitory at a 1962—63 rate
of $2.20 per day, thus assuring a balanced diet.

Under present conditions of university operations
it would not be necessary to have all nine student fire-
men positions filled during the summer term. The workload
is sufficiently light in the summer to allow a rescheduling
of patrolmen which, even with vacations in effect, would
be adequate for the six-man response using the services
of three students. It seems possible that with room and
board provided, as well as the opportunity to earn a sub-
stantial amount of spending money through non-fire duties,
some of the student firemen would not find it necessary
to leave the university the entire summer to take summer

jobs.

Training
The need for training will be emphasized again by
quotation from the section of the National Fire Protection
Association's Inspection Manual, instructing insurance in-
spectors how to evaluate public fire department performance
in protecting insured properties.
A fire department finds that most of its work
is in dealing with trivial matters: fires in rub-
bish, grass, automobiles and the like. Usually
less than half of the alarms answered involve build-

ings, and of the buildings, half to two-thirds are
in dwellings. In the majority of its work, the

186

fire department is not called upon to display the
skill and ingenuity required for the occasional
serious fire at an important property. Many city
firemen are not called upon to operate a pump as
often as once a month in regular fire duty. Conse-
quently the ability of the fire force depends on

the regular practice and training it receives. . . .

27

A constant and continuous training program will
obviously be essential, for the integrated public safety
organization will be providing fire protection to an unus-
ual mixture of big city and rural structures, all of sub-
stantial value and many having irreplaceable contents.

Fire Training. A regular weekly drill session should
be held on each shift according to a schedule prepared by
the fire and training officer and issued by the captain.

If properly organized, an hour should be sufficient for
each shift. The shift commanders should also be encouraged
to hold unscheduled drills as they discover weaknesses to
keep personnel alert and maintain a high level of effici-
ency in a variety of fire duties.

0n weekends in good weather, the department should
hold a drill period of two or three hours' duration for
an off-duty shift under supervision of the captain and
training officer, emphasizing large-fire operations with
particular emphasis on ladder work and use of hose lines
on ladders. This would allow platoon supervisors to utilize

their on-duty training periods to secure maximum teamwork

 

27Inspection Manual (Boston: National Fire Pro-
tection Association, 1959), p. 299.

187

in the execution of the pre-planned standard response pat-
terns developed for individual buildings.

The initial training of men should involve at least
two full weeks of intensive drill and classroom instruction
in the skills and techniques of the fireman. Supervisors
and command officers should have an additional two weeks
of instruction in supervisory and command duties, and should
spend some time with the fire chiefs in a large city such
as Detroit observing the process of coping with major fires
as well as minor fires. This would give them quickly the
equivalent of several years' actual experience with serious
fires in East Lansing and would expose them to the experi—
ences of men who have done fire fighting command duty at
major fires for many years.

Analysis of a series of articles in Fire Engineer-
ing surveying the training practices of United States fire
departments indicates the proposed two weeks' recruit train—
ing is consistent with national practice, considering the
caliber of men undergoing the training.

The recruit fire training should be based on the
Oklahoma fire training series, which was prepared by an
excellent faculty and is used at the University of Michigan
Fire College. Faculty of the University of Michigan should
be obtained to provide the recruit and command training,
since there are no local fire fighting personnel available

who have adequate teaching experience for success with

188

collegemlevel personnel.

All initial training should be on an extra—pay
basis outside the normal duty time of the department of
public safety, since the personnel requirements laid out
in this plan do not provide surplus manpower for an ade-
quate on-duty pre-integration training program.

To ensure the appearance of appropriate balance
for fire protection authorities, the amount of time spent
on fire training should at least equal that spent on police
training. The training value of pre-fire planning should
not be overlooked in evaluating training adequacy.

Police Training. There seems little reason for
changes in past police training policies of the department.
In 1961 2.84% of police time below the rank of lieutenant
was spent on training. The figure for 1962 was 6.45%, rep-
resenting the higher personnel turnover. This is a respect-
able figure considering the work demands on the department.
Fire training normally should not be allowed to interfere
with police training; however, such interference is to be
expected in the first year of operation.

Supervisory and Command Training. The training

 

of police in the past has devoted inadequate attention to
the training needs of the supervisors who constitute po-
tential command officers when the probable growth of the
department is considered. Particularly needed is a down-

touearth program on supervisory techniques, personnel

189

evaluation, and better teaching. The university faculty
should be able to develop a very high quality program in
this area and the increased manpower and training obliga-
tions of the department make this a mandatory obligation
of the administrators and the university if proper adjust-
ment to the high turnover rate and increased burden of fire

training is to be made by the supervisors.

VI. PLANT AND‘EQUIPMENT FACTORS

Unification will involve expensive needs in plant
and equipment, primarily in the area of a public safety
building and fire apparatus. Other equipment needs, in-
cluding vehicles for expanding patrol forces, would arise
with the normal expansion of the police service. It is
probable also that more fire apparatus would normally be
purchased by East Lansing, judging by past history, but

integration would advance the need for this item.

Police—Fire Building

A single building to house the unified police—
fire organization will be essential. Past administrative
experience of the university indicates that the rest of
the public safety department activities should also be
housed in the same building to ensure proper control and
coordination by the Director.

Campus planning for removal of the quonset huts

at the time of this writing indicates that new quarters

190

for the department of public safety will have to be sup-
plied in a matter of a very few years at most, without con-
sidering the impact of a plan for police-fire integration.
Housing a unified department could be accomplished by add-
ing space to the existing fire station, converting some
other campus building or constructing a completely new
building.

Use of Existing Fire Station. A few years ago this
would have been the desirable solution. However, the struc-
ture is now surrounded by a dormitory complex which houses
more than 3,300 students. This location would put the police
station in an area having a high potential for mischievous
or malicious interference with public safety operations
and the private vehicles of the Officers--a likely activity
against which there would be no inexpensive or palatable
solution for the university. Further, the dormitories have
been located so close to the fire station that it would be
most difficult to locate all the land-consuming Operations
of a university police department on the available site.
Fire fighting drills would be out of the qUestion, also.

Remodeling an Existing Building. Only one build-
ing on the university campus appears to have any potential
for the unified organization--the Food Stores building on
Power Plant Road. This location is removed from dormitories,
is within a block of the ideal site location in terms of

response times and distances to serve the campus from a

191

single fire station, has vehicle garage space which can be
inexpensively expanded and has a great deal of floor space
including full facilities for handling the storage of ma-
terials. Remodeling this building would probably be con-
siderably less expensive than construction of a new build-
ing; however, this building would have some awkward space
relationships. A further argument against use of this build-
ing is its design for storage of heavy materials--an expen-
sive building feature which would be to a considerable ex-

tent wasted on a police-fire—safety occupancy.

 

A New Police-Fire Building. The department of pub-
lic safety has estimated its building space requirements
at 15,000 square feet for a department not to exceed 100
personnel. This estimate did not include interior bicycle
storage which university landscaping objectives might render
necessary, or police—fire unification.

A Second Fire Station. The East Lansing city man-
ager, fire chief and university fire insurance carriers
have all mentioned the possibility that the university will
require a second fire station in future years. Revision
of fire station location and fire company response stand-
ards by the National Board of Fire Underwriters in February,
1963, makes the need for a second station unlikely for any
area north of Mount Hope Avenue unless inferior construc—

tion practices should be employed in the future.28

28Fire Department Stations-mPlanning the Location

 

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192

Fire Fighting Apparatus
The university has a 50% interest in the following

fire apparatus; a unified operation would need an aerial

ladder and two pumpers.

TABLE XXXV

Fire Apparatus

 

 

Year Apparatus Cost
1951 Mack 750 gpm pumper $14,455
1956 Seagrave 85 ft. aerial 39,650
1958 Pirsch 750 gpm pumper 21,100
1958 International 750 gpm 18,000
1963 Bean service ladder 19 328

Viz—3'53?

Of the existing apparatus listed above, only the
aerial ladder and the International pumper are of particu-
lar utility to the university. The Bean ladder truck has
no aerial, and the other two pumpers have water tanks con-
siderably smaller than that necessary for protection of
rural structures of the size and value of university farm
buildings.

For its integrated department the university should
seek to acquire the International pumper and the aerial
ladder truck which together have a value of approximately
half that of all the modern apparatus purchased since the
agreement. Purchase by the university of a fully equipped

E

(New York: National Board of Fire Underwriters Special
Interest Bulletin No. 176, February, 1963).

 

 

193

high volume pumper with SOD-gallon water tank, high pres-
sure pump and full load of large hose would cost approxi—
mately $32,000. The only other fire apparatus cost result—
ing from unification would be the cost of additional acces-
sory equipment for the aerial ladder truck to allow its
regular first-alarm response and intended use as the source

of tools, lights and other equipment at fires.

Miscellaneous Equipment

 

Communications equipment will be a major expense
and will run approximately as follows if the university
finds it necessary to acquire its own radio frequency. The

figures below represent a maximum cost.

TABLE XXXVI

Communications Equipment Cost

 

Miniature 2-way transceivers, tone activated,

for supervisor, three patrolmen $2,600
Vehicle radios for two additional cars and one
existing safety services car 1,800
Base station with point-to-point and emergency
standby feature 2,000
Tone encoding system for base station 650
7,050
Recording equipment for base station 1 000
__ §8J050

 

Fire fighting clothes for officers and student fire-
men would cost approximately $80 each and include helmet,
boots, coat, gloves, fatigue clothes, spanner wrench and

hose strap. Apparatus Operators and student fire fighters

 

 

194

should also be furnished bunker pants.

Equipment for patrol cars should include a pres-
surized water extinguisher in addition to the existing dry
chemical extinguisher, a hydrant wrench and a self-contained
breathing mask. This equipment can be furnished from ex-
isting public safety budgets and inventories of extinguish-
ers and breathing masks over a two-year period. Future
experience may indicate desirability of having other equip-
ment in the cars, particularly such items as hand lanterns,
Halligan tools and lengths of rope of sufficient strength

to support two people.

VII. EFFECTING THE CONVERSION
The conversion process involves three major areas:
(1) separation from East Lansing fire department, (2) ac-
quisition of necessary apparatus not available after sep-
aration and of fire apparatus operators and student fire
fighters, and (3) the fire training process for police and

student firemen.

Separation from East Lansing

It is not possible to predict here what course the
details of the separation might take. However, of particu-
lar concern are divisiOn of apparatus and equipment, mutual
aid agreements and the future of the East Lansing firemen
whose salaries are now paid from university funds.

The separation process should include written mutual

195

aid agreements on a reciprocal basis without cost except
acceptance of financial responsibility by the department
being assisted for injuries, deaths or equipment loss suf-
fered. Provision should also be made for the chief of the
department being assisted to be in command.

Acquisition of necessary apparatus and equipment
should immediately follow conclusion of an agreement for
division of equipment in order for delivery to take place

before the unified operation is activated.

Apparatus Operators and Student Firefighters

 

It is possible that the university could hire six
of the East Lansing firemen as apparatus operators if the
city cannot retain their services after separation. Stu-
dents could be recruited as soon as the decision was made
to proceed with unification. This should be a relatively

simple process if a major school term is in session.

Pre-unification Fire Training

The only means seen practicable to effect the nec-
essary training program is to conduct the program in a sum-
mer term on a paid overtime basis and using a reduced on-
duty police strength as much as possible.

Instructors could be obtained from the fire serv-
ice training staff of the University of Michigan who should
design a special training course for the integrated depart-

ment, concentrating on procedures and fires likely to be

 

196

encountered on the campus.

Cost of this will be substantial, but unavoidable,
if a well trained department is desired at the commencement
of the program. Costs would be approximately $16,000 cal-

culated on a generous estimate as follows:

2 weeks for 35 men is 1/26 annual salary budget $8,900
2 weeks for 9 students at $1.50/hour 1,080
2 weeks for 10 supervisors 2,500
Fire training consultant fees to University of

Michigan (est.) 2,500

Training manuals, library, materials, films (est.) 1 000
515,980

The supervisors should receive their initial fire
training ahead of their subordinates in the training process.
This would allow polishing of the training program for the
bulk of department personnel who might have less incentive
to accept gracefully miscalculations in design and program-
ming of the training program. Then the supervisors would
receive their advanced training while the patrolmen-firemen-
students take basic training.

Sending of supervisors to a large fire department
would have to await appropriate opportunities in scheduling

and would be spread over an entire year or more.

 

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CHAPTER V
FINANCIAL ASPECTS OF POLICE-FIRE UNIFICATION

The previous chapters have considered the nature
of police-fire protection at Michigan State University and
established the operational feasibility of combining the
police and fire protection services of the university in
the personnel of a single organization. Technical feasi-
bility is only one aspect of a decision to actually effect
the integration of the services; of equal or greater im-
portance is the financial effect of the integrated scheme.
The benefits from unification must be proportional to the
cost.

In spite of statements made by apparently knowledge-
able persons that police-fire unification is not a means
for securing more economical police-fire protection,1 cities
and villages using the system testify to the contrary; for

example, Oak Park, Michigan,2 Sunnyvale, California,3 and

 

lLeon W. Millie, et al., Report on the Amalggmated

Police and Fire Departments in the City of Oak Park, A Sub-
pgb of Detroit, Michigan (Toronto: Ontario Fire Marshal's
Office, January, 1957), p. l.

2Glenford S. Leonard, Report of_Second Year of In-
tegrated Fire and Police Services (Oak Park, Michigan:
report to the city council, October 25, 1956), p. 3.

3Perry Scott, Decade of Public Safety (Sunnyvale,
California, March 31, 1961), p. 1.

,4
\0
‘d

198

Peoria, Illinois,4 report substantial annual savings achieved
from their integrated police-fire operations.

The question is whether Michigan State University
can achieve more economical police and fire protection from
an organizational scheme which has produced savings for

certain cities.

I. UNIVERSITY POLICE-FIRE EXPENSES

Table XXXVII presents the police and fire expendi-
tures of the university for the fiscal years 1951—1952
through 1961-1962. During this eleven—year time period
when the East Lansing campus enrollment increased 76.4%
to 23,976 in Fall, 1961, the police and fire expenditures
of the university increased 139.0%. Fire expenses increased
174.7% and police expenses increased 123.3%. In 1961-1962
the university spent more than $284,000 for police and fire
protection. Police and fire personnel (excluding the Di-
rector of Public Safety and the police clerical staff) ac—
counted for 81.9% of the total; 12.2% was expended on sup-
plies and services and 5.9% was expended for equipment pur-
chases.

Through the eleven-year period, personnel costs
averaged 84.3% of the total police and fire protection ex-
penditures and the number of policemen and firemen paid

for by the university totalled 40 in l96l~1962--double the

4Peoria Journal-Star, January 24, 1962, p. l.

199

TABLE XXXVII

University Police and Fire Expenditures, 1951-1962
(all figures raised to nearest dollar)

 

 

 

CumuIative
Fire Fire Per Cent
Payments Apparatus Police' Total Increase
1951-52 $36,527 $82,629 $119,156 -0-
1952-53 40,925 102,037 142,962 20.0%
1953-54 43,584 117,173 160,757 34.9
1954—55 48,115 142,653 190,768 60.1
1955-56 53,315 149,901 203,216 70.5
1956-57 63,341 $19,825 164,949 248,115 108.2
1957-58 72,160 10,550 187,048 269,758 126.4
1958-59 80,090 9,000 182,019 271,109 127.5
1959—60 77,978 203,313 281,291 136.1
1960-61 92,040 187,338 279,378 134.5
1961-62 100,332 184,508 284,840 139.0
$708,407 $39,375 1,703,568 2,451,350 -
‘Excludes clericalustaff and Director of Public
Safety.

 

number of personnel in 1951-1952.

In spite of the 123.3% increase in police expenses
during this period, the ratio of police personnel per thou-
sand students enrolled in Fall Term had declined from 1.1
officers per thousand students to 1.0 Officers per thousand
students enrolled—~which amounted to a decrease of two Of-
ficers in relation to the enrollment pOpulation of 1962.

Appendices VI and VII demonstrate the expenditure

200

histories of the police and fire departments for the fis-
cal years l951~52 through 1961—62, and show the functional

account detail for each year.

II. THE COST OF UNIFICATION
Because police-fire integration is primarily a
process of better utilization of manpower through better
use of manpower time rather than through mechanization or
automation techniques, the primary cost to be evaluated

is the salaries of police and fire personnel.

Immediate Personnel Costs

Three approaches to manpower utilization can be
developed which represent typical objectives of public per-
sonnel administration: (1) secure greater output from ex-
isting personnel; (2) increase the output without any cost
rise; and (3) reduce costs without reducing services. These
will be referred to, respectively, as (l) the equal person-
nel approach (no reduction in personnel through unification;
(2) the equal cost approach (just enough personnel reduc-
tion to assure no personnel expense increase); and (3) the
equal service approach (reducing personnel until service
output will be the same as that provided before integration).

Table XXXVIII below presents the personnel salary
expense of the 1962-1963 separated police and fire depart-
ments calculated at the maximum salary for each authorized

position to eliminate fluctuations due to personnel turnover.

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201

TABLE XXXVIII

Comparison of the Personnel Positions and Cost of Three
Possible Approaches to an Integrated Police-Fire Organization

 

with the Traditional Separated Organization
Existing in 1962-1963

 

 

 

 

 

 

 

raditional Integrated Police-Fire Or anizations
Separated
Position Organization Equal Equal Equal
Title Approach Personnel Cost Segvice
# Salary‘ 4%, Salary" #5 SalaryH # Salary"
Men Expense Men Expense Men Expense Men Expense

Captain 1 $8,200 1 $9,000 1 $9,000 1 $9,000
Lieutenant 0 1 7,900 1 7,900 1 7,900
Sergeant 3 19,800 3 21,600 3 21,600 3 21,600
Corporal 3 18,198 3 19,800 3 19,800 3 19,800
Patrolmen 14 _82,208 20 124,000 16 99,200 15 93,000
Investigae

tive Sgt. 1 6,600, 1 7,200 1 7,200 1 7,200
Investi—

gators 2 11,744 3 18,600 3 18,600 3 18,600
Records

Officer 1 5,872 1 6,200 1 6,200 1 6,200
Firemen"‘ 15 88,465 6 34,800 6 34,800 6 34,800
Training
_Sgt. 0 1 7,200 1 7,200 1 7,200
Total Full-

Time Men 40 $241,087 40 $256,300 36 $231,500 35 $225,300
Student
_Eiremen 0 0 9 7,200 9 7,200
Total Cost $241,087 $256,300 $238,700 $232,500
$ Change in Costs —0- +$15,213 -$2,387 —$8,587
% Change in Costs -0- +6.3% -1.0% -3.5%

 

 

 

'At 1962-63 maximum salary for each position except Fire Dept.

“At proposed 10% increase for command and supervisory posi-
tions and 5% for all other positions except firemen.

"‘50% of E.L.F.D. expense in 1961-62; no salary increase for

g

integration because of substantial work week reduction.

202

The table also shows the salary and position costs of the
three different approaches to a unified organization.

Table XXXVIII demonstrates that police and fire
protection conditions at the university combined with nec-
essary supervision, training, administrative and investi-
gative personnel requirements amount to a fixed base of
20 employees in the unified organization and, therefore,
differences in integrated manpower costs can come only in
the number of uniformed patrolmen and in the need or absence
of need for using student firemen instead of full-time Of-
ficers for late night hour fire response.

It can be seen in this table that the equal person-
nel approach provides enough patrolmen that student firemen
are not needed. In all cases an additional investigator
is provided, as is a uniformed lieutenant and an additional
patrolman to ensure adequate numbers of men responding to
a fire. The equal cost approach provides still an addi-
tional patrolman and the equal personnel approach provides
another five additional patrolmen for public protection.

The public protection and service changes can be
summarized in terms of the personnel groups involved in
the unification process~~the patrol force, the fire fight-
ing force, the total number of public safety personnel and
the total number of police personnel. These comparisons
are shown in Table XXXIX below in terms of per cent change
from the 1962—63 separated organizations shown in Table

XXXVIII.

203

TABLE XXXIX

Personnel and Cost Changes Through Unification Shown by Per
Cent of Change from 1962-1963 Separated Organization
(data from Table XXXVIII)

Equal Equal EquaI

 

 

Personnel Cost Service
Approach Approach Approach
Uniformed Patrol Personnel +35% +15% +10%
Personnel for fire fighting‘ +29% +20% +16%
Total police and fire
personnel 0% —10% -12%
Police personnel +36% +20% +16%
Personnel salary cost
(full-time) +6% -1% -3%

'Excludes,part-time student firemen.

It is important to note as a characteristic of uni-
fication at Michigan State University that the "equal serv—
ice approach" actually must provide a certain increase in
service in order to assure a reasonably reliable manpower
response to fire alarms. This is occasioned by the fre-
quency and length of time involved when patrol officers are
unavailable while answering citizen calls for service and
assistance. Unification under university con itions of
service obligations added to the normal police workload
requires a betterment of police protection in order to en-
sure equal fire manpower response with the separated depart-
ments.

The financial implications of police-fire unifica-
tion are effectively illustrated by studying the personnel
cost of dividing a unified organization into the traditional

separated departments without reducing the number of men

204

available for public service and protection. Applying this
method of analysis to the two extreme forms of unification
considered in this chapter--the "equal personnel approach"
and the "equal service approach"—-demonstrates the dollar
value Of utilization of manpower through unification. Con-
sideration Of the "equal cost approach" is not necessary
because it is the "middle of the road" method between the
other two systems.

"Equal Personnel" Unification Plan. We will assume

 

that the university already has an integrated police-fire
department and for some reason is considering separating
the 40-man department into two organizations providing the
same number of policemen and firemen. Table XL below shows
the cost Of the additional personnel which would be needed
for the two separate department system.
Table XL demonstrates that the university gains
through integration the services of seven additional men
in the patrol force at the cost of 2.6 patrolmen°s salaries;
and gains nine additional fire fighters for this same cost
of 2.6 patrolmen. In other words, if the university decided
to gain this additional manpower protection it would cost
$15,213 to achieve through the unification process and
$92,674 to expand the existing separated organizations.
"Egual Service" Unification Plan. The "equal serv—
ice" approach to unification can similarly be contrasted

With the personnel cost of breaking up the unified organization

205

TABLE XL

Cost Of Achieving Through Separate Departments the Service

Potential Obtainable Through the Use of Existing 1962-1963

Personnel Paid from University Funds in the "Equal Personnel"
Unified Police-Fire Organization Plan

 

 

Uniformed —Fire Tbtal
Patrol Fighting Police-Fire
Force Force‘ Personnel
"Equal personnel" integration 27 40 40
Separated system (1962-63) .29 31. 58“
Men added to separated depts. '_—
to equal integrated service 7 9 16
Fireman-Patrolman salary cost
of separate manpower increase $41,104 $51,570 $92,674
Subtract salary costs of
"equal personnel" inte-
gration plan $15,213
$77,461

‘Excludes student firemen. Shows entire 31-man fire depart-
ment since university's payment of fifteen men makes 31
available for large fire.

"Includes 27 men below Director in Public Safety Police
Service and entire 31-man East Lansing Fire Department.

into two functional departments providing the same level

of manpower service as was provided through the unified

plan. The "equal service" plan involves 3S personnel below

the rank of Director. Dividing the organization into two

departments would require additional personnel as shown

in Table XLI below.

Table XLI demonstrates the dollar value of the per-
sonnel time which the unified organization makes available
for public protection—~an efficiency savings of $34,664 each
year for salaries alone, and yet the service of an additional

six men are available to accompany this cost reduction.

V A,‘..v.. .

...-..«_. c-.- as»... .x'mo‘vhtwcaeWwMWW
' - 3 1 . , l

206

TABLE XLI

Cost of Dividing Unified 35-Man Department into
Two Separate Departments with Same Personnel Service Level

Uniformed Fire Total POIice-

Patrol Fighting Fire Personnel

 

 

 

Force Force' and Salary Cost

"Equal Service" unified

plan 22 35 35
Separate departments

(1962-63) 39_ 31. ,EQ"‘
Men added to separate

depts. to equal

unified service 2 4 6
Salary cost of needed

men" $11,744 $22,920 $34,664

'Excludes student firemen. Shows entire 31-man city fire
department since university 50% payment makes 31 avail-
able for fires.

"Salaries at 1962-63 maximum for each position; no ranks
above patrolman or fireman.

“‘Inc1udes 27 men below director in public safety police
service and entire 31-man East Lansing Fire Department.

Other Personnel Cost Benefits. It is apparent that,
while police-fire integration is immediately attractive to
the university, either as a means of materially bettering
its protection at little cost or as a means of reducing
costs, the concept really comes into its own when the work
week of the firemen must be reduced.

The present 70-hour work week provides a theoret-
ical fire alarm response manpower to the university of 6.25
men which is actually less because of the statutory require-
ment for a "Kelly Day" every twelve days for municipal
firemen. The 56-hour work week would require 20.8 firemen

to provide the same theoretical response-~an increase of

207

6 men (40%), and a salary expense increase of $34,380 an-
nually at present rates. The proposed scheme for integrat-
ing to preserve the existing level of service using 35 men
instead of 40 provides the 56-hour work week to the six
fire apparatus drivers who would be the only fire fighting
specialists on the payroll working more than a scheduled
40-hour week.

An additional economy is derived from the proposed
unification plan through its ability to provide a certain
amount of labor from the six apparatus drivers for perform-
ance Of many tasks which the department of public safety
now finds impossible to accomplish adequately with avail—
able safety services manpower--tasks such as building in-
spection, fire extinguisher maintenance, parking meter re-
pairs, assistance to the desk officer and others. It would
seem reasonable to assume that the six men could provide
four hours of such work every day of the year, equalling
the output of two additional full-time employees on the
safety services payroll, and costing $11,730 at 1962—63
salary levels.

Summary. Thus the total reduction in actual costs
and the savings received by avoiding hiring of additional
personnel would approximate the following, in terms of the

1962-63 manpower.

208

Description Reduced Annual Cost Men Saved

 

Reduced salary expense
after integration $8,587 5

Two-man work output
from firemen 11,730 2

Reducing fireman work week
to 56 hours for 6 men 11,460
$31,777

who

There are other hidden costs connected with full-
time employees which would be saved by the reduction in
total number of employees, and by making it unnecessary
to hire additional employees to provide the service level,
which, as shown above, amounts to a reduction of 9 employees
on a full-time payroll. What these hidden costs including
social security, administrative expenses and others might
amount to in value is not known but probably represent an

additional worthwhile saving.

Future Personnel Cost Benefits

If the proposed plan for unified operation is adopt-
ed, future manpower increases should average approximately
3 men each year instead of the 4 men estimated for separated
department organization. These three men are estimated on
the very low ratio (compared to other large universities)
of 1.16 police per thousand enrollment for the assumed max-
imum of 35,000 students.

The separated system would require an average of

one additional fireman from university funds each year to

209

achieve the 56—hour work week which inevitably will be
realized. It is not likely that the 1.16 police/population
ratio would be adequate in future years for a major univer-
sity in a highly urbanized area, but the ratio does repre-
sent a slight betterment over the existing manning of the
university police and is adequate for comparing future man-
power costs Of the two systems of police-fire organization.

The unified plan, if adopted in 1963-64, will pro-
vide means for reducing the total police-fire manpower
needed by 1968-69 for the assumed enrollment of 35,000
from 60 men under the separated departments to 50 men under
the integrated organization. This will put the per cent
increase in police-fire manpower below the per cent in-
crease in student enrollment for the first time in seven-
teen years.

Assuming a straight-line addition of personnel,
which is not unreasonable in view of past experience in
both the police and fire departments, the savings in sal-
aries alone from this integrated organization would mount
very rapidly on the hiring progression assumed above. The
salary effect of this progression is shown in Table XLII.

Thus in a six-year period the savings from firemen
not needed would be in excess of $237,000 without any con—
sideration Of the value of additional output received from
employees under the integrated system. If it is assumed

\
that the six apparatus Operators could eliminate the need

210

TABLE XLII

Accumulation of Savings from Reduced Salary Expenses to be

Achieved from Integration on the Proposed Plan and Assuming

Police-Fire Manpower Increases Based on Past Experience and
Achievement of a 56—hour Work Week for Firemen

’Men on ‘Men on Eiffer- I962-63

 

 

Fiscal Separated Unified ence Fireman Annual

Year Systems System Salary Saving
1963-64‘ 40 35 5 -- $8,587
1964-65 44 38 6 5,730 34,380
1965-66 48 41 7 5,730 40,110
1966-67 52 44 8 5,730 45,840
1967-68 56 47 9 5,730 51,570
1968-69 60 50 10 5,730 57 300

f2 3 7' ,“7 87

‘Police-fire departments unified.

which exists in 1962-63 for an additional equipment service-
man and an additional fire inspector, the savings on these
two positions alone would bring the accumulated savings

at the end of the six-year period to more than $300,000.
Further, it is obvious that the salary figures used in this
estimate are conservative since both salaries and fringe

benefits tend to increase with each passing year.

Non-personnel Costs

Heretofore, the non-personnel costs of operating
an integrated department have not been considered. The
university share of these fire department expenses amounted
to a little more than $8,000 in 1961-62 and the figure has
varied rather widely over the years, making any sort of
accurate estimation of these costs impossible.

It would seem that for the first year or two of

 

211

unification, maintenance of fire equipment and clothing
would be a small problem since most of the clothing and
small items would be new, as would one pumper. The other
pumper, the International, has a high maintenance record,
according to fire department personnel. In view of these
conditions, it still appears reasonable to assume that the
non-personnel expenses will not increase for a year or two
except in the event of fire damage--a normal risk of any
fire fighting organization.

Training by the university department will neces—
sarily be active, and there will be charges for rental of
training films and their projection equipment. A regular
and vigorous training program will increase wear and tear
on equipment and ultimately will result in increased costs,
also. However, estimation of this increase is not practic-
able and will simply have to await developing experience.
This is no difficulty, since it seems quite unlikely that
this cost could ever amount to enough to have any signif-
icant offsetting effect against the annual savings realized
through reduced personnel costs achieved by the unified

organization.

Cost of Implementing Unification
The cost of implementing unification can be spread
over a period of two or three years in all likelihood, de-

pending upon the terms arrived at for division of existing

212

fire apparatus, the schedule for purchase of new apparatus
and the financing of the necessary new building. Excluding
the cost Of a new building (which the university must pro—
vide in any case for the police force), the cost of convert-
ing to the unified organization will approximate $77,000,

as shown in Table XLIII. This figure includes 10% for under-
estimation Of costs in this planning process.

This expense would be repaid through savings from
the proposed 35-man unified organization in approximately
nine years if the only savings counted were the initial
$8,500 reduction in salary expenses shown in Table XXXVIII.
If the savings were considered to include the additional
productive time secured from the six apparatus operators
for fire prevention inspection and safety equipment main-
tenance described earlier, the conversion expense of $77,000
would be amortized in under four years. And, of course,
at the time the work week of the East Lansing fire depart-
ment is reduced to 56 hours, the cost of unifying will be
written off in three years by this one factor, alone. It
is apparent that the cost of implementing a unified police-
fire department is insignificant in terms of the operating
economies to be achieved over the years, and could conserv—
atively be regarded as being Offset by savings within five

:9

years after unification.
Following is a schedule of the conversion expenses

and the year in which they might be incurred. This schedule

213

TABLE XLIII

Schedule of Non-recurring Costs of Unification

 

Payment in Year Payment
Of the Decision in Year of
to Integrate Unification Total

Personnel Expense
Basic training--

 

 

 

 

 

supervisors $2,500 $2,500
j Basic training--
1 all others $7,500 7,500
1 Advanced training--
supervisors 2,500 2,500
12,500
§ppplies and Services
Training library,
supplies, services 700 300 1,000
Fire fighting and .
work clothing 3,500 3,500
Fire training con—
sultant fee 500 2,000 2,500
7,000
Equipment and Apparatus
Inhalator-resusci-
tators 900 900
Tone-activated
miniature radios 2,600 2,600
Radio base station &
associated equip. 3,650 3,650
Two additional cars 5,000 5,000
Three car radios 1,800 1,800
Equipment for appa-
ratus betterment 5,000 5,000
New fully equipped
pumper 16,000 16.000 32,000
Subtotal 44,195 33,300 70,450
r Allowance for error
i‘ (10%) 7,045
:r 77,495

New Building
9 (maximum estimate) 200,000 300,000 500 000
5 $244,195 $333,300 l£“"““"‘577,495

 

 

 

 

 

 

 

 

214

is too generalized to be used as a guide for the actual
process itself, but is sufficient to indicate the nature
of the conversion process.

It is assumed that the decision to integrate would
be made during a school year and probably during Fall term
to allow adequate time for inclusion in the university bud-
get. This would allow Winter and Spring term for recruit-
ment of personnel, purchase Of equipment, cars, etc., and
arrangement for the training program to be carried out in
Summer under a new budget. Planning for the new building
would take place and construction begin and extend through
this first year with some payments under that fiscal year
and final payments made in the following fiscal year. The
pumper could also be scheduled for delivery in the second
year if this is necessary, although delivery in the first
year before beginning the training program would have def-
inite advantages, since it would be unnecessary to borrow
a pumper from the East Lansing fire department or take out
of service for extended periods the university pumper in
order to accomplish the training program.

It should be noted here that there are two major
variables which could render this entire schedule worthless
for effective use as an estimate of annual costs. The first
Of these is the decision which is made concerning the East
Lansing firemen. If the decision is to incorporate them

into the integrated organization as apparatus Operators,

215

the above schedule will hold true. If the decision should
be not to incorporate them into the integrated organization,
then it will be necessary to employ the new personnel and
train them prior to the date of activating the unified or-
ganization, and the university would probably also have
to contribute to the salaries of the firemen necessary to
provide fire protection during this training process.

This would be a difficult cost to estimate since
it is dependent entirely on how many East Lansing firemen
might be retained as apparatus drivers (a necessity) and
as patrolmen. The maximum cost of such manpower duplica-
tion would be the salaries of six apparatus drivers and
four patrolmen for whatever the overlapping time period
would be between beginning of training and commencement
of integrated Operation. The costs here are so high that
it would be worth the risk to avoid the overlapping of per-
sonnel and institute an intensive training program even
with inexperienced men, probably using them on the fire-
man's work week schedule until the primary training period
was past. Therefore, this possibility of a substantial
increase in conversion costs can be disregarded if the risk
is thought justifiable.

The second major variable affecting these costs
is the possibility that the present food stores building
could be adapted to public safety department use. If the

decision were to invest the heavy load-bearing construction

216

of this building in the light floor-load use of the public
safety services, the cost of remodelling would be substan-
tially less than the cost of an entirely new building, par-
ticularly since much of the building is reasonably suitable
for police-fire use and the presence of a freight elevator
would allow placement of shop and sign and storage spaces
on any floor. The effect of this variable is not predict-
able without assistance of an architect for estimating con-

struction and remodelling costs.

III. SUMMARY

The cost information presented in this chapter dem-
onstrates that police-fire unification Offers significant
financial advantages to the university. Unification would
eliminate the need to hire additional fire fighters in a
separate department and halt the eleven—year trend showing
that police and fire costs of the university increased at
double the rate of the enrollment increase.

The unification plan proposed to maintain a level
of service equal with that of the 1962-63 separated depart-
ments would reduce the total number of police and fire per-
sonnel by five, add four men to the police service without
cost and provide substantial salary increases to all police
personnel. The plan would also provide the services of
two safety servicemen (valued at $11,730) without addi-

tional cost and would reduce the work week of the six fire

217

apparatus Operators immediately without the $11,460 cost
per year such a work week reduction would require for sep-
arated departments. The final personnel budget of this
plan for unification would be $8,587 less than the 1962-63
budget for separate departments.

The unification plan proposing to retain all exist-
ing personnel and secure maximum service increases through
unification would increase the personnel budget cost $15,213
over that of 1962-63. This increased cost would provide
nine additional police personnel (valued at $52,848), serv-
ice equivalent to two additional safety servicemen valued
at $11,730, reduce the six fire apparatus Operators' work
week at a cost value of $11,460, and provide significant
police salary increases. This unification plan would in-
crease the salary budget 6% while increasing the number
Of police 36% and producing personnel services costing
$76,038 to secure from separated departments for only

$15,213 through a unified police-fire organization.

CHAPTER VI
CONCLUSIONS AND RECOMMENDATIONS

I. CONCLUSIONS

With enrollment rising very sharply and financial
support for the university failing to keep pace, Michigan
State University is in the same financial squeeze in its
operations as most of our cities. Many cities, faced with
the demand for increasing services and for entirely new
services, have considered combining the duties of police-
men and firemen in the same body of menas a means for
securing reduction of firemen's work weeks, expanding po-
lice protection, reducing public safety expenditures, and
providing higher salaries to attract a better caliber of
officers.

This study was intended to determine whether police-
fire unification could be successfully applied to the po-
lice and fire protection characteristics of a large univer-
sity, using Michigan State University as an example. A
further objective was to determine what the financial ef-
fects of integration would be for the university if it were

found to be an Operational feasibility.

General

An extensive consideration of the police and fire

218

219

protection characteristics of the university in Chapter

III revealed no basic conditions which would prevent suc—
cessful integration of the two functions. The manpower
drain of public events has already been dealt with by the
Department of Public Safety through an overtime pay program.

Traffic direction and control during traffic rush
hours could be an obstacle to unification. However, study
showed no instance of a fire alarm during the actual traf-
fic peak, either morning or night, and use of students to
direct traffic removes the matter as a potential Obstacle
to integration.

Major public events, such as football games, which
require all police manpower to be on duty, would be covered
by having student firemen and full-time apparatus drivers
at the station provide the necessary manning for fire alarm
response.

Fires and crimes are shown to be relatively minor
for the great bulk of such occurrences. Simultaneous oc-
currences of urgent police and fire matters present no
problem which could not adequately be dealt with by East
Lansing fire and police assistance.

Transportation of injured and ill persons off the
campus to hospitals by stretcher, currently a university
practice, is not compatible with the minimum 35-man public
safety operation suggested, and use of commercial transpor-

tation or employment of more men would be necessary to

220

continue this practice if the university hospital cannot
alter its policy on acceptance of non-university people.

It was demonstrated that in the eleven-year period
beginning 1954-55 the number of police hours spent on patrol
has decreaSed 23.77% and is now spread over an area Of pri-
mary protection interest which is 230% larger. This de-
crease has occurred even though police manpower has in-
creased 41% in these years. The police workload has in-
creased until it is so high that the patrol force spends
only 25.5% of its time on patrol—-exact1y the reverse of
the 1954-55 figures. I

This excessive workload, and the increasing rise
in the workload in the immediate years ahead, suggests that
unification is not feasible. However, the increased man-
power which unification will make available for police
duties and use of an elaborate miniaturized radio communi-
cation system should make the uniformed patrolmen suffici-
ently available, even though "out Of service," to make
unification feasible. Use of modern communications equip-
ment can limit the patrol time problem to its effect on
preventive police work and reduce significant interference
with fire alarm response.

The vital importance of training to successful uni-
fied police-fire Operations was repeatedly demonstrated
throughout the study Of police and fire conditions at the

university. The implications of the excessive turnover

221

of police personnel as a harmful influence upon effective
training are Obvious, and unification should not be under—
taken unless measures are taken to limit the turnover by
encouraging a larger group of career employees among the
police.

Chapter IV applied unification theory to the police
and fire protection needs of the university and showed the
need for a basic core of 20 command, supervisOry, training,
investigative, records and fire apparatus driver personnel
essential to the effective functioning of a unified organi-
zation. The number of patrolmen to be added to this core
of command and specialist personnel was determined by an-
alyzing the need for fire and police incident response man-
power.

A minimum fire response manpower of six men was
determined to be necessary with a seventh man required at
all times for desk and communications duty. This seven-
:man strength was determined as the basic platoon strength
below which the on—duty manpower force must not be allowed
to fall. It was then determined that use of the well known
”sleeper" system using student firemen as the "sleepers"
in the station at night and a lesser number of students
on the weekend day shift would allow reduction of the num-
ber of patrol force personnel required for assured fire re-
sponse from 21 to 19.

The proposed 35-man police-fire force was designed

222

to Operate within the framework of the existing university
Department of Public Safety. It is emphasized that this
is a minimum force which would provide adequate protection
and service under the workload conditions of the fiscal
year 1962-63, and would have to be augmented each year as
the university enrollment expands and the police workload
increases. This 35-man organization would provide service
and protection equal to that received from the existing
police service and would provide fire protection superior
to that now existing.

The finances of the unification process were con-
sidered in Chapter V and it was shown that, due to police
protection manpower needs, there was a difference of only
one patrolman position between a minimum manpower organiza-
tion sufficient to retain the level of police and fire pro-
tection, and an integrated organization which would provide
increased service without raising the level of university
police and fire salary expenditures.

Analysis Of the financial effects of unification
without reduction in number of personnel revealed that the
university could increase its patrol force 35%, increase
its fire force 29%, with only a 6% increase in annual op-
erating expense. This is equivalent to hiring seven addi-
tional patrolmen at the 1962-63 cost of 2.6 patrolmen while
also bettering the fire protection, providing a more flex—

ible organization and providing other benefits previously

223

discussed in detail.

Chapter V also presented the fact that adoption
by the university of the proposed "equal service" (BS-man)
approach to police—fire unification on its campus would
reduce the number of full-time employees by five, reduce
the cash expenditure for police and fire protection by
$8,587 from the assumed 1962-63 salary expenditure at max-
imum rates for the existing 40 men, and still would increase
the patrol force by 10% and the fire force by 16%. Further,
it would increase the number of men responding to fire
alarms by at least one man and at night time the fire alarm
response manpower could be doubled. The increase in full-
time manpower for police and fire protection achieved through
this "equal service" plan would cost more than $43,000 to
achieve by hiring policemen and firemen under the separated
department system.

A similar benefit is available through the plan
for integrating without reduction in the number of exist-
ing full-time personnel. This method would cost the uni-
versity an additional $15,200 each year and would provide
the services of police and fire manpower which would cost
$69,750 to employ under the separated system; it would elim-

inate the accumulated deficit in police manpower.

Benefit Summarized

The benefits of the proposed "equal service"

224

unification plan for Michigan State University can be sum-
marized as follows:

1. It will increase police protection by one in-
vestigator and two patrolmen.

2. It will increase fire protection by providing
never less than six men available for response to fire alarms
and with every likelihood that seven or eight would be the
"normal" response, compared with four to six now responding.

3. Fire apparatus operators can provide work out-
put while On standby in the station, which, if it only amounts
to four hours each day from each driver, is equivalent to
having two additional full-time employees on the payroll.

4. The apparatus drivers could provide much needed
fire prevention inspection assistance to the fire safety
officer who cannot now cover university buildings as Often
as he should. Since fire prevention is the most certain
and economical approach to fire protection, this is a major
benefit.

5. Integration will put fire fighting in the hands
of university employees who are oriented to protection of
the university and who are familiar with university prop-
erty. This will end a situation so aptly described in the
Fire Protection Handbook: "A public fire department is
often designed for the protection of the surrounding com-

munity rather than to provide fire department protection

225

for a large institution or industrial plant."1

6. By means of the above, integration offers the
university the opportunity to improve its overall public
safety protection in many different areas by securing a
great deal more service from its investment in salaries
and, as the Missouri Public Expenditure Survey concluded,
" . . . is an avenue to continuing economy,"2 for the uni-
versity as it faces a period of extraordinary expansion
of enrollment and an unprecedented squeeze on its finan-

cial ability to serve this increasing enrollment.

Guidelines for the Unification Process

The entire basis for integration is that it allows
fullest utilization of manpower. Fire fighting and police
protection are primarily effective to the extent that ade-
quately trained and effectively used manpower is provided
in adequate quantity. It is essential that as unification
proceeds through the years, the university administrators
appreciate and be mindful of the fact that the operation
is functioning on a minimum manpower basis and that if the
manpower provided does not keep up with workload demands,
the manpower upon which effective fire fighting is absolutely

dependent might not be available when its major test occurs.

 

lTryon, op. cit., section 11, p. 20.

2Combined Police anngire Services for Medium-sized
3nd Small Cities (Jefferson City, Missouri: Missouri Public
Expenditure Survey, February, 1960), p. 7.

226

Failure to provide items of equipment which, it
may appear, will have limited or infrequent use can also
damage the scheme for securing maximum efficiency, since
this equipment is an indispensable factor in effective use
of limited fire fighting manpower.

Training must not be allowed to decline in frequency
or in quality. Because of the absence of serious fires,
training is the only means by which the university can be
assured that its minimum manpower, unified operation will
perform effectively and thus justify its existence when
the serious fire emergency inevitably occurs.

A principal merit of the unification concept is
that it offers the opportunity to pay better salaries to
fewer men for vastly better performance. Integrating with-
out providing a salary which is significantly higher than
that paid in bordering cities for doing only one of the
public safety jobs would inevitably lead to discontented

employees and unreliable performance by the organization.

II. RECOMMENDATIONS
A number of conclusions formed while conducting
this study have led to formulation of several recommenda-
tions concerned not only with the question of whether or
not to unify the police and fire protection agencies, but
also with the place of the public safety function in the

university.

227

Additional Research

Effective utilization of police and fire manpower
can result not only from unification of the police and fire
agencies, but also by receiving service from larger police
and fire agencies. This consideration raises the question
whether the advantage of university control over fire and
police operations by having its own agencies might not also
be achievable in some manner through a close contractual
relationship with the city of East Lansing after merging
the university personnel with the East Lansing agencies,
thus making the economies of organizational scale available
through elimination of duplicating functions. It seems
likely that such a study would demonstrate the desirability
that such city-university police and fire agencies should
also be a single unified police-fire department. If appro-
priate arrangements could be made to ensure that such an
agency continued to function with university interests con-
stantly in mind (as the East Lansing fire department-univer-
sity relationship has not so functioned), the university
might find itself relieved of many administrative and pub-
lic relations problems which are inevitable by-products

of the law enforcement process.

The Existing Fire Protection Contract
This contract should be reexamined by the univer-

sity and the city and rewritten to provide some standards

228

of performance which the city is to meet and the university

could measure. The standards of the grading schedule of

the National Board of Fire Underwriters could serve as the

basis for such a performance contract and could be appro-

priately modified in specific areas to provide either greater

or lesser standards of performance as conditions require.

Such a performance contract should require at least the

following from the fire department:

1.

Inspection of university properties by the fire
fighting personnel as a daily duty unless en-
gaged in training activities.

Establish a specific fire training program with
a full-time training specialist in the fire
department with adequate assistance from the
university.

Acquisition of appliances and minor equipment
for combating major fires and securing entry
into heavily constructed building spaces in-
volved in major fire conditions.

Ladder equipment, capable of reaching the roof
of the building involved, or of reaching the
length of the aerial ladder, be dispatched

to any alarm, and require adequate accompany-
ing manpower to raise the ladder if manual
ladders are intended to be used.

Pre-fire planning for all major university

229

structures or classes of major structures, and
for each of the farm structures or complexes,
including emphasis on fire department provision
of adequate water supply and pre-planned mutual
aid on an automatic response basis for the farm
complexes.

6. Specification of the first alarm minimum man-
power under day and night conditions at major
structures and types of structures; this should
be not less than six men.

7. Provision for dispatch of apparatus from the
nearest fire station to university buildings
or alarm locations.

The cost of the fire department provided under such

a performance contract should then be measured against a
university-operated unified police-fire agency. Such an
agreement should not overlook the benefits in cost reduc-
tion which might accrue from use of student "sleepers" by

the East Lansing fire department.

The Decision to Integrate

Unification of the police and fire functions in a
university-operated police-fire agency is operationally
feasible if a sufficiently stable personnel force can be
secured and if adequate numbers of personnel are provided.

Such an organization will also provide significant financial

230

benefits to the university after the initial expenses have
been amortized from the system's economical use of manpower.

If the university is not convinced that it is oper-
ating a community producing many more police and fire prob-
lems than are dealt with by the police and fire forces of
comparably populated cities and that adequate personnel is
needed to deal with the problems, then the university should
not unify its police and fire functions. An integrated
organization which has an excessive personnel turnover or
is undermanned will provide effective police protection,
but will prove to be a dangerously unreliable fire fight-
ing force as pressures to meet service and police protec-
tion demands inevitably destroy the fire prevention and
fire training functions without which effective fire pro-
tection cannot be realized from a small fire department.

If the decision by the university,after study of
other alternatives described above, is to operate its own
unified police-fire organization, under the conditions de-
scribed above, it should enter the program by regarding
unification as a means for securing immediate large-scale
improvement in its police and fire protection at relatively
minor cost and concern itself with the economies of inte-
gration only in future years after the perfected and ade-
quate organization is properly functioning.

Therefore, it is recommended that the unified or-

ganization have the same number of personnel now employed

231

by university funds, thus securing for the university a
very substantial betterment of service and a more reliable

level of protection during the conversion period.

APPENDIX I
Fire Protection Agreement

THIS AGREEMENT, Made and entered into this 20th
day of September, 1946, by and between the City of East
Lansing, a municipal corporation, of Ingham County, Mich-
igan, as party of the first part, and the State Board of
Agriculture, a Michigan Public Corporation, as party of

the second part;

WHEREAS, both parties hereto desire to establish
and maintain adequate fire protection for the properties
of the City of East Lansing and Michigan State College; and
WHEREAS, both parties hereto feel that this can
best be accomplished by a cooperative arrangement under
the supervision of the City of East Lansing on the terms

and conditions hereinafter set forth.

' NOW, THEREFORE, for and in consideration of the
mutual promises and covenants hereinafter set forth, it

is hereby agreed by and between the parties hereto as fol-

lows:

1. The said party of the first part hereby agrees

(a) To provide and at all times to maintain its

,present fire station and to provide its present fire fighting

equipment.

232

233

(b) To pay one—half the cost of all fire fighting
equipment and other necessary supplies hereinafter purchased
for the combined fire department of the parties hereto.

(c) To pay one-half the cost of maintenance of the
equipment, salaries and maintenance of personnel of the
combined fire department.

2. The said party of the second part hereby agrees
to:

(a) To immediately provide and equip a temporary
building to house such fire fighting equipment and person-
nel deemed necessary and adequate for temporary fire pro-
tection. That the cost thereof, as well as the maintenance
of same, shall be paid for by second party. -

(b) To provide its present fire pumping equipment
and pickup truck.

(c) To provide, as soon as possible, fully equipped
and at all times to maintain a permanent building to hOuse
such fire fighting equipment and personnel as shall be re-
quired on the campus of second party.

(d) To pay one-half the cost of all fire fighting
equipment and other necessary supplies hereafter purchased
for the combined fire department of the parties hereto.

(e) To pay one-half the cost of maintenance of the
equipment, salaries and maintenance of personnel of the
combined fire department.

3. It is agreed by and between the parties hereto

234

that there shall be but one fire department, operated and
supervised by the said first party. All responsibility
for the purchase of fire fighting equipment and other nec-
essary supplies, the maintenance of all equipment, the em-
ploying and discharging of all personnel shall be fully
taken care of by first party.

4. It is further agreed that this combined fire
department shall at all times be maintained at such a stand-
ard as to provide adequate and ample fire fighting units
for both parties hereto.

5. It is further agreed that the equipment and
personnel of the combined fire department housed in the
City of East Lansing and on the campus may be used inter-
changeably under the direction and orders of the Chief of
the fire department of the City of East Lansing.

6. It is further agreed that said first party shall
cause to be prepared and delivered to second party an item-
ized statement of the cost of the operation of the combined
fire departments at the end of each fiscal year, ending
July lst. Said second party agrees to promptly pay one—
half of such cost.

7. It is further agreed that in the event of dis-
satisfaction on the part of either party hereto, this agree-
ment may be cancelled and set aside upon three months notice
in writing to the opposite party. In such event an appraisal

shall be made of all fire fighting equipment purchased,

235

subsequent hereto and settlement made between the parties
therefor.

IN WITNESS WHEREOF, the parties have hereunto set
their hands and seals, each acting by their duly authorized
officers in pursuance of resolutions approving the execu-

tion of this contract.

In the Presence of: CITY OF EAST LANSING
Jennie Neuman By Carl G. Card,

Mayor
Margaret Guilkey By Harry W. Lott, Clerk

STATE BOARD OF AGRICULTURE

Ruth Jameyson By J. A. Hannah

Marie Mercier - By Karl H. McDonel, Secretary

Supplemental Agreement - Fire Protection

THIS SUPPLEMENTAL AGREEMENT, made and entered into
this 6th day of February, A. D. 1950, by and between the
CITY OF EAST LANSING, a municipal corporation, situate in
the county of Ingham, state of Michigan, hereinafter desig-
nated party of the first part, and the STATE BOARD OF AGRI-
CULTURE, a Michigan public corporation, hereinafter deSig-

nated party of the second part.

W I T N E S S E T H

WHEREAS, the parties hereto entered into a written
agreement hearing date of September 20, A. D. 1946, provid-
ing for the establishment and maintenance of a joint fire
department for said city of East Lansing and for Michigan
State College, and

WHEREAS, said agreement provided among other things
that each of the parties thereto would pay one-half of the
salary of the personnel of such combined fire department,
and 5

WHEREAS, included among such personnel at the pres-
ent time is the fire inspector of the city of East Lansing
‘whose salary has to the date hereof been paid equally by
said parties as therein provided, and '

WHEREAS, the said State Board of.Agriculture pro-

poses to employ a fire inspector, as an employee of the

236

237

said State Board of Agriculture and not of the city of East
Lansing, whose time will be exclusively devoted to perform-
ance of the duties incident to his employment by the State
Board of Agriculture, including the performance of the
duties as fire inspector upon all properties within the
jurisdiction of said board, and

WHEREAS, party of the second part is, therefore,
desirous of amending and modifying said prior contract so
as to be relieved of its obligation to pay any portion of
the salary of the present fire inspector of the city of
East Lansing or his successors, if any,

Now, therefore, in consideration of the mutual
promises and undertakings of the parties hereto as herein-
after set forth, IT IS HEREBY MUTUALLY AGREED By and between
the parties hereto as follows:

1. Said contract, dated September 20, A. D. 1946,
between the parties hereto, is hereby modified only inso-
far as the same is hereinafter specifically set forth, but
in all other respects shall remain unaffected hereby and,
as such, is hereby ratified.

2. Party of the second part shall, commencing as
of April 1, A. D. 1950, be relieved from payment of any
part of the salary of the present fire inspector of the
city of East Lansing or his successors, if any, and such
salary shall not be included in the salaries of the person-

nel of the combined fire department of the parties hereto

238

which, under said agreement, are to be borne equally by
the parties hereto.

3. Commencing as of April 1, A. D. 1950, the city
of East Lansing and its fire department shall be relieved
of all further responsibility in regard to making of any
fire inspection, whether routine or those incident to an
actual fire upon any premises under the jurisdiction of
the State Board of Agriculture, but shall have the right
to make any such investigation or inspection which, in the
judgment of the chief of the fire department of party of
the first part, may be necessary or advisable.

4. Any person employed or designated by party of
the second part as a fire inspector or to perform such
duties shall be an employee of party of the second part
and not, for any purpose, an employee of party of the first
part.

5. Any such person who may from time to time per-
form duties of fire inspector for party of the second part
shall, nevertheless, cooperate with the fire department
of party of the first part, filing with the chief of the
fire department of party of the first part, promptly as
made, all reports of fire inspection of fires upon said
properties within the jurisdiction of said party of the
second part, and shall also promptly notify said chief of
the fire department of party of the first part and furnish

him with reports of inspection of buildings regarding fire

239

conditions and fire hazards made by the fire inspector of
said party of the second part, and shall further cooperate
with party of the first part by furnishing, upon request
of said chief of the fire department of party of the first
part, all available information relating to such conditions
and complying with all other requests made by said chief
of the fire department in regard thereto.

IN WITNESS WHEREOF, the parties have hereunto set
their hands and seals, each acting by their duly authorized
officers in pursuance of resolutions approving the execution

of this Agreement.

In the Presence of: CITY OF EAST LANSING
Harold F. Peetz By Burr O. Twichell, Its Mayor
Max R. Strother And Merwyn S. Skamser, Its Clerk

STATE BOARD OF AGRICULTURE
Ruth Jameyson By J. A. Hannah, Its President

Marie Mercier And Karl H. McDonel, Its Sec-
‘ retary

APPENDIX II

Michigan State University Fire Alarm Incidence,
by Year and Time, 1955-1962

 

Hour

Begin-

ning,, 1955 1956 1957 1958 1959 1960 1961 1962 Total %

12 M 4 2 5 9 5 S 6 2 38 3.169
1 A 3 2 S 2 l 2 3 l 19 1.585
2 - - S 2 2 - 2 4 15 1.251
3 2 2 - - 4 - 3 - 11 .917
5 - 2 - - 2 3 - - 7 .584
6 l - 2 1 2 l 2 1 10 .834
7 2 2 2 1 3 2 5 2 19 1.585
8 4 4 4 6 5 5 4 5 37 3.086
9 11 6 7 9 6 4 l3 6 62 5.171

10 10 9 7 13 5 7 8 14 73 6.088

11 5 5 10 ll 8 9 8 6 62 5.171

12 N S 9 8 12 3 6 8 9 60 5.004
1 8 6 7 4 10 12 12 9 68 5.671
2 9 6 12 5 8 9; 10 10 69 5.748
3 4 4 9 8 3 8 7 12 55 4.987
4 7 12 10 7 9 9 7 ll 72 6.005
5 5 12 6 l6 9 7 8 10 73 6.088
6 14 ll 13 ll 8 10 12 14 93 7.756
7 8 12 11 7 7 8 8 13 74 6.172
8 5 4 14 10 18 11 9 10 81 6.756
9 4 11 5 l7 2 ll 9 12 71 5.922

10 8 8 10 13 8 9 6 7 69 5.755

11 7 7 7 7 11 4 5 6 54 4.504

 

128 136 159 171

H
w
KO

146 156 164 1,199 99.993

240

APPENDIX

III

Michigan State University Fire Alarm Incidence,

by Day, Month and Year, 1955-1962

 

 

 

 

Month 1955 1956 1957 1958 1959 1960 1961 1962 Total %
Jan. 12 10 ll 13 22 8 24 11 ‘111 9.258
Feb. 12 13 6 15 9 12 16 8 91 7.589
Mar. 9 16 15 17 10 11 10 21 109 9.091
Apr. l4 16 20 21 23 14 10 9 127 10.592
May 11 8 24 31 9 11 15 20 129 10.759
Jun. 11 10 18 17 12 10 16 ‘ 15 109 9.091
Jul. 10 2 4 3 5 9 '12 12 57 4.754
Aug. 10 2 10 8 6 6 10 11 63 5.254
Sep. 6 8 6 10 7 12 8 10 67 5.588
'Oct. ll 16 16 12 15 25 17 18 130 10.842
Nov. 7 23. 10 14 9 l4 6 17 100 8.340
Dec. 15 12 19 10 12 14 12 12 106 8.841

128 136 159 171 139 146 156 164 1,199 99.999
Sun. 9 14 10 22 14 13 14 ' 12 108 9.007
Mon. 19 26 26 31 22 28 28 27 207 17.264
Tue. 21 15 22 28 26 24 23 18 177 14.762
Wed. 24 19 31 24 19 21 24 33 195 16.263
Thu. 20 22 21 22 27 21 19 24 176 14.679
Fri. 17 27 17 21 19 18 25 26 170 14.178
Sat. 18 13 32 23 12 21 23 24 166 13.845

128 136 159 171 139 146 156 164 1,199 99.998

 

241

APPENDIX IV

Michigan State University Inhalator Runs, by
Time and Year, 1955-1962

 

 

 

 

Begin-
ning 1955 1956 1957 1958 1959 1960 1961 1962 Total %
12 M 1 1 2 6 10 4.03
1.A 1 1 4 6 2.42
2 1 l 2 .81
3 1 1 .40
4 l 1 2 .81
s 1 1 2 .81
6 1 1 2 .81
7 2 2 1 1 6 2.42
8 l 2 2 1 l 7 2.82
9 2 2 1 3 2 10 4.03
10 2 .1 1 1 1 2 3 2 13 5.24
11 2 l 1 4 l 2 3 14 5.65
12 N 4 l 1 3 3 1 6‘ 19 7.66
l p 7 3 3 1 1 3 3‘ 21 8.47
2 2 1 2 6 4 5 3 5 28 11.29
3 3 1 3 1 3 l 12 4.84
4 2 2 1 2 3 4 3 2 19 7.66
5 3 3 1 2 1 2 2 14 5.65
6 1 l l 3 2 8 16 6.45
7 2 3 3 1 1 2 1 13 5.24
8 1 2 1 1 1 1 2 9 3.63
9 1 l 1 l 4 1.61
10 l 2 3 2 8 3.23
11 2 1 l 1 2 2 1 10 4.03
Total 34 30 20 27 26 30 28 53 248 100.01%

 

12

APPENDIX IV

Michigan State University Inhalator Runs, by
Time and Year, 1955-1962

 

 

 

 

Begin—
ning 1955 1956 1957 1958 1959 1960 1961 1962 Total %
12 M 1 1 2 6 10 4.03
1 A 1 1 4 6 2.42
2 l 1 2 .81
3 1 1 .40
4 1 1 2 .81
5 l l 2 .81
6 l 1 2 .81
7 2 2 1 1 6 2.42
8 l 2 2 1 1 7 2.82
9 2 2 1 3 2 10 4.03
10 2 .1 1 1 1 2 3 2 13 5.24
11 2 1 1 4 l 2 3 14 5.65
12 N 4 1 1 3 3 1 6' 19 7.66
1 P 7 3 3 l 1 3 3‘ 21 8.47
2 2 l 2 6 4 5 3 5 28 11.29
3 3 1 3 1 3 1 12 4.84
4 2 2 l 2 3 4 3 2 19 7.66
s 3 3 1 2 l 2 2 14 5.65
6 1 1 l 3 2 8 16 6.45
7 2 3 3 1 1 2 1 13 5.24
8 1 2 1 1 l 1 2 9 3.63
9 1 1 1 1 4 1.61
10 1 2 3 2 8 3.23
11 2 1 1 1 2 2 1 10 4.03
Total 34 30 20 27 26 30 28 53 248 100.01%

 

l2

APPENDIX V

Michigan State University Inhalator Runs
by Day, Month and Year, 1955-1962

m

Month 1955 1956 1957 1958 1959 1960 1961 1962 Total %

 

 

 

 

Jan. 6 2 0 1 l 2 3 6 21 8.47
Feb. 2 3 2 l 3 l 0 7 19 7.66
Mar. 0 6 3 1 3 2 3 5 23 9.27
Apr. 4 3 5 5 2 l 3 3 26 10.48
May 3 1 3 2 3 2 2 6 22 8.87
Jun. 0 2 3 1 4 4 2 5 21 8.47
Jul. 2 3 0 l 0 2 l 2 11 4.44
Aug. 13 l 2 0 1 3 1 0 21 8.47
Sep. 1 0 0 2 2 3 2 ,1 11 4.44
Oct. 3 8 0 7 1 5 8 6 38 ,15.32
Nov. 0 0 1 4 4 5 2 6 22 ~ 8.87
Dec. 0 1 l 2 2 0 l 6 13 5.24

34 30 20 27 26 30 28 53 248 100.00
Sun. 4 5 2 1 l 3 7 8 - 31 12.50
Mon. 3 6 2 6 4 2 6 10 ‘ 39 15.73
Tue. 8 1 4 1 7 3 3 6 33 13.31
Wed. 10 4 3 2 4 7 1 6 37 14.92
Thu. 3 3 2 1 4 3 4 9 29 11.69
Fri. 3 5 5 3 3 4 5 7 35 14.11
Sat. 3 6 2 l3 3 8 2 7 44 17.74

34 30 20 27 26 30 28 53 248 100.00

 

243

244

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248

James, Charles S. Police and Fire Integration in the Small
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National Board of Fire Underwriters. Fire Department Man-
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National Board of Fire Underwriters. Fire Department Sta-
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_ Underwriters, 1956.

 

 

National Board of Fire Underwriters. Training. Special
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National Board of Fire Underwriters. Ventilating as an
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Scott, Maurice W. Illinois Tax Facts. Column No. 528.
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UNPUBLISHED MATERIALS

Bean, George E. "A Report on the Request for Reduced Hours
and Increased Pay for Police and Fire Personnel."
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251

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Integrated Police and Fire Operations of the Grosse
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of Michigan, 1957.

DeBard, August A., Jr. "Report on Police and Fire Depart-
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McNeil, Dale E. "An Inquiry into the Feasibility of Inte-
grating the Police and Fire Services of an American
Municipality." Unpublished Master's thesis, Mich-
igan State University, East Lansing, Michigan, 1960.

Michigan State University Department of Public Safety.
"Annual Reports." East Lansing, Michigan, 1958-63.‘

1

NEWSPAPERS

Green, John, and Jerry Moskal. "MSU 'Sun' Sheds Light
Across Mid-Michigan," The [Lansing, Michigan]
State Journal, May 21, 1963, p. B-8.

The [Lansing, Michigan] State Journal, July 10, 1963, p. 1.

MacDougall, Kent. "Integration of Police-Fire Forces
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Herald News, January 17-26, 1957.

Michigan State University State News, April 5, 1963.

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PERIODICALS

Fire Engineering. 1956-62.

Firemen. 1956-62.

252

Johnson, Bert W. "Evanston's Fire-Police Cooperation,"
The American City, 75:175-176, September, 1960.

Kimball, Warren Y. "Fire Department Manning," Firemen,
June, 1959, pp. 12-16.

Kimball, Warren Y. "Grouping Fire Companies," Firemen,
August, 1962, pp. 12-13.

Kimball, Warren Y. "Manning a Response Group for Normal
Urban Fire Hazards," Firemen, October, 1959, p. 13.

Robertson, J. C. "The Combined Paid and Volunteer Fire
Department-—with Some Suggested Palliatives," Fire
Engineering, 115:38-39, 51, 61-63, January, 1962.

 

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