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OT‘ -- 4 “f:- \I .0”? .‘ ‘9‘ ninfl- ' I 'v-J “Ti 9“.» 0' ‘ 0‘ p.-. 0‘" 'Jn'fi. .‘ .o p.. liBRARY Michigan State University RETURNING MATERIALS: ______.___..__“__,__ 1V453‘.J Piace in book drop to LIBRARJES remove this checkout from l—rzc—IIL your record. FINES wiii be charged if book is returned after the date stamped beiow. . € AN INQUIRY INTO THE FEASIBILITY OF INTEGRATING THE POLICE AND FIRE SERVICES OF AN AMERICAN MUNICIPALITY By DALE E. MCNEIL AN ABSTRACT Submitted to the College of Business and Public Service Michigan State UniverSity of Agriculture and Applied Science in partial fulfillment of the requirements fbr the degree of MASTER OF SCIENCE School of Police Administration and Public Safety Approved saws C . 2. Ar! . 933.3 ii‘xikliljijk'?" INK} HMS TEASMIUTY (33‘ li‘a’sl'iiCilRi-‘JING THE. PQUCE AND FIRE .*.-Iir;"-/i~f.2é:i 5 0* ma! Ak‘végiii'fifj.A?! 5541.3 MRI? 932.411"! r' 'V ” . .- _ - - .. M‘ i . ' f‘ ‘K: rs [I]. 3:. . Us}; 11,-: ii..'2 b93729 c: v'. ‘A C'.” A" ‘ *1‘-"U~W'-"*~z'-§'M ' 1 I d . .3 \ i ‘ diff}. J ‘ "1 .At..- '- '“ r r\ I \IV, [13,5 :3; ‘W‘Ls tkp 6., i 'a g. .1 2 DALE E. MCNEIL ABSTRACT Integration, in regard to police and fire services, is defined as the merging, either completely or partially, of the functions or organizations of the police and fire departments of a municipality. At one extreme it means separate police and fire departments commanded by a single administrator, while at the other end it means that both police and fire duties are performed by the same individual, usually designated as a public safety officer, under a unified department of public safety. Integration encounters problems of definition, tra- dition, and arguments advanced both for and against such organizations. Arguments against integration usually come from the fire service and associations connected with the service. Such arguments against integration are mostly with- out merit, but must be considered by any municipality which is seeking to determine the feasibility of integrating their own police and fire services. Integration has had renewed interest in municipalities throughout the United States. This interest has developed as a result of rapidly growing populations within many munici- palities, financial problems involving higher salaries, shorter work weeks, rising expenses of maintaining adequate public safety, and citizen demands for more effective public safety service. 3 DALE E. McNEIL ABSTRACT The material used in this report was gathered from various sources relating to the integration of police and fire services. The majority of the material came from publications, articles in periodicals, and personal letters from administrators describing either the success or fail- ure of a particular municipality's experience with integration. The conclusion of this report is that integration is feasible and practical, but the form or extent of integra— tion must be based upon the conditions and circumstances in a particular municipality. Twenty-six municipalities in the United States presently have integrated departments in vary- ing forms and extents. In addition, thirty-five municipalities in Canada presently have integration of their police and fire services. Many of the municipal administrators report that integration is very successful. The foremost advantage of integration is that it pro— vides a maximum of public safety protection with a reasonable expenditure. In many municipalities with integrated operations, the program has proven successful from the standpoint of the police and fire services, the municipal administrators, and the public. Integration represents a departure from the traditional, but not necessarily the practical, method of providing public safety protection. AN INQUIRY INTO THE FEASIBILITY OF INTEGRATING THE POLICE AND FIRE SERVICES OF AN AMERICAN MUNICIPALITY By DALE E. McNEIL A THESIS Submitted to the College of Business and Public Service Michigan State University of Agriculture and Applied Science in partial fulfillment of the requirements for the degree of MASTER OF SCIENCE School of Police Administration and Public Safety 1960 ACKNOWLEDGEMENT To the United States Air Force, the writer wishes to take this Opportunity to express his appreciation for making it possible to pursue graduate studies at Michigan State University. To the public safety officers and the Director of Public Safety, Glenford S. Leonard, of the Oak Park, Michi- gan Department of Public Safety, the writer expresses his gratitude for their co-operation in his study of the inte- gration of their police and fire services. They and other pioneers, have created a new profession, that of public safety officer. The guidance and assistance provided by Professors Samuel C. Chapman and Frank D. Day, his major advisors, are gratefully acknowledged by the writer. ii TABLE OF CONTENTS CHAPTER I. INTRODUCTION . . . o . . . . . . . . . . . Definition of Integration . . . . . . . Complete or total integration . . . . Partial integration . . . . . . . . . Functional or cooperative integration The Problem . . . . . . . . . . . . . . Previous work on integration of police fire services . . . . . . . . . . . Importance of the study . . . . . . . Remainder of Report Organization . . . . II. HISTORY AND FUNCTIONS OF POLICE AND FIRE SERVICES The Police Service . . . . . . . . . . . The Fire Service . . o . . . . . . . . . Summary . . . o . . . . . . . . . . . III. HISTORY OF INTEGRATION . . . . . . . . . . Unsuccessful Integrated Departments . . Chico, California 0 . . . . . . . . . Hawthorne, California . . . . . . . . San Marino, California . o o . . . . . Sanger, California . . . . . . . . . . Montery Park, California . . . . . . . PAGE ~q o~ ox c— x» :4 10 ll 12 16 21 23 24 24 25 25 26 27 CHAPTER iv PAGE Buena Park, California . . . . . . . . . . . 27 Fremont, California . . . . . . . . . . . . 28 Lincoln, Nebraska . . o . . . . . . . . . . 30 Other unsuccessful operations . . . . . . . 32 Evaluation of the unsuccessful integrated departments . . . . . . . . . . . . . . 33 Successful Integrated Departments . . . . . . 35 Grosse Pointe Shores, Michigan . . . . . . . 36 Sewickley Heights, Pennsylvania . . . . . . 37 Oakwood, Ohio 0 . . . . . . . . . . . . . . 38 Huntington Woods, Michigan . . . . . . . . . 39 Grosse Pointe Woods, Michigan . . . . . . . AO River Hills, Wisconsin . . . . . . . . . . . A2 Sunnyvale, California . . . . . . . . . . . A2 Oak Park, Michigan . . o . . . . . . . . . . AA Glencoe, Illinois . o . . . . . . . . . . . A6 Lake Alfred, Florida . . . . . . . . . . . . A7 Fort Lauderdale, Florida . . . . . . . . . . A8 Winston-Salem, North Carolina . . . . . . . A9 Milton-Freewater, Oregon . . 50 Fox Point, Wisconsin . . . o . . . . . . . . 51 Dearborn, Michigan 0 . . . . . . . . . . . . 52 Elgin, Illinois . . . . . . . . . . . . . . 53 Evanston, Illinois . . . . . . . . . o . o . 5A Champaign, Illinois . . . . . . . . . . . . 55 fl" I M'fih —_v . ~ Vutu nun CHAPTER Other cities with integration . . . . smary O O O O O O O O O O O O 0 IV. 'THE PRO AND CON OF POLICE-FIRE INTEGRATION Arguments against integration . . . . . . Police and fire duties are not similar Evaluation of this argument . . . . . Response time to fires is increased . . Evaluation of this argument . . . . . . . Simultaneous incidents and emergencies cannot be handle d O O O O O O O O O O O O 0 Evaluation of this argument . . . . . . Morale, discipline, and training will Evaluation of this argument . . Public safety will deteriorate . Evaluation of this argument . . Fire insurance rates are higher . Evaluation of this argument . . I Integration is not economical . . Evaluation of this argument . . and feaSible 0 O O 0 O O O O O adversely affected . . . . . . . . be 0 No integrated program has proven practical 0 O O 0 Integration prohibits outside employment 0 Evaluation of this argument . . . . o . . , Evaluation of this argument . . . . . . . PAGE 56 58 6O 62 63 65 68 68 7O 71 73 73 71+ 75 77 77 78 78 8O 8O 81 81 A"! l - Una _, g1 —. . «H Y! ‘nl L" J "r! CHAPTER V. VI. State statutes may prohibit integration . Evaluation of this argument . . . . . . Union organizations may impede integration Evaluation of this argument . . . . . . Police professionalization efforts will be affected . . . o . . o . . . . . . . . Evaluation of this argument . . . . . . Advantages of Integration 0 o . . . . . . . Summary . o o o o . o . . . . . . . . . . INTEGRATION AND THE SIZE OF THE MUNICIPALITY Integration in the Small Municipality . . . Integration in Larger Municipalities . . . Integration on Military Installations . . . summary 0 O O O O 0 O O O O O O O O O O O 0 PLANNING FOR THE INTEGRATION OF POLICE AND FIRE SERVICES IN AN AMERICAN MUNICIPALITY o . . The Decision to Adopt an Integrated Program Legal provisions . . o o . . o . . . o 0 Characteristics of the municipality . . . Cost of integration 0 o o o . . o . o . . Installation and Operation of an Integrated Program 0 o o o o o o o o . o . o o . . . Public safety director 0 . o . . . o . . Personnel management . . . . . o . . . . Training 0 O O 0 0 0 O 0 O 0 0 O O O O 0 vi PAGE 82 82 83 83 84 8A 84 91 9A 95 99 102 103 105 105 107 109 112 113 113 11A ll6 ":lnmr' Uloa‘ g“; "7’ . a 1“. D CHAPTER vii PAGE Organization and field operations . . . . 119 Supervision . . . . . . . . . . . . . . . 121 Problem areas . . . . . . . . . . . . . . 121 Headquarters organization . . . . . . . . 122 Apparatus and equipment . . . . . . . . . l23 Records 0 O O O 9 O O O O O 0 O O O O O O 125 VII. SUMMARY AND CONCLUSIONS 0 . . . . . . . . . . . 127 BIBLIOGRAPHY O O O O O O O 0 0 O O O O O O O O O O O 131 APPENDIX A APPENDIX B APPENDIX C O O O O O O O O O O O O O O O O O O O O 0 M2 0 O O O O O O O O O O O O O O O O C O O O lh3 O O O O O O O O O O O O O O O O O O O O O 1.th 040‘, A ‘F“ Ody“ “G 9;“ “.9 5‘3? 59:11". “a S "U A . 'vtculeb 00 ‘ha w ‘ an w F4 V IY‘H fl; ' h N.‘ t. G o": a t “I 7‘ ..~ ye‘ CHAPTER I INTRODUCTION Numerous municipal administrators in the public safety field have reappraised the organization of their police and fire services. This is true because the police and fire services receive approximately one-fourth of all municipal revenues. Several factors have caused this reappraisal. One of the main factors is the tremendous growth of the p0pula- tion of the United States. The 1960 federal census is ex- pected to show nearly 180,000,000 American citizens, an in-°' crease of nearly 30,000,000 over the 1950 census.1 This population increase has resulted in rapid growth of many villages, suburbs, and cities, and has brought about the necessity for more and better public service in the police and fire fields. In the public safety field, administrators are also faced with several financial problems. The cost of police and fire equipment and buildings has increased. Police and fire personnel are demanding higher salaries and shorter work weeks. The average annual salary for firemen from cities . 1William J. Eaton, "179,918,79A in Census?" The (Lan31ng, Michigan) State Journal, April 10, l960, p. 70. I F W‘- * 5L; AH» .nu P . I!“ ”V ‘~ 3 . -,‘_ I u.‘ 2 with populations from 25,000 to 50,000 increased from $2,9A0 in 1950 to $A,559 in May, 1959. During this same period, the firemen's average work week dropped from seventy-two to sixty-three hours.2 Presently, great pressure is being exerted to further reduce the work week to fifty-six hours, a reduction which is already established by law in several states. Similar changes have been made in the police service. The patrolmen's average salary in cities with populations between 25,000 and 50,000 increased from $2,9A0 in 1950 to $A,620 in May, 1959. During the same period the patrol- men9s work week was reduced from forty-eight to forty hours.3' The revenues to meet the increased expenses for police and fire operations have generally been lacking. In many municipalities, the citizens have not voted for necessary tax increases to support properly the public safety services. The financial problem has been intensified because many municipalities are now offering a variety of public services not offered in the past. For example, as a result of citizen desires and demands, revenues from municipal governments are directed to support recreation, forestry, and park maintenance programs for public betterment and pleasure. 2International City Managers Association, The Munici; Eél.12§£ Book (Chicago: International City Managers Associ- ation, 1950}, pp. 363, 367 and 1959, p. 368. 3 Ibid., 1950, p. AIA and 1959, pp. AlO-All. x.” :. ‘ \ 3 t )- x \ \ Q 1“ \‘.\ 'f 1 I 3 Furthermore, pension, health, and vacation benefits have also increased for the public safety personnel adding greatly to the total budget. The population growth, the overtaxing of revenue sources, and the need for more effective public safety services at a nominal expense has, therefore, caused municipal admin- istrators to seek a feasible solution of these problems. One approach to the solution is to integrate the municipal police and fire services. I. DEFINITION OF INTEGRATION The word "integration," as used in regard to police and fire integration, usually refers to the amalgamation, combination, unification, consolidation, or merging of the functions or organizations of the police and fire departments. As used in this report, the term "police and fire integration" means the merging, either completely or partially, of the organizations or duties of police and fire departments. In- tegrated departments vary in characteristics, organization, needs, and resources; integration, as a result, has developed in various forms and extents. The form or extent in each municipality is an attempt to meet the needs with the avail- able sources in a manner consistent with local conditions.h hMissouri Public Expenditure Survey, Combined Police and Fire Services for Medium-Sized and Small Cities (Jefferson 1 : ty ‘IMissouri Public Expenditure Survey, 1960}: p. 2. A A definition of integration which may also encompass the various forms used is "the consolidation of police and fire functions justified by the physical and social factors and other conditions in a community."5 Integration is, there- fore, the utilization of personnel and equipment dedicated to public services in a manner to ottain maximum service per unit of cost. Integration is generally developed in one of three forms: (I) complete or total integration; (2) partial integration; and (3) cooperative or functional integration. The form is identified by the organization of the departments, and the extent or degree is the number of men the departments use and the different functions these men perform. Complete g; Total Integration Complete or total integration may be defined as "the_ combination of all non-technical, non-specialist police and fire duties."6 Under this form of integration, one depart- ment (usually called the department of public safety) replaces the former police and fire departments which, as identifiable entities, are abolished. It may also be that only one de- partment is abolished and its functions and personnel 5John D. Holstrom, "Current Trends in Fire-Police Integration" (Speech given at the 85th Annual Conference of the International Association of Fire Chiefs, Los Angeles, California, September 18, 1958), p. l. (Mimeographed.) 6Citizens Research Council of Michigan, A Study of the Integrated Police and Fire Operations 9f the Grosse Pointe Woods Department of Public Safety (Memorandum numbergl9l. Detroit: Citizens Research Council of Michigan, June, 1957), po 0 transferred to the other department. The department head, generally the director of public safety, is responsible for all police and fire functions and training. The personnel of the department perform both police and fire duties and work out of the central headquarters structure and such services as communications and records are unified. Under this system a minimum number of personnel are on stand-by duty at the headquarters or substation, performing administrative, communication, or maintenance duties for the department. They respomito fire alarms with the fire apparatus and are met at the scene of the fire by the patrol officers who change into fire fighting clothing and fight the fire. When not fighting a fire, the patrol officers perform police patrol duties and issue traffic citations, enforce traffic regulations, engage in rescue service, con- duct crime and fire prevention investigations and perform in- spection duties. Total integration may or may not have specialization. In all except the very small departments there is need for specialization. The type and amount of specialization is governed by the size and make-up of the city and the de- partment. Fire apparatus operators, detectives, juvenile officers, communications personnel, and fire supervisors are usually specialist positions formed in most integrated departments. Examples of total integration are found in Oak Park, Michigan; Grosse Pointe Woods, Michigan; and Sunnyvale, California. uh“ $‘V ofilfi .’lI‘e ( ‘1 I N c Ch ‘ M c ac n\h av S -\ s \ t h. \ s Lv l. a 1N L U M A e :u u. ~ he 6 t f an; Au. . N paw MN.» 9. Su De .. g n. mm a a -.¢ a a. ‘nv . . ‘ he be we; r be «we h. n« «b v. .1“ .3. 59 N .«e a... A“ av cult ‘1‘ H 4. C 5. ‘ S F t- ”‘d u .N F.‘ Akxv Nib O‘iV RU \ :5 S d A... ‘AM 0 A. c ale .5 . Ge 1HU Rh. 3 5K t s D. n v up v Partial Integration Probably the most common form of partial integration is that in which the city retains the traditional police and fire departments; but as a means of improving service and making productive use of stand-by personnel, a group of public safety officers is recruited from either or both of the departments. These personnel are trained in both police and fire duties and are placed on police patrol performing police duties. However, when a fire occurs, they serve under the operational control of the fire department. Examples of this form of integration are found in Winston-Salem, North Caro- lina and Dearborn, Michigan. The consolidation of police and fire communications is also a form of partial integration as is the case where entirely separate police and fire departments are administrated by a single director of public safety. Functional gr Cooperative Integration Several cities have retained their traditional police and fire departments and have assigned in one department members of the other. This is functional or cooperative in- tegration. Here, firemen may assist with administrative or communication tasks in the police department, or police officers may prepare hydrants for hoses at the fire scene before the fire trucks arrive. This form of integration is used in Glencoe, Illinois, and several other American cities. II. THE PROBLEM The integration of police and fire services of a municipality is not easily accomplished. Serious problems must be confronted and managed properly. The greatest prob- lem that confronts integration of the police and fire serv- ices is tradition. The two services have different histories ‘ and traditionally have evolved over the years as separate departments each with definitive separation of duties. Each has developed into an enterprise with a large degree of pride and some degree of specialization. Tradition and pride are factors which are difficult to overcome. Another problem is evaluating the arguments advanced both for and against integration. Opponents denounce inte- gration as being unworkable, impractical, and undesirable. Proponents answer these arguments by saying that integration does work and is practical. Individuals.arguing against in- tegration cite examples of cities where it has been tried and has failed. The advocates cite examples of cities where integration is satisfactory. The arguments usually center around the question of whether or not police and fire func- tions have enough work that is common so that the same men can perform both functions efficiently. .It is the purpose of this study: (I) to examine the history of police and fire services; (2) to examine the Operations of past and present integrated departments; (3) to determine the feasibility of integrating the police and LI) l' _J .1 ’ b D or , I" fire services of a municipality; and (A) to present guides for any municipality deciding to integrate its own police and fire departments, as revealed through research of the related material, through visiting Oak Park, Michigan, De- partment of Public Safety, and through information gained by personal letters from administrators involved in integrated operations. Previous W0rk on the Integration pf Polide and Fire Services Libraries have many books describing the organization, equipment, training, and functions of_police departments. Other books are available which cover these same topics as they relate to fire departments. Two publications authored by Charles S. James constitute the only basic references on the principles of police and fire integration. Police and Fire Integration 5;; the Small City7 is a study of the police and fire services as they existed in 1955. It includes a forecast of public safety operations of tomorrow and presents a modern organizational structure to administer a modern pro- gram. A Frontier gffiMunicipal Safety8 identifies municipal 7Charles S. James, Police and Fire Integration in the Small City (Chicago: Public Administration Service, 1955):- p. 1A. 8Charles S. James, A Frontier of Municipal Safety (Chicago: Public Administration Service, 1955), p. 2. UH. ‘ 9 hazards and, with the aid of an integrated public safety de- partment, exemplifies methods that reduce hazards through preventive inspections and that apply coordinated remedial action when necessary. Numerous pamphlets and periodicals have carried I articles relating to the integration of police and fire serv- ices. Most of these articles are of restricted scope, gen- . erally describing either the success or failure of a particu- lar city's experience with integration. In others, the writer defines his organizationis position, which either praises the concept or condemns the practice of integration. Importance 92 the Study More effective and efficient public safety services at a reasonable monetary expense is the goal of municipal governments throughout the United States. If this can be accomplished through the integration of the police and fire services, it must be considered and evaluated by any munici- pality desiring to improve its public safety services. The number of municipalities which have integrated their police and fire departments in the past few years in- dicates that many municipalities are interested in informa- tion concerning this subject. This study may be used as a guide for future municipalities desiring to integrate their police and fire services, or as a review showing what other municipalities have accomplished under integrated operations. 10 III. REMAINDER OF REPORT ORGANIZATION The traditional type of police and fire department is discussed in Chapter II. Chapter III describes the history of integration. Included in this chapter is a description of integrated operations where integration has failed, as well as, a description of presently integrated police and fire operations. The pro and con of integration will be discussed ——-——-._—-_——_.—___ -_ .- 1 4 in Chapter IV. Chapter V deals with the size of a munici- pality susceptible to integration. Chapter VI contains the disgussion of the fundamental requisites of planning that a city should consider upon integrating the police and fire services. Chapter VII contains the summary and the conclu- sions drawn from it. s,“ Vq‘\l CHAPTER II HISTORY AND FUNCTIONS OF POLICE AND FIRE SERVICES . Traditionally, there has always been a division be- tween the police and fire organizations.1 This tradition has been long established, but is not surprising in the light of history. Police and fire services were derived from dif- ferent antecedents; the work done was quite different, and even the objectives of the two services were not always the same. Police work has been largely a full-time occupation; fire fighting has been and is essentially a part-time occupa- tion. The concept of police work has always been primarily preventive; the fire service historically has been to put out fires after they have started, which is a remedial act. Police work is essentially a social occupation; fire fighting is largely physical.2 Police work usually requires only one or two men to handle emergency calls; therefore, the force can be widely deployed. Fire fighting usually requires several 1Charles S. James, A Frontier of Municipal _af_;y (Chicago: Public Administration Service, 1955), p.m zIbido 9 p0 X‘Vi o person the p. {—f :s- (D 1 12 personnel, and it is often supplemented by reserve groups. I. THE POLICE SERVICE The mission of the police service is to prevent crimes and to enforce laws. Thus, the protection of life and property against criminal attack and the preservation of the peace have always been primary purposes of the police departments. To accomplish their task, the police must control people and their environment in such a manner as to obtain compliance with laws and regulations.3 Police duties include the pre- vention and repression of criminal activities largely through patrol, the apprehension of violators of laws and ordinances, the regulation of people in their noncriminal activities, and the performance of a variety of nonregulatory services. Our ancestors in Europe made the head of each family responsible to the village community for the good behavior of all the members of that family. The head-of-the-family system continued to work successfully as long as people could not get from one parish to another easily and as long as towns were too small to provide hiding places for those who broke the laws. The moment a person was wanted for some offense, hue and cry would be raised. All able-bodied men of the parish would chase him. As communities grew larger and 30. W. Wilson, Police Administration (New York: McGraw-Hill Book Company, Inc., 1950), p. 2. “A Riv Au. Q abke .u.» S R O 'u r. \ 13 travel became easier, police work became a full-time occupa- tion. Each parish appointed a constable to keep order.h The first real police force was organized in London, England, by Henry Fielding in approximately 1750.5 He was appointed magistrate of Bow Street, and he built up a small force of volunteers to keep the streets of that part of London safe. In 1752 the British government gave him money to establish a paid force, known as the Bow Street Police.6 He had three branches in the police organization; the horse patrol to escort travellers; the foot patrol to keep streets safe; and the Bow Street Runners, who were detectives.7 Some of the Runners were honest policemen, while others took bribes and became corrupt. The situation became worse; the police were opposed by organized bands of criminals, and the people Opposed the police because they were considered bullies and tyrants.8 ) The starting point of the contemporary police service began in 1829 when Parliament passed the Metropolitan Police Act. Its purpose was to end the corrupt police practices 4Richard Harrison, The Story 2f the World's Police (London: Phoenix House Ltd., 1955), p. 12. 5Ibid., p. 13. ON Ibi Q. 7Ibid., p. 1A. 81bid. - \ "1‘" r I“ u. Anes- ‘ .‘h \"ve F Ry "ma '. ‘1‘ Qua '0‘. U‘ D u. ‘ .AA' A d‘vlj t “A p ,- ‘ m..".c. {‘Av 4:. 5"“,le "'§ ‘ )- l- '\ ‘5 u .— t“. g 1A that were prevalent. It set up a paid police force in London. The new force, known as the Metropolitan Police, numbered over 3,000 men. The men soon became known as the "Peelers" or "Bobbies" after Sir Robert Peel, the founder of the or- ganization.9 The primary function of the Metropolitan Police was the prevention of crime. Then came detection. The Metropoli- tan District was divided into seventeen police divisions. ( Each division was divided into eight beats. There were four I ranks of police; superintendent, inspector, sergeant, and constable.lo Today, the police organization in England is much the same as it was under the Metropolitan Police as set up by Sir Robert Peel. The larger police areas are divided into districts, divisions, subdivisions, and sections. The head- quarters is normally organized in departments dealing with administration, criminal investigation, training, communica- tions, and traffic and road safety.11 The police systems of the United States were patterned after that of Britain. The first policemen to appear in the 91bid., p. 15. lOCharles Reith, A New Study of Police History (London: Oliver and Boyd, 1956), p. 136. 1Central Office of Information, The Police Service in Britain, (London: Central Office of Information, November 1953), P0 1.30 O" C U I 6"“ been VA!" no.0 em” to A \- e l < 1' C S CI‘rZ d V’ «.1: F. A“ rho u 0". II t O VA (’4 p .I . i 1 .5. VC nhlv 'A ’ V. V . f I a V . ”(d '1‘ 15 United States were sheriff and constable.12 The constable enforced the laws in New England, while the sheriff was common to the South and Southwest. The municipal police began to be organized in the United States after 1800 in the larger cities. In 1833, New \ York City sent a delegation to Britain to study the police : system in London. In l8AA, the system was adopted in New 1 York. The New York legislature passed a law creating "a day and night police," which formed the basis of modern police organization in America.13 The twentieth century brought about many changes in police methods. During the period from l920 to l9AO, police departments grew and developed in number and in strength. This era was characterized by drastic changes in technological, sociological, and scientific advances in urban and rural communities. All of these factors affected the police de- partments.14 The modern police force in an American municipality today usually consists of a chief, captains, lieutenants, sergeants, and patrolman. The organization of the police 12Bruce Smith, Police Systems A_ the ited States n Um (New York: Harper and BrOLhers Publishers, l9AO), p. 79. lBRaymond B. Fosdick, American Police Systems (New York: The Century Company, 1920), p. 66. lAThomas M. Frost, A Forward Look 12 Police Education (Springfield: Charles C. Thomas, 1959), p. A. _——-—-—— 16 force is divided by functions, according to the nature of the tasks to be performed. The headquarters in a modern police department may include divisions for vice, juveniles, detectives, patrol, traffic, administration, and communica— tions. The divisions may be broken down into bureaus, sec- tions, platoons, and squads. II. THE FIRE SERVICE Fire is one of the most destructive elements in modern life.15 Sweeping fires are not altogether modern plagues. Records show that Troy was razed by fire in 118A B.C., and prior to the beginning of the Christian Era, Rome suffered six great fires. Its worst conflagration occurred in 6A A.D. under the hand of Nero. The conflagration lasted a week.16 In 1666, the great London fire occurred and made over 2,000 people homeless. The world's "worst" fire devastated San Francisco in 1906 causing $350,000,000 loss. Chicago's great fire occurred in 1811 causing an estimated $165,000,000 loss. In 190A, Baltimore was the scene of a $50,000,000 conflagration.l7 ¥ 15National Board of Fire Underwirters Safe ardin §h&.N&LiQn.Against fling (New York: National Board 0% Fire Underwriters, l9A3), p. 20. 16Ibid., p. 21. 17Ibid. u‘fiMM"‘“V- mamm- an» t— -' .. . .1 ~‘ 1 "~' '~‘:I' ‘3 """‘l" h ‘h I ' V ' I v x - 7.1.... m... . . - an ‘m. 17 Since the result of fire is devastation, protection is an important function. The first line of municipal defense against fire is the fire department which, as it is known today, contrasts strikingly with that of earlier times. It was not until after the occurrence of the great London con- flagration of 1666 that organized fire fighting came into being. Prior to that time there was no organized protection against flames; but after two-thirds of London had burned, fire brigades were formed and made subject to call.18 Until the first quarter of the nineteenth century, London had five insurance companies that maintained private fire brigades. The members of these fire brigades were known as "water Men." It was the custom for these brigades to fight only those fires originating in or spreading to property insured by their employers. Their fire equipment consisted of a few lengths of rope, a varied assortment of iron hooks, leather bags, and axes.19 A The individual companies of fire fighters began merg- ing, in 1825, into more efficient operations. In 1832, the combined companies formed the London Fire Engine Establish- ment, which continued in force until 1865. At this time the 18 Ibid., p. 89. l9Ibid. , p. 90. l8 organization was taken over by the municipal authorities.20 One of the first records of community action in America in regard to fire fighting was in 1659. The Dutch Colony of Nieu Amsterdam purchased and distributed 250 leather buckets and a supply of ladders and hooks. The post of fire chief was inaugurated in 1689, with the appointment of a "Brent Master" to supervise the fighting of fires in the city now'known as New York.21 . The first public fire fighting organizations in : America were known as "fire societies." They were volunteer organizations composed of friends and neighbors who combined to combat fires. Typical of these volunteer organizations ‘was one known as the Phoenix Fire Society, founded in 1788 in Boston. The charter of this society fixed the membership at thirty. It arranged for quarterly meetings. Fines were imposed on absent members. Each member was required to keep two buckets, a pair of leather bags, and a rope to aid in fighting fires. Like the London brigades, the society confined its fire fighting to the property of members only. Upon arrival at a fire, each member placed himself under the immediate command of the individual whose property was burning. Toward the close of the eighteenth century, hand-drawn engines, 2Olbid., pp. 90-91. 21 Ibid., p. 91. 2:311? F I‘.‘ uaOU." .‘ , . . u.- v '0' ..0' “up: Inga“ ‘0...“ U. \ ""IFfiufi H‘s LI~V¢V h. 7"»: ,- cod. ““FI ' ‘ a ‘F‘ q 'M‘V u "1' 9‘: no a “"V. ‘YFI: I "L. 7 N \- eye“ 0“. . v I. U {.3 \ I I‘U ,. ,‘ 3:14: P- v!- A.) LA ’ A) ’1... l9 manually pumped, became more extensively used; and the ex- clusive fire societies began to give way to unsalaried volun- teer systems with companies of engines, hoses, and.bucket man. In the larger cities, fire wardens were appointed to super- vise fire fighting operations in each ward. Their organiza- tions were charged with fighting fire wherever they found it without discrimination as to the ownership of the property.22 The volunteer companies were antagonistic toward mechanical progress and improvements designed for extinguish- ing fire. They disapproved of the rubber hose and steam fire engine; they maintained that firemen should Operate close to the flames.23 The first successful steam engine for fire fighting was invented in 1853 in Cincinnati, Ohio. It was put into operation there by the first paid fire department, which was organized in the same year, because it was necessary to main- tain a permanent force to keep up steam in the engine.24 It was not until the middle of the nineteenth century that paid fire departments became numerous. The change, how- ever, was inevitable. The country's fire loss mounted alarmingly, and it was soon demonstrated that the volunteers 22Ibid., pp. 91-92. 231bid., p. 93. 21*Ibid., p. 94. 1'8." 9*; ("i IA“; -. “I, M" 1 0| ‘ \ 20 were not equal to the task of combating the many serious fires that occurred. Delay in getting water on the blaze be- came a common fault, confusion resulted in laying hoses, and arguments resulted between the members about their duties. After the paid department in Cincinnati appeared, other cities adopted the idea.25 In smaller cities, the practice was to have a paid chief and driver of the apparatus, while other members were volunteers. This is still the system in many smaller municipalities today. In recent years progress in fire fighting techniques, improvement of equipment and apparatus, and revised training methods have taken place. Fire engineering is a part of the curriculum in several colleges and universities.. Modern transportation and communication have revolutionized the field of fire prevention. The functions of the modern fire department include fire prevention through inspections, education, and suppression of fires once started. Rescue and ambulance service is pro- vided in many fire departments today. The modern fire department force may consist of the chief, captains, lieutenants, engineers, and firemen. The organization of the department may consist of districts, stations, battalions, and companies. The headquarters may be divided into divisions and bureaus of fire fighting, fire 25Ibido , pa 95o MgverOI icy with. 6 :.‘I‘.“‘ “ chafing“. q \“D-zrg' then... ' n‘ “at 1:, «9 serv: 55...... . "V‘, ‘ x alfi‘ ‘. :‘vuI‘a Q. 9 v 3‘“IA1 I ~- cvy.“‘u‘0 F O 21 prevention, fire alarms, communications, maintenance, admin- istration, training, and arson investigation. Summary The customs, traditions, and duties of the police and fire services have kept them separated throughout history. However, recent developments have tended to reduce the es- sential differences between these public safety services. Technological advances in the transportation and communica- tion fields have brought about new methods and procedures in both the police and fire services. Today, modern vehicles are used_by patrolman to reach any part of the city in matter (fl'minutes, while three-way radio communication direct their nmvements. Likewise, the fireman is no longer required to Stay in reserve in a fire station and wait for a fire to happen because transportation and communications promote fire prevention to its rightful place. The timeworn adage Of an ounce of prevention being better than a pound of cure is most appropriate when the public safety is considered. Fire protection organizations continue to step up their campaigns and programs designed to prevent fire. The Municipal Year Book of 1958 reports that: It is most encouraging to be able to say that the trend towards more adequate and comprehensive inspection Of all types of properties by municipal fire depart- ments continues undiminished. The campaign for regular 1n8pection of all dwellings by fire departments fos- tered by the International Association of Fire Chiefs, and strongly supported by NFPA and other fire protection Organizations, has made substantial progress. There 22 is ample evidence to show that this contribution by a local fire department materially reduces loss of life and fires in ordinary dwellings. This sort of work can be done at no extra expense to the taxpayer and with greatly improved public relations for the fire department so that all concerned benefit. It is hoped that in time all of the more than 20,000 organized fire departments will carry on dwelling inspections as a matter of routine.26 Fire prevention is becoming more recognized as the primary responsibility of firemen, as crime and accident pre- ventionlrwe always been for policemen. With this, the duties of firemen and policemen have identical objectives: to assure the public safety. The integration of fire and police services presents one means of efficiently coordinating this endeavor. 26International City Managers' Association IA; Mggl; cipal Year Book 1958 (Chica o: The International City Managers' Association, 1958 , p. 361. A: vfi.‘ I‘ 1G "u e $ . ,\ «'1 f.‘ . ‘r .3, ,a 1‘ A: § 2' F; '8; .lr I. '36 3 vlu‘bm'w 55" MM‘K‘L-«lfl‘h‘fi n.‘ k ”AA’S‘L‘B‘V 5* ‘ mun- AMJ... CHAPTER III HISTORY OF INTEGRATION The idea of combining the functions of the police and fire services is not new. Integrated departments date back to 1836 in England in such cities as Liverpool, Birmingham, and.Manchester. During World War II, because of the extra duties involved in both services, integration was abandoned. Today there are no integrated departments in Britain.1 ' Integration has been tried over the past eighty years in various municipalities in the United States and Canada. It has been very successful in most municipalities, while in some it has been tried and abandoned. The number of munici- ;palities adapting some form of integrated operations has .increased greatly over the past ten years. In 1950, many .individuals in the public safety field thought that integra- ‘tion should be limited to small municipalities of less than 210,000 population. By 1958, several cities with populations (if 100,000 had successful forms of partial integration of 'their police and fire services. 1Letter from Margaret Ratcliffe, Reference Section, British Information Service, New York, May 6, 1960. 2h I. UNSUCCESSFUL INTEGRATED DEPARTMENTS A number of cities including; Chico, Hawthorne, San Abrino, Sanger, Monterey Park, Buena Park, and Fremont, California; and Lincoln, Nebraska have tried and subsequently 1 abandoned the integration of the traditional police and fire operations. Qgigg, California ’ Chico is a city with approximately 13,000 population in 1958; it is ninety miles north of Sacramento.2 The city had partial integration from 1923 to l9A7. A director of public safety was in charge of separate police and fire de- partments. In 1920, the population of Chico was 9,339; in 191.0, it was 9,287; and in 1950, it was 12,272.3 The city is approximately four square miles in area. The single administrator was the extent of integration. ILn 19A7, to improve efficiency with the growth of the city, separate administrators for the police and fire departments were establishedJ‘ 2Al Albertoni, The Facts About Fire and ngice Inte- :nation.;g California (Federated Fire Fighters of California, September 15, 1958), p. 1. 3United States Department of Commerce, Census 9: Pop- lflation: l 0, volume I (washington: United States Printing Office 1952 , p0 5‘90 AAlbertoni, 2p. £13., p. 2. 0"; ‘ ‘ 1 nuDJ A ar '1 V Ft '.l .o \I» O c F... n n..- \ I hi Av\ V I, I ‘w. 3)“ “1“.fi; "~I~.-’ : ' . .. a... ca.crxt:s-aaw'.zh.~.wm _ ‘3i:‘.‘.!‘~e'-“‘£"I . "’4’ u '1“ ‘)l 25 flgwthorne, California Today Hawthorne is a city of 33.000 population within an area of six square miles. It is located in Los Angeles County. The city progressed from a volunteer fire department and a one-man police department in 1923 to a fully integrated police and fire department in 1937 consisting of a six-man public safety department, augmented by twenty-five volunteers. In 1937, the city had approximately 8,000 citizens.5 On January 1, 19A6, when the city had approximately l6,000 residents, the public safety department was separated into police and fire departments with one administrator. The departments were separated because of the lack of fire budget under the single department.6 In 1953, both the police and fire departments were assigned a chief which destroyed the last vestige of inte- gration. This action was taken by the City Council who stated it would be more efficient and would be better utilization of manpower.7 San Marino , California San Marino is a city in Los Angeles County with a popmlation of 13,000 in 1958; it has an area of four square 9 9- as hAcv I Q. I ‘93 fleshy . Quin rhsV .‘ lina Man:y 9:,3 c ‘3: .1. on". U“ A‘Ffi‘.“ ‘~.y'.‘ \‘7 E 26 E fi’miles. In 19A9, one administrator was in charge of separate 1 police and fire departments. The population at the time was 6 approximately 11,000.8 Partial integration was adOpted be- cause of internal strife in the fire department. The City Council was unable or unwilling to decide which of two fire captains who headed alternating shifts should be appointed fire chief. The council resolved the dilemma by appointing the chief of police as fire chief in addition to his police function.9 E There was never any attempt to create a department ‘ of safety or to integrate the activities of the police and fire departments. The polifip chief was reputed to know very little about fire department operations and, after a five- year period in 195A, another fire chief was appointed toil separate completely the two services.10 San er, California Sanger, a city with a 1958 population of 9,000, is located in Fresno County. The city had partial integration with one administrator in charge of separate police and fire departments from 1950 to 1956. The police chief took charge of the fire department as a result of the retirement of the 8United States Department of Commerce, pp. cit., p. 9Albertoni, pp. pip,, p. 3. Ibid. n.“ 27 fire chief. The city had approximately 6,400 residents in 1950. The police chief administered both departments until April 1, 1956, when another fire chief was appointed.11 Monterey Park, California Monterey Park is a city near Los Angeles with a 1958 population of 33,000 in an area of seven square miles. In 1953, when the city population was approximately 20,000, the City Council voted for total integration of the police and fire departments. There had been inadequate pay and low moral in both departments. A retired fire chief took command of the two departments as the public safety director. The men .of each department went through a training period for the other department's duties. Integration never progressed be- J.‘ m M maJ-b“ fi~ a ‘6 {as 4;.~ - 4 . 343‘ ; yond this point since the move was strongly opposed by the citizens because of the excessive cost. They even signed petitions against its installations The City Council then 12* a wrist-1"“ Mgr.“ voted out the integrated department and passed a city ordi— nance against further consideration of such proposals.12 Buena Park, California Buena Park, a city with a 1958 population of 30,000, 0?. t».-.uud~'< 'AN'-W‘O"“’V ‘- ' .J’v. ““ 2‘“ ‘ is located twenty miles southeast of Los Angeles. iThe public 11Ibid., p. 3. 12Ibid. ' ! up. 0‘“ :t‘ ..J 1.33“" A H ' :‘ouy I ."‘"vy my. 3" 4 “"va a‘ l ‘M "90a: \ l‘: ‘3. ”F 6 '3‘ “a 28 safety department was integrated with the incorporation of the city in July, 1953.‘ The completely integrated police and fire departments consisted of a chief and four public safety officers for the 6,000 residents at that time.13 The integrated departments eventually increased to twenty-two public safety officers and twenty-four fire vol- unteers. The officers patrolled the streets and upon receipt of a fire alarm, one patrol vehicle would proceed to the scene of the fire while other officers returned to the station and responded with the fire apparatus. Off-duty officers and volunteers were called if necessary. Protective fire cloth- ing was carried in the patrol vehicles and was kept in the homes after duty.1h Integration was abandoned in November, 1956, because of inefficiency resulting from neglect of the equipment and failure to operate the equipment preperly. A citizens com- mittee initiated a petition which resulted in voting out the integrated department in the general election. The city popu- lation was approximately 17,000 when separate departments 15 were organized. Fremont, California Fremont, a city with a 1958 population of 27,000, is 13Letter from Wilford S. Sparkes, Chief of Police, Buena Park, California, May 2, 1960. l‘Ibid. lSIbid. * H“: Uttu CL! A»? 'vda‘ QU‘ in! "k . Jan "‘4‘”. . ‘JV- .'&Jl'~'—.w.~mu~.1$4:~.~'1:-.. n .-y,..we..'.weda-"H' wa— n»... 5.52.“ ..... J... . mammtwu swag,» 29 located on the southeast shore of San Francisco Bay. It consists of 96 square miles, generally rural, with about 75 per cent farm area. Prior to incorporation in January, 1956, the area consisted of five fire protection districts in the small communities. Police protection was provided by the Alameda County Sheriff's Department.16 On July 26, 1956, Fremont adopted a budget which in- cluded provisions for a partial integration program. It called for the purchase of three station wagons equipped for police, fire, and ambulance service. Fifteen firemen below the rank of officer were employed and trained as public safety officers. They patrolled the city six hours a day issuing traffic tickets and inspecting business licenses and building permits. The officers carried police weapons, al- though their primary duty was fire prevention and fire sup- pression. Additional police protection was still provided by the Alameda County Sheriff's Department.17 The arrangement of police protection with the sheriff's department was planned to terminate on July 1, 1958, with the appointment of twenty-five additional public safety officers. However, in the city election on April 8, 1958, the voters l6Albertoni, 92. cit., p. 2. 17Roi B. WOolley "Where Integration Failed," Inter- national Fire Fighter zJanuary, 1960), p. 19. 30 elected two candidates to the City Council who had campaigned vigorously against integration, claiming that it was an in- sult to say that both policeman and fireman duties were not a full-time occupation. On May 13, 1958, the City Council voted to abolish the position of public safety officer in Fremont. Independent and separate police and fire depart- nents were created on July 1, 1958, with the appointment of twenty-five police officers.18 Lincoln, Nebraska Lincoln is the capital city of Nebraska with a 1957 population of 128,000.19 Partial integration was experimented with from January 1, 1957, to July 1, 1957, which was called the "Buddy Plan." The plan called for almost all of the 130 firemen of the city to accompany police officers on patrol duty. The firemen were trained in police work and scheduled to ride with the police officers. The firemen were armed with police weapons and had protective clothing and fire fighting equipment in the patrol vehicles.20 The integration was confined to only the patrol divi- skm_of the police department, which excluded the service, 18Ibid., pp. 19, 26. 19Letter from Joseph T. Carroll, Chief of Police, Lincoln, Nebraska, May 20, 1960. Ibid. L.u.p..w’¢ MAL-v“ ”m- 4 - l ' 45M”. .3» u- . fi.\b‘*‘h ~"- . ‘9? lo. 54- .: w. y H3“.M»h- ~p.‘~"‘*‘ 2m“ .-~'~" -.a_‘ by”.-..~ .. 31 criminal, and traffic divisions. Each team of one police officer and one fireman patrolled the streets performing police duties until a fire occurred. The police patrol dis- tricts were rezoned to conform to fire districts. The trans- mitter for radio calls for both police and fire departments was handled at police headquarters. The police officer was in charge of the patrol vehicle at all times except when fire alarms were received, at which time the fireman assumed charge of the call on all patrol vehicles detailed to the scene of fires. At the scene of a fire, the police officer directed traffic and in some cases handled the fire hydrant under the fireman's direction.21 0pposition to the integration program came from the firemen who were unionized and were opposed to additional duties without extra compensation. At the time, the firemen received $20 less per month than police officers.22 Public response was generally in favor of the plan because of the additional patrol coverage. The integrated operation placed nine patrol vehicles, each occupied by one police officer and one fireman, on the streets throughout the city instead of four which were formerly possible.23 “MN ~1 32 The integrated plan was abandoned on July A, 1957, Imcause of the opposition from the firemen. A committee con- sisting of seven personnel from various organizations within 'um city, including the police and fire departments, recom— mended the experiment be discontinued. However, the committee vms convinced that the plan gave considerable benefit to 21+ H residents of Lincoln and suggested that further study be con- 1 l \ mumed to work out a practical plan of partial integration. Chher Unsuccessful Operations Other cities which have had some form of integration, but later abandoned it, include Hinsdale, Illinois; Oregon (fity, Oregon; and Scottsville, Kentucky. west Miami, Florida, a city with a population of 6,500, adopted integration in 1955, but later abandoned it after a change of administration.25 A number of other cities in several different states have also considered integration, but did not take any action toward its adoption. These cities include Port Huron, 2 hReport from the Committee on Police-Fire Integration Inesented to the Cit Council, Lincoln, Nebraska, July 1, 1957. (Typewrittenj 25International Association of Chiefs of Police, "Fact Sheet on Combined Police and Fire Service," (Washing- ton: International Association of Chiefs of Police), 1958, Po 1. (Mimeographed.) QWV‘. “.1“ [3‘1“ : Ede -‘.-A_.M;s t 9.1-.toaa‘s-icoW-353 ‘1 ~"‘ ~ o- mnibus»..- -~- - 4-4 .- -~‘..‘r- .r'r' ‘ .J . {1" -" .‘ \J- 33 Michigan;26 Lincoln Park, Michigan327 Peoria, Illinois;28 Winter Park, Florida;29 Shorewood, Wisconsin;3O Long Beach, California;31 and, Seattle, Washington.32 Evaluation of the Unsuccessful Integrated Departments Most of the integrated departments that have failed have failed not in integration itself, but in their dealings with the total problem of public safety. Most of the cities where integration was abandoned, integrated their police and fire services because of the exigencies of various situations 26Citizens Research Council of Michigan, Inte ation. 2; Police and Fire Services in_Port Huron, Michi an,( eport No. 188, Part I and II. Detroit: Citizens Research Council of.Michigan, April, 1957). 27Citizens Research Council of Michigan, Inte ation 2; Police and Fire Services in Lincoln Park, Michigan,IReport No. 195. 'Detroit: Citizens Research Council of Michigan, 28International Association of Chiefs of Police, "Fact Sheet on Combined Police and Fire Service" (washington: Inter- national Association of Chiefs of Police, 1958), p. l. (Mimeo- graphed. ) ‘ 29Public Administration Service, The Governme 31.3.9.1'3112 City of Winter Park, Florida. (Chicago:-Fublic Administration Service, March, I957)- 0 a 3 Public Administration Service, A Report 9g the Possible Inte ration of Public Safety Services in Shorewood, Chicago: FuEEic Administration Service, April,_l95 . 31Albertoni, pp. pig" pp. 6-37. . 32"Police and Fire Integration," The American Cit , LXXII (July, 1958), p. 14A. 34 without regard to important considerations and personalities within the city. Several of the cities which abandoned integration had only the simplest form, consisting of one administrator com- manding two separate police and fire organizations. These cities include Chico, San Marino, and Sanger, California. In San Marino and Sanger the administrator was selected only I to fill a vacancy left in the fire department. Buena Park and Hawthorne, California, are examples of total integration of the police and fire departments which was later abandoned. Both claimed to have abandoned inte- gration because of inefficiency of the integrated program. The inefficiency in Buena Park certainly is not the result of integration but of organization and leadership. This is shown by the absence of stand-by personnel to drive the fire apparatus to any fire scene immediately. One patrolman had to drive to the fire station in his patrol vehicle before proceeding to a fire scene. In the city of Fremont, politics and lack of public acceptance played the largest role in discrediting integra- tion. Two members of the city council openly campaigned agains integration and after their election, integration was voted out. The residents of Lincoln, Nebraska, recognized bene- fits from.integration, but the plan was opposed by firemen through the fire union and had to be abandoned. m+lflaiw Cut-filth... .- 35 Summarizing the reasons for abandoning integration in several cities, three important factors must be considered. The first factor is the lack of public acceptance. The second is the lack of acceptance on the part of the public safety personnel, especially the members of the fire service. The last factor causing the abandonment of the integrated departments is the indifference of the city administrators and department administrators who were not behind the pro- gram, did not support it, and did not give it a chance for success. Integration will not correct deficiencies already inherent in the administration of any police and fire de- partments. Where integration has "failed," any separate police and fire department probably would have encountered similar difficulties or suffered from a variety of complex internal problems. II. SUCCESSFUL INTEGRATED DEPARTMENTS Integration has been tried, proven successful, and is in operation in twenty-six municipalities in the United State as of June, 1960. At least one other city, Iowa City, Iowa, will begin an integrated program in July, 1960.33 33Letter from S. W. MbAllister Jr., Administrative Assistant, Iowa City, Iowa, May 3, 1960. Wad» . .1...- s m . .' emigmfl'ot'dh 10" Wk“ a {1. 36 Grosse Pointe Shores, Michigan Grosse Pointe Shores is a suburb of Detroit with a 1960 population of 2,500. The city covers an area of one and one-half square miles. It is one of the most exclusive residential cities in the United States, the average home costing $40,000.34 The city has had a completely integrated public safety department, called the police department, since 1911 when it was incorporated. The city had 100 residents at the time.35 The present police department, consisting of eighteen members supervised by a chief, is trained in both police and fire duties. The personnel of the department work a fortya. hour week. There are two patrolmen in separate vehicles , patrolling the streets at any one time performing police duties. The men also respond to all fire alarms. The city has no volunteer fire department. It has not been possible to organize any kind of volunteer fire service, because the individual citizens who would normally volunteer for fire duties are not in the community during the working hours and also a great many of the residents are retired. However, the majority of the public works employees are trained in fin 3l’Thomas K. Jefferies, "Combined Police and Fire Syster Grosse Pointe Shores, Michigan" (Grosse Pointe Shores: Office of the Village Manager, 1960), p. l. (Mimeographed.) Ibid. )'>4," “‘L‘ '_' \ '- ov'f‘fi’n'e ‘I.¢ui,,_ . .. .. 4: 3w.» 1.; 2. : s ."u' a. . ‘ -.. . . - V ' _ ' {té "In“ .s‘." “.1 c )‘W‘vf' '5’ ‘i' 33".!(1. "N Iw-A .. .4‘g¢1.a_m-mw‘:-.n~. .- .7 . .u . l .4 J‘wb‘Pv- n..,.;. 37 fighting and answer all fire alarms.36 Sewickley Heights, Pennsylvania Sewickley Heights is an exclusive residential city of 800 population eleven miles northwest of Pittsburgh on the Ohio River. Its area covers seven square miles.37 Like Grosse Pointe Shores, the city has no volunteer fire department. All city employees are combined into a \ fire department in order to provide necessary public safety | protection.38 ' + From 1920 to 1935 the area used a private protective association for police protection. This organization con- sisted of six members and also carried out fire fighting functions. In 1935, the municipality was incorporated and continued the integrated public safety system.39 At present there are eleven full-time city employees and all are part of the fire department. The Fire Depart- ment consists of the Police Department of six patrolmen and a Chief, the Street Department composed of two employees, and the Administration Department consisting of two employees. 36Ibid. Ernest Trimble, "Borough of Sewickley Heights Com- bined Police and Fire System" (Sewickley Heights: Office of the Borough Manager, Jan., 1960), p. 1. (Mimeographed.) 331bid. 39Ibid., p. 2. The ash The pol ing is 1 specs. h! air 7n! has" VV. 1:6: 05v-' n A. "A‘: VI,‘CE saw . H \ f4 38 The administration employees man the communications desk. The police officers do routine police work and conduct build- ing inspections. The men work in eight-hour shifts and re- spond to all fire alarms.“0 Oakwood, Ohio Oakwood is a residential suburb of Dayton with a popu- ...-.........A—-—-.-—n‘-o'~*w-'—' ‘ k' ' “ lation of 11,000. Its area covers three square miles.41 1 The city began a gradual integration of its police and fire services on July 1, 1924, and by 1928 they were completely ; integrated and constituted a public safety department. In- , tegration was decided upon because the cost of operating separate police and fire departments was prohibitive. Before integration, the city employed two police officers and six firemen. The department presently has a complement of forty-three personnel!"2 v , _ _ ... -..__. 'I‘.‘_4 .2..-‘ A I ‘ . The Attorney General of the state ruled on November 7, 1951,that police and fire departments in Ohio could not be merged because of certain limitations relating to civil 4 service and pension statutes of the state.’+3 To overcome ~ 0 1 h Ibid., p. A. 41 Letter from A. C. Bergman City Manager Oakwood f} Ohio, May 1., 1960. ’ ’ ’ J < #ZA. C. Bergman, "City of Oakwood, Police De artment" 3 (Oakwood: Office of the City Manager, Oct. 22, 1956 , p. l. (Mime ographed . ) “BC. William O?Neill, "Attorney General Opinion 900" Columbus: Office of the Attorney General, Nov. 7, 1951), p. 9. \Mimeographed.) qty-.1-{lg'I' .m..~_..- J “4i; ‘ )7 this and circumvent such discriminatory state legislation, the city passed an ordinance which eliminated the fire de- partment and assigned fire fighting duties to a "Property Protection Crew" in the police department.44 The present organization of the police department con- sists of a chief, three captains, four sergeants, and thirty patrolmen working under a three-patoon system. Five addi- tional personnel operate the communication system for the department. Each platoon or "Property Protection Crew" works a twenty-four hour shift with two days off, averaging forty hours per week. The basic platoon strength is seven men, all of whom respmfl.to fire alarms. The city also maintains a stand-by mutual aid contract with the neighboring city of Kettering for additional fire protection.45 Hgntington Woods, Michigan Like Grosse Pointe Shores, Huntington WOods is an exclusive residential suburb of Detroit with 9,000 popula- tion. The public safety department was combined over twenty- 6 five years ago as an economy move.# 44Bergman, "City of Oakwood, Police Departmentg'gp. Eli-0’ ppo 1-2. 451bid., pp. 1-2. h6John R. MbQuater, "Department of Public Safety, Huntington WOods, Michigan" (Huntin on WOods: Office of the Director of Public Safety, 1959 , p. l. (Mimeographed.) "1'11 ‘i-‘lfignM—F \o“,~'~ '1“ 1 hi’ | f. . .. f .r ." ‘ u i ”1‘2 2‘ . 1.1" ' ’31? 1.0 The totally integrated department consists of fourteen members including a chief, two sergeants, eight patrolmen, a policewoman, and two night clerks. One of the patrolmen is a detective handling investigations and juvenile work. \ K.“ Four men work alternate twenty-four shifts in pairs. The “en alternate six hours on patrol and six hours in the 6 tation on stand-by fire duty. The officers on patrol per- f’grrn police duties and respond to all fire alarms. Pro- bective clothing and minor fire equipment are carried in the patrol vehicles. The patrolmen are met at the scene of any fire by fire apparatus driven by stand-by personnel at the Stat ionoh7 Two forces--a volunteer fire company of fifteen members and an auxiliary police reserve of fifteen men--augment the department. The city also has mutual aid agreements with two nearby cities.‘“8 Grosse Pointe Woods, Michigan Grosse Pointe WOOdS is a residential suburb of De- troit which also contains a number of small business estab- lishments. Its 1960 population is 19,000 and covers an area of three square miles.’+9 47Ibid., p. 2. 481mm, p. 3. , thetter from W. H. Lange, City Administrator, Grosse P0111138 Woods, Michigan, May 19, 1960. A1 The city has had a totally integrated public safety department since 194A. Finances and the lack of manpower during World War II forced the city to combine the police and fire operations as it grew in population. Presently the department consists of thirty-four personnel including a director, three lieutenants, four sergeants, and twenty-six patrolmen. The personnel perform duties in law enforcement, fire fighting, rescue service, fire prevention, communica- tions, and records work.50 The department personnel work a forty-hour week unde a three-platoon system. Two to four patrolmen are on the streets at any one time, performing police duties and re- sponding to all fire alarms. The department has two fire trucks at the station which respond to fire alarms and are driven by station personnel.51 The department has three specialists in the departmel :including two detectives and a dog warden, all of which per- form fire duties as required. The city has an auxiliary fi] .fkarce of twelve men. Mutual aid agreements are maintained twitch.five surrounding cities for fire and police service.52 52Citizens Research Council of Michigan, A Study 9f flea Integrated Police and Fire Operations 3f the Grosse Poin EEQSEEé Department pf Public Safety (Memorandum No. 191. getgoit: Citizens Research Council of Michigan, June, 1957) 1*." no. V05 an 834 JCTBS V9 A V . n ”:3 “it 1‘ Oxf- 1 tne 101: b . 01f; 42 give; Hills, Wisconsin River Hills is a residential community eight miles north of Milwaukee with a 1960 population of 1,275. It covers an area of six square miles. Almost every home is on five acres of land.53 The city has a partial integration program which be- gan in 1945 at the time the volunteer fire department was organized. The p0pulation at the time was 500. The chief of police was also appointed fire chief. Presently the city has twelve police officers who are also volunteer firemen. However, the police officers report to fires only on their off-duty time. The volunteer fire department, commanded by ‘the chief of fire and police departments, consists of thirty «volunteers. Twelve of the volunteer firemen are the police cafficers, which only direct traffic at any fire scene.5h £311nnyyale, California Sunnyvale is a rapidly growing residential, commer- cial, and industrial city twenty-five miles southeast of San l IFImauacisco and eight miles northwest of San Jose. The 1950 population was 10,000 and has grown to its present 1960 popu- lation of 55,000.55 53Letter from Fred Secosh, Chief of Fire and Police Departments, River Hills, Wisconsin, June 21, 1960. 5“Ibid. Pcil' 55J. A. Jessup, "Ten Years of Sunnyvale's(Combined 108 and Fire Forces " The American Cit LXXV A ril —~_-= 43 The city integrated its public safety services on July 1, 1950 because of the anticipated population growth, limited revenues, and a need for better public safety service. Prio: to integration, the police department consisted of sixteen personnel and the fire department had a paid chief and thirt‘ volunteers. Upon integration, the chief of police and the fire chief were appointed to the rank of public safety cap- tain. The integrated department was initially directed by a former Los Angeles Fire Department fire chief. After he or« ganized the department, a former police chief became the director of the department.56 The present department, which is totally integrated, consists of a director and eighty-five personnel. The de- partment is organized into three primary divisions; communi cations, fire, and patrol. On a rotating basis, two or mor public safety officers are assigned fire stand-by duty on a sixty-three hour week, while the remainder of the personnel twork forty hours per week. The personnel on stand-by duty are assigned administrative tasks, operate the jail, and 57 drive fire equipment. 56H. K. Hunter, "An Integrated Public Safety Depart- nnerrt" Public Management (May, 1951), p. 106. 57Jacob A. Jessu , "Department of Public Safety, Sunnyvale, California" I()Sunn ale: Office of Director of Public Safety, Nov. 13, 1959 , p. 2. (Mimeographed.) L‘ "Pi! ‘1 l ; 1 I P! is l i i 3 i s 2 i e ‘ at.» Q," .“.«M .o-‘;—‘-. “1 L“: .1. thou: Ah 1 S The personnel of the department work out of a single 1 headquarters where communications, record, administrative ‘ offices, and classrooms are combined. Two stations also house the fire apparatus.58 Oak Park, Michigan 1 Oak Park is a suburb just west of Detroit with a popu- E .lation of 35,000 and an area of six square miles.59 The ~ <3ity is a residential community which also has a large number I (:f small industrial and commercial establishments. ‘ A city ordinance abolished the police and fire depart- zzments on February 1, 1954 and established the Department of JFHublic Safety. The population at the time was 20,000 and :ikzitegration was decided upon because of the tremendous popu- lation growth, to provide a more effective public safety service, and limited revenues. The personnel of the former pdlice and fire departments were sworn in as public safety offi cers . 60 In 1960 the department consists of sixty-three personnel 581bid., p. 4. 59Personal interview with Glenfbrd 8. Leonard, Egggctor of Public Safety, Oak Park, Michigan, April 4, 6C)Glen Leonard, "Oak Park‘s Department of Public Saffisfir--It Workss" Michigan knicipal Review (August, 1955). p. . . . ‘ 01 commanded by a director.61 Divisions of operations, investigation, fire marshal, and special services are or- ganized under the director. The Operations Division is divided into four platoons which rotate every week. One platoon pro- ‘ vides relief for the other three. The basic platoon strength is ten men consisting of a lieutenant, field sergeant, com- munication's officer, three fire engineers, and four patrol I officers. A11 personnel work a forty-hour week. The opera- tions division is commanded by a captain who is also the first I 62 | Deputy Director of Public Safety. ) The Fire Marshal Division is commanded by the Fire .Marshal who is the second Deputy Director of Public Safety. .He is in command of all fire ground operations, fire pre- ‘vention, inspection, and training programs.63 The Special Services Division handles the administra- -tzion of records, licenses, and traffic violations. The In- ‘vwestigative Division consists of a lieutenant and two de- tectives who engage in detective work.6l+ ) 6lclenrord 3. Leonard, "Re ort of Fifth Year of Inte- ; grated Police and Fire Services" Oak Park: Office of Director g CLIT Ihublic Safety, Nov. 16, 1959), p. 4. (Mimeographed.) 621bid09 ppo 2'30 631bid., p. 1. 6“Ibid., p. 2. ). L‘ #6 All personnel of the department are trained in fire duties. The specialists of the department perform such fire duties as necessary. The officers on patrol perform law enforcement functions, make building inspections, and respond to all fire alarms. They are met at the scene of a fire by the fire apparatus from the central headquarters driven by fire engineers. Protective clothing and minor fire fighting equipment are carried in the patrol vehicles. The department has a volunteer fire reserve and has mutual aid agreements with five surrounding municipalities.‘ Glencoe, Illinois Glencoe is a residential community of 10,000 popula— tion.66 It covers an area of four square miles. The city has functional or cooperative integration which it began in 1954. The police and fire services were integrated at the request of the police and fire personnel; The city still has its policemen and firemen. They :retain their identity with the separate departments, but thc 651bid., p. 3. 66Missouri Public Expenditure Survey, Combined Police and Fire Services for Medium-Sized and Small Cities Jeffer: leby: Missouri Finn‘s Expenditure S-qu'ey, F‘eb., 1960 , p. ii 7 . . Robert B. Morris, "A Report Describing the Combinec POlice-Fire Service of the Village of Glencoe, Illinois" (Glencoe: Office of the Village Manager, May 6, 1957), p. 6. Mlmeographed . ) ”.1 I ‘ p-.',...In..‘- a W... - Hr ,J‘IM,‘59‘11‘ «(Air-.089”: « ~10“ 'd‘ - W0 - s‘ s l-‘ . . .wrl - ‘ .A ' #7 men in each department perform some duties in the other. The policemen perform fire fighting duties and the firemen perform record work, communication duties, fingerprinting, and other duties which can be handled in the central police- fire headquarters building.68 In September, 1953, the Chief of Police was appointed Director of Public Safety--Chief of Police, and the Fire Chief was appointed Assistant Director of Public Safety-- Fire Chief. In February, 1954, a training program was initiated whereby the fifteen policemen and seven firemen received training in the other's duties. Presently, the police officers respond to all fire alarms. The policemen use station wagons for patrol which are equipped with fire fight- :ing equipment to aid in extinguishing small fires.69 Lake 1.11m. Floriie Lake Alfred is a small residential community twelve miles east of Lakeland and forty-five miles east of Tampa with a. 1960 population of 2,500.70 The city has had a totally integrated public safety department since November 1, 1954. The population of the city at the time was 800. Integration was decided upon 68Ibido 9 p0 lro 69Ibid., p. 3. 70Letter from George T. Costello, City Manager, Lake Alfred, Florida, June 23, 1960. »- .ul‘w " - " I -__ a 1" f I #8 because of the economy of integrated operations and as a re- sult of public complaints over the city firemen having nothing useful to do between fires. The public safety depart- ment is commanded by a chief. All personnel in the depart- ment perform both police and fire services. In addition, the city maintains a volunteer fire and police department. All members of the volunteer department also perform police 71 1 sand fire duties. .I?ort Lguderdale, Florida Fort Lauderdale is a city of 100,000 population.72 IJIt has a partial integration system. On November 17, 1955, the city instituted a "Security Patrol" consisting of specially trained police officers driv- jLzag specially equipped station wagons. The officers carry protective clothing, fire fighting equipment, and rescue eacgmzipment in the patrol vehicles. The officers of the Se- cgzzzrity Patrol presently number eighteen men selected from the :L177l—men police department. The officers work forty hours per wn3<31£~in one-man patrols. The officers patrol in the station wagons performing police patrol duties and making fire in- spections until such time as they are dispatched to a fire. At. the receipt of a fire alarm the officers switch from the 71Ibid. 72Letter from J. Lester Holt, Chief of Police, Fort Lauderdale, Florida, May 5, 1960. 0.1 ANPH: VUHU- M kw —-'.. _ :"fo‘fl-‘fm' m ~ . 'apgflraél’" ' W J: ’ KN- / hum .. ll _p I. _ yk‘ carom—.9"..- .. ," mm .- £19 police radio circuit to the fire department circuit and be- come under the operational control of the fire department to combat the fire.73 \winston-Salem, North Carolina Winston-Salem is a city with an estimated population (If 110,000. It covers an area of thirty-one square miles.74 The city has a system of partial integration. It annexed an area containing 20,000 residents on January 1, 1957, and it was decided to experiment with integration since the costs of separate police and fire services were mounting. The Board of Aldermen authorized a fourteen-man fire company to serve the newly annexed area. Six of the men were regular Iiiremen working sixty-six hours per week. The other eight there to be members of the "Fire-Police Patrol" working forty- Ifiour hours per week, the same as police officers of the city.75 Volunteers from the fire department fermed the fire- Ixalice patrol. The members received twelve weeks of train- ing in both police and fire fighting duties. The fire station for the annexed area was completed in September, 1957, and -_ 73Ibid. 7l’Letter from Peter L. Lydens, Assistant to the City Manager, Winston-Salem, North Carolina, May 3, 1960. 75John M. Gold, "Report of Fire-Police Cooperation, Winston-Salem, North Carolina" (Winston-Salem: Office of the City Manager, July 21, 1959), p. 1. (Mimeographed.) 50 the new fire company was activated. Four men are now on duty at all times. Two men stay at the station and drive the fire apparatus to fires, while the other two patrol in the assigned district performing public safety responsibilities.76 Based on the operation of the fire-police patrol from September, 1952,through March, 1958, the Board of Aldermen gave the system a permanent status.77 In 1960 the city is planning to turn another fire station into a second fire- police station and eventually to convert other fire stations for the same purpose.78 Eton-Freewater , Oregon - Milton-Freewater, a city of 5,000 population, in 1957, decided upon a long-range plan for total integration. The plan was brought about by the suggestion of the Oregon Inspection Bureau that the city maintain a full-time fire department. The two volunteer companies were inadequate i. «‘3 3 g to combat fires and the city could not finance a full-time department.79 76Ibid. 5 ,M- “unavacuumomwm 3‘1--."§- ' .. l ‘- ‘3 77Ibid., p. 3. 78 Lydens, loc. cit. n... 4...»..- 79"Consolidated Fire and Police Departments into Department of Public Safety" (City of Milton-Freewater, Oregon, 1958), p. l. (Mimeographed.) MM Ionm-w '- " V" V" _-. an. u‘m‘... .n.‘ 51 The police chief was appointed Director of Public Safety; The former chiefs of the two volunteer fire com- ‘panies were appointed full-time fire captains. The five police officers were trained in fire duties.80 The public safety officers presently patrol the city in station wagons carrying protective clothing and fire .fighting equipment. The officers respond to all fire alarms and.are met at the fire scene by fire apparatus driven by stand-by personnel at the fire station. Two officers are on patrol all the time. Volunteer firemen are still used at each fire.8l £935 £1333, Wisconsin Fox Point is a residential suburb of Milwaukee with a population in 1960 of 8,000.82 In January, 1957, the fire and police departments were integrated into a Department of Public Safety. The totally integrated department is com- manded by a chief and is divided into a police and a fire section. The police section consists of lieutenants, patrol- men, and communication operators. The patrolmen perform law enforcement functions and fire duties. The personnel of the department were working a forty-hour per week schedule, 801bid., p. 4. 81Ibid. 82Letter from W. J. Blong, Village Manager, Fox Point, Wisconsin, May 5, 1960. .Jm-u -u‘.-o—- -.V . - - i 1 i 1 i 52 but a new ordinance effective January l, 1960, put the firemen on.a.twenty-four on and twenty-four off schedule. To aid in :fire fighting operations, a volunteer department is also main- 'tained.83 Dearborn, Michigan Dearborn is a city bordering Detroit with a 1960 popu- lation of 112,000.8h The city covers an area of twenty-five square miles. In October, 1957, a partial integration program was begun when thirty volunteers from both the police and fire departments underwent special training in the other depart- mentVS duties. Upon completion of the training program, the personnel patrolled the streets in specially equipped station wagons as public safety officers. The officers perform law enfOrcement duties under operational control of the police department until a fire alarm is received, at which time they serve under the operational control of the fire depart- ment to combat the fire.85 Fuller integration is still in progress in the city. New members are recruited and trained for the integrated work 83Ibid. 8l’United States Bureau of Census, Preliminary 1960 Decennial Census Data. 85William H. Petersen, "Integrated Police-Fire May Cut Costs" Michigan Municipal Review (Dec., 1958), p. 283. 53 Presently, the fire personnel work sixty-three hours per week, ‘while the public safety officers work forty hours.86 E1 in, Illinois Elgin is a city with a 1960 population of 50,000.87 The city decided upon a program of partial integration in 1958. The action came about for three reasons: forty- two additional policemen were recommended by the National - .hh-j—L—LQJA-a ‘ n a Safety Council; fortyweight additional firemen were recom- mended by the National Board of Fire Underwriters; and, the work week for firemen was reduced by the Illinois Legis- lature in 1957 from seventy-two hours to fifty-six hours, which would have required an additional twenty-one firemen. Adopting all of these proposals would have increased city budget for 1958 $468,000 or 89 per cent over the 1957 expenditures.88 Instead, the City Council approved the recruiting of twenty-four personnel to be trained to serve the public in both police and fire services. The recruits were hired and placed in the fire department for thirty days of training .¢me. .1. and, thereafter, were given two weeks of training in the police department including formal classroom training programs 86Ibid. ' r..n~»»-a~k¢~.fii¢ww «a M-v'wd 87Missouri Public Expenditure Survey, loc. it. 88"Elgin, Illinois, Undertakes Joint Police-Fire Service" National Municipal Review (Mar., 1958), p. 121. Mrw:m&ww. m. . . no- 54 and experience in riding with the regular police patrols.89 The public safety officers serve as policemen until a .fire call is reported. At that time, the men report to the scene of the fire and come under the operational control of t fire department. Two officers in each patrol vehicle patrol in an assigned district. 'Station wagons are used for patrol Fire fighting equipment and protective clothing are carried in the patrol vehicles for the officers to use when a fire occurs.90 Other personnel within the police and fire departmeni retain their identity and perform their traditional duties under the respective organization. Evanston, Illinois Evanston is a city with a 1960 population of approxi mately 79,000.91 It covers an area of eight square miles 1 the Chicago metropolitan area. Evanston decided upon partial integration in 1957 wh it was faced with the requirement to reduce the firemen‘s and policemen‘s work week by 17 per cent. The reduction wo have required thirty new policemen and firemen. However, i 89Raymond P. Botch, "How Elgin, Illinois Likes Joint FiregPolice Service" The American City LXXIII (Dec., 1958), p. 1 . 9OIbid. 91Letter from George Nashnis, Administrative Assista Evanston, Illinois, June 17, 1960. 55 was decided to hire only fourteen new policemen and no new firemen and to train the recruits to perform both police and fire duties.92 In 1958, the City Council of Evanston decided to in- crease the number of policemen trained in fire fighting duties. And in 1960, there are over 100 policemen participating in fire fighting duties. Fifty of these policemen are in the Patrol Division assigned to patrolling the three districts in the city in station wagons equipped with fire fighting equip- ment. Twelve of these policemen are on duty at a time, and a minimum of two resxmd‘to each fire alarm to aid the fire- men.93 In addition to the Patrol Division personnel, officers in the Traffic and Detective Divisions proceed to fires and assist in fire fighting duties as required.9l+ Cham ai , Illinois Champaign is a city with a 1960 population of 49,000. It has had a partial integration program since 1957, having de- cided upon integration because of the manpower shortage in both 92Bert W. Johnson, "Questions and Answers Concerning Police-Fire Cooperative Program Experience to Date" (Evanston: Office of the City Manager, December 28, 1959), p. l. (Mimeo- graphed.) .~ 56 the police and fire departments. The population at the time was 43,000.95 Separate police and fire departments are still main- tained. The integration program consists of police officers of the "Police and Fire Co-op Patrol" performing both police and fire duties. The patrol presently consists of fifteen police officers who patrol the streets in station wagons. Fire fighting equipment and protective clothing are carried in the patrol vehicles. The officers of the patrol perform police functions and are under the operational control of the police department until they are dispatched to a fire scene. At the fire scene the officers perform fire fighting duties and are under the Operational control of the fire de- partment.96 Opheg Cities with Integration A Integration has been adopted in various other munici- palities in the United States. However, information is not available on the exact form or extent of the integration. North Augusta, South Carolina, since 1954, has had a success- ful plan of integration where police officers are trained in fire fighting duties and respond to all fire alarms.97 95Letter from Harvey Shirley, Chief of Police, Cham— paign, Illinois, June 22, 1960. 96Ibid. 97"Two Cities Integrate Fire and Police Services" Public Management (January, 1954), p. 14. 57 Chicago Heights, Illinois passed an ordinance in 1957 to integrate the police and fire services. Policemen are assigned some firemen's duties at the scene of fires, such as attaching fire hoses and other less dangerous tasks ordinarily assigned to firemen. The action was taken be- cause of the required reduction in the firemen's work week from seventy-two to fifty-six hours.98 A Nome and Palmer, Alaskajwaukegan, and Highland Park, Illinois are other cities which have integration.99 Also, Park Forest, Illinois has partial integration which began in 1957. Separate police and fire departments, however, are still maintained. Recruits are assigned to either the police or fire department, but are trained in both police and fire duties. The firemen do police patrol duties and the police officers assist the firemen in fire fighting and rescue work.loo Lapeer, Michigan began an integrated program in July, t1959. The cityis twenty volunteer firemen resigned in pro- test to a proposal that policemen drive the fire truck to 98"Plans Police-Fire Integration" Public Management (November, 1957), p. 256. 991Missouri Public Expenditure Survey, 193. gig. . warm . IM... .Oa-M‘w‘n' - ’7 ‘11-‘34, ‘3 .~. 1.: -a—‘- - t... -_ -r 1 100Robert T. James, "A Plan to Provide for More Ade- quate Police and Fire Protection in Park Forest" (Park Forest: Office of the City Manager, March 25, 1957), p. l. (Mimeo- graphed.) 05-4“... ”Menu“ u-v -m ”50‘.- 58 fires occurring at night, on Sundays, and holidays. The pro- posal was made because of a shortage of fire truck drivers. Presently, the policemen perform both law enforcement func- tions and fire fighting duties.lOl Various Canadian cities are also interested in integra- tion. As of June, 1960, thirty-five cities in the Provinces of Quebec and Manitoba have integration in varying extents. Many of these cities have had successful operations for many years.102 Summary Integration is a departure from the traditional, but not necessarily practical, method of providing public safety protection.103 Various forms of integration have proven successful throughout the United States and Canada. The different forms adopted have been based on the local cir- cumstances and conditions. Each form adOpted is usually suited to the particular municipality involved. Where integration has been given a chance for proving 101"Lapeer Policemen Doubling as Firemen, Too" Detroit News, July 31, 1959, p. 34. 102Glenford 3. Leonard, "List of Cities in the U. s. and Canada which have Integrated Police and Fire Services" (Oak Park: Office of Director of Public Safety, Feb. 26, 1960), pp. 1-2. (Mimeographed.) 103Public Administration Service, 22° ElEfi’ p. 53° 59 its efficiency and effectiveness, it has succeeded. The citizens, municipal leaders, department administrators, and personnel of the police and fire services have made inte- gration succeed in the presently integrated departments. Bert W. Johnson, City Manager, Evanston, Illinois summarizes the question of whether integration will succeed or not by stating that,"Whether the integration plan will succeed or not, depends upon the willingness of all concerned to give the program a fair trial."104 _' U-mehMW-bwcwm'hm ‘Nm‘h 9" " " 10L’Bert W. Johnson, "Police-Fire Cooperative Questions and Answers" (Evanston: Office of the City Manager, March 3, 1958) , pa 5. (Mimeographed.) ‘. ‘9“... 4' c. - -4 o n» . "warden-.w; Mn- u 1 CHAPTER IV THE PRO AND CON OF POLICE-FIRE INTEGRATION The question of integration is a serious one for any municipality to decide. It should be done only after care- ful unemotional and impartial study. When a municipality is studying the decision to integrate its public safety services, complex problems are likely to present themselves. Forces opposing integration have succeeded in discrediting the idea before the plan was fully considered or could be in- stalled in many municipalities. In other municipalities, opposition has crept back in, asserted behind-the-scenes pressures, and caused the rejection of integration after an experimental period. The opposition to integration has come from uninformed citizens, individuals with vested interests, and administrators, as well as from ranks of the police and fire service. .Most of the antagonism has been spearheaded by professional associations and organiza- tions in the police and fire services, especially in the fire 1 service. The International Association of Fire Chiefs, in 1954, 1International Association of Fire Fighters, Fight Back! The Case Against the Merger of Fire and Police Services ashington: International Association of Fire Fighters, 1959), p. 11. 61 formally went on record as being opposed to the integrating of police and fire departments,2 claiming "integration--when tried, falls down."3 The predecessor organization of the same association passed a resolution against it over eighty years 1 ago.‘1 The International Association of Fire Fighters, at 1 its 1956 convention, went on record as opposing such inte- gration.5 The feasibility of integration is not so flatly dis- ‘ 4A... _.. 'J‘AA-A— credited by other organizations. For example, the National Board of Fire Underwriters is not opposed to the idea of integration in itself. John Neale, Chief Engineer of the Board states: Any arrangement or organization that will provide 1 good fire protection to a community must necessarily n be acceptable to us and if such an arrangement can 1 cut the increasing costs of logal government at the 4 same time, so much the better. International Association of Fire Fighters, Why fig Are Opposed pp Integration pf Fire and Police Departments (washington: International Association of Fire Fighters, ; 1957), p. 30. ’ 31bid., p. 29. 41bid., p. 8. 51bid., p. 5. 6John Neale, "Integration of Fire and Police Depart- ments" (Speech given before the Fire Department Instructors Conference, Memphis, Tennessee, February 24, 1956), p. l. (Mimeographed.) 62 The International Association of Chiefs of Police has taken no official position on the subject.7 The subject, however, was discussed in a panel session at the Chicago Conference in 1956.8 Arguments both for and against integration are numer— ous. Each argument should be carefully weighed. The feasi- bility of integration should be viewed objectively and un- emotionally in each community in the light of the local needs. I. ARGUMENTS AGAINST INTEGRATION Arguments against integration must be viewed and evaluated by each city desiring to integrate its police and fire services. The arguments may have merit in one munici- pality while not in another. Traditionalism, which has already been mentioned, must be considered the argument which is the most difficult to overcome. The traditionalists simply state that integration has not been accomplished to any degree, and that the tradi- tional police and fire organization is superior. Tradition is a problem which must be overcome before integration can 7John D. Holstrom, "Fire-Police Integration Current Trends," (Speech presented at the International Association of Fire Chiefs Confer nce, Los Angeles, September 18, 1958), p. 4. (Mimeographed.§ 8Edward J. Allen, Moderator, "Shall Policemen Be Fire- men Also?" The Police Yearbook. (Washington: International Association of Chiefs of Police, Inc., 1957), p. 27. 1. .q .n in! 'R“ HU ._ . ‘Ano ug‘v .HA. N21. LP“ A“~ U M A r: “a a v :' 1': I ' _ ‘~ H. '- u‘r F \' 63 take place, both from the standpoint of the community and the police and fire services The influence of tradition is profound. It is spun in the webb of professionalization, personal and political alliances, special interests, and folklore.9 Presently, tradition is losing ground as a valid argument against inte- gration. This has been caused mainly by the increasing number of successfully integrated public safety departments and a willingness on the part of enlightened administrators to recognize the horse~and-buggy characteristics of such an argument. Police ppp Fire Duties are not Similar Another main argument voiced against integration is that the duties of a policeman and fireman are so specialized that one man cannot be trained adequately to perform both functions. It is argued that one cannot make a policeman out of a fireman, and vice versa. It is claimed that the duties are dissimilar and the training activities of each are highly specialized, diversified, and different.10 It is stated that it is not reasonable to ask the policeman or fireman to take on an equally complex and diffi- cult profession requiring a separate imposing list of 9Charles S. James, A Frpntier of Municipal Safety (Chicago: Public Administration Service, 1955), p. 147. 0International Association of Fire Fighters, Why Wp are Opposed pp Integration pf Fire and Police Departmentg, 92' 9.230: P0 5' - - "tun- whim 1..., .‘ v 'I 5 ? v 1. ,n 1 64 aptitudes and skills. The modern municipal fire service is extremely complex and technical and requires a lifetime of specialization to provide the degree of proficiency which the public has a right to expect.11 Fire fighting is based on team function with repeated practice and training. Qualified fire fighters must be ex- perts in regard to hundreds of items of highly specialized equipment. The fireman must be fully informed regarding the fire potential and fire behavior characteristics of a variety of combustible materials. The fireman must be versed in an extensive body of literature in the fire field. Large volumes of fire codes of recommended good practices are published each year. Hy- draulics, building construction, and water distribution system must be mastered by the fireman. Equipment maintenance must be kept at peak efficiency. It is argued that mastery of the above skills is impossible under integration.12 Other commentators point out that the police service is just as highly specialized as the fire service. It is argued that the services rendered to the public are different. Police work involves dealing with people and the handling of 11Letter from Warren Y. Kimball, Manager of the Fire Service Division, National Fire Protection Association, Boston, Mass., April 8, 1960. Ibid. A. 4.1. ‘— _.4.__ ._.. AMMW 4..‘ A __~ .._.. ‘k M. m,-H'H‘-A‘ " -' "- 65 situations which cannot be delayed.13 The policeman must be primarily concerned with the acts and omissions of human beings while the fireman is concerned with the chemical qualities and reaction of matter. The police must have knowl- edge of and apply federal and state laws and city ordinances of every kind. He must be proficient in crime prevention, rules of evidence, court procedures, criminal investigation and apprehension, and various traffic regulations. In short, the Opponents of integration ask one to point out the similarity between the two services. Evaluation pf this argument. The services provided« by the two departments are not, in reality, so different. There are probably more differences in many phases of police work proper than between fire and police functions. Both services are responsible for the protection of life and property and with the great emphasis on prevention in both services, the duties involved become even more closely allied. Agreement with the thinking that one individual cannot perform both police and fire duties would seriously under- mine one's capabilities to do only a limited amount Of work. Persons that agree with this argument contend that the capacity 13International Association of Fire Fighters, Why We Are Opposed to Integration of Fire and Police Dppartments, pp. cit., p. 31. ‘I‘ fix! ‘1 a - .‘uw' - 66 of an individual to learn and perform is severely limited. Mr. Robert J. McNutt, City Administrator, Southfield, Michi- gan, stated in the June, 1959, issue of Mayor and Manager that: The human mind is a wonderful mechanism. It is always capable of adding knowledge. If we reached the point that our policemen and firemen are unable to learn anything else other than strictly police or fire then we had better investigate our recruitment procedures because we certainly are not obtaining the proper type of personnel for our departments. A man trained solely for one job and capable of only doing this one job is not a man but merely a machine.l4 By the very number and success of cities with inte- grated police and fire departments it has been shown there is adequate evidence that both police and fire duties can be learned by one individual. It is not, therefore, beyond one's capabilities. But the capacity for one individual to learn both police and fire duties should not be surprising to anyone. It is not uncommon for many individuals in these two services, as elsewhere, to have outside employment in a totally unrelated skill or occupation. For example, many firemen are painters, electricians, or salesmen in addition to their work in the fire department. The highly technical and specialized duties performed Quoted by Perry Scott in a critique of "Leonard William's Report - 'A Study of Sunnyvale Public Safety De- partment'" A report submitted to the Sunnyvale Junior Chamber of Commerce. (Sunnyvale: Office of the City Manager, March 18, 1960), p. 10. (Mimeographed.) , 1 'JuLv-ll‘ - ea" 67 in most police and fire departments are also successfully performed in an integrated department. Integration does not eliminate the specialized duties. A plan for integration is dependent upon the need for specialist personnel in either service.15 As the requirement for specialists increases, the degree of integration decreases. In the smaller department, the need for specialized activities is not great. As the size of the department increases, specialists are added in the integrated department as in any separate organization. The highly technical and specialized nature of both ‘the police and fire service, as advanced by certain individuals speaking against integration, is overemphasized in many cases. The pilot of a modern airplane need not acquire knowledge of every technical detail about flying, the atmosphere, aerodynamics, and every airplane. He requires only a general knowledge of flying with a special knowledge of the particular airplane he happens to be piloting at the time. And so it is with fire and police work in many cases. The fireman re- quires a general knowledge of fires and fire protection with a special knowledge of fire conditions, techniques, and equip- ment'in regard to his particular city. l5Citizens Research Council of Michigan, A Study of the Integrated Police and Fire Operations of the Grosse Pointe Woods Department pf Public SafetyETMemorandum— No. 191. Detroit: Citizens Research Council of Michigan, June, 1957), p. l. 68 The essence of the theory of integration is that few police and fire duties are highly technical in nature in relation to the total personnel of the department. "It is at the patrolman—fireman level that integration finds its fullest, most efficient effects."16 Above this level the technical and specialized skills are provided as necessary in each city. Response Time pg Eigeg is Increased Opponents of integration argue that a fire department must be in constant readiness to answer an alarm of fire and that fire apparatus must be manned at all times with enough personnel to respond to an alarm quickly and extinguish the fire. If some of the firemen are scattered about the city, it is argued there will be unnecessary delay in reaching the fire.17 Evaluation pf this argument. Response time of fire apparatus or personnel is not lengthened under an integrated police and fire department. Within the successfully inte- grated department the fire apparatus is manned by the nec- essary personnel to drive the equipment to the fire scene. These drivers are on stand-by duty performing clerical duties 16 Ibid. 17International Association of Fire Fighters, flpx we Are Opposed to Integration 9; Fire and Police Departments, pp. cit., p.-5. 69 which they immediately drop at the sounding of a fire alarm, and proceed to the fire. Furthermore, at night an integrated department usually responds to fires faster than the tradi- tional fire department. Contributing to this is the fact that the firemen in a traditionally structured fire depart- ment usually sleep at'night and when a fire alarm is received it takes a few moments for the personnel to dress and respond to the alarm, whereas under integration the public safety officers are ready to respond immediately to all alarms at any time.18 In the various integrated departments, response time is actually out when the men are on patrol for they are usually much closer to the fire. For example, in Winston- Salem over a twenty-month period from September 9, 1957, to March 31, 1959, the patrol officers arrived before the fire truck or at the same time 86.1 per cent of the time.19 Furtheremore, during the first three years of integrated operations in Oak Park, from July, 1954, to July, 1957, the patrol officers arrived at the fire scene before or at the same time as the fire apparatus on all but two occasions.20 18Personal interview with Fire Marshal Nowak, Oak Park, Michigan, June 21, 1960. .. 19John M. Gold, "Report of Fire-Police Cooperation, Winston-Salem, North Carolina" (Winston-Salem: Office of the City Manager, July 21, 1959), p. A. (Mimeographed.) 20Glenford S. Leonard, "A Critique of the Ontario Fire Marshal's Report on Oak Park Department of Public Safety" (Oak Park: Office of the Director of Public Safety, July 23, L957), p. l. (Mimeographed.) 70 The patrolmen in Glencoe also arrive at the scene of the fire before the fire apparatus in virtually every case.21 This argument is also answered when one considers that volunteer fire department personnel are usually always in, various locations in the municipalities in which they are used. The emphasis on fire prevention also refutes the long- response-time-to-fires argument. In growing numbers, entire fire companies are going out on inspection tours in their districts. They inspect commercial, residential, institu- tional, and industrial occupancies which take them away from their stations.22 In case of a fire, the personnel are easily reached by radio and respond to the alarms. Such a procedure, widely lauded by fire administrators, is precisely the same fashion in which public safety officers respond to calls: Simultaneous Incidents and Emergencies Cannot fig Handled Anti-integrationists argue that simultaneous inci- dents, such as a fire and a bank robbery or an emergency 21Robert B. Morris, "A Report Describing the Combined Police-Fire Service of the Village of Glencoe, Ill." (Glencoe: Office of the Village Manager, May 6, 1957), p. 3. (Mimeo- graphed.) 22Bruce Holmgren, "Fire and Police Integration--Im- provement or Impairment?" Mayor and Managers, (April, 1958), p. 8. 71 requiring a large number of public safety personnel, cannot be handled effectively by integrated departments. They claim that the receipt of several alarms will strip the city of its police and fire protection.23 Evaluation pf the Argument. Simultaneous incidents are handled in integrated departments the same as in any separate department. There is an element of calculated risk in all public safety organizations that could be removed only by total prevention or total control of individual actions?!+ Few departments, integrated or not, are staffed to cope with maximum disasters; instead they are staffed in such a numeri- cal fashion to deal with only the probable emergencies. How- ever, an integrated department can deal more effectively with both the unusual and the probable.25 While integration cannot reduce the number of men re- quired to handle a specific incident, it will provide a more flexible force to deal with the unpredictable. For example, the personnel can be used in various duties as immediacy re- quires. City Manager Hunter of Sunnyvale, California, 23International Association of Fire Fighters, Why We Are Opposed to Integration of Fire and Police Departments, _p. cit., pp. “6-7. 24Charles 3. James, Police and Fire Integration in the Small City (Public AdminiStration Service, 1955), p. 25. 25Citizens Research Council of Michigan, Inte ration of Police and Fire Services in Port Huron, Michigan EPe no No. 188, Part I. Detr01 t: CRC of Michigan, April, 1959?, p. A. 72 reported that the operation of the newly integrated public safety department during the emergency occasioned by a tornado in January, l951,probably contributed more than any other single event to public acceptance of the combined department.26 The tornado, causing over $1,000,000 property damage and con- siderable personal injury, struck early in the morning. In order to cope with the multiple public safety demands con- comitant with such a disaster, all department personnel were recalled to duty and performed both fire and police duties and other public safety functions as required throughout the day. The entire operation was a success and proved beyond doubt the value of utilizing personnel where needed by shift- ing men between fire and police assignments. It showed the full advantage of coordination and flexibility possible in an integrated department.27 Simultaneous or double alarms are handled in Glencoe by the personnel performing their traditional police or fire duties. In the event of a double fire emergency, immediate response of well-trained fire fighters to both scenes is possible due to more trained personnel on duty at one time. Under the combined operation it is possible to send twenty- four experienced fire fighters to any fire, whereas under 26H. K. Hunter, "An Integrated Public Safety Depart- ment," Public Management (May, 1951), p. 10?. 27Ibid. 73 the traditional arrangement only nine men could be dispatched.28 Morale, Discipline, and Training Will pp Adversely Affected Persons opposing integration claim that integration has a serious adverse affect on the morale and discipline of the personnel. Training and procedures for fire fighting present a complicated problem. To train and qualify a man to perform both police and fire duties will not make the man effective in either.29 Evaluation pf this Argument. This argument is in direct contradiction with the experience in the successfully integrated departments. In fact, morale and discipline have been enhanced in integrated departments.3O While there are examples of unsuccessfully integrated departments in which the morale was inferior, such a state was not the result of integration.31 For example, Monterey Park, California, attempted to integrate their police and fire departments in 1953 because of political encroachment, 28Morris, loc. cit. 29International Association of Fire Fighters, Why Wp Are Opposed pp Integration pf Fire and Police Departmenpp, pp. cit., p. 7. 30Glen Leonard, "Oak Park's Department of Public Safety--It Works!" Michigan Municipal Review (August, 1955), p. 1A7. 31International Association of Fire Fighters, Why Wp Are Opposed pp Integration pg Fire and Police Departments, 9R. Cite, p. 2b. 7h inadequate pay, and low morale. However, the results were further discouragement and further lowering of morale. Since defective morale was already inherent in the organizations before integration,32 it cannot be tagged as a direct product coming after integration. Following the integration of public safety services in Oak Park, the morale of the department members was higher than it ever was in the past. This came as a result of higher salaries, shorter working hours, and the interest of the members being maintained while working in both police and fire duties.33 Public Safety Will Deteriorate Another argument advanced against integration is that the public safety will deteriorate. If the integrated de- partment is commanded by an individual who is primarily a police officer, the fire service will suffer, and vice versa.34 Opponents of integration claim that the constant care 32Ibid. 33Glenford S. Leonard, "On the Integration of Police and Fire Services" (Speech presented at the Ohio Fire Chief's Convention, Springfield, Ohio, July 25, 1957), p. 6. (Mimeo- graphed.) 3“International Association of Fire Fighters, Fight Back! The case against the merger of fire and police serv- ices. (Washington: International Association of Fire Fighters, 1959), p. 7. 75 of apparatus and equipment would be neglected under integra- tion and that police-oriented administrators would not maintain a high degree of training, which is required in any fire de- partment. Evaluation pf phis argument. Although this is a valid argument, it can be easily negated and eliminated by capable administration. This is a valid argument against integration because it is difficult to maintain a high degree of train- ing.35 If the administrator of the integrated department does not maintain a realistic outlook in both the police and fire functions, one service will suffer.' The fire service is nor- mally the one to be neglected.36 However, if the organization is capably administered, the degree of public safety will be higher than in the tra- ditional departments. For example, the Citizens Research Council of Michigan reported in May, l956,to the City Man- ager of Oak Park, after a survey of the Oak Park Department of Public Safety that: It is the Opinion of the Research Council, as the result of this survey, that the citizens of Oak Park receive a subSLantially higher level of service from the integrated public safety department than 3SGlenford 8. Leonard, in a lecture before the Police Administration 321 Class, Michigan State University, October 15, 1959. 36 big. 76 would be possible for the same cost under the traditionally separate police and fire depart— ments.37 To further protect the community, the Oak Park De- partment of Public Safety places constant emphasis on its training program. A recruit is given four weeks of police and fire training in the department, and is sent to Michigan_ State University for four weeks of additional police train- ing. The Fire and Disaster Training Center at the University of Michigan is used for special and advanced fire training. The department also sends its personnel to Michigan State University at East Lansing and Michigan State University, Oakland Branch, for special in-service police training in traffic, criminal investigation, command techniques, and juvenile work. Supervisors and selected office rs are also sent to the Purdue University Arson Seminar, Lafayette, In- diana, as well as several national training centers for special training. To provide proficient training and to maintain an adequate level of patrol, the department pays off-duty officers to substitute for the regular patrol while the on-duty officers receive training in fire fighting evo- lutions.38 37Citizens Research Council of Michigan, Pihlpp gafety Services in Oak Park, MlChng£‘(PetrOl : Citizens Research Council of *Michigan, May, 1950}. in letter of tran mrittal. 38Glenford S. Leonard, "R Report of Fifth Year ff In e— grated Police and Fire Service" (Cak ParL: Departruert ff Public Safety, November 16, 1959), pp. 5- 6. 77 Fire Insurance Rates Are Higher The opponents of integration often claim that fire insurance rates are higher in municipalities with integrated police and fire departments.39 Evaluation pf This Argument. Fire insurance rates for cities under 25,000 population are determined by rating engineers of the state rating organization. For munici- palities over 25,000 population, the fire insurance rates are determined by rating engineers from the National Board of Fire Underwirters.“O The National Board of Fire Underwriters classifies communities on a grading schedule totaling a maxi- mum of 5,000 deficiency points. The more deficiency points, the higher numerically the fire insurance class and fire in- surance rates. Class 10 is the poorest grade, while Class 1 is the most desirable. The factors considered in arriving at the classification are the city's water supply, fire de- partment, fire alarm system, police department, building laws, hazards, and structural conditions.41 39Leon W. Millie, pp al., "Report on the Amalgamated Police and Fire Departments in the City of Oak Park, A Suburb of Detroit, Michigan " (Toronto: Office of the Ontario Fire Marshal, January 3, 1957), p. A. (Mimeographed.) 0 1 . A Glenn 3. Leonard, "Oak Park improves Fire Insurance Grade" Michigan Municipal Review (March, 1960), p. 57. “libid., p. 59. 78 Evidence cannot be found that indicates fire insurance rates have increased in any city which had adopted integra- tion.42 In fact, there are cases where the insurance rates have decreased after integration. For example, the rates in Sunnyvale were reduced 8% to 10 per cent after integration in 1950. The city was regraded from Class 6 to Class 5.43 The National Board of Fire Underwriters regraded Oak Park in June, l959,and the city was advanced from Class 7 to a Class 5 rating. The new rating resulted in a saving of 11 per cent for the residents in the city and even more for the industrial and commercial building owners.hh Integration pp not Economicpl Certain individuals claim that comparisons of public safety expenditures before and after the adoption of inte- gration reveal increased expenditures because integrated departments pay additional amounts for equipment, buildings, and salaries for additional personnel which is required in many cities after integration.L5 Evaluation of phis rev; pp. Certain initial (non- —_ “W- --41. recurring) expenses are usually incurred when integration is 421bid., p. 57. 43 Hunter, pp. cit., p. 107. theonard, "Oak Park Improves Fire Insurance Grade" n 92. 2a., p. 6U. “5Mi111e, t. cit., p. l. * 79 first undertaken. These include financing the training pro- gram, higher salaries for the employees, additional equip- ment, and perhaps a new building. Additional personnel are often required at the time of integration for two reasons: (1) the former fire department was largely a volunteer organi- zation; and (2) a reduction in the standard work week. How— ever, after such initial expenses have been met, integration is an avenue to continuing economy.46 The comparisons of public safety expenditures before and after integration fail to take into account the population increases in many municipalities which have adopted integra- tion. Furthermore, the reduction in the work week is one of the compelling reasons some cities adopt integration in the first place. If integration had not been decided upon, the ‘work week would likely have been reduced anyway with the requirement for additional personnel. For example, in Evanston, Illinois the required reduction in working hours for firemen and police officers as a result of legislative action would have cost $170,000 to $180,000 annually in additional personnel if separate organizations had been main- tained. Instead the partial integration plan adopted resulted in a saving from $90,000 to $100,000 annually.47 46Missouri Public Expenditure Survey, Combined Police and Fire Services for Mpdium-Sized and Small Cities (Jeffer- son City: Missouri Public Expenditure Survey, Feb., 1960), p. 7. L7Bert W. Johnson, "Police-Fire Cooperative Questions and Answers" (Evanston: Office of the City Manager, March 3, 1958), p. 2. (Mimeographed.) 8O Np Integrated Program Has Proven Practical and Feasible It is argued that no community has yet developed a plan of integration which has proven feasible and practical.48 Since integration has been around for eighty years, it should have already proved practical beyond a doubt. It is claimed that most cities that have experimented with integration have discarded it.l+9 Evaluation pf this argument. In June, 1960, there were sixty-one cities in the United States and Canada with inte- grated police and fire services}0 A number of these munici- palities have had a successful form of integration for many years. Several of the administrators in the cities with in- tegration report that integration is practical and feasible. The integrated operations in Winston-Salem has been accepted very well "by the personnel involved, by the administrators of the police and fire departments, by the city leaders, and by the public served."51 Many times the public safety officers hBNational Board of Fire Underwriters, "Fire and Police Departments--Combining of" (New York: National Board of Fire Underwriters Special Bulletin No. 300, Nov. 30, 1953), p. l. “9Nea1e, pp. p;;., pp. 1-2. SOGlenford S. Leonard, "List of Cities in the U. S. and Canada which have Integrated Police and Fire Services" (Oak Park: Office of Director of Public Safety, Feb. 26, 1960), pp. 1-2. (Mimeographed.) 51Letter from Peter F. Lydens, Assistant to the City Manager, Winston-Salem, N. 0., May 3, 1960. 81 have discovered fires before the persons occupying the build- ing have and were able to extinguish them without the need .for calling the fire apparatus from the fire station.52 Also, on September 1, 1959, Oak Park completed its fifth year of successful operation under integration.53 Integration has also proven practical in Sunnyvale. jLn 1959 Sunnyvale's public safety officer strength per capita 'was 1.6 compared with the national average for combined police- :men and.firemen of 3.17 for the same population group, yet the city's Part I crime rate was 25 per cent below the national crime rate and the city had 68 per cent fewer building fires 5h than the average American city of similar size. Integration.Prohibits Outside Employment Integration of police and fire services eliminates 'the chance for the officers to do additional work in an outside occupation. This is particularly true in the case of firemen. Evaluation pf this argument. This argument is true but has little merit since many leading police and fire administrators as well as authoritative municipal officials 52Ibid. 53Leonard, "Report of Fifth Year of Integrated Police and Fire Service" pp. cit., p. l. 54J800b A- Jessup, "Department of Public Safety, sunny- vale, California" (Sunnyvale: Office of Director of Public Safety, November 13, 1959), pp. 5-6. (Mimeographed.) 82 strongly believe that the personnel of the two services should not engage in outside employment. Additional compensation is usually given personnel performing both police and fire duties which, theoretically, should off-set the need for other employment during their off-duty time. State Statutes mg Prohibit Integration In some states, statutes and pensions plans are worded to prohibit or imply the prohibition of integration. For example, statutes in Ohio and Wisconsin indicate that separate departments are called for in several sections.55 Also the provisions of the pension systems in Wisconsin clearly indicate that there be separate police and fire departments because of the difference in the pension systems.56 Evaluation pf this arment. Adoption of integration by cities in many parts of the United States indicates that this need not be an insurmountable obstacle. The action taken by the Oakwood, Ohio, city administration is an illus- tration of this.57 Organization of municipal departments can be amended, state statutes can be altered, and local 551nternational Association of Fire Fighters, pp. pip” p. 17. Also see page 38, section describing Oakwood, Ohio. 56Ibid., p. 16. 57See page 38. 83 pension systems can be installed to allow for integration. Civil service laws can also be altered. ‘Union Organizations May Impede Integration Unions may impede integration since most firemen be- lxnng to unions. Unions may publish political announcements to 'the disadvantage of the city and incite political change to discredit integration. Evaluation pf this argument. Unions and other pro- fessional organizations and associations are vigorous opponents to integration of the police and fire services.58 In at least one case, Lincoln, Nebraska, the fire union was instru- mental in forcing the abandonment of integration after a trial period.59 Such activity on the part of an organization is very poor practice and probably no pressure organization should prove so powerful in determining whether a munici- pality is to have an integrated police and fire department or not. The decision is a policy matter of administration, not a political matter. Unions may rightfully strive to increase firemen's salaries where firemen are doing certain police duties in addition to their own, but this should be the extent of any union's indulgence in the question of integration. 58For a list of articles against integration see, In- ternational Association of Fire Fighters, Fight Back! The case against the merger of fire and police departments. (Washin - ton: International Association of Fire Fighters, 1959), pp. 13-1 . Sglnternational Association of Fire Fighters, Why Wp Age opposgg_pp Inte ration pf Fire and Police Departments, 92. Cite, pp. A -5 ’ 81. Police Professional Efforts will pp Affected It is considered that integration will adversely affect ling enforcement's efforts toward professionalization.6O Evaluation p; this argument. What effect integration will have upon the police service probably will not be known for many years. However, integration can just as easily aid claW’enforcement's effOrts toward professionalization as impede it. Integration can do this by demanding more effective public service from.the traditional police departments if they want 'to keeprfrom.integrating in any particular city. However, integration is not a system that is designed to adversely effect any form of professionalization by either the police or fire callings. Indeed, it enhances professionalization by creating a neW'professione-that of public safety officer. An individual who is proud of his accomplishments as a pro- fessional police officer can have a more gratifying and broad experience as a public safety officer. As a public safety officer, one's knowledge can be greater, his duties more varied, his accomplishments more significant, and his con- tributions to the safety of the public more profound. II. ADVANTAGES OF INTEGRATION The advantages of integration, as reported by 60"Complications in Combined Fire-Police" Personnel News Vol. 24, No. 1 (Jan., 1958), page unllsted. 85 administrators in municipalities having integrated public safety service, are summarized below. Some of the advantages are more significant in some cities than in others, depending upon the public safety situation in the city, the form or extent of integration adopted, and the results being sought through integration. Integration has several virtues. It results in faster and more efficient police and fire service, patrol coverage is increased, police and fire emergency calls are answered fasten,and there is a greater manpower resource available for emergency duty. For example, in Dearborn, Michigan, although the city is twenty-five square miles in area, a patrol car is always within one mile of the most distant point on its beat 0 61 Also, during the first five years of integrated operations in Oak Park, 322 or 46 per cent of the 695 fires extinguished by the Department of Public Safety were ex- tinguished by patrolmen with fire equipment carried in the 62 This effectiveness has contributed to the patrol vehicles. efficient use of manpower and an estimated 15 per cent in- crease in patrol coverage. Furthermore, the effectiveness of integrated operations is also shown in Sunnyvale where, in 1958, the Part I crime rate was 25 per cent below the 61Missouri Public Expenditure Survey, pp. cit., p. 4. 62Leonard, "Report of Fifth Year of Integrated Police and Fire Services," pp. pip., p. 9. national crime Ram County '1 rate was if m The m required to iection is 1 use of on-di personnel r tive ard CC 01' the sing 86 national crime rate. Compared with other cities in Santa Clara County in the same population group, Sunnyvale's crime rate was from 16.7 to 41 per cent‘F‘lower.63 The number of personnel in an integrated operation required to provide the same level of public safety pro- tection is less because integration makes full productive use of on-duty time. Furthermore, the number of stand-by personnel required is reduced and the number of administra- tive and communication personnel required are less because of the single organization. The fireman's time particularly is more productive.‘ Studies show that total time spent by firemen at and in transit to fires averages only about one per cent of their on-duty time.6l+ The public safety personnel strength required is less as shown by Evanston,65 Oak Park,66 and Sunnyvale. By way of illustration, in 1958 Sunnyvale's public safety officer strength per capitafiwas 1.60 compared to the national average for combined policemen and firemen of 3.17 for cities in the same population group. In addition to other accomplishments mentioned, Sunnyvale was awarded an "outstand- ing achievement certificate" for traffic supervision by the 63Jessup, "Department of Public Safety, Sunnyvale, California," pp. pip., pp. 5-6." 6b’Missouri Public Expenditure Survey, pp. cit., p. 7. 65See page 5A. 66Leonard, "Report of Fifth Year of Integrated Police and Fire Services," pp. cit., p. 10. 87 International Association of Chiefs of Police.67 Integration eliminates duplication which occurs in separate departments. An integrated department requires only one communications system, one set of records, and one 'budget document. Operations can be directed from a single headquarters with one office staff.68 The single headquarters results in uniform command and uniform communications which are invaluable when both services must act at the same time. Integration results in economy from the fewer number of personnel required and through the lack of duplication. New equipment and buildings may off-set the initial savings, but the city may expect to save various sums after the non- recurring costs concomitant with the first few years of operation have been met. Examples of estimated yearly savings as a result of integration are: Oak Park, Michigan, $56,000;69 Winston-Salem, North Carolina, $20,000;70 and, Evanston, Illinois, $70,000?l 67Jessup, "Department of Public Safety, Sunnyvale, California," pp. cit., p. 5. 68H. K. Hunter, "Begins Fourth Year of Combined Fire and Police Service," Public Management (September, 1953), p. 207. 69Glenford S. Leonard, "On the Integration of Police and Fire Services" (Speech presented at the Ohio Fire Chiefs Convention, Springfield, Ohio, July 25, 1957), p. 3. 70Letter from Peter L. Lydens, Assistant to the City Manager, Winston-Salem, North Carolina, May 3, 1960. 71Bert W. Johnson, "Questions and Answers Concerning Police-Fire Cooperative Program Experience to Date," (Evanston: Office of the City Manager, December 28, 1959), p. 1. (Mimeo- graphed.) 88 Mr. W. H. Lange, Grosse Pointe Woods City Administrator reported in May, 1960, that "the Department of Public Safety operates annually for $100,000 less than adjacent cities of comparable size and risks which have separate departments."72 Perry Scott, City Manager of Sunnyvale, California, reported in the fall, 1959, that the "combined use of personnel and equipment resources reduces the cost of police and fire serv- ice by at least 25 per cent without affecting the level of performance."73 Integration results in a shorter work week, especially in the case of firemen. The firemen in Oak Park before inte- gration worked seventy-two hours per week and immediately after integration in 195A, their working hours were dropped to forty-four hours per week.7£F Many municipalities adopted integration to off-set the reduced work week imposed upon them by some form of legislation or other pressure. When the work week is reduced the number of personnel of the department must also be reduced or additional employees must be recruited. Integra- tion makes possible an increase in productivity commensurate with a reduced work week so that neither of these alterna- tives take place. 72Letter from W. H. Lange, City Administrator, Grosse Pointe WOods, Michigan, May 19, 1960. 73Jessup, "Department of Public Safety, Sunnyvale, California," pp. cit., p. 6. 7“Personal interview with Glenford S. Leonard Direc- tor of Public Safety, Oak Park, Michigan, June 20, 1960. 89 Integration results in higher salaries for the public safety officers since cities can afford to pay the personnel more in integrated departments. For example, the personnel in the Oak Park Department of Public Safety received a $700 annual salary increase under the integrated department.75 Also, in 1958,the entrance and maximum salary for the public safety officers in Sunnyvale was $5,296 and $6,672 annually.76 In the same year, the entrance and maximum salaries for firemen and policemen for the nearby city of San Jose were $h,97h and $6,036 annually77 and for firemen and policemen in Palo Alto, the salaries were $5,15A and $6,26A annually.78 It is of significance, too, that San Jose is over twice as populous as Sunnyvale! The higher salaries and shorter working hours in inte- grated departments result in higher morale and more capable personnel. Morale is also enhanced because of the variety of duties and a feeling among the personnel that they are pro- viding a higher level and broader scope of public protection. 75Ibid. Jessup, "Department of Public Safety, Sunnyvale, California," pp. cit., p. 2. . 77International City Managers Association, The Muni- cipal Year Book (Chicago: International City Managers Asso- c1atlon, 19597: pp. 37 , 416. 8 7 Ibid.. pp. 387. 422. 90 'The position of public safety officer is more interesting, challenging, and offers a higher social status than that of police- man or fireman. Proponents of integration, therefore, claim that such an organization attracts better qualified per- 1. sonnel.79 1 Integration results in improved crime and fire pre- vention programs, which is directly related to placing more 80 men on patrol and inspection duties. The public safety officer is in a logical position to perform both crime and fire prevention duties. He normally visits or observes a1 premises in his district periodically. On routine patrol, he can promote public understanding and eliminate hazards before they give rise to incidents.81 In an illustrative sense, from September 9, 1957, to May 31, 1959, the Fire- Police Patrol in one district of Winston-Salem inspected 6,670 residences as part of its routine work in the fire pre- vention program.82 The success of the program has resulted in expansion of integration into other areas of the city.83 fvtrw MW 79William H. Petersen, "Integrated Police-Fire May | 23% Costs," Michigan Municipal Review (December, 1953), po 0 .International City Managers Association, Municipal £222 Administration (6th edition, Chicago: ICMA, 19567, p. Blcharles S. James, Police and Fire Integration in 222 341.3% 0.1.21: (Chicago: Public Administration Service, 19551, 82 Gold, loo. pip. 83 See page L9. 91 These inspections give the personnel an invaluable aid in understanding the hazards and problems in their districts. It provides a higher standard of fire protection for the com- munityo The public safety officers plan in advance for specific fire fighting techniques. They study the occupancies, draw and study sketches, and decide in advance what to do if a fire should occur. Summary The advantages of integration, which far outweigh any of theaflleged disadvantages, make integration of police and fire services a practical and feasible undertaking worthy of study by many cities. Integration is a system that may not necessarily work in or be beneficial to every city in the United States, but it is receiving renewed interest which is merited. Municipal administrators with significant public safety problems in their city would do well to study the feasibility of integration. That integration has its virtues is shown by what several leading commentators on public safety administration say about the concept of integration and about integrated de- partments in the United States. Mr. O. W. Wilson, former Dean of the University of California School of Criminology, Presently Superintendent of Police for the City of Chicago, after a field examination of the organizations and operations of the Sunnyvale Department of Public Safety on December 14, 3 s; 92 1959, stated: I came away strengthened in the conviction that I have had for many years that American police and fire serv- ices can be advantageously combined and that economic pressures will induce a substantial expansion of such programs throughout our country in the coming few dec- ades. After a survey of six integrated public safety departments in February, 1954, Mr. Charles 8. James, formerly Staff Member, Public Administration Service of Chicago and cur- rently a legislative researcher for the State of Hawaii, stated: Combined police and fire operations pose no really new problems in municipal administration. A capable administrator, armed with sufficient facts and guided by sound advice, can give his community adequate serv- ice under almost any organization. He may find a possibility of better service by integrated public safety organizations, as exemplified by the experience of the cities which have tried them.8 John D. Holstrom, who recently retired as Chief of Police of Berkely, California, spoke before the Conference of the In- ternational Association of Fire Chiefs in Los Angeles on September 18, l958,and stated: In speaking at Pasadena, nine years ago, I said to a large group of fire chiefs: "I submit to you that they the proponents of total integration] are on the wrong track. I don't think it is practical." . . . I thought I was right then . . . In any event, I now 8“Reported by Perry Scott in a critique of "Leonard William's Report - 'A Study of Sunnyvale Public Safety De- Partment'" Chamber of Commerce. Sunnyvale: March 18, 1900), p. 6. (Mimeographed.) A report submitted to the Sunnyvale Junior E‘SCharles S. James, "The Integration of Fire and Police Services." Public Management (February, 1951+). Po 29- Office of the City Manager, 93 believe that my flat Opposition to integration as ex- pressed in 19A9 was in error. Part of my difficulty then was with the word integration. It is now evident that in some localities in varying degrees it does work. . . . The Fire and Police services should recognize frankly that the current trend is toward integration in some degree, in an increasing number of places. We can no longer simply ignore it; nor take an unalterable position that we oppose it. we must be well informed, which unfortunately neither we nor local government officials areo We should view it objectively and recog- nize there will be,a growing demand for economies in local government.30 86 John D. Holstrom, "Fire-Police Integration Current Trends" (Speech given before the Conference of International Association of Fire Chiefs, Los Angeles, Califbrnia, September 18: l95o), pp. l-t. (Mimeographed.) CHAPTER V INTEGRATION AND THE SIZE OF THE MUNICIPALITY It is the treatise of Charles S. James that: . . . there are two public safety activites: (l) prevention, which is the only way losses will ever be reduced in the long run, and can be a full time occupation in practically any city; and (2) emer- gency services, which are the means of minimizing losses and taking punitive action, but are undemand- ing in terms of time. A public safety program can- not be effective without the former; it cannot be said to exist without the latter. With the various preventious preventative and emergency tasks defined, it was apparent that, . . . there was only one em- ployee who was able to do them all effectively--the man on the beat. The suggestion was made that if the patrolman is at once a public educator, an in- spector, an investigator, and a general observer and conservator of the peace, all such jobs would get done, and knowledge of each would make him more effective in the others. At the same time, modern technology makes the beat officer constantly avail- able for emergencies. Integration brings these two public safety activities --prevention and emergency services--into a realm where they can be dealt with effectively in any size community. Inte- gration of public safety forces, therefore, offers a real opportunity for improvement. 1Charles 8. James, Police and Fire Integration in the Small City (Chicago: Public Administration Service, lgSST, p0 62. 95 Prevention and speed of response are the most impor- tant elements of fire protection. Prevention is the only way losses will ever be reduced, and that prevention is better performed by the man on the beat. There is a direct relationship between the number of men on patrol and suppression of crime and prevention of accidents.2 Both the police and fire services should there- fore profit from a mingling of forces. Modern equipment can be put to full use and municipal public safety can be made a significantly acceptable and worthwhile profession. Whether the enemy be fire or crime makes no real difference--it must be forestalled before it strikes.3 This statement is equally applicable to a large municipality as it is for smaller ones. I. INTEGRATION IN THE SMALL MUNICIPALITY The small municipality usually refers to a munici- pality of under 10,000 p0pulation. Roughly one American in ten lives in this type community. Two—thirds of America's urban communities and over nine-tenths of its municipalities have populations under 10,000.4 2 . . William H. Petersen, "Integrated Police-Fire May Cut Costs" Michigan Municipal Review (December, 1958), p. 278. 3James, 9p. cit., p. 10. 96 Every community is plagued to some degree by the threat of fires, crimes, accidents, and disturbances. The public safety problem in small cities is similar in kind to those in larger places, and in proportion to size, the prob- lem is not greatly different in magnitude. A city of 5,000 might expect a building fire every three weeks, a traffic accident once a week, and two arrests a week. It might also expect to issue two citations for traffic violations and ten 5 parking tickets each week. A survey of ninety~seven small cities conducted in 1955 by Mr. James revealed a ratio of 0.48 firemen per thou- sand population in contrast to median ratios ranging from 1.09 to 1.60 for cities in larger population groups. The same cities have police strength that is almost proportionate to that found in larger municipalities, reporting 1.33 police- men per thousand population.6 Integration of public safety services in these small cities, therefore, holds much promise. Mest small city organizations are designed to take only re- medial action against fire hazards, such as with a volunteer fire department. Under integration the small cities can use their limited resources to prevent incidents as well as to concentrate their resources when incidents occur. The 51bid., p. 4. 6Charles So James, "Concepts of Fire-Police Integration" Public Management (September, 1955), pp. 194-195. 97 advantages of integration are plainly visible and more easily realized in small cities than elsewhere.7 Small municipal police and fire department personnel, for the most part, lack the training necessary for their occupations.8 They can't afford adequate training programs of their own, nor maintain modern facilities for training purposes. The integration of the departments can bring about adequate training facilities by directing resources from un- necessary duplication. The growth of the small municipality is not presently equipped in either police or fire services to handle expanded populations.9 These cities are looking for a solution to the problem through the utilization of all available resources, and to an organization which may in the future, be expanded to provide specialized services in both the police and fire fields. Integration provides this feasible solution. With the public safety force employed routinely in general prevention work and law enforcement, controlled by adequate communications and reinforced by volunteers when necessary, the full advantages of integration can be realized 7James folicg gpg Fire lptegration ip the Small City, 09. Cite, 130 .L30 8George F. Eliot, "How Well is YOU' .ommurity Policed?" (Royal Oak, Michigan) Dai;y_:ribune Suburbia Todgy, April 9 Ibid. 98 10 One central station with one communi- in the small city. cations system can be used making emergency response to both fire and police calls more rapid. Records and administrative services can be centralized and handled more efficiently. There will be more personnel with a single objective of re- pressing crime and fire through education, observation, and supervision. Emergency scenes can be reached quicker and the sit- uations dealt with more effectively under integration. In the cases of fire emergencies, the patrolman can, in many cases, extinguish the fires in their earliest stage with the fire equipment which is routinely carried in the patrol vehi- cle. The organization of integrated departments for small. municipalities is discussed by Mr. James in Police gag,fii§§ Integration $3 the Small Cit .11 Organization, equipment, ‘work week, training, and administrative requirements are elaborated upon. He demonstrates that an integrated public safety department is entirely practical and feasible in the small city.12 10James, Police and Fire Integration ig_the Small Cit , Egg. cit., p. 19. ll lZIbid., p. 12. 99 II. INTEGRATION IN LARGER MUNICIPALITIES Director Leonard of the Oak Park Department of Public Safety says "integration is not a function of size."13 Mr. W. H. Petersen has said that "the size of the city appears to have no effect on the feasibility of integration--only on the kind or degree of integration."14 This philosophy is also advanced by Mr. James who says "there seems to be no definite limitation on integration which is necessarily im- posed by the nature or location of the community."15 The Citizens Research Council of Michigan would also agree with these statements. In 1957, a study of the police and fire operations was conducted in Port Huron, Michigan. Port Huron is a city of 40,000 population, located on an international boundary and is a port city to Lake Huron. It covers an area of 7.2 square miles, elliptical in shape, and is divided by the Black River. The two sections of the city are connected by three vehicular drawbridges and one station- ary span bridge. The streets of the city are narrow. The city has an old business area, several large industrial plants, and a waterfront area. The residential area is generally old and of wood construction. The Bluewater International Bridge 13Glenford S. Leonard, "On the Integration of Police and Fire Services" (Speech given at the Ohio Fire Chief's Con— vention, Springfield, Ohio, July 25, 1957), p. 3. (Mimeo- graphed.) l[‘Petersen, 9p. pip., p. 279. l O O O I 5James, "The Integration of Fire and Police SerVices" OE. Cite, p. 270 100 between the city and Canada has heavy flow of traffic at al- most all times. The Citizens Research Council reported that: I . . . almost every obstacle to police and fire effici- ency has been "built-in" to the city. The unusually long distances from north to south makes necessary at least three fire stations. The international bridge and its location in a resort area bring numbers of transients into and through the city. The great amount of river front increases accident and drowning poten- tial; old buildings on small lots create a conflagration hazard. Railroad lines, drawbridges, short blocks with narrow streets, create obvious traffic hazardg and re- sult in slow response of emergency vehicles. A plan of integration was proposed for the city by the Citizens Research Council which would improve tremendously the public safety service. The plan would make possible in- creased patrol of the city without reducing the number of men available for fire fighting. It would provide faster re- sponse to fire alarms and distribute the emergency services and preventive duties over the maximum number of personnel. The plan was proposed for the city because "integration makes the maximum use of the total personnel of a public safety establishment and directs the activities of those men toward the total solution of the total problem."l7 Until around 1954, the consensus of opinion among the supporters of integration was that integration should be 16Citizens Research Council of Michigan, Integration ‘gf Police and Fire Services ip Port Huron, Michigan (Report No.188, Part I. Detroit: Citizens Research Council of IMichigan, April, 1957), pp. 5, 21. 1 71bid., p. 21. 101 limited to municipalities of less than 10,000 population. This concept changed at this time because several munici- | palities had successfully integrated their police and fire departments in cities with over 10,000 population. The general concept from 1954 until 1957 held that integration was limited to municipalities up to 50,000 population. After 1957, this concept had to be discarded because of the success of partial integration in such cities as Dearborn, Michigan; Winston-Salem, North Carolina; and Fort Lauderdale, Florida, which are around or over 100,000 population. It was the opinion of many individuals a few years ago that integration meant total integration of the police and fire services. However, it is now the consensus that integration does not necessarily mean the complete combi- nation of duties or the full interchange of personnel in the police and fire departments. Integration is the most flexi- ble use of all personnel in the departments for all situations in a given city. The extent of integration and combination of duties for individual officers is limited only by the 18 The larger necessity for specialized or special skills. the city, the more specialists are required and the less the extent of integration. In those cities where total integra- tion is not feasible, serious thought can be given to partial 18Petersen, pp. cit., p. 278. 102 or cooperative integration. The one-station city, with all men under a single command, is ideal for integrated operations. However, where | local conditions warrant it, proper organization can make integration equally feasible in large municipalities. In the larger cities, each district can be treated in the same manner as a small municipality. The organization of an integrated department in cities with several stations and districts can be a compro- mise between the usual fire and police systems. Integration in larger cities offers the possibility of meeting the prob- lems of shorter work weeks and higher salary in a reasonable and efficient manner. The larger number of personnel in integrated departments makes feasible the three-or four- platoon system. At the same time, police patrols may be increased, giving more attention to fire, crime, and accident prevention, while still maintaining an adequate reserve for fire fighting. Fire companies can be reducd to a minimum number of personnel at the station where conditions and in- cidents warrant such reduction. Specialized services such as fingerprint identifica- tion and scientific crime laboratory examinations can be expanded in the larger deparments. Investigation, preven- tion, training, and inspection duties can be given specialized attention. 103 III. INTEGRATION ON MILITARY INSTALLATIONS There is no integration of police and fire services at the present time on military installations. Police and fire services are handled by personnel under separate or- ganizations. On many of the military installations civilian contract personnel are used for fire fighting functions. Many military vehicles do carry small fire extinguishers to combat any vehicle fire which may occur. However, partial integration is worthy of study on military bases and in- stallations. The form that would be most desirable would be to have military policemen trained in fire fighting techniques and perform fire fighting duties. The military police vehicles can be equipped with fire fighting equip- ment and protective clothing for the personnel to use. The equipment carried could be used to control vehicle and build- ing fires in their earliest stage. The fire fighting functions should normally be limited ‘to administrative buildings and the housing area of the in- stallations. These areas would encompass the majority area of'any installation, however, would exclude fire fighting :involving aircraft, special weapons, and ammunition storage .areas. Fires of the latter types would require different 'techniques and should be extinguished by specially trained :fire department personnel. The military policemen will also leave other duties to perform when the fire occurs in these special areas . 104 Summary Integration is worthy of study in any size community. The form of integration, however, may vary with the size of the community. Total integration may prove more practical in the smaller municipalities, while in cities over 100,000 population partial integration may be considered for adoption. Integration and the form it takes must be based on local circumstances and must be suited to the needs of the particu- lar city involved. CHAPTER VI PLANNING FOR THE INTEGRATION OF POLICE AND FIRE SERVICES IN AN AI% RICAN MUNICIPALITY I. THE DECISION TO ADOPT AN INTEGRATED PROGRAM Integration of the police and fire services of a municipality is not a magic formula for the solution of problems, and it is not a method of reducing the overall com- munity exposure to the hazards inherent in municipal living itself. However, in many cities integration has been an effective device for upholding the responsibilities and func- tions of public protection. The integrated public safety plan has some features which can be used in a particular municipality and some which may not fit the individual city's requirements. In any case, its sole objective is the improvement of public safety serv- ices without undue increases in expenditures.1 The decision on the part of municipal administrators to integrate their police and fire services is a serious one.2 1Charles S. James, g Frontier of Municipality Safety (Chicago: Public Administration Service, 19557, p. 77. 2Citizens Research Council of.Michigan, A Study of the Integrated Police and Fire Operations of the Grosse Pointe“ Woods Department of Public Safety (Memorandum No. 191. Detroit: Citizens ResearchMCounC1l 01 Michigan, June, 1957), p. 43. 106 Local decisions must be based on local conditions. The reasons for the great difference in integrated departments in operation stem largely from the differences in the cities themselves. Each city has somewhat varied problems of pub- lic safety. Just as separate departments are organized on the basis of area, population, hazards, and the level of protection desired, each city must evaluate and organize its integration department to fit its individual needs. Local conditions which suggest that integration may prove advantageous for a municipality are: (1) the limited number and severity of fires, crimes, and accidents; (2) the rarity of major hazards involving police and fire functions; (3) demands for more efficient and effective public safety service: and (4) demands for better working conditions with- out unnecessary increased expenditures.3 Small municipalities do not have as much of a fire problem as larger cities. Never- theless, both large and small municipalities must be con- cerned with the effectiveness of their public safety service. All municipalities must also be concerned with the increas- ing emphasis on shorter work weeks for their public safety personnel, especially their firemen. Integration is not a step which can be undertaken 3Public Administration Service, A Report 9p_the Possi- blg Igggggggigg pf Public Safety Services in Shorewood (Chi- cago: Public Administration Service, April, 1956), p. 21. 107 hastily or without adequate preparation and training.4 Any municipality thinking about integration should make a sur- vey of its present organization, operations, needs, and con- ditions. The survey can be accomplished by members of the city, or it may request such a study from a state, national, or private consulting agency. In Michigan, such surveys are prepared by the Citizens Research Council with headquarters in Detroit. The Public Administration Service, with head- quarters in Chicago, also conducts surveys of municipal gov- ernments for cities throughout the United States. The survey of the municipality must include detailed plans for any proposed reorganizational changes. If inte- gration is deemed advantageous, the best form for the muni- cipality involved must be considered. The decision to inte- grate and operate the public safety services requires vision, initiative, competence, and resolution.5 ‘ng31 Provisions The first thing to do before deciding upon integra- tion is to seek limitations in statutory and charter pro- visions of the state and municipal government which might preclude integration. The examination should include a study ll'Public Administration Service, The Government pf the City 9; Winter Park, Florida (Chicago: Public Administration Service, March, 1957), p. 56. 5James, pp. cit., p. 144. 108 of the provisions relating to personnel administration, position classification, pensions, and retirements of police and fire personnel. The police and fire personnel are usually covered under a variety of state and local statutes. Civil service laws must be checked to see if they im- pede or preclude integration. In some cities, the civil service blocks integration by a special provision that there be a police and a fire department, commanded by a police chief and a fire chief, respectively.6 The statutes applicable to police and fire departments in Wisconsin disclose that legislation has provided separate departments. The state laws require that fire departments be organized into two platoons. The pension system also pro- vides for separate funds for policemen and firemen.7 Since firemen are usually unionized, union approval should be obtained before integration. This may present complications when firemen are required to perform the func- tions of policemen. Although the state statutes and charters must be closely examined, they are probably not absolute barriers to integration Public Administration Service, The Government pf the City g; Winter Park, Florida, op. cit., p. 25. 7 . . . . International Assoc1ation of Fire Fighters, Why W2 .Are Opposed pg Integpation 2f Fire and Police Departments —(Washington, D. C.: IAFF, November, 19577, p. 15. 109 8 State statutes can be amended, es- in any of the states. pecially if enough municipalities in the state desire to integrate their police and fire services. Local pension laws can be installed and amended, and city ordinances or charters restricting integration can be revised or abolished. The existing statutes, however, may dictate the form or extent of integration and a municipality may have to cir- cumvent pension restrictions by designating its public safety officers as either policemen or firemen. A city may extend the functions of either or both the police and fire depart- ments to include some or all of the functions usually pei- formed by the other service. Characteristics pf the Municipalipy Before integration is adopted, consideration must be given to the political, social, and economic conditions of the city. Citizen demands should be considered. Atten- tion must be given to local crime, fire, and accident prob- lems. The city building, planning, and zoning codes are im- portant considerations. Examination of liability and insur- ance laws is necessary. The physical characteristics of the city, including construction, height of structures, and street planning must be studied. 8James, pp. cit., p. 147. 110 The integrated program should have the backing of city leaders, department administration leaders, and mem- bers of the police and fire services. Integration disturbs the habits, traditions, and interests within a city.9 The influence of custom is profound. The existence of an un- healthy political atmosphere in the municipality can defeat 10 integration. The integration program demands the under- standing and support of the city leaders. Public education prior to establishment of any inte- grated operation is required to gain public acceptance of the program. The public must be acquainted with the aims, advantages, and operations of integration.11 Detailed plans can be presented to the public through the mass media, local meetings, and personal contacts. The public should be made aware of the fact that integration will provide maximum protection of life and property at the least expense. Necessary to the successful operation of the inte- grated department are attitudes, adaptability, and training of personnel and a firm belief on the part of municipal and department administration in the practicability of inte- 12 gration. A city would be unsuccessful with integration 9Ibid. loPersonal interview with Glenford S. Leonard, Direc- tor of Public Safety, Oak Park, Michigan, April 4, 1960 11Public Administration Service, The Government pf the City pf Winter Park, Florida, pp. cit., p. 56. 12J. A. Jessup, "Ten Years of Sunnyvale's Combined Poligg and Fire Forces" The American City, LXXV (April, 1960), p. l . 111 if the personnel did not meet the challenge it presents. The attitudes and abilities of personnel in the police and fire services must be considered prior to integration. Their cooperation should be voluntary; they must be sold on the merits of integration. Salaries should be increased at the beginning of the operation under integration with a minimum increase of'lO to 15 per cent. Under partial or cooperative integration progpams, the increase in salary can be used as an incentive to encourage participation. In presenting any proposed integration program to the public safety personnel, they should be approached in a meeting as a unit. A member from the public safety depart- ment of a successfully integrated operation could be used as a speaker explaining the benefits of integration to the group. Local crime and fire problem as well as the problem of meeting peak loads must be considered prior to integration. A priority of service for probable emergencies should be assigned.13 The number of personnel for the integrated de- jpartment can be determined by computing a desirable size ;fOr the department as a whole and by estimating the number 43f personnel necessary to handle incidents at any given time. l3Glenford S. Leonard, "On the Integration of Police and Fire Services" (Speech given at the Ohio Fire Chief's (Jonvention, Springfield, Ohio, July 25, 1957), p. 10. (Mimeographed. ) 112 The chronological differences in police and fire incidents are similar among cities. Traffic accidents regularly reach I morning and evening peaks; disturbances, fights, and several kinds of crime are most frequent in the evening; and other crimes occur most often in the early morning hours,such as breaking and entering.14 These incidents can be anticipated and dealt with effectively under integration. Building and zoning plans are important factors to consider before integration. Building and zoning codes, such as for construction and height of buildings, and street patterns can be used to partially control public safety hazards that may arise. For example, in Oak Park the build- ing codes restrict all buildings in the city to a maximum height of thirty-six feet. The height restrictions make the job of the fire fighter easier. Cost pf Integration The fiscal implications of integration must be con- sidered before deciding on the final form and extent of integration. In many cases there is an immediate increase in.expenditures for equipment, buildings, and salaries when :integration is adopted. The decision to integrate the serv- :ices should be based on future economy instead of the cost of thameS, OD. Cite, pp. 92-93. _~ 113 installation. Adequate building space must be provided for centralized offices, jail, fire apparatus, and other perti- nent space-consuming items. Additional personnel, if necessary, must be programmed for in advance as well as the remodeling of buildings for centralization of records, communications, and offices. II. INSTALLATION AND OPERATION OF AN INTEGRATED PROGRAM Once integration has been decided upon, with the proper budgetry support and backing of the public, municipal leaders, and public safety personnel, the next phase can take place. This phase is the installation and operation of the system where careful planning, leadership, and organiza- tion are put to the test. Public Safety Director Integration depends in a large measure upon the capabilities and personality of the administrator of the department as the success or failure of the program will .fall on his shoulders. He must be carefully selected and capable to perform the demanding duties of both a police and (a fire administrator. His training and experience must be cawefully evaluated to see that he is properly orientated in both police and fire duties. He should have a background of formal schooling in both police and fire methods and ad- Ininistration. 114 It will be necessary for the director to exercise the administration of the department to the limits of his ability, and to have a free hand in the supervision and command of the department. By developing positive attitudes on the part of the department personnel, he can stimulate interest in the success of integration. However, he must have a sincere desire for the integrated department to work. The administrator must never subordinate one service to the other; equal importance should be given to police and fire functions. It is essential that the administrator con- stantly evaluate the quality of public safety protection for his city and maintain it at the highest possible level. He must keep the service performing efficiently and effectively in every phase of operation. Personnel Management Personnel management is extremely important in inte- grated departments. Questions of recruitment, selection, classification, and pay administration need to be determined with regard to specific municipal conditions. Questions re- garding classification, employee status, promotional oppor- tunities and salary must be unequivocally settled. These should be published and made known to the personnel. Total integration should be accompanied by a new classification system within the public safety department, using public safety officers.ls Under this system the s. 15Robert A. Earle, "Personnel Implications of Police- Fire Integration" Public Personnel Review (July, 1958), p. 194. II 115 entrance level classificatkmlis that of Public Safety Officer. Thereafter, the men may advance through the grades of Public I Safety Sergeant, Public Safety Lieutenant, Public Safety Cap- tain, Assistant Director, and Director of Public Safety. Men who engage in specialized activities, such as fire engineer and detective, are assigned from the various classes. There should be no formalized class for these assignments. Partially integrated department personnel retain separate identities but have duties in both services. Per- sonnel in a cooperative department also retain their separate classifications. However, the duties for all personnel should be defined in broad position classification specifications. Once the classification system is worked out, atten- tion should be given to retirement and pension plans and any necessary adjustments made. A careful revision of the examination processes and recruiting program is the next step in developing integrated operations. Applicants for membership in an integrated de- partment should possess the same qualifications as any recruit within a good police or fir e department. These standards should center around citizenship, age, education, height, weight, and physical agility.16 .A personal background 16For a discussion of the qualification standards, see, Charles S. James, Police and Fire Integration in the Small City (Chicago: Public Administration Service, 19557, pp. 34- 39. 116 investigation and fingerprint check should be conducted and examinations, including written, physical, and oral tests, I should cover both police and fire activities. The standards for selection must be high. It is nec- essary for the public safety officer to have the ability to react quickly and calmly under emergency conditions, to deal courteously and firmly with the public, to learn a variety of detailed tasks and a number of laws and regulations, and to perform difficult work under adverse circumstances.17 These required qualifications represent a healthy challenge to any intelligent, physically-qualified individual and are evidence that only top quality personnel should be recruited into the service. Training The training of police officers in firemen's duties and.firemen in police officer's duties is one of the most impwrtant requirements of a successfully integrated public safetdeepartment. Required training, in the long-range plan (If integration, is divided into several phases. The first Innase consists of selecting qualified members in both depart- nmnits for instructors. Each member receives formal instruc- titni in the other's field and also receives several weeks of 17H. G. Pope, "Organization of Fire and Police Services in.£hnall Cities," Public Management (May, 1951), p. 104. ll7 on-the-job training in the other's department. The second phase, which must be completed before starting operations under the integrated plan, is the re- training of present employees and training for new employees.18 The retraining of present employees should include basic police methods for the firemen with on-the-job training and elementary fire fighting procedures and techniques for policemen.. The training should be conducted to extend to as many personnel as possible at a time consistent with a com- plete learning process, while still providing adequate public safety protection for the city. The retraining period may take several months to complete. Another important decision is the question of what to do with personnel in either the police or fire department who, for any of a number of reasons, are untrainable. Some of the personnel may be unwilling to train for the additional duties while others may have some physical handicaps which would make new training impossible. Although these employees may cause inherent trouble in the integrated department, they 19 'should be retained.’ Specialized duties, such as driving the fire apparatus or doing maintenance, clerical, or com- munications duties, or a combination of such duties can be l8Earle, gp. cit., p. 195. 19Personal interview with Glenford S. Leonard, Director of Public Safety, Oak Park, Michigan, April 4, 1960. 118 performed by these personnel. Training of new employees should include work in both fire and police duties with regard to techniques, practice drills, fire evolutions training, formal police and fire instruction at a university or training center, plus on-the- job training. At the completion of the second phase of retraining and recruit training, the two departments can be merged and begin operation under the integrated program. The third, fourth, and fifth phases of training described below are con- tinued after integration. The third phase of training includes advance train— ing for selected personnel. The officers must be carefully screened so as to provide adequate leadership. The advanced training these officers receive within the department and in schools should include prevention and investigation of acci- dents, crimes, and fires; advanced patrol procedures; in— spection procedures and drawing of attack plans for fire fighting; crowd control; use of specialized fire equipment; and legal and judicial procedures.20 The fourth phase of training includes specialized ad- . . . . . . 9 . . ministrative and supervisory training.~l SpeCialist and O 6 O O O C James, Police and Fire Integration in the Small City, 22° "CiE'v p° hl° A 41 . Earle . 1.19932- 119 supervisory training should not be given, however, until the officer becomes proficient in all phases of public safety operations. The fifth phase of training is continuous in-service and refresher training. Local, state, and national training resources can be utilized and cooperative training agreements may also be arranged with neighboring municipalities. This refresher training should include practical and actual fire training.22 The city should provide a fire training center where the personnel can review their work by actually fight- ing fires in elaborate buildings and mock-ups. Organization and Field Operations The organization of the integrated operation will depend upon local conditions and size of the department. Several generalizations, however, can be made. The administrator of the department should be directly under the municipal administrator and should serve at his pleasure. All of the principles of organization must be followed. Command must be clear-cut and unquestioned. The department should be organized with four or five divisions under the administrator, including operations, services, fire, and investigation; larger departments should also have 2 . . . 2R. Bruce Holmgren, "Fire and Police Integration--x Improvement or Impairmentt“ flayor and Manager (April, 1958) p. IA. 120 a training division. Special bureaus can be included under the divisions where needed. The operations division should include two, three, or four platoons, depending upon the number of personnel in the department. In larger departments, the fourth platoon would be for relief. The work week for all personnel should be forty hours. The functions and procedures of each division must be clear. The operations division should normally include such line activities as routine investigation, traffic control, fire fighting, rescue, and inspection duties. The fire division should include supervision of fire inspection programs, fire prevention, fire equipment maintenance, and fire fighting. The investigation division should include investigation of crimes, control of vice, narcotics, and liquor, and fire fighting duties where necessary. The services division should handle such auxiliary duties as departmental records keeping and communications supervision. The Operations division should stress immediate re- sponse to emergency scenes, inspection duties, and routine patrol. A residential inspection program should be under- taken by every integrated department along with the commercial, industrial, and public building inspections. Each public safety officer should perform these inspection duties. The inspection program should have a three-fold purpose: (1) fire prevention; (2) preplanning and drawing of fire attack 121 plans; and (3) public relations and public education. Supervision The integrated department must have adequate super- vision of its field personnel. The orders must be positive and authority unquestioned. The success of integration de- pends largely on the type of supervision of the field per- 23 sonnel. The success at fire-ground operations is where integration will prove itself. Obedience to authority at the fire scene must be unquestioned. Teamwork must be stressed. Problem Areas There are several problem areas of which the adminis- trator of an integrated department must be aware at all times. The first problem area is public relations. Positive public relations must be stressed at all times. The success of the public relations program will depend mostly upon the level of public protection attained. The public safety service must be superior to that of separate departments. In addition, a continuing public education program should be undertaken. TThis should include speeches before the various groups and n inspection or patrol duties and still be capable of 129 responding to all fire alarms, and usually respond speedier than when held in reserve. Integration has been tried in the United States and Canada in over sixty municipalities in varying extents since 1900. It has become especially popular in the past ten years. Integration has been successful in the majority of munici- palities where it has been adopted. It has been abandoned in several cities after a trial period, however, usually because of inadequate leadership or from lack of acceptance on the part of the public or police and fire services. With the growing number of municipalities examining the feasibility of integration, arguments for and against it have been advanced from all sides. Yet only two of the ar- guments advanced against integration have merit. Certain statutes and laws may dictate the form or extent of integration that may be adopted° Also, administration of the integrated department must maintain the importance of police and fire service on the same plane, lest one be subordinated to the other so that the extent and quality of its services suffer. Integration has several virtues which make it feasi- ble. The foremost advantage of integration is that it results in maximum public safety protection at a nominal expense. How- eever, the main emphasis is upon more effective prevention of czrime, fires, and accidents through increased patrol converage 61nd better inspection procedures. Integration can be credited with providing improved 130 fire protection, even in municipalities where an integrated program has not been adopted. It has caused fire protection personnel all across the country to reappraise their own de- partments for possible improved service. The fire service personnel and their union and social associations are the most vigorous opponents to integration. In order to keep integration out of many cities, individuals in the fire serv- ice have been looking for new means to prohibit or impede integration. Integration is practical for many American municipali- ties and worthy of being considered to improve the level of public safety protection. It makes the maximum use of the total personnel of the public safety services and governs the activities of those personnel toward the total solution of the total public safety problem. It is a departure from the traditional, but not necessarily the practical, means of pro- viding public safety protection. BIBLIOGRAPHY A. BOOKS Fosdick, Raymond B. American Police Systems. New York: The Century Company, 1920. Frost, Thomas A. A Forward Look in Police Education. Springfield: Charles C. Thomas, 1959. Harrison, Richard. The Story Lf the WOrld's Police. London: Phoenix House Ltd., 1955. International Association of Chiefs of Police. The Police Yearbook. Washington: International Association of Chiefs of Police, Inc., 1957. International City Managers Association. Municipal Fire Ad- ministration. Sixth edition. Chicago: International City Managers Association, 1956. . The Municipal Year Book.' 1950-1959 editions. Chicago: International City Managers Association, 1950- 1959. James, Charles S. A Frontier Lf'Municipal Safety. Chicago: Public Administration Service, 1955. . Police and Fire Integration in the Small City. Chicago: Public Administration Service, 1955. McCarthy, John J. The Science Lf Fighting Fire. New York: W. W. Norton and Company, Inc., 1943. National Board of Fire Underwriters. Safeguarding the Nation Against Fire. New York: National Board of Fire Underwriters, 1943. iJolting, DeWayne E. A Model Records and Reporting System for Fire Departments. Chicago: Public Administration Service, 1933. Reith, Charles. A New Study 2; Police History. London: Oliver and Boyd, 1955. 132 Smith, Bruce. Police Systems Ln the United States. New York: Harper and Brothers Publishers, 19A0 19A9. Stecher, Gilbert E. Fire Prevention and Protection Funda- mentals. Philadelphia: Chilton Co., Inc., 1953. United States Department of Commerce. Census 9; Population: 1 0. Volume I. washington: United States Government rinting Office, 1952. Wilson, 0. W. Police Administration. New York: McGraw-Hill Book Co., Inc., 1950. . Police Records: Their Installation and Use. Chicago: Public Administration Service, 1951. B. PUBLICATIONS Albertoni, A1. The Facts About Fire and Police Integration Ln California. Federated: Fire Fighters of California, September 15, 1958. Central Office of Information. The Police Service in Britain. London: Central Office of Information, November, 1953. Citizens Research Council of Michigan. A Sw wvey Lf the Integrated Police and Fire Operations Lf the Grosse Pointe Woods Department Lf Public Safety. Memorandum No. 191.‘ Detroit: Citizens Research Council of Michigan, June, 1957. . Integpation 9; Police and Fire Services in Lincoln Park, Michigan. Report No. 195. Detroit: Citizens Re- search Council of Michigan, May, 1959. . Integration Lf Police and Fire Services Ln PLrt Huron, Michigan. Report No. 188. Part I and Part II. Detroit: Citizens Research Council of Michigan, April, 1957. . Public Safety Services 1L Oak Park, Michggan. Detroit: Citizens Research Council of Michigan, May, 1956. .International Association of Fire Fighters. Fight Back! The case against the merger of fire and police services. Washington: International Association of Fire Fighters, 1959. 133 . The Professional Fire Fighter. Washington: Inter- national Association of Fire Fighters, 1952. . Why Wg Are Opposed pg Integration 9; Fire and Police Departments. Washington: International Association of Fire Fighters, November, 1957. Missouri Public Expenditure Survey.' Combined Police and Fire Services for Medium-Sized and Small Cities. Jefferson City: Missouri Public Expenditure Survey, February, 1960. McAllister, S. Wesley Jr. A Report 93 the Possibility 9; Fire and Police Integration ;p_Iowa City, Iowa. Iowa City: Office of the City Manager, January, 1958. National Board of Fire Underwriters. "Fire and Police Depart- ments—~Combining of" Special Bulletin No. 300. *New York: National Board of Fire Underwriters, November 30, 1953. Public Administration Service. (A Report 9p the Possible Inte- gration 9; Public Safety Services lg Shorewood. Chicago: Public Administration Service, April, 1956. . The Government Q; the City 9; Winter Park, Florida. Chicago: Public Administration Service, March, 1957. Wyoming Taxpayers Association. Integration 2; Police and Fire Dgpartments. Report No. 234. Cheyenne: Wyoming Taxpayers Association, December, 1958. C. PERIODICALS "Begins Integrated Fire and Police Services," Public Manage- ment, (July, 1954), P- 275. Botch, Raymond P. "How Elgin, Illinois Likes Joint Fire- Police Services," The American City, LXXIII (December, 1958), p. 18. "Combine Police-Fire Training in Glencoe, Illinois," National Municipal Review, (February, 1957), p. 75. "Dearborn Unites Police and Fire Department," National Munici- pal Review, (May, 1957), p. 251. Detzer, Karl. "The Changing Firehouse," National Municipal Review, (June, 1957), pp. 287-289. 134 . "A New Deal in the Old Firehouse," The Reader's Digest. LXVI (October, 1956), pp. 51-5h. Earle, Robert A. "Personnel Implications of Police—Fire In- tegrftgon," Public Personnel Review, (July, 1958), pp. 192' 9 o "Elgin, Illinois, Undertakes Joint Police-Fire Service," Na- tional Municipal Review, (March, 1958), p. 121. Holmgren, R. Bruce. "Fire and Police Integration - Improve- ment80r Impairment?" Mayor and Manager, (April, 1958), pp. ‘11}. . "Fire-Police Merger Needs Careful Study," Interna- tional Fire Fighter, (March, 1957), pp. 3-5. Hunter, H. K. "An Inte rated Public Safety Department," Public Management, May, 1951), pp. 105-107. . "Begins Fourth Year of Combined Fire and Police Service," Public Management, (Sept., 1953), p. 207. "Integrated Fire-Police Work 25 Years Ago," Public Manage- ment, (July, 195A), p. 156. "Integrates Fire and Police Services," Public MQnagement, (April, 195A), p. 156. "Integrates Fire and Police Services," Public Management, (May, 1954), p. 117. James, Charles S. "Concepts of Fire-Police Inte ration," Public Management, (Sept., 1955), pp. 194-19 . _______. "The Integration of Fire and Police Service," Public Management, (Feb., 1954), pp. 26-29. Jessup, J. A. "Ten Years of Sunnyvale's Combined Police and Fire Forces," The American City, LXXV (April, 1960), pp. 188-191. Leonard, Glenn. "Oak Park's Department of Public Safety--It . Works! Michigan Municipal Review, XXVIII (August, 1955), pp. lhs-lhgo . "Oak Park Improves Fire Insurance Grade," Michigan Municipal Review, XXXIII (March, 1960), pp. 57-70- "Merging Police and Fire Service Shows Benefits," National Municipal Review, (December, 1955), p. 579. 135 "Merger of Police and Fire Work Studied," National Municipal Review, (January, 195A), p. 37. Miller, William L. "Consolidated Fire and Police Departments," Fire Engineering, (February, 1957), pp. 132-187. Morris, Robert B. "Employees Trained for Police-Fire Duties," Public Management, (December, 1955), p. 276. . "0n Fire-Police Integration," The American City, ”mm (October, 1959), p. 122. "Plans Police-Fire Integration," Public Management (November, 1957), p. 256. Petersen, William H. "Integrated Police-Fire May Cut Costs," Méchigan Municipal Review, XXXI (Dec., 1958), pp. 278- 2 3. Pope, H. G. "Organization of Fire and Police Services in Small Cities," Public Management, (May, 1951), pp. 98- 10h. "Police and Fire Integration," The American City, LXXIII (July, 1958), p. lhh. "Police and Firemen Combined for Quarter Century," National Municipal Review, (September, 1954), p. #18. "Police and Fire Services Combined in 32 Cities," National Municipal Review, (June, 1957), pp. 292-293. "Recommends Public Safety Integration for Small Cities," Public Management, (August, 1955), pp. 182-183. Roan, Peter F. "Iowa City Sees Logic in Fire, Police Ingegration," The American City, LXXIV (May, 1959). PP. 2]. “‘21? 0 "Should Police and Fire Departments be Combined," The American Cit , LXXII (March, 1957), pp. 205-207. "Winston-Salem Tries Combining Police and Firemen," National Municipal Review, (June, 1957), p. 302. Woolley, Roi B. "Where Integration Failed," International Fire Fighter, (January, 1960), pp. 18-26. "Two Cities Inte rate Fire and Police Services," Ppblic Management, %January, 195A), p. 14. 136 D. UNPUBLISHED MATERIALS Alexander, W. George and L. A. Carriers. "Fire-Police Inte- gration in the Province of Quebec." Toronto: Ontario Fire Marshal Office, May 30, 1957. (Mimeographed.) 6 pp. Bergman, A. C. "City of Oakwood Police Department." Oakwood, Ohio: Office of the City Manager, October 22, 1956. (Mimeographed.) 5 pp. Bond, Horatio. "Memorandum on Integration of Fire and Police Departments." Boston: National Fire Protection Asso- ciation, 1957. (Mimeographed.) A pp. "Consolidated Fire and Police Departments into Department of Public Safety, City of Milton-Freewater, Oregon." 1958. (Mimeographed.) A pp. Gold, John M. "Report of Fire-Police Cooperation, Winston- Salem, North Carolina." Winston-Salem: Office of the City Manager, July 21, 1959. (Mimeographed.) A pp. Holstrom, John D. "Fire-Police Integration Current Trends." Speech given at the 85th Annual Conference of International Association of Fire Chiefs, Los Angeles, Sept. 18, 1958. (Mimeographed.) 5 pp. International Association of Chiefs of Police. "Fact Sheet on Combined Police and Fire Service." Washin on: Inter- national Association of Chiefs of Police, 195 . l p. James, Robert T. "A Plan to Provide for More Adequate Police and Fire Protection in Park Forest." Park Forest: Office of the City Manager, March 25, 1957. (Mimeographed.) 2 pp. Jerreris, Thomas K. "Combined Police and Fire System of Grosse Pointe Shores, Michigan." Grosse Pointe Shores: Office of the Village Manager, 1960. (Mimeographed.) l p. Jessup, Jacob A. "Department of Public Safety, Sunnyvale, California." Sunnyvale: Department of Public Safety, November 13, 19590 (Meimographed.) 7 pp. «hdhnson, Bert W. "Police-Fire Cooperative Questions and An- swers." Evanston: Office of the City Manager, March 3, 1958. (Mimeographed.) 5 pp. u 137 . "Questions and Answers Concerning Police-Fire Cooperative Program Experience to date." Evanston: Office of City Manager, December 28, 1959. (Mimeographed.) 6 pp. Lange, William H. "A Study of Fireman's Attitude Toward Integration of Fire and Police Services." Unpublished Master's Thesis, Wayne State University, Detroit, 1960. 63 PP-- Leonard, Glenford S. "A Critique on the Ontario Fire Mar- shall's Report on Oak Park Department of Public Safety, Oak Park, Michigan." Oak Park: Department of Public Safety, July 23, 1957. (Mimeographed.) 8 pp. . "On the Integration of Police and Fire Services." Speech presented at the Ohio Fire Chief's Convention, Springfield, Ohio, July 25, 1957. (Mimeographed.) 12 pp. . "Report of Fifth Year of Integrated Police and Fire Services." Oak Park: Department of Public Safety, Nov- ember 16, 1959. (Mimeographed.) 10 pp. . "List of Cities in the U. S. and Canada which have Integrated Police and Fire Services." Oak Park: Office of Department of Public Safety, February 26, 1960. (Mimeo- graphed.) 2 pp. McElroy, Mark. "Attorney General Opinion No. 219." Columbus, Ohio: Office of the Attorney General, September IA, 1959. McQuater, John R. "Department of Public Safety, Huntington Woods, Michigan." Huntington weeds: Department of Public Safety, 1960. (Mimeographed.) 3 PP. .Millie, Leon, gt a1. "Report on the Amalgamated Police and Fire Departments in the City of Oak Park, a Suburb of Detroit, Michigan." Toronto: Ontario Fire Marshal Office, January 3, 1957. (Mimeographed.) 5 pp. Morris, R. B. "A Report Describing the Combined Police- Fire Service of the Village of Glencoe, Illinois." Glencoe: Office of the Village Manager, May 6, 1957. (Mimeographed.) 6 pp. . "Glencoe, Illinois, Combines Police and Fire Services at the Request of its Police and Fire Personnel." Glencoe: Office of the Village Manager, November A, 1955. (Mimeographed.) 3 pp. 138 _ "When is Fire-Police Integration the Solution?" peech presented before the International City Managers Conference, Interest Group Session on Fire and Police Problems October 22, 1957, at Washington, D. C. (Mimeo- graphed.) 5 pp. O “F.- t.) Neale, John. "Integration of Fire and Police Departments." Speech given before the Fire Department Instructors Con- ference at Memphis, Tennessee, February 24, 1956. (Mimeo- graphed.) 7 Pp. O'Neill, C. William. "Attorney General Opinion No. 900." Columbus, Ohio: Ohio Attorney General's Office, November 7, 1951. (Mimeographed.) 8 pp. Report from a Committee on Police-Fire Integration. Presented to the City Council, Lincoln, Nebrasla, July 1, 1957. (Typewritten.) 2 pp. '4 Scott, Perry. "Critique of Leonard Williams Report - 'A Study of Sunnyvale Public Safety Department.'" A Report to the Sunnyvale Junior Chamber of Commerce, Sunnyvale, California: Office of the City Manager, March 18, 1960. (Mimeographed.) 15 pp. Trimble, Ernest. "Borough of Sewickley Heights Combined Police-Fire System." Sewickley Heights, Penn.: Office of the Borough Manager, January, 19 O. (Mimeographed.) 1+ pp- Williams, Leonard. "A Study of the Sunnyvale Public Safety Department." Sunnyvale, California: Office of the Junior ghamber of Commerce, February 29, 1960. (Mimeographed.) PP° E. NEWSPAPERS Eaton, William J. "179,918,794 in Census?" The [Lansing, Michigan] State Journal, April 10, 1960, p. 70. Eliot, George F. "How Well is Your Community Policed?" Egg [Royal Oak, Michigan] Daily Igibune Suburbia Today, April 9, 1960, pp. 10-47. "Lapeer Policemen Doubling as Firemen, Too," Detroit News, July 31, 1959, p. 340 139 F. PERSONAL LETTERS Ammerman, Jerome P., Assistant Chief of the Department of Public Safety, Sunnyvale, California, May 13, 1960. Bergman, A. C., City Manager of Oakwood, Ohio, May 4, 1960. Blong, W. J., Village Manager of Fox Point, Wisconsin, May 4, 1960. Brunton, Robert L., Assistant Director of International City Managers Association, Chicago, April 22, 1960. Carroll, Joseph T., Chief of Police, Lincoln, Nebraska, May 21, 1960. Castner, J. R., City Manager of Milton-Freewater, Oregon, May 2, 1960. Costello, George T., City Manager, Lake Alfred, Florida, June 23, 1960. Crichton, F. M., Chief of Police, Lincoln Park, Michigan, May 2, 1960. Endriss, Robert P., Research Associate of the Citizens Research Council of Michigan, Detroit, April 12, 1960. Fording, 2. H., Chief of Police, Berkeley, California, May 9, l9 0. Heinen, Howard A., Chief of Police, La Grange, Illinois, April 30, 1960. Holt, J. Lester, Chief of Police, Fort Lauderdale, Florida, May 5, 1960. Kimball, Warren Y., Manager, Fire Service Department, National Fire Protection Association, Boston, April 8, 1960. Lange, W. H., City Administrator, Grosse Pointe Woods, Michi- gan, May 19, 1960. Low, D., Chief, Fire Services Division, Ontario Fire Marshal Office, Toronto, May 13, 1960. Lydens, Peter F., Assistant to the City Manager, Winston- Salem, North Carolina, May 3, 1960. u ' « f 3.va Lon-ML so I'M “I We 06v -or:‘n I ' h ”N ' “or". ””‘Hv'! .: ".4 " 140 McAllister S. W. Jr., Administrative Assistant, Iowa City, Iowa, May 5, 1960. Nashnis, George, Administrative Assistant, Evanston, 111., June 17, 1960. Morrisé R. 8., Village Manager, Glencoe, Illinois, April 30, 19 0. Ratcliffe, Margaret, British Information Services, New York City, April 19, 1960. Secosh, Fred, Chief of Fire and Police Departments, River Hills, Wisconsin, June 21, 1960. Shirley, Harvey, Chief of Police, Champaign, Illinois, June 22, 1960. Shumate, Patricia, Research Assistant, National Municipal League, New York City, April 19, 1960. Sparkes, Wilford 8., Chief of Police, Buena Park, California, May 2, 1960. Van Ark, Robert, Assistant Research Director, Missouri Public Expenditure Survey, Jefferson City, May 4, 1960. G. PERSONAL INTERVIEWS Leonard, Glenford 8., Director of Public Safety, Oak Park, Michigan, January 5, April 4, June 20, 1960. Nowak, R., Fire Marshal, Oak Park, Michigan, January 5, April 4, June 20, 1900. Zir h... ..1 .T... ._ "Tu.. 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