SP’ECIALIZATIGN WITHIN THE POLICE
IURISDICTION, THE STRUCTURE AND
ORGANIZATION OF AN AGENCY

DESIGNED TO HAND-LE PROBLEMS UNIQUE
TO CULTURAL AREAS OF
METROPOLITAN CITIES

TItofls Ior I'Im Dogma OI M. S.
MICHIGAN STATE UNIVERSITY

Donald F. Stevens
1965

1H ESIS

A

LIBRA R Y
Michigan State

University

SPECIALIZATION WITHIN THE POLICE JURISDICTION,
THE STRUCTURE AND ORGANIZATION OF AN AGENCY
DESIGNED TO HANDLE PROBLEMS UNIQUE
TO CULTURAL AREAS OF
METROPOLITAN CITIES

by
DONALD F. STEVENS
AN ABSTRACT

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

MASTER OF SCIENCE
School of Police Administration and Public Safety

1965

APPROVED Ch /7)W f5} Jaw/v

/7- 5PM

Member

C}fy£<zm@

fiber

 

ABSTRACT
SPECIALIZATION WITHIN THE POLICE JURISDICTION,
THE STRUCTURE AND ORGANIZATION OF AN AGENCY
DESIGNED TO HANDLE PROBLEMS UNIQUE
TO CULTURAL AREAS OF
METROPOLITAN CITIES

by Donald F. Stevens

For almost half a century students of law enforce-
ment have concerned themselves with the doctrine of respon-
sible and effective public safety. The sociological
changes within our society have a direct bearing upon law
enforcement. Such changes require continuous modification
of existing law enforcement concepts and the reappraisal
of their application.

One affected sphere of our modern society is the
phenomenon of the cultural area in our metropolitan cities.
Experience has clearly indicated that a new concept in
law enforcement must be introduced if maximum security
in such areas is to be obtained.

One such concept is the realization and acceptance
on the part of institutions other than the municipal police,
of a share in the responsibility of providing for safety
and security in certain areas of the community. This respon-
sibility, once accepted, is best discharged through the
creation of a private police agency to extend the effective-

ness of the regular municipal agency within a highly

Donald F. Stevens

specialized area of the latter's jurisdiction.

To function with maximum effectiveness, a coordinating
group representative of all institutions of an area is to
be established. This central group shall have as its
scope of operation all internal and external security within
the cultural center and shall provide the direction and
coordination of such with existing law enforcement agencies,
toward the goal of total area safety and security.

A partial incorporation of such a concept has been
developed within the University Circle Police Department
of Cleveland, Ohio. This program implements the regular
police agency within the cultural area, with a private
police department. Although the Cleveland project is not
incorporated in its entirety as herein envisioned, it is
encouraging to note that to the degree that it has been
used, it has achieved gratifying results.

In conclusion, responsible law enforcement will not
become a reality until the basic premise that law enforce-
ment is a community responsibility is accepted in its
entirety. The police agency as such is but the external
symbol of this responsibility. Continued public support
and, when necessary, community involvement, is absolutely
essential if law enforcement is to prosper and maintain

its vital role in our society.

SPECIALIZATION WITHIN THE POLICE JURISDICTION,
THE STRUCTURE AND ORGANIZATION OF AN AGENCY
DESIGNED TO HANDLE PROBLEMS UNIQUE
TO CULTURAL AREAS OF
METROPOLITAN CITIES

by
Donald F. Stevens

A THESIS

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

MASTER OF SCIENCE
School of Police Administration and Public Safety

1965

PREFACE

Theorists, practitioneers, and students of law en-
forcement have long sought improvements in the police agency
along the lines of internal structure. Only recently
have students of law enforcement concerned themselves
with what has become known as the positivistic theory
of law enforcement. The advocates of this theory contend
that police agencies, to be effective, as instruments of
law enforcement, must seek not so much to compound the
structure of the police agency as such, but to utilize
all resources or agencies of the public and private comm-
unity in the interest of total safety and security.

The basic assumption of this paper is that the
broad sweeping changes of population concentration that
have taken place nationally within the United States call
for equally broad and sweeping modification of police
techniques and concepts. This study examines the impact
urbanization has had upon this nation and the ultimate
impact these sociological changes have had upon police
agencies. In so doing, it is not the purpose of the
paper to determine the various police agencies successes
and failures, but to determine the rational for the accep-
tance as an integral part of American law enforcement,

agencies outside the police agency accepting their full

iii

responsibility for providing community safety and security.

This entire study has been based upon the author's
personal experience, plus the limited endeavors attempted
by other public and private agencies. The limited avail-
ability of materials in this area of study has created
problems that can only be justified by the writer's attempt
to represent a cross-section of opinions. Finally, it
must be said that the author must take complete responsi-
bility for having in any way misrepresented the facts and
ideas upon which this paper has been based.

The gentlemen listed as having availed themselves
to personal interviews deserve special thanks for their
kind assistance and cooperation in the gathering of re-
search materials. I would also like to thank Mr. Raymond
Galvin of the Police Administration faculty for his guidance.
Special acknowledgement and thanks must be given to my
wife, Agnes, and the Rev. Fr. Mark DiNardo, who have con-
tributed much to the writing of this thesis. Without their
understanding and able assistance, this paper certainly

would not have been attempted, much less completed.

TABLE OF CONTENTS

CHAPTER PAGE
I. INTRODUCTION
Trend Toward Urbanization
Statement of the Problem
Hypothesis
Definitions of Terms Used
Cultural Area
Institutions
Coordinating Group
Regular Police Agency

Private Police Agency

0; (n -q \1 «q -q \J \n A) +4 l4

Urbanization
Organization of the Remainder of

the Thesis . . . . . . . . . . . . . . . . 8

II. DETAILED ANALYSIS OF HYPOTHESIS . . . . . . . 10

Statement of Hypothesis . . . . . . . . . . 10
The Coordinating Group . . . . . . . . . . . 13
Private Police Agency and Institution

Liaison. . . . . . . . . . . . . . . . . . 15
Private Police and Regular Police

Liaison. . . . . . . . . . . . . . . . . . 16

III. OTHER EXPERIENCES . . . . . . . . . . . . . . 20

CHAPTER PAGE
IV. CASE STUDY OF THE UNIVERSITY CIRCLE . . . . . 2A

Identification of the Problem . . . . . . . 2A
The Need for a Security Agency . . . . . . 25
Existing Police Services . . . . . . . . . 31

Meeting the Problem . . . . . . . . . . . . 32
General Recommendations . . . . . . . . . . 33

Organization and Administration . . . . . 33

Personnel . . . . . . . . . . . . . . . . 38
Age . . . . . . . . . . . . . . . . . . 38
Height and Weight . . . . . . . . . . . 38
Education . . . . . . . . . . . . . . . 38
Vision . . . . . . . . . . . . . . . . 39
Physical Condition . . . . . . . . . . 39

Intelligence Level . . . . . . . . . . 39

Emotional Stability . . . . . . . . . . 39
Physical Ability . . . . . . . . . . . 39
Character . . . . . . . . . . . . . . . 39
WOrking Conditions . . . . . . . . . . . AO
Salaries . . . . . . . . . . . . . . . . Al
Training . . . . . . . . . . . . . . . . A2
Communication . . . . . . . . . . . . . . A2
Vehicles . . . . . . . . . . . . . . . . A3

Uniforms . . . . . . . . . . . . . . . . A3

CHAPTER PAGE

Records . . . . . . . . . . . . . . . . . . AA
Distribution of Personnel . . . . . . . . . A5
Lighting . . . . . . . . . . . . . . . . . A6

V. CONCLUSIONS AND RECOMMENDATIONS . . . . . . . A7

Urbanization . . . . . . . . . . . . . . . A7
Traditional Concepts of Law Enforcement . . A8
Cultural Areas . . . . . . . . . . . . . . A9

Factors Indicating Selective
Enforcement . . . . . . . . . . . . . . . 50

Evaluation of the University Circle

Police Department . . . . . . . . . . . . 53
The Incidence of Crime . . . . . . . . . . 53
Regular Police-Private Police Liaison . . . 55

Growth in Public Participation and

Institution Expansion . . . . . . . . . . 56
Expansion of the Private Police Agency . . 58
Recommendations . . . . . . . . . . . . . . 60

Existing Institutional Police Services . . 61

Interior Security . . . . . . . . . . . . . 62
Internal Communications . . . . . . . . . . 6A
Lighting . . . . . . . . . . . . . . . . . 65
Personnel . . . . . . . . . . . . . . . . . 66

Training . . . . . . . . . . . . . . . . . 67

CHAPTER
Utilization of Personnel

Concluding Remarks

Questions to be Answered .

BIBLIOGRAPHY

PAGE

68
69
71
7A

vii

TABLE

II.
III.

IV.

LIST OF TABLES

Major Crime by Police Districts

Assaults on Women (1955-57)

University Circle Security Personnel
Manpower and Salaries (1957)

Major Crime by Police Districts

Assaults on Women (1961-63)

PAGE
29
30

37
54
55

LIST OF CHARTS

CHART PAGE
I. Crimes and Manpower (1953-1958) . . . . . . . 35
II. Distribution of Major Crimes and

Manpower . . . . . . . . . . . . . . . . . 36

CHAPTER I
INTRODUCTION
I. TREND TOWARD URBANIZATION

Two of the important areas of social concern discer-
nible in America today involve the growth in population
nationally, and the extensive and significant concentration
thereof. Between 1950 and 1960, the population of the United
States increased by twenty-eight million, an average of
almost three million per year. Highly significant is the
fact that the whole of this increase took place in urban
areas. During the same period, the population in rural
areas decreased by one-half million.l So great is this con-
centration today that one hundred twenty-five million persons,
or seventy per cent of the total population, are located in
cities, with fifty-four million individuals, or thirty per
cent, in rural areas. A tremendous transformation has taken
place since the first census in 1790. The population at that
time numbered less than four million, with rural dwellings
outnumbering the urban ninety-five to five. Today approxi-

mately two-thirds of the population live on less than five

 

1International City Managers Association, The Muni—
cipal Yearbook, Table I (196A), p. 22.

 

per cent of the nation's land area.2

The density in population consequent upon the trend
toward urbanization has had its repercussions upon society.
Among these are the following factors: great masses of people
residing on a small land area; a rapid rise of highly con-
gested neighborhoods with the attendant problems of insta-
bility; inadequate housing and recreational facilities;

3

changes in community structure, etc. Also evident, in
the wake of the shift in population, is a tendency on the

part of institutions of related purpose within the community

to locate in close proximity in order to provide more effective
service. It is quite evident that these factors will have

a direct bearing in providing for safety and security in

metropolitan cities.
II. STATEMENT OF THE PROBLEM

Traditionally the prevention of crime and the safety
of the citizens of a community has been the sole responsi-
bility of the police agency. As urban areas increase, there

A

arise situations unique in the history of law enforcement.

 

2

3Raymond W. Murray, "The City in Transition," Sociology
for a Democratic Society (1950), p. 232.

Ibid.

hBruce Smith "Parkway Police," Police Systems in the
United States (19623, p. 92.

3
The clustering of institutions--educational, cultural, and
social-—within a relatively small land area constitutes a
serious police problem. Such a situation can, under present
circumstances, be met only by drawing police personnel from
other sections of the city, or by an excessive expenditure
of police funds. Yet the police agency, as an institution
supported by the taxpayers of the entire community, cannot
be expected to provide all of the necessary police personnel
to remedy a situation for which the area institutions them-
selves are responsible. Hence, the novelty of the situation:
a dual responsibility for safety and security which must
be shared by institutions and police, community and private
enterprise. Mindful of the significance of these factors,
it is the function of this paper to examine in depth:

1. Areas within the community that are specifically
designed for educational, cultural, social, and
recreational purposes; areas that are, by their
very nature, conducive to criminal activity.

2. Providing a satisfactory and economically accept-
able police service to combat crime within these
areas without jeopardizing the level of service
rendered to other areas of the community.

To accomplish the police purpose within these specific

areas, it becomes necessary to view the police function as
a community effort. When the providing of basic police

service in a given area becomes prohibitive because of

additional costs and/or personnel, reason would indicate

that a re—evaluation of procedures is warranted. Should

it become apparent that the cause of the problem is to be
laid at the door of the institutions themselves, these latter
must share, with the police agency, the responsibility for
safety and security in the area, inasmuch as they have been

a material cause of increased criminal activity. As the
institutions increase in number and size, the problem of
safety becomes correspondingly more complex.

It is not the purpose of this paper to evaluate
critically all present-day police practices of metropolitan
cities; however, problems that are observed in these communi-
ties today may well make their appearance in most large
cities within the next fifteen years. If these problems are
to be faced realistically, a police program designed to
serve a modern society with modern police procedures must
be inaugurated. Cities have grown immensely in size and
complexity. It is the function of a police agency effectively
to maintain law and order in the total community. As
communities change, new challenges arise for the law enforce-
ment agency. It is vitally important that the police agency
remain abreast of these situations. The problems of tomorrow
will not be answered by the solutions of yesterday. Tech-
niques must keep pace with the everchanging complexities of

the time. There has been a general failure to develop the

5
kind of perspective and understanding that will facilitate the
comprehension of forces that are at work in society.5 Having
failed to implement traditional police procedures with new
and realistic ones, there has been an adherence to the old
as though it were sacrilege to deviate. There is no plateau
of efficiency in the police field. Agencies must strive
constantly to be attuned to social developments, and adapt
their methods to keep pace with them, or gradually decline in

overall effectiveness.
III. HYPOTHESIS

Within the cultural areas of our metropolitan cities,
there is a critical need for providing safety and security.
The only adequate solution to provide for total safety and
security is as follows:

1. The creation of an organization to represent the
various institutions of the entire area.

2. The inauguration of a private police agency to
augment existing regular police services.

 

5A. F. Brandstatter, "Police Administration, Develop-
ments in 1963," The Municipal Yearbook, International City
Managers Association (196A), p. A09.

Mobile, Alabama; Indianapolis, Indiana; and Fort
Worth, Texas, are recognized as recent exceptions to this rule.

6Samual G. Chapman, T. Eric St. Johnston, The Police
Heritage in England and America (Community Development and
Continuing Education Services, Michigan State Univers1ty,

1962), p- 45.

 

6

3. The effecting of a method of liaison coordinating
the efforts of institutions, private police agency,
and the regular city police personnel.

There does not exist, at this time, a criterion for

successfully developing a crime prevention program within
the educational and cultural settings of a metropolitan
area. Based upon the criterion of successful operation,

the information shall be analyzed in the following areas:

1. Is there an actual need for a private police
agency?

2. What are the obvious deficiencies in organization
that limit the police task?

3. What are the factors that contribute to success-
ful or poor liaison between private and regular
police agencies?

A. Identification of those factors essential for
successful operation.

There exists a definite relationship between criminal
behavior and certain factors that tend to encourage this
behavior. This study will be limited to: those factors
that make it necessary to take new and ultra-traditional
police measures; the organizational structure of the private
police agency; the operating procedure of the private police
agency; and the coordination necessary between private and
regular police agencies to insure maximum effectiveness by
both.

Sources of information available for this research

are:

1. Published material made available by limited
research projects previously conducted by private
agencies and institutions.

2. Personal interviews with those persons actively
participating in a private police function serving
a cultural area.

3. Examination of the organizational structure of

the private agency and its relationship with the
regular police agency.

IV. DEFINITIONS OF TERMS USED

Cultural area. Areas in which are located in close

 

proximity numerous institutions of a cultural, educational,

and social nature.

Institutions. All public or private non-profit

 

organizations having headquarters or facilities within the

cultural area.

Co-ordinating group. The official authoritative

 

group representing the cultural area as a whole. The function
of said group is general overall development and expansion
as well as the promotion of a favorable image of the area

at large.

Regular police agency. The law enforcement arm of

 

the city administration whose responsibility it is to provide

for safety and security in the entire community.

Private police agency. The law enforcement body

 

operating within the jurisdiction of the regular police
agency, providing a special security program within a

specific area.

Urbanization. The large geographical growth of

 

cities, suburbs, and satellite areas, interacting as a single

functioning group.

V. ORGANIZATION OF THE REMAINDER OF THE THESIS

To properly understand the complexity of providing
a police service, external to the regular municipal police
agency, it becomes necessary to examine in depth the philo-
sophical and functional foundations of the private police
agency.

Chapter II will present a detailed analysis of the
thesis hypothesis. This chapter will also encompass the
function of a coordinating group and the need for liaison
between the private police agency, the institutions of the
cultural area and the regular police agency.

A general analysis of four special police agencies
will be presented in Chapter III. Although these agencies
are all public in nature, their implementation within major

metropolitan areas is of great significance.

9
Chapter IV will present a detailed case study of the

partial implementation of this hypothesis. WOrking condi-
tions as they existed in 1959 will be explained. Modifica-
tions in these procedures will be discussed as they were
made through l96A.

Chapter V will indicate those factors of major signi-
ficance that strengthen the probability of successful
operation and present additional recommendations that are,
in the author's opinion, worthy of implementation if total

safety is to be attained.

CHAPTER II
DETAILED ANALYSIS OF HYPOTHESIS
I. STATEMENT OF HYPOTHESIS

Many varied techniques have been utilized by law
enforcement agencies to combat the incidence of crime within
cultural areas of metropolitan cities. The results to date
leave much to be desired. What is needed is a more funda-
mental evaluation in terms of basic principles of law en-
forcement.

Because of the variety of institutions represented
within these areas and the multiple services rendered to
the community, it is essential that the security program
be coordinated to provide maximum security within the entire
area. Many institutions within such areas are designed to
provide twenty—four hour a day service. Among these would
be hospitals, clinics, and research laboratories. All such
institutions require their employees to be on the streets
during the night and early morning hours. The majority of
these employees are women. As a result there is a predict-
able and continuous movement of female personnel going to
or from the various institutions. During the evening this
problem is compounded by the presence of thousands of visi-

tors, both male and female.

11

Educational institutions provide an additional
security problem. Large numbers of young men and women are
situated within a relatively small campus area. University
activity presupposes the movement of masses of people. Be—
cause the campus area has been built around existing commer-
cial and residential structures, it is not always possible
to locate dormitory units in close proximity to library
facilities, class rooms, parking lots, laboratory facilities,
or other focal points of student interest. As a result,
there are large numbers of men and women present on the
streets during the hours of darkness as well as daylight.
All of these are subject to and at the mercy of any indivi-
dual desiring to commit an act of violence against them.

Adding impetus to an already heavily exposed area
is the presence of institutions offering visitation or sight-
seeing attractions. Many of these institutions are open
seven days a week from early morning until late at night.
Visitors may well number in the hundreds of thousands
annually. During the summer months many of the institutions
provide instructional classes for children. These classes
are routinely scheduled out-of-doors in the park areas.

This type of teaching technique, though highly effective
from the instructional standpoint, has very serious ramifi-

cations from the safety standpoint.

12

The availability of cultural gardens and the vast
array of park facilities would further complicate the problem.
All of the individuals previously described make ample use
of these facilities. The employee going to or from work is
taking advantage of a direct route, the student is relaxing,
the children are playing, usually without supervision, and
the visitor to the cultural area is just looking. These
areas do not lend themselves to effective motor patrol
security. They require the continuous presence of uniformed
police officers on foot during the hours they are utilized
by the public. It is here in the garden and park areas that
exposure to criminal activity is the greatest and oppor-
tunity for concealment by the criminal easiest.

Because of the presence of employees, visitors and
guests of the many institutions, there are present thousands
of motor vehicles left unattended for long periods of time.
Minimum security in this one single area presupposes a well
coordinated effort by many institutions involving a con-
siderable number of men.

Consequently, to adequately maintain maximum safety
and security throughout, and to encompass all of the problems
unique to a cultural area, a coordinated effort of all the
institutions through a single, highly functional, centrally

located law enforcement agency is required.

13
II. THE COORDINATING GROUP

While these varied institutions possess individual
problems, relative to safety and security, it is imperative
that a security program be designed for the welfare of the
cultural area as a whole. To facilitate this end it is
necessary for the institutions to achieve unity of purpose
through a coordinating group. Without the direction afford-
ed by the coordinating group, the stability of the organ-
izations and the adherence to total area security are sacri-
ficed to chaotic, unregimented, individual institutional
need. The proper title of this coordinating group is not
important. Of crucial importance is representation of all
the institutions, identification of security problems, the
devising of a safety program broad enough to give direction
and at the same time flexible enough to provide service to
any institution when.need arises.

This representative group of institutions must
establish a permanent coordinating agency to follow through
on the proposed program of security. This group shall
hereafter be referred to as the "coordinating group."

It shall officially be the single group representative of the
entire cultural area. It shall serve as the official

spokesman for the area and be designated as the agency

lA
responsible for establishing those measures necessary to
insure total area safety and security.

To provide for the interests of the institutions in
terms of security shall be one of the important functions
of the coordinating group.l Theirs shall be the responsi-
bility for inaugurating a private police agency, designed to
serve the whole of the cultural area, an agency financed
in 3239 by the institutions, and responsible solely to the
coordinating group, the task of which group it shall be to
utilize the agency effectively within the framework of state
statutes, city ordinances and institutional situations of
need.

Automony of operation and independence from institu-
tional interference are the basic requirements for providing
effective total security. Of necessity, the private police
agency must be autonomous and capable of rendering a complete
program of basic police preventative patrol. Halfway
measures that necessitate reliance on existing police or
institutional security programs, handicap to a considerable

extent the potential of the proposed private police agency.

 

lThe coordinating group is not limited in function to
the development of a security program. They are additionally
responsible for area redevelopment, property acquisition,
planning, rezoning, public relations, etc.

15
The newly inaugurated program must include all factors per-
taining to safety and security. It must include interior
security as well as exterior patrol for maximum effectiveness.
Existing programs of security must be re-evaluated in view
of their scope, competence and task accomplishment. Although
two major areas of endeavor relative to the cultural area
may be identified as interior security and exterior patrol,
it is imperative that all security be subordinated to one
agency. Standardization of operation must be effected from
institution to institution and so organized that it best
serves the particular institution and the welfare of the
cultural area as a whole. Information will flow smoothly
and without interruption through a central agency. Inter—
, pretation of information and necessary action can best be
provided when related sources, considered collectively,
give a full and accurate evaluation of circumstances as

they exist.
III. PRIVATE POLICE AGENCY AND INSTITUTION LIAISON

Essential to this program of total area security is
the necessity of providing maximum liaison between private
police agency and institution. Experience has indicated
that any program of security, administered by an institution,

will, of necessity, be concerned primarily with interior

16

building security and perhaps to a minor degree, exterior
safety. These two areas are not so easily isolated when a
total program is considered. To remove from direct control
of the institution, a program of security that has been held
in esteem by the institution for many years, is a matter
requiring the utmost tact. Total security in a cultural
area can best be accomplished when control is centralized
and standardization of operation is effected. To facilitate
this, the institution must subordinate its personal needs

to the basic needs of the entire area. Responsibility for
total security in all of its phases must be fixed within the
private police agency. The securing of this objective is
the task of the coordinating group. Interference by institu-
tions can only undermine the effectiveness of the police

agency and severely handicap its operation.
IV. PRIVATE POLICE AND REGULAR POLICE LIAISON

Properly to establish a police service designed to
serve the total cultural area, there is a critical need
for coordinating the services of the private police agency
and the regular city police force. It is essential that both
agencies, private and public, recognize from the very begin-
ning that each is designed to accomplish the same objective.

Only through an extensive program of education, directed

17
at members of both agencies, can mutual understanding be
attained. A "looking down the nose" type of attitude can
arise very quickly on the part of members of both agencies.
Once developed, this impression is extremely difficult to
eradicate. Personalities play a strong role in human rela-
tionships. Given the opportunity to judge each other on
the basis of demonstrated ability, a harmonious working
relationship will develop in a short period of time. Once
this is established the role of each agency in the providing
of total security becomes more clearly defined as time goes by.

Though both agencies are closely allied in purpose,
they are miles apart in scope of operation. Whereas the
concern of the regular police force is city-wide, the pur-
pose of the private agency is to prevent the occurrence of
crime in a Specific cultural area of that city. The pre-
sence of armed and uniformed men strategically deployed on
foot and in marked police vehicles is generally an effective
deterrent to all but the professional hoodlum. Techniques
utilized to combat these individuals will be discussed in
Chapter III. In addition to routine foot and motor patrol,
it will be advantageous to the private police agency to
utilize the Special divisions of the regular police agency.
It is in this area that clearly defined procedures are to

be established and adhered to by personnel of both agencies.

l8

Prisoners must be transported routinely following an arrest
on the street. It is not reasonable for each agency to pro-
vide the necessary vehicles for transportation. What is
envisioned is a relationship whereby exchange of depart-
mental facilities routinely is effected.

The exchange of facilities must be broad enough to
provide the private police agency with all those resources
normally available to any officer of the city police depart-
ment in the accomplishment of this function. The private
police agency exists, not to supplant, but to supplement or
serve as an extension of the regular police force, within
a specific area of the latter's jurisdiction.

Separately, neither agency will ever satisfactorily
solve or even begin to control crime within the cultural
area. Working together the problem can be met and solved
to the advantage of the municipality, the citizens of the

community, and the institutions of the cultural area.

CHAPTER III
OTHER EXPERIENCES

The concept of providing police service through an
agency outside the scope of the regular police department
is not revolutionary in the sense that it has never before
been attempted.

It is not unusual to find a dicotomy of police service
of this nature in counties surrounding large metropolitan
areas. Such separate units are usually administered by the
local governmental board and operates entirely outside the
sphere of the local sheriff's office or municipal police
agency.

In Hudson County, New Jersey, there are, in addition
to the local municipal police departments, three county
police organizations performing special police duty in res-
tricted areas. The Hudson County Police Department performs
traffic duty on most of the state highways within the county
and upon certain county highways. The Hudson County Boule-
vard Police Department performs exactly the same kind of
police service but is limited to the Hudson County Boulevard.
The Hudson County Park Commission, employs special police

officers as park guards in each of the seven county parks

20
under their control.1

The Westchester County Parkway Police of New York
State, an agency of approximately 150 men, divides its
police responsibility with the New York State Police for
patrol of the state and county parkways within the county.2
By their very nature these police situations have arisen
only in the large and densely populated suburban areas.

Their chief contribution is the significant fact that ad-
ministration is entrusted to a public service agency, non-
police in nature.

Some of our larger cities also maintain specialized
police units which have enjoyed an independent existence
under the guidance of local public authorities. While these
special police agencies were created primarily to protect
public property, their police powers often are equal to those
of the regular police agencies. As a matter of practical
necessity today, they are charged not only with the pro-
tection of public buildings and properties, but also with the

safety of visitors and guests. Within the parkway police

 

1Commission to Investigate County and Municipal
Taxation and Expenditures, State E; New Jersey, Local Police
Protection Services and Costs, pp. 21-22.

2Institute of Public Administration, Report on Police
Administration in Westchester County, pp. l—l3.

 

2l
agency, responsibility is the enforcement of traffic laws
and ordinances, the investigation of robberies, auto thefts,
and a wide range of other offenses against persons and pro-
perty. In the regulation of traffic, the private park force
follows methods widely differing from those of the adjacent
regular police agency, thereby creating much confusion
among the motoring public. In criminal investigations,
practically all of the work is performed outside the special
police jurisdiction and within the sphere of the riygl
city agency. Whatever the faults inherent in an arrangement
of this sort, there is support for the premise that the
municipal police do not, and cannot, allot sufficient num-
bers of men and equipment to assure adequate police pro-
tection within specific areas of the municipalities.

Chicago struggled along for many years with no less
than nine park police forces, comprising 800 park policemen.
Expressways came under the control of as many as four sep-
arate and distinct police agencies. Uniform traffic enforce-
ment was impossible. Park thoroughfares cut across the
regular police jurisdiction from many angles. Business
streets were lined with banks, shops, and other major crime
hazards. From the police standpoint, these public merchants
were in a kind of twilight zone. The special police were

virtually negligible instruments in crime repression, and

22
the liaison between special and regular police was uncer-
tain, to say the least. Only rarely were the regular police
informed of persons wanted for criminal offenses by the
special police, while reports of motor vehicles stolen in
the special police districts regularly came to the atten-
tion of the city police at least twenty-four hours late.3
The Consolidation of the special police districts in Chicago
has reduced the diffusion, but it has not eliminated the
duplicating functions or complex administrative relation—
ships between city and special police officers.

A different type of special police organization is
that maintained in Massachusetts by the Metropolitan Dis-
trict Commission, a state body charged with water supply,
sewage disposal, and park administration functions. It
operates wholly within the Boston metropolitan area. The
function of this force of 225 men is superimposed upon that
of the regular police agencies. It provides the usual park-
way protection afforded by other similar police agencies,

plus the additional responsibility for the protection of

private homes and places of business within the jurisdiction

 

3Chicago Police Problems, pp. 163-65.

2:

of the special police commission.lI

Basic to the need for special police agencies pre-
viously described, is one common underlying factor: the
inability of the regular police agency to provide minimal
police protection within specific geographic areas of the
municipality. It logically follows that if a governmental
bureau, non-police in nature, can provide a special police
operation to solve a critical police problem within the
metropolitan community, then the same concept should be
applicable to a private organization, created to accomplish*
the same public service within areas combining public and
private properties. It is within the cultural centers of
metropolitan cities that this concept is applicable as the

basis of this thesis.

 

hFor a detailed description of the Boston problem,
see Report of the Special Commission on Taxation and Public
Expenditures, Part XIV, The Police Department of the Metro-
politan District Commission (House No. 171A, April, 1958).

CHAPTER IV
CASE STUDY OF THE UNIVERSITY CIRCLE
I. IDENTIFICATION OF THE PROBLEM

The University Circle of Cleveland, Ohio, is one
such cultural area. It encompasses approximately five hun—
dred acres within the boundries of the City of Cleveland.
Located within this area are thirty-seven private organiza-
tions rendering service to the community. More than eight
hundred Clevelanders serve on the boards of trustees and
governors of the Circle institutions. Almost fourteen
thousand full and part-time students study here. Visitors,
guests, and patients frequenting these institutions number
in excess of two million annually.

The situation facing the University Circle was a
serious one. As the problem area of the city of Cleveland
steadily advanced toward the boundaries of the University
Circle, visitors, guests, and students declined in numbers.
The University Circle was being unjustly stereotyped as a
seedbed of crime and violence. The problem confronting the
institutions was to develop a security program adequate to
reduce criminal activity to a minimum and insure the safety

of the people frequenting the facilities, and to recreate

25
a favorable image of the University Circle. It was this
realization of responsibility by the member institutions
to the community for the welfare of its citizens that led to
the establishment of a private police agency, an agency
provided for and financed by the institutions of the Univer-
sity Circle, for the purpose of supplementing the existing
security program.

The need for dynamic police procedures within the
University Circle was brought into sharp focus in two related
areas: the first, the disproportionately high rate of crime
within the neighboring sections of the City of Cleveland;
the second, the needs experienced by the institutions them-
selves. There is little to dispute the fact that enroll-
ments, attendance, and participation in the various programs

were seriously effected by the poor reputation of the area.

II. THE NEED FOR A SECURITY AGENCY

The overall plan of development for the University
Circle made increasingly obvious the need for a safety
agency within the area itself, designed to provide for the
welfare of institutional personnel and the general public
utilizing the facilities of Circle institutions. The nature
of the area surrounding the Circle was such that criminal

activity was an extremely serious problem. The protection

26

of life and property within the areas of the various insti-
tutions finally camato be recognized as a dual responsibi-
lity of both the municipality and the institutions. Conse—
quently, many of the institutions took positive steps on an
individual basis to provide security personnel. However,
these security personnel were concentrated on the grounds

of each hiring institution. Overall police patrol and other
law enforcement services were still the responsibility of
the City of Cleveland.

The difficulty involved in this duplication of police
effort was the growing feeling that "the other fellow"
would handle certain functions or be responsible for specific
areas. The responsibility for overall police coverage
throughout the University Circle was vague, being left to
the Cleveland Police Department with institutional forces
creating the superficial impression that this skeleton police
service on their part would suffice.

A variety of motives prompted the institutions within
the University Circle to study the feasibility of incor-
porating, supplementing, and improving police service within
the area. Not the least of these was the problem relative
to assaults upon women and the incidence of robbery.

It was recognized from the beginning that no econ-
omically feasible increase of police protection on the part

of the regular police agency would result in the complete

27
cessation of crime. The plan was, initially, for a sub-
stantial reduction in criminal activity, a reduction which
could be effected through the increase of mobile police
units and the coordination of all street and walkway safety
under a single police agency.

The University Circle presented an unusual set of
participants: employees, students, patrons, patients,
visitors, etc. These individuals have, unfortunately,
become the victims of the criminal element of surrounding
areas. The most pressing problem, relative to crime in
the University Circle, was the presence of an accumulation
or persons of wealth who seemingly were easy prey for crim-
inal activity, which originated from the city's worst
slums.

Crime in Cleveland's Fifth District was completely
out of proportion to the population. Thus, the potential
criminality which was bred immediately to the west of the
Circle, frequently manifested itself in the area of the
Circle institutions. It would be safe to say that were the
University Circle located in the suburbs of the city, there
would be no crime problem worth mentioning. However, such
is not the case, and indeed should not be so, for the ser-
vices and attractions of the University Circle must be

centrally located and convenient to the public.

28

The attack on the problem during 1958 was short-
sighted in scope, being designed to "hold the line," rather
than correct underlying basic problems. In making pro-
visions for additional security and safety within the Uni-
versity Circle, it was recognized that merely the symptom
was being treated, while the overall social cancer continued
to spread. The Fifth District remained the most trouble-
some of the city's six police districts and the University
Circle lies wholly within the boundaries of the Fifth
District.

Table I indicates that the Fifth District has a
highly disproportionate rate of crime. It also indicates
that the crime problem was steadily moving eastward from the
center of Cleveland and toward the University Circle area.
As may be seen from Table I, the Fifth District has con-
sistently shown a poor record in terms of major crime. In
the short period of three years, major crime increased
almost four per cent (A%) in the District. This increase
represents a definite shift in the concentration of the
crime problem of Cleveland, a shift which has placed the
bulk of major crime at the doorstep of the University

Circle.

29
TABLE I
MAJOR CRIME BY POLICE DISTRICTSl

A —
—— _

District 1955 1956 1957 % of Change: 1955—57

 

1 9.18 9.6 9.1 None

2 7.68 8.8 7.6 None

3 26.A5 2A.O 21.8 Down A.7%
A 15.35 13.6 1A.A Down 1.0%
5 28.67 30.1 32.2 Up 3.6%

6 12.A5 13.1 1A.8 Up 2.3%

 

While examining the problem of crime and evaluating
the necessity for additional police service within the
Circle, the question must be asked: How great was the crime
problem in the Circle itself? Statistics indicated that
the Fifth District of the Cleveland Police Department is
comprised of nine individual patrol zones. The University
Circle is contained within the boundaries of Zone 532.

Over a three year period, the total offenses in the Fifth
District increased by fifty-seven per cent (57%). During

this same period, major offenses against women increased

 

1Figures from Annual Reports of Cleveland Police
Department, 1955, 1956, 1957.

30
in Zone 532 by thirty-five per cent (35%). This occurred
at a time when the increase in total crime city-wide was
a scant 2.1%, and major crimes against women had decreased
by .8%. The following table shows the incidence of assaults

on women in the Fifth District from 1955 to 1957.

TABLE II

ASSAULTS ON WOMEN (1955-57)2

 

Year Rape Robbery Purse Ass/Bat. Totals % City

 

Snatch Total
Dist. 5 1955 2A 17 82 23 1A7 AA.3
Zone 532 1955 2 l 5 6 1A A.2
Dist. 5 1956 32 3A 105 10 181 39.9
Zone 532 1956 5 2 7 -- 1A 3.1
Dist 5 1957 36 5A 138 29 257 46.A
Zone 532 1957 1 2 13 3 19 3.A

 

One of the major concerns in the University Circle
was assaults upon women which at times had racial overtones.
When this was the case, the sensitivity of the general public
on such matters and the sensational character of publicity
afforded them made for a problem of major proportions in

regard to public relations. Without rendering a judgment

 

2Figures from Annual Reports of Cleveland Police
Department, 1957.

31
as to the validity of this type of editorial policy, it
was sufficient to recognize that it did exist and that
such publicity, once given, was almost impossible to eradi-
cate. It became apparent that many people had the belief
that the University Circle was infested with rapists and
robbers, and that the chances of visiting the area and
escaping unscathed were relatively slim. This belief led
numerous individuals to avoid the area and its many attrac-
tions. The problem then was twofold: to provide the
necessary security and to restore a favorable image of the

Circle in the eyes of the general public.
III. EXISTING POLICE SERVICES

Public safety in the University Circle, prior to
1958, was provided for primarily by the private forces of
the larger institutions. In terms of numerical strength,
it appeared that the force was more than adequate to meet

3

all problems of a criminal nature. Such was not the case.
Each institution was concerned with its own security pro-

blems; the bulk of manpower employed by the institutions

 

3A glance at Charts I and II, pages 35 and 36,
would indicate that surplus manpower was at a premium in
the 5th District, as was the case uniformly throughout
the city.

 

32
was assigned to work within the confines of a single group
of buildings; the advanced age of many of the men precluded
any rigorous outside preventative patrol.

The patrol services provided by the Cleveland Police
Department were handled by the single patrol vehicle from
Zone 532. When needed, additional personnel were pressed
into service to combat the increasing rate of crime. These
included special duty squads, uniformed officers on foot
and horseback, policewomen in plain clothes, and "flying
squads" of mobile patrol units. Unfortunately, this addi-
tional manpower was being drawn from other areas of the
city and this at considerable expense by way of financial
outlay and increase of vulnerability to crime with the city

at large.
IV. MEETING THE PROBLEM

The urgency of finding a solution to the problem in
the University Circle was one which could not be minimized.
Measures had to be taken immediately to restore the public's
faith that they could again enter the area secure in person
and property. Circumstances indicated that added police
manpower was warranted in the Fifth District of the Cleve-
land Police Department. However, the complexity of the
task in terms of reorganization and distribution of man-

power, coupled with the additional expenditure of police

 

33
funds made this highly impractical.

To assure the continued development and growth of
the University Circle, growth and development largely
dependent upon public utilization of the area, the insti-
tutions themselves, acting as one, assumed the burden of
providing a uniformed mobile patrol force. The aggressive
approach under consideration would be a departure from the
long-established practice of independent security forces.
It could only be accomplished through the complete COOpera-
tion of all the institutions concerned. The problem was
"Circle-Wide;" the solution, of necessity, had to originate
from within the group of institutions forming the Univer-

sity Circle, the following recommendations were presented:

General RecommendationslI

 

That a uniformed police patrol force consisting of
a chief and fifteen men be established with University
Circle-wide jurisdiction, responsible for patrolling all

properties of the Circle.

Organization and Administration

 

1. That immediate steps be taken to determine the

ability and willingness of the institutions of the University

 

hPrepared by Mr. George O'Connor, Instructor of
Criminology, LaweMedicine Center, Western Reserve Univer-
sity, 195 .

 

3A
Circle to give active support to the University Circle
Police Department.

2. That methods of assessment and collection of
"taxes" to support the U. C. P. D. be developed and applied
upon approval of the overall plan by the institutions.

3. That contracts to cover at least a two-year period
be drafted and presented to the institutions in order that
the U. C. P. D. be guaranteed a relatively permanent
existence. That included in such contracts there be spe-
cific provisions for either the expansion or reduction of
the U. C. P. D., as circumstances would warrant.

A. That upon receipt of formal approval by the
institutions, immediate steps be taken to recruit, select,
and train a group of fifteen men of the rank of patrolman.
That a qualified Chief of Police be selected to administer
and supervise the activities of the Department.

5. That the Chief of Police be responsible directly
to the President of the University Circle Development
Foundation. That the Chief of Police be responsible for
the operation, supervision, and administration of the
Department.

6. That subordinate members of the U. C. P. D.
be directly responsible to the Chief of Police until such

time as supervisory positions are created.

 

35

PERCENT IN EACH DISTRICT

um

«0

Nu

NO

022mm 96 ZDZpofmm .mmwlwmm ua m. 03 99.1036 team 05.103

 

 

 

III-I. u a; 05.... Calm
III... a 03 gm... {fizaimm
u wan U_m4. mum—gm
Eli: .- “a O_m._.. KPZVOimm

 

 

 

 

 

 

 

Mina H;

 

I
I
J...l..-L_._L

 

 

 

f

I \O

T. \O . A
.o:..oooooaoo::::::3..3.. . . .\o0. '.'..'.'.'.' .IL

......... . .'.'.l.'.. I‘.

r . 'o'..'.'.' o ............... '“ouoao' ll“.

r . .'.l.l.l \ 30...... . 1.

a i o A

T .3 co: 6... .an I.

1 I

1| '-

W I

w ‘Ou.|““ I

f .U---G--'-'o.l""-'l"l.fl"- “““ I*

IUUII'UIO lo.
7 1
F .. - i--LxI-1 I II: : p
63 6...... 63 .wum $3

SLOIBLSIO BOI‘IOd

 

 

 

 

 

 

 

 

PERCENT

‘03

  
 

HBMOdNVN

 

“w

'////A

"GEQ

         

SEWIUG

m

HBMOdNVW PUD SBWIHD HOPVW 5° NOILI'IBIHLSIO

”'11: .LHVHO

 

 

 

37
TABLE III

UNIVERSITY CIRCLE SECURITY PERSONNEL
MANPOWER AND SALARIES 1957

 

 

 

 

 

 

Full Part
Institution Time Salary Time Salary
Men Men
Inst. of Art 1* $ 2,160
Museum Nat. Sci. 2 $ 8,300 2 1,66A
Benjamin Rose Hosp. 1 720
(Univ. Hosp.
Univ. Hospitals 18 59,776 Contract)
Western Reserve Hist. Soc. 3 6,A28
Museum of Art 2A 80,000
Case Institute 7 32,356 1 1,3A0,
WRU 12 6A,198 6 13,295
Severance Hall 1 3,550 1 1,080
Mt. Sinai Hosp. 8 2 60
75 27 ,9 12 $20,259
Cleveland Police** 2 A 000
’77‘" W8 12 $20,259

Total $303,227 per year

 

*Performs custodial duties also.

**The Sherwin Fund provides payment of $A,000 per
year to the City of Cleveland to help pay salaries of two
Cleveland Police Officers assigned to patrol the Fine Arts

Garden.

NOTE: Some institutions such as the Cleveland Area
Heart Society are forced to hire private guards for limited
periods of time for special exhibits, protection of funds,
etc.

38
7. That existing security and protective forces
employed within the University Circle by the member insti-
tutions be coordinated through the U. C. P. D. That all
exterior patrol functions now being performed by existing
forces be assumed by the U. C. P. D., the present forces

then serving as interior security personnel.

Personnel

 

 

That fifteen men be employed to serve as patrolmen.
That men of the highest caliber be selected to fill these
positions to insure the highest level of service. That in
consideration of the nature of the duties, aggressive young
men with energy and intelligence be attracted to these
positions. To achieve this level of service, the follow-

ing qualifications and requirements are recommended:

Age. Twenty-one to twenty-nine years (five years of
municipal police experience to be recognized, allowing for

a maximum age of thirty-five years).

Height and weight. Minimum height of five feet,

nine inches, weight in proportion.

Education. High school graduate, with additional

 

credit given for advanced training in police administration,

police science, criminology, and related subjects.

39

Vision. Free from color blindness; vision to be

corrected to 20/20; no worse than 20/100 uncorrected.

Physical condition. Excellent, as determined by I

 

complete medical examination. To be free from any and all

disabling conditions or limitations.

Intelligence level. Above average, minimum standard,

 

 

110 intelligence quotient, as determined by Western Reserve

University Psychological Testing Center.

Emotional stability. To be determined by psychiatric

 

interview.

Physical ability. To be established by a series of

 

tests designed to measure endurance, coordination, and

strength.

Character. To be beyond reproach and free from un-

 

desirable traits. All candidates to be fingerprinted and
local, state, and federal records checked.

That the position of Chief of Police be filled through
the selection of an individual demonstrating superior
ability in the field of police administration. That can-
didates for this position show evidence of having had

valuable experience in police work or work of a comparable

A0
nature. That college level training in law-enforcement
be required. That the Chief of Police be capable of engag-
ing in active patrol and investigation in addition to his
administrative and supervisory duties. That, therefore, a

relatively young and aggressive man be chosen.

Working Conditions

 

1. That members of the U. C. P. D. work a forty (A0)

 

hour week. That all overtime be compensated for with addi-
tional time off or with pay.

2. That retirement plans, group insurance, and '
other fringe benefits be established at the highest levels;
that by providing such inducements, men with experience be
drawn from surrounding municipalities, men with experience
and interest.

3. That vacations consist of fourteen (1A) calen-
dar days for the first five years, and fifteen (15) work-
ing days after five years.

A. That advancement to higher ranks be based on
demonstrated ability from within the ranks. That such
supervisory positions, though limited in number, be deemed
essential as the Department becomes more diversified. That
aside from the benefits derived from supervision, the

positions provide incentive to members and serve as a

A1

stimulus toward a career service.

Salaries
1. That the salary schedule for patrolmen be set at
the following levels:

a. 5,500 for the first year.

b. 5,600 for the second year.

c. Merit increases of $100 per year to be a
maximum of $6,000. Merit increases to be
based on demonstrated interest agd ability,
and not strictly upon seniority.

 

2. That the salary schedule for Supervisory Officers
be set at the following levels:
a. $5,900 for the first year.
b. 6,000 for the second year.
c. Merit increases of $100 per year to a
maximum of $6,A00.6
3. That the salary schedule for the Chief of Police
be set at the following levels:
a. 7,500 for the first year.

b. 7,750 for the second year. 7
c. Other increases to a maximum of $8,000.

A. That the high level be such that men of ability
and integrity be attracted to these positions. That salary

levels not be lower than the City of Cleveland Police

 

5Patrolmen salary scale 1963: $6321 to $7000.
6Supervisory salary scale 1963: $7300 to $7700.
7Chief of Police salary scale 1963: $8500 to $13,000.

A2

salaries, and perhaps be even higher.

Training

The training program offered in March of 1959 was
designed and administered by the LawsMedicine Center of
Western Reserve University. It consisted of approximately
eighty hours of basic police instruction pertaining to law,

search and seizure, arrest, first-aid, self-defense, and

 

limitations imposed by the private police commission.
Additional instruction was provided during this period

by the Department's first Chief, John P. Howard. This
consisted of approximately twenty-four hours of instruction
covering areas such as the geographical layout of the Uni-
versity Circle, location of major institutions, identifica—
tion of problem areas and operating procedure of the newly

created department.

Communication

 

Communication during the first month of operation
was limited to the telephone. Two phone numbers were for
public use. A mimeographed from was provided to each of
the institutions indicating the location of headquarters
and the numbers to be called when police service was
required.

Two portable radios were provided for the use of

A3
foot patrolmen. Communications were processed daily from
headquarters between the hours of 5:00 P. M. and 2:00 A. M.
Calls were received and cars dispatched from this point.
All telephone service and dispatching of police vehicles
at other times was conducted through the Academy of Medi-
cine answering service.

In November of 1963, the communications system was

revised and all calls were processed through headquarters.

Vehicles

 

Three vehicles were originally provided for police
patrol. These were completely outfitted with radios, emer-
gency lights, sirens, and police markings. The color of
the vehicles was forest green. The word "POLICE" appeared
in white lettering on the side of each front fender. The
words "University Circle Patrol" appeared on the door
panels. It was felt that this afforded sufficient identi-
fication for the police vehicles and at the same time did

not conspicously identify them.

Uniforms

 

Forest green was selected as the official uniform
color. Each officer was provided with all of the necessary
uniform equipment. The full uniform is worn by every officer

during his tour of duty.

AA
The color of the uniforms and the utilization of
distinctive shoulder patches, chest badges, and hat shields
were designed to permit recognition of the private police
officers. It was felt that the complete uniform should
be so designed to be easily distinguishable from that worn

by the regular police agency.

Records

Initially, records were maintained by utilizing a
three by five card index filing system. All complaint
forms were numerically filed. Provision was made for
routine analysis of police services and area needs. Un-
fortunately, all police forms, criminal and non—criminal,
were filed together. All personnel of the department were
permitted to make departmental record checks. The result
was gross filing errors, lost forms, and the impossibility
of proper records analysis.

In October of 1962, the Key-sort Card-index System
was introduced. Criminal and non-criminal complaints were
filed separately. Complaints were now filed under the
headings of offenses, witnesses, complaints, victims,
Officers, and location. Records were made accessible only
to supervisory officers of the department.

A monthly report of police services was provided to

 

1+5
all institutions of the Circle. Offenses and non—criminal
incidents were recorded and a correlation of crime trend
indicated to each of the institutions. The total hourly
operation of the department was set forth and safety

factors were critically evaluated.

Distribution 9f Personnel

 

 

The designating of foot beat zones and the assign—

 

ment of men according to time of day was made on the basis
of a study conducted by the Law-Medicine Center of Western
Reserve University.8
Statistics indicated that the peak hours of criminal
activity were between seven in the evening and one in the
morning. To concentrate the maximum number of men during
these particular hours, a four shift assignment was set up.
Three of the original complement of fourteen men were
assigned to the day shift. Two one-man patrol vehicles
were manned in areas designed as North Zone and South Zone.
When days off permitted, the third officer maintained
roving patrol of both zones. The afternoon shift also

consisted of three men and performed essentially the same

basic patrol functions as the day shift.

 

8Statistics gathered by Mr. G. O'Connor covering the
period from 1955 to 1957 inclusive.

A6

At six every evening, three or four men, depending
on scheduling factors, began their tour of duty. This
group was identified as shift number four and worked from
6:00 P. M. until 2:00 A. M. All of these men were foot
beat officers. They were assigned daily within specified
beat zones and provided a continuous patrol of areas where
patrol by motorized units was ineffectual or impossible.
The midnight shift, or shift three, contained remaining
personnel, usually three in number.

In the beginning one man was designated by the Chief
as Officer in Charge. This individual worked from seven
in the evening until three in the morning. He routinely
patroled both motorized patrol zones and was responsible
for the operation of the Department in the absence of the

Chief.9

Lighting
A major problem in providing adequate safety within

the Circle was inadequate lighting in areas accessible only

by foot. As a result of the research conducted by Mr. G.

O'Connor in 1958, thousands of dollars were spent by various

institutions to correct this situation.

 

9This practice continued for approximately three years.

 

CHAPTER V

CONCLUSIONS AND RECOMMENDATIONS

Urbanization

 

The tremendous growth of the urban population of the
United States is neither a startling nor unforseen circum-
stance. It has, in fact, been increasing steadily since
the turn of the century. What is truly significant about
the decade 1950-1960 is the alarming proportion in which
urban areas have increased and at the same time rural areas
decreased in population.

Our law enforcement system is Anglo-Saxon in origin.
The density of the national population is now concentrated
on such a relatively small land area that the local community
is rapidly losing its individual identity. Urban communi-
ties today are often not recognized as separate municipali-
ties. Rather, the entire urban area is identified as
"Greater Cleveland," or perhaps "Metropolitan New York
City." Indications are that urbanization will increase

until the United States becomes a nation of metropolitan

 

lLocal community law enforcement to handle local
criminal activity.

A8

areas .

Traditional Concepts 9f_Law Enforcement

 

The traditional concept of community law enforce-
ment no longer suffices to meet current problems. Cities
are no longer small, isolated, easily identifiable entities.
Masses of people now travel distances routinely for work,

recreation, or education, thereby passing through a number

 

of communities. Police procedures designed to serve a
stable, homogeneous community of the past must be realigned
to meet the needs of this broader community concept. This
task will not be accomplished by any police agency acting
independently of the society it serves. Every conceivable
tool available to the police agency must be utilized by
that agency to its maximum potential. This means that
both community and police agency resources must be blended
into a single, functional, highly effective law enforce-
ment program. It is highly unrealistic to assume that
techniques that have proven effective in the past will

infallibly remain so. This becomes increasingly clear

 

2Robert I. White (Speech delivered to the Northern
Ohio Chapter of American Institute of Planners, Kent, Ohio,
January 20, 1965).

A9
with the passage of time. The radical changes in the
structure of society indicate that modification is not
merely warranted, but essential.

We must accept the premise that as the structure of
society changes, the police agency must correspondingly be
prepared to re—evaluate its methodology and make changes
when needed if it is to remain an effective instrument of
law enforcement. Granted the validity of this principle,
re-evaluation today is most assuredly in order. Local
problems have assumed metropolitan proportions. Again,
metropolitan areas themselves are so structured that a
highly intensified operation is needed in specific areas
if competent law enforcement is to be secured. Ttis with
this latter facet of the problem that this research is

concerned.

Cultural Areas

 

One feature of urbanization evidenced of late has
been the problem of safety and security in cultural areas
within a metropolis. The cultural area pg; s2 is not a
result of urbanization. The difficulties, however, that
police agencies encounter within these areas are the direct
result of urbanization.

Twenty-five years ago almost all of the major cities

50
of the United States possessed to some extent areas designed
for higher learning, recreation, or the fine arts. These
areas were generally located in, or in close proximity to,
the wealthy residential sections of the community. They
were symbols of prosperity, and designed to serve a small,
highly selective segment of the community. As urbanization

increased, these old, wealthy, residential sections of

 

the city were the first to feel its effect. Large, Sprawl-
ing mansions of another era were converted into multi-
family dwellings. Maintenance and repair were neglected.

A new slum area was born.

Although residential neighborhoods surrounding the
cultural area were deteriorating, the cultural institutions
were not. As a result of the dramatic increase in popula-
tion, new demands for service were now being made of the
institutions. University enrollments were increasing
significantly. Museums and historical societies exper-
ienced an upsurge in attendance. Expansion was in order
as the general public, numbering in the hundreds of thou-
sands, replaced a small, selective membership of a gener-

ation past.

Factors Indicating Selective Enforcement

As cultural areas expanded to meet a growing demand

 

51
for service, the deterioration of surrounding residential
areas continued. Slum districts increased from relatively
small, isolated neighborhoods to expansive, crowded, highly
explosive major segments of the total community. As crimin-
al activity increased within the slum districts, its effect
inevitably was felt within the cultural area. All of the
factors conducive to criminal activity were found here.
Persons were present in great numbers, many of whom were
wrongly identified as wealthy and easy prey simply because
they frequented the institutions. Activity was usually
the greatest during the evening. Many times much of the
area was unlighted and consequently concealment readily
possible for the criminal.

0f major significance to police agencies is the
realization that the cultural area as such is rapidly
developing into a serious police problem. Because the
geographical distribution of institutions is extensive and
a considerable portion of the area is accessible only on
foot, many more police officers and considerable more police
equipment is necessary to provide minimum police service.
This distribution is completely disproportionate to the
community as a whole. When economic factors are considered,
adequate police service, even minimal, is found to be

wholly unfeasible. Not one dollar of taxation is derived

52
from the cultural area.

The problem confronting the police executive is one
of serious consequence. How can maximum police service be
provided this area without jeopardizing the remainder of
the community? Can the responsibility for policing the
cultural area remain the sole responsibility of the regular
police agency? Can new and yet unproved techniques be
utilized to solve the problem to the satisfaction of the
regular police agency, the community at large, and the in-
stitutions of the cultural area? Such was the dilemma of
the University Circle of Cleveland, Ohio, in 1959. The
problem was met by the Cleveland Police Department and
the member institutions of the University Circle. A solu-
tion was outlined on the basis of a joint responsibility
for safety and security on the part of the city police
agency and the institutions themselves. A private police
agency was created to provide necessary safety within the
University Circle--an agency financed by the Circle insti-
tutions.

The plan was bold; the approach was new. The rela-
tive success of the undertaking can be determined by exam-
ining the results of the first five years of operation by

the University Circle Police Department.

53

Evaluation 9f the University Circle Police Department

 

To make the emphatic statement that "the safety and
security enjoyed today in the University Circle can be
attributed to the operation of the University Circle Police
Department" would be to deny the existence of other factors
that may have contributed to the success of the plan. With-

out going into detail, some of these factors may be identi-

 

fied as: the continued presence of Cleveland Police motor-
ized units, foot beat men, mounted and motorcycle officers;
the presence of parking lot attendants at many of the major
institutions; the construction of parking buildings; the
installation of police emergency telephones; and the
demolition and clearance of many residential and commercial
buildings by the University Circle Development Foundation.
It is well to observe that many of these factors were
present prior to 1958 and seemingly had little or no effect
upon the occurrence of criminal incidents. It was not
until the early part of 1960, following the creation of the
private police agency on March 15, 1959, that any truly

significant results were realized.

The Incidence of Crime

 

The statistics from Table I, Chapter III, page 20,

covering the period between 1955 and 1957, indicate a

5A
substantial increase of criminal activity. In the period
between 1961 and 1963, a very definite decline in crime
for the Fifth District of the City of Cleveland was evi-
denced and a corresponding decrease in Zone 532, which
contains the University Circle. The single major factor
that differentiates the two periods is the presence of the

private police agency. A comparison of other police dis-

 

tricts within the city does not indicate that this decline
was city—wide.
Tables IV and V show the crime rates for the years

1961, 1962, and 1963.

TABLE IV
MAJOR CRIME BY POLICE DISTRICTS3

 

 

District 1961 1962 1963 % of Change 1961-1963

 

l 8.A 9.43 10.0 Up 1.6%
2 8.A 8.72 8.8 Up 0.A%
3 18.1 17.29 15.5 Down 2.6%
A l7.A 15.99 16.2 Down 1.2%
5 30.8 30.81 31.1 Up 0.3%
6 16.9 17.72 18.A Up 1.5%

 

 

3Figures from the Annual Reports of Cleveland Police
Department, 1961, 1962, 1963.

55
TABLE v
ASSAULTS 0N WOMEN (1961—63HI

 

 

Year Rape Robbery Purse Ass/Bat. Totals % City

 

Snatch Total
Dist. 5 1961 35 70 156 19 280 A5.3%
Zone 532 1961 1 15 1A 3 33 5.3%
Dist. 5 1962 A2 68 129 25 26A AA.3%
Zone 532 1962 2 9 7 3 21 3.5%
Dist. 5 1963 26 107 125 A3 301 A0.8%
Zone 532 1963 6 5 7 3 21 2.8%

 

Regular Police-Private Police Liaison

On the surface, the decrease in crime within the
University Circle would indicate that the private police
agency had accomplished its primary goal of providing
maximum safety and security. However, there are other
factors that should be considered. When this plan was
originally conceived, it was recognized that the possibility
of conflict between the regular and private police agency
could very well destroy the plan before it had ample oppor-
tunity to prove its value. There were situations in the
early months of operation that indicated the need for

understanding and tolerance by both agencies. These

 

“Ibid.

 

56
difficulties were neither continuous nor were they always
of a minor nature. However, whenever two law enforcement
agencies operate within the same jurisdiction, problems
will necessarily arise. Consequently, it was deemed
imperative that some means of active, continuous liaison
be instituted to deal with such problems if the goals of
both agencies were to be attained.

It is a tribute to the Cleveland Police Department
that this bold and daring departure from traditional police
procedures could be conceived, inaugurated, and so capably

effected.

Growth ip Public Participation and Institution Expansion

A significant factor indicating the inadequacy of
the early concept of safety within the University Circle
was the gradual decline in public participation in the
various programs of Circle institutions. This was not a
situation that the institutions were suddenly or unex-
pectedly confronted with. A gradual leveling off of peak
participation occurred during the late 19A0's. Every
effort to stimulate and encourage public participation was
made by the major institutions to counteract this trend.
Unfortunately, these programs were conducted on an indivi-

dual basis with little cooperative effort expended by two

 

57
or more of the major institutions. By the mid 1950's, the
situation had reached alarming proportions. It was at
this time that the institutions realized that a cooperative
approach to the situation had to be made. The following
four years were spent researching and organizing a broad
plan of attack upon the many problems unique to the cul-
tural area as a whole. The increase in public participa-
tion in the various programs of Circle institutions to date
is the best indication of the success of the operation.

Every institution within the University Circle has
experienced a revitalized and, in some instances, over-
whelming upsurge of public participation. Many of the
museums, historical societies, concert halls, and hos—
pitals are operating at peak capacity. University Hos-
pitals is beginning a fifty million dollar expansion pro-
gram; the Cleveland Museum of Art and the Museum of Natural
Science are seriously considering major expansion of their
main buildings; the western Reserve Historical Society
completed a major expansion program in 1962. A second
expansion program totalling nearly one million dollars is
presently nearing completion. Western Reserve University
and Case Institute of Technology have completed construc-
tion projects totalling over forty million dollars and

further plans equaling that amount are on the drawing

 

58
boards at the present time. A pharmaceutical research
center is slated to be started during the spring of 1965.
This project alone will cost in excess of forty million
dollars. The member institutions of the University Circle
have increased from thirty-one in 1958 to thirty-eight in
1963. New cultural institutions relocating within the area
have given additional impetus to a program of growth and

development.

Expansion pf the Private Police Agency

 

The University Circle Police, like the institutions
they represent, have not rested on past laurels. They
have looked beyond the immediate need for total area se-
curity and provided for the future.

The first move of major significance for the depart-
ment was the relocation of the headquarters buildings
within the complex of the proposed main campus of Western
Reserve University. At the same time, provision was made
to maintain a twenty-four hour operation from the new
building. Additional clerical personnel were added to the
staff to assume those responsibilities that had previously
been handled on a temporary and part-time basis by other
agencies.

Uniformed personnel of the private police agency

 

59
have been increased from the original complement of four-
teen officers to a numerical strength of twenty-three in
l96A. A fourth police vehicle was put into full-time
service during 1963 to provide patrol coverage in recently
acquired residential and commercial areas. These are the
areas identified as building sites for the existing insti-
tutions or the sites for new member institutions that will
relocate within the University Circle.

Probably the most significant advance made within
the Circle since the private police agency was created in
1959, has been the establishment of a division of interior
security within the organizational structure of the police
agency. Two of the major institutions, Western Reserve
University and Case Institute of Technology, have elimi-
nated their grounds and building security divisions. All
protection, interior and exterior, is now centralized within
the University Circle Police Department. A distinct divi-
sion within the private police agency now provides a well-
coordinated and highly effective police service for these
agencies. The coordination of these two services, under
a single administrative head has produced far greater
savings economically and afforded a much greater margin
of safety than originally anticipated.

The University Circle Police Department has been

60
closely scrutinized during its first five years of operation.
The safety that is enjoyed today has not been a chance
occurrence. It is the product of vision and determination
on the part of the planners, and cooperation on the part
of the men and women of the police agency itself.

The problem of criminality that was so pressing in
1959 no longer exists. The University Circle has been re-
stored to the citizens of Northeastern Ohio as one of the
nation's leading cultural complexes, an area in which the
finest in man's cultural achievements may be enjoyed by
all with a degree of safety and security unsurpassed for
an area of its kind. No greater tribute could be paid
this police agency than the multitudes of people visiting,
studying, working in, or simply enjoying the beauty of,

the University Circle of Cleveland, Ohio.

Recommendations

One can safely say that maximum safety and security
is being provided within the University Circle of Cleve-
land, Ohio. Even a cursory examination of the facts in-
dicates a near perfect accomplishment of the goal outlined
five years ago. The uncontestable results are indicated
through a continuous decrease in criminal incidents through-

out the whole of the cultural area. This trend clearly

61
substantiates the hypothesis of this research: adequate
safety within cultural areas can best be provided by the
creation of an organization to represent the cultural in-
stitutions, by inaugurating a private police agency to
augment the existing regular police agency and provision
for coordinating the efforts of the institutions, private
police and regular police agency. The program within the
University Circle has been tried and proven over a five
year period. As far as the program has progressed, it
has met with a success unequaled by any plan set forth to
date.

The author has had the opportunity to view this
operation first—hand, having been a part of this private
police agency from the day of its inception in 1959 until
September of l96A. The following recommendations are con-
sequently the fruit of personal observation and analysis

as well as technical research.

Existing Institutional Police Services

There were many obstacles to be overcome in 1959.
One serious obstacle was the hostility evidenced on the
part of members of security divisions of the individual
institutions. These men were completely unaware of the

function of the private police agency. Their feeling of

62

distrust was unwarranted, yet presented a serious problem
from the standpoint of harmonious relationships. To a
degree there remains today a very definite indication of
an uncooperative spirit between the private police agency
and security divisions of at least two of the major insti-
tutions. This must be corrected. The complete flow of

communications by all institutions, through a single admin-

 

istrative office is critical to the safety of the total
area. Provision was not made in 1959 to accomplish this
end completely, nor has serious thought been given it since.
What is needed today is the clarification of purpose
of the private police function for all members of the
various internal security divisions, and an awareness of
exactly where these internal security divisions fit within
the framework of total area security. Petty jealousies
of a personal nature could be reduced to a minimum through
open and frank discussion and a far greater measure of

cooperation could be attained.

Interior Securipy

The creation of a security division within the
structure of the University Circle Police agency was five
years in coming. Certainly the need for consolidation of

all existing interior security personnel was as apparent

 

63
in 1959 as it was in l96A. Unfortunately, administrative
personnel did not make provision for coordinating existing
interior security programs with the external patrol provided
by the private police agency. It may be said that even
today the goal of a security program that is well-coordin;
ated on all levels has not as yet been reached. Indivi-
dual security divisions operate completely independently
of one another. The private police agency operates out-
side the scope of this makeshift security program. Theo-
retically, such a system of organizational confusion, dupli-
cation, and misunderstanding would provide for a very
limited attainment of the police goal; practically it
virtually guarantees failure.

It cannot be said that complete security within the
cultural area has been attained. Certainly the incidents
of crimes being committed on the streets have been control-
led with a high degree of efficiency. Unfortunately, accu-
rate information pertaining to the number of, or the
relative frequency of, crimes being committed within the
institutions iseimply unavailable. It may be said with a
high degree of probability that if the present system of
interior security be maintained, the true goal of total
security will never be attained.

What is needed today within the institutions

6A
themselves is re-organization. Interior security programs,
as structured today, are virtually geared to convenience of
staff personnel, rather than to meeting the security needs
of the institutions. The degree of efficiency of the various
security divisions may be evidenced by the position to
which they are relegated within the administrative hier-
archy of the institution. The following are examples of
the various departments to which the interior security
divisions are directly responsible: maintenance depart-
ment, building and grounds, business office, comptroller,
and personnel office. Certainly there does not seem to be
more than a token significance attached to any of the inter-
nal security programs. Much work remains to be done in
this area. If total security is to be provided, the internal
security divisions must be completely revamped and placed
within the organizational structure of the private police
agency. Anything short of this will only heighten rather
than eliminate confusion, duplication, gross misunderstand-

ing, and partial attainment of the ultimate police goal.

Internal Communications

 

Essential to the operation of a police agency is
the need for creating an atmosphere conducive to the exchange

of ideas and the open discussion of problem situations.

65
To maintain this spirit of participation, it becomes in-
evitable that the coordinating group make provision to meet
regularly with the police staff. Under no circumstances
should a feeling of indifference or an "if they don't
care why should I?" attitude be permitted to exist. The
obvious solution is to provide regular staff meetings.
0f even greater significance, however, is the underlying
need for incorporating into the organization the factor
of incentive. No other device serves the purpose as well
as sitting down on a regular basis and permitting those
men to whom the responsibility for safety and security has
been delegated, the opportunity to speak openly and frankly

about the police agency.

Lighting

 

The original survey of proposed security measures
was conducted by Mr. George O'Connor during 1958. One of
the recommendations made by Mr. O'Connor pertained to the
inadequate lighting facilities available at that time.
Following Mr. O'Connor's recommendations, an extensive
lighting program was undertaken by the various institu-
tions. This program has been one of the important factors
in reducing the incidence of crime in the cultural area.

The sheer folly of this plan is that after a predetermined

66

time each evening, all of the additional lighting facilities
in areas that have always been very difficult to patrol,

are turned out. Maximum safety is prostituted for the

sake of economy. It would be feasible from an economical
standpoint, to reverse this procedure and not provide the
lighting during that portion of the evening when maximum
patrol strength is on the street and provide it during

the hours after midnight when only motorized patrol units
are maintained. Any consideration given to economy, at

the risk of reducing the degree of public safety, is detri-
mental to the program of total area security. Every effort
should be made to increase even further the amount of light-
ing presently provided and no serious consideration given

turning any lights off until after daybreak.

Personnel

Paramount to the successful operation of a police
agency is competency on the part of every member of that
agency. To maintain this standard it may be necessary to
go beyond the local community to secure qualified personnel.
In 1959 the original group of fourteen officers represented
a cross section of six states. Since 1962, with the ex-
ception of two officers who left the department for a short

time and then returned, no man has been recruited outside

 

67
of the county. This is not to imply that a decline in
competency of individual officers has been effected, but
rather a lessening of administrative responsibility in
attempting to locate the very best that is available on
a national basis, rather than narrowing one's vision to

interested individuals at the local level.

Training

It would not be essential that a private police

 

agency be created in the cultural area if safety alone

were the ultimate goal to be obtained. It was recognized
that in addition to providing the necessary safety, a
serious problem of restoring and maintaining a favorable
public image was essential. To facilitate this end, it

was imperative that the welfare of the institution be

given serious consideration. The problem then became one
of providing the necessary men, properly trained in law
enforcement techniques and instilling in them a responsible
attitude toward the institutions they represented.

It can be safely said that the basic police training
afforded each member of this department is adequate and
does, in fact, exceed what is generally accepted as minimal.
However, this provides only a partial solution to what

was originally identified as a two-fold problem. There

68
has never been a program offered to any member of this
police agency that identified the function of the coor—
dinating group, the factors necessitating the creation of
the private police agency, the public service programs avail-
able within the cultural area, or the necessary relationship
each officer must bear as a representative of the University
Circle. As a result there is lacking a sense of identifi-
cation on the part of private police officers with the
institutions and/or cultural area.

This problem is a very real one. The solution will
only be brought about by instilling in the present and
future personnel, through all possible means, the ideals

and objectives of the cultural area.

Utilization pf Personnel

 

 

A favorable impression of a police agency is seldom
created through contacts of an exclusively police nature.
More often it is the "extra—curricular" police contact
that creates a lasting favorable impression. It is inter-
esting to observe that within the University Circle there
is a definite lack of police-public participation of a
non-police nature. This is a tragic waste of potential
when three quarters of the police personnel are either
college graduates or presently engaged in securing the

undergraduate degree. To fail to recognize the true

 

69
significance of such an opportunity is to eliminate from
the private police agency one of its essential functions.

It is recommended that a lecture group of police
officers and supervisory personnel be established. That
these men be provided with movie clips or picture slides
of the University Circle. That the lecture group become
actively engaged with the many civic and cultural clubs,
committees, and formal functions of the institutions.

That printed literature, explaining the function of the
private police agency be provided all participating insti-
tutions and widely distributed to visitors, guests, and
employees. That a continuous program of police-public
identification be maintained. That through such a program
the private police agency will eventually be recognized
primarily as a service agency by the general public, with
the primary function of crime prevention and apprehension
recognized only by that undesired criminal element of

society.

Concluding Remarks

The University Circle of Cleveland, Ohio, may
properly be identified as the most revolutionary enterprise
in the United States. In scope of cultural attraction,

public service, education facilities, or private research,

70
it ranks unequivocally first.

The reasons that one may attribute to this pheno-
menal growth are as varied as the individuals who have
planned for and provided a cultural area of beauty, educa-
tion, and safety. It is in this realm of safety that the
police administrators of this generation must pause and
examine in detail the challenge presented by the cultural
areas of metropolitan communities.

It is ironic that a problem of safety, one clearly
visible and undeniably serious to the community, should be
challenged and ultimately solved by the "lay practitioneer"
of the community. If it could be minimized by the police
practitioneer, one might conclude that all possible measures
were taken to rectify the increasing problem of criminal
activity within the cultural area. This is not the case.
Logic indicates that all possible solutions within the
traditional scope of police operation were attempted.

Not once was any attempt made by the regular police agency
to go beyond traditional police practices. Not once did
the regular police agency make an attempt to take the
problem of cultural area safety to its very source-~the
institutions of the cultural area. Evidence indicates that

if the problem had not been recognized by the institutions

71
as threatening to the cultural area and damaging to the
community at large, no solution would have been forthcoming.

The lesson learned in Cleveland is worthy of the
closest scrutiny. Metropolitan communities continue to
increase daily in population and number. Too long we have
waited or depended on too little. Progress does not have
to be measured in inches. Great strides await law enforce-
ment agencies. What remains for the police practitioneer
is to analyze the total problem of criminal activity in
terms of cause and prepare a practical and realistic police
effect; one designed to provide maximum safety for the
total community; one designed to solve individual problems
on an individual basis; one designed to produce effect;
one designed to encompass all of the facilities of the

community and not necessarily only the police resources.

Questions pg pg Answered

 

This study is neither intended to be, nor is, all
inclusive. One must keep in mind the newness of this concept
and the limited application it has received nationally.

As other agencies are developed within similar cultural
centers, much experience and knowledge will be gained.
It is intended that the limited application of this con-

capt, as it is being successfully implemented in Cleveland,

72
Ohio, will encourage others to build upon this foundation
for the betterment of the police service and the welfare
of the citizens we serve.

Many problems are encountered when this concept of
dual responsibility is implemented. Some have not been
resolved at the time of this writing. The following ques-
tions are considered to be the most important.

was there an actual need for a private police
agency?

What were the obvious deficiencies in organization
that hindered the police task?

What were the underlying factors that contributed
to the failure of, or the limited attainment of, the success
of the private police agency?

The disproportionately high rate of crime that is
peculiar to cultural areas of metropolitan cities is pre-
ventable. Early recognition of the contributing factors
and the implementation of a police service, specifically
designed to serve the institutions of these areas can
restore and adequately maintain, a greater degree of
safety and security then is commonly experienced by the
municipality in general.

These private police agencies can operate at maximum

effectiveness, while requiring little or regular police

73
supervision, if adequate preparation is provided for close
and continuous liaison between institutions, private police,
and the regular police agency.

The activities of the regular police agency and the
private police agency can operate harmoniously and still
maintain their individual identities and independence,
providing a single coordinating group represent all the
institutions of the cultural area. The institutions must
subordinate their individual security difficulties to the

major objection of total area safety and security.

BIBLIOGRAPHY

 

 

 

.- “1......

 

SELECTED BIBLIOGRAPHY

A. BOOKS

Abell, Aaron. The Urban Impact. Cambridge: Harvard Uni-
versity Press, 1963.

 

Bergel, Egon E. Urban Sociology. New York: McGraw-Hill
Book Company, 1955.

 

Bogue, Don J. The Structure 9f the Metropolitan Community.
Ann Arbor: University of Michigan Press, 19A9.

 

 

Degler, Carl N. Out pf Our Past. New York: Harper and
Row, 1958.

Geddes, Patrick. Cities ip Evolution, rev. ed. London:
Oxford University Press, 1955.

 

Gist, Noel P. and Halbert, L. A. Urban Society, rev. ed.
New York: Thomas Y. Crowell Company, l9A8.

 

Glaab, Charles N. The American City, A_DocumentapyHis-
tory. Homewood, Illinois: The Dorsey Press, Inc., 1963.

Gottman, Jean. Megalopolis: The Urbanized Northeastern
Seaboard of the United States. New York: Twentieth
Century Fund, 1961.

 

 

 

Gulick, Luther H. The Metropolitan Problem. New York:
Alfred A. Knopf, Inc., 1962.

Loomis, Charles P. and Beegle, J. Allan. Rural Social
Systems. New York: Prentice—Hall, Inc., 1950.

McKenzie, R. D. The Metropolitan Communipy. New York:
McGraw-Hill Book Company, 1953.

Mumford, Lewis. The Cit ip History. New York: Harcourt,
Brace, and World, 19 1.

Murray, Raymond W. Sociology for a Democratic Society.
Appleton-Century-Crofts, Inc., 1950.

 

Queen, Stuart A. and Carpenter, David B. The American
City. New York: McGraw-Hill Book Company, Inc., 1953.

76

Riemer, Svend. The Modern City. New York: Prentice-Hall,
Inc., 1952.

 

 

Shaw, Clifford R. and McKay, Henry D. Juvenile Delinquency
and Urban Areas. Chicago: The University of Chicago
Press, 19A2.

 

Stein, Maurice R. The Eclipse pf Community. Princeton:
Princeton University Press, 1960.

 

 

Thompson, warran S. and Whelpton, P. K. Population Trends
in the United States. New York: McGraw-Hill Book

ESNpany, 1953.

 

Weber, A. F. The Growth pf Cities. New York: Columbia
University Press, 1959.

 

Williams, James M. Our Rural Heritage. New York: Alfred
A. Knopf, Inc., 1935.

 

Works, George A. and Lesser, Simon D. Rural America Today.
Chicago: University of Chicago Press, 1962.

Zimmerman, Carle D. The Changing Community. New York:

Harper and Brothers, 1958.
B. INTERVIEWS

Brooks, Oliver. Vice President, University Circle Develop-
ment Foundation, Cleveland, Ohio.

Celebrezze, Anthony. Former mayor, Cleveland, Ohio. Secre-
tary of United States Department of Health, Education,
and Welfare.

Carothers, Neil J. President, University Circle Development
Foundation, Cleveland, Ohio.

McCormick, John. Director of Public Safety, Cleveland, Ohio.

Schroeder, Oliver, Jr. Dean, School of Law, Director, Law-
Medicine Center, Western Reserve University.

Story, Frank. Retired, Chief, Cleveland Police Department,
Cleveland, Ohio.

wagner, Richard. Chief, Cleveland Police Department,
Cleveland, Ohio.

3; ‘,..'\\‘ '

 

MICHIGAN STATE UNIVERSITY LIBRA

I II! I III llllHiII

3 1193 03175 3829

RIES