POLICE JUVENILE WORK: A COMPARATIVE STUDY OF RECOMMENDED AND ACTUAL ENGAGED-IN FUNCTIONS- Thesis for the Degree of M. S. MICHIGAN STATE UNIVERSITY VINCENT G. SWINNEY 19.68 POLICE JUVENIIE WORK: A COMPARATIVE STUDY OF RECOMMENDED AND ACTUAL ENGAGED-IN FUNCTIONS by VINCENT G. SWINNEY AN ABSTRACT Smeitted 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 1968 4 v” I,-” _ . APPROVED flvUflO/J/Q M /- ,flaflw 1/21/ Qhaizhén I - ‘1 ABSTRACT POLICE JUVENILE WORK: A COMPARATIVE STUDY OF RECOMMENDED AND ACTUAL ENGAGED-IN FUNCTIONS by Vincent G. Swinney During employment as a police juvenile officer, the author found little policy foundation for specific programs of police juvenile work. Additional study seemed to indicate that few writings concerning the field.were based on actual programs. In addition, other police juvenile officers felt that there was little understanding of such work among other police officers. After serious consideration, it was felt that exploration of police juvenile work could yield practical information. A simple hypothesis was constructed for testing. Basically stated, the hypothesis is that police juvenile work should be guided by administratively constructed department policy, that such policy should be reflected in procedures used,and the program adopted fit actual needs. To test the hypothesis a model guide for police juvenile work was con- structed. This model guide was then compared to data gleaned from a review of applicable literature. In turn, field research was accom— plished with ten.police departments having identifiable programs of police juvenile work. The field research included interviews with officers assigned to juvenile work and administrative personnel. Review of cases handled and some observation of activities was included. From the field work case studies were constructed to be compared with the model and against pro- grams proposed in the literature. Vincent G. Swinney Findings from both review of the literature and the field work tended to support the hypothesis. Comparison of the model guide showed only the need for slight modification. As is, the model guide would have been useful to each police department researched. The greatest value would be in bringing closer together the actual department pro- gram of police juvenile work and the viewed or expressed purpose of po- lice juvenile work. The results of this study strongly suggest that many police ju- venile programs are based on tradition or local desires for action. These same programs would accomplish more if based on planning, policy, and resultant procedures . POLICE JUVENILE WORK: A COMPARATIVE STUDY OF RECOMMENDED AND ACTUAL ENGAGED-IN FUNCTIONS by Vincent G. Swinney 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 1968 ACKNOWLEDGMENTS The most sincere thanks goes to one who cannot now receive it or reply. My deepest appreciation goes to Dr. James J. Brennan, now deceased, who strengthened my knowledge and appreciation of police juvenile work. To Professor Raymond T. Galvin, a special thank you for assuming the role of thesis advisor. My appreciation can only be shown by possible future contributions to the field of police administration. A warm and personal thanks goes to my wife, Carolyn, for help and encouragement throughout my graduate studies. Finally, to Michigan State University, my thanks for the opportunity of being enrolled in graduate study. TABLE OF CONTENTS CHAPTER PAGE I. INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . l The Problem . . . . . . . . . . . . . . . . . . . . . . . 5 Definition of Terms and Organization of Remainder of the Thesis . . . . . . . . . . . . . . . . . . . . . . . . 15 II. MODEL GUIDE FOR POLICE JUVENILE WORK . . . . . . . . . . . . 2h Goals . . . . . . . . . . . . . . . . . . . . . . . . . . 25 Definitions . . . . . . . . . . . . . . . . . . . . . . . 26 Authority, General Activity Areas and Responsibility . . . 28 Procedures . . . . . . . . . . . . . . . . . . . . . . . . 30 Organization . . . . . . . . . . . . . . . . . . . . . . . 37 III. REVIEW AND ANALYSIS OF THE LITERATURE . . . . . . . . . . . 38 General Review . . . . . . . . . . . . . . . . . . . . . . 39 Analysis and Conclusions, Model Guide to Literature . . . 60 IV. CASES AND ANALXSIS: MUNICIPAL POLICE JUVENILE WORK . . . . 6h Methodology . . . . . . . . . . . . . . . . . . . . . . . 6A Case Studies: Police Departments With Juvenile Bureaus. . 66 ComInunityA......................67 Community B . . . . . . . . . . . . . . . . . . . . . . Tl Community C' . . . . . . . . . . . . . . . . . . . . . . 76 Community D . . . . . . . . . . . . . . . . . . . . . . 81 Community E . . . . . . . . . . . . . . . . . . . . . . 8h CHAPTER PAGE Evaluation and Findings: Police Departments With Juvenile Bureaus . . . . . . . . . . . . . . . . . . . . 87 Case Studies: Police Departments With Single Juvenile Officer . . . . . . . . . . . . . . . . . . . . . . . . 89 Community F . . . . . . . . . . . . . . . . . . . . . . 90 Community G . . . . . . . . . . . . . . . . . . . . . . 9h Community H . . . . . . . . . . . . . . . . . . . . . . 96 Community I . . . . . . . . . . . . . . . . . . . . . . 99 Community J . . . . . . . . . . . . . . . . . . . . . . 102 Evaluation and Findings: Police Departments With Single Juvenile Officer . . . . . . . . . . . . . . . . . . . . 105 General Findings . . . . . . . . . . . . . . . . . . . . . 107 V. SUMMARY AND CONCLUSIONS . . . . . . . . . . . . . . . . . . 109 Summary . . . . . . . . . . . . . . . . . . . . . . . . . 109 Conclusions . . . . . . . . . . . . . . . . . . . . . . . 112 BIBLIOGRAPHY . . . . . . . . . . . . . . . . . . . . . . . . . . . 118 APPENDIXA............................126 APPENDIX B . . . . . . . . . . . . . . . . . . . . . . . . . . . . 130 GENERI INTRODUCTION In recent years statements have been made which could lead one to believe that, second only to the keeping of the world.peace, finding a solution to juvenile delinquency is the United States' greatest problem.l Whether the problem is really this great or not is open to question. However, a good case can be made supporting delinquency as a major so— cial problem of both our time and the current culture. It is a problem which is of concern to many segments of our social structure. Among those concerned are parents, clergy, teachers, police officers, business- men, social workers, and the various victims of juvenile acts considered delinquent.2 These many facets of the interest in juvenile delinquency are, in turn, the motivation for meetings, conferences, seminars, and released public information, all regarding delinquency and possible solutions. Such solutions take the form of a host of prevention, cor- rection, education, rehabilitation, and.participation programs, or or- ganizations designed to wipe out the specific problem of delinquency.3 lRoul Tunley, Kids, Crime and Chaos (New York: Dell Publishing 00., Inc., 1962). 2Dr. James J. Brennan, Juvenile Delinquency: A Radical Approach, An Education Monograph (New York: American Viewpoint, Inc., n.d.), p. l. 3Ibid. A brief look at even a portion of the available statistical infor- mation reveals that delinquency is continuing to increase. National A account for 58 to 60 per cent of all bur- figures show that juveniles glaries, 58 to 60 per cent of all Larcenies, 70 to 75 per cent of all auto thefts, and 20 to 25 per cent of all robberies committed annually.5 It is a problem which increases some four to five times as fast as is our nation's growth in population.6 'With the use of local statistics a picture of the severity of problems facing individual communities can be identified. For instance, Detroit, Michigan, reports that 68 per cent of the 30,000 crimes committed during the first four months of 196A were perpetrated by male juveniles 10 to 17 years of age.7 This same pattern is reported from Albuquerque, New Mexico, where the involvement of juveniles, as participants in criminal acts, is above the 50 per cent mark of total crimes committed.8 Such numerical evidence could.be repeated for almost every category of crime, and for municipal, rural and suburban areas alike. hThe term "juvenile," as used here, should indicate to the reader a person between his seventh and his eighteenth birthday. 5Federal Bureau of Investigation, Uniform Crime Report, U. S. Department of Justice (Washington: U. S. Government Printing Office), 1959-1963- 6Robert R. J. Gallati, "Planning and Research in Law Enforcement, as Related to the Public View of the Police" (paper read at the Tenth Annual Police and Community Relations Institute, Kellogg Center, Michigan State University, East Lansing, Michigan, May 17-22, 196A). 7"Delinquency-—Detroit Problem," The State Journal, May 1, l96h- 8Discussion Comment, Discussion Group I, "Spartans," at Tenth Annual Police and Community Relations Institute, Kellogg Center, Mich- igan State University, East Lansing, Michigan, May 17-22, 196A. As awareness of the problem is given increased publicity, the question arises as to who should be involved in finding the necessary solutions. A natural answer is that the problem is of such scope that all individuals, agencies, and organizations should be involved. How- ever, such an answer allows room to always wait for the "others" to start necessary implementation of policy and program. 'It is further felt that a total dependence upon such a heterogeneous start toward a solution would create impossible coordination and program content problems. Since a starting point is needed, it might be well to identify a continuum along which a delinquent passes. From this continuum can then be picked those things which apply to the present endeavors of the author. A view of such a suggested structure might begin with family, neighborhood, peer group; continue on to basic social entities such as the school, church, or activity groups similar to the Y.M.C.A.; and culminate in the organized and official agencies which have responsi- bility for discovery, processing, and disposition of cases of youthful delinquency. These latter would tend to again include peripherally the school and church, but would more specifically be such agencies as police, welfare, juvenile courts and probation or parole agencies. Choosing from this latter group, it will be the author's intent to examine the involvement of police in the field of delinquency preven- tion and control. However, not losing sight of the fact that police are only one segment of the structure, and most continuously interact with the total community with regard to juvenile delinquency. Traditionally the police function has been one of protecting life, property, and the tranquility of the public scene.9 To accomplish these ‘tasks the police have engaged in any number of activities including pa- trol, investigation, public contact, case disposition, and public service. As the volume of work in these several areas increased, one of the tools utilized to meet the demand.was specialization. Police specialization is viewed as both boon and bane to effective law enforcement.10 Those favoring this form of task emphasis point out that specialization allows increased depth of knowledge and skill on the part of both individuals and special units. The other side of the coin is pointed up with information regarding the risk of specialists avoid- ing involvement in any police task except their specific specialty. Re- gardless of the final validity of specialization, the current trend in police juvenile work is to the specialist.ll Depending upon the size of the department concerned, this special- ization may range from a specific officer handling juvenile cases to having several officers assigned to a titled bureau, division, or unit. Such specialization is viewed as both desirable and necessary due to the 9International City Managers' Association, Municipal Police Ad- ministration, ed. Richard L. Holcomb (fifth edition; Chicago, Illinois: The International City Managers' Association, 1961), pp. 7-8. lOO. WJ‘Wilson, Police Administration (New York: McGraw—Hill Book Company, Inc., 1963), p. 37. 11Studies by the International Association of Chiefs of Police showed that 2.9 per cent of department strength, in those departments having men assigned to juvenile work, was assigned to juvenile work in l96h.as compared to 2.6 per cent in 1956. age, emotional stability, level of maturity, and chance of impulse action on the part of adolescent police clients.12 I. THE PROBLEM Faced with growing trends of crime and disrespect for law in gen- eral the present-day police administrator is confronted with a need for action. His decisions must produce programs designed to not only hold the line but also to prevent future occurrences of the situation con- cerned. This calls for a type of decision, with regard to activity pro- gramming, that few administrators are prepared to make. A primary reason for this lack of preparation for administrative decisionemaking is the experience history of many police chiefs. Many of them have ad- vanced in a pattern.which has emphasized a given speciality such as traf- fic or investigative duty. Such experience, in general, does not produce the qualified generalist for good administrative decision-making.l3 Since many chiefs recognize their own limitations, a number of sources of help are sought. Some of the sources of help may be in the form of consultants, questions to other departments, or personal study on the part of the chief himself. ‘With regard to the question of juve- nile delinquency, and the necessary involvement of police, a seeking of outside help, or personal study, may leave the individual chief or 12Dr. James J. Brennan, "Course Lectures in PLA h52, The Admin- istration of Crime and Delinquency Prevention Programs" (The School of Police Administration and Public Safety, Michigan State University, Winter Term, 1963). 13Professor Raymond T. Galvin, "Course Lectures in PLA 320, Police Administration" (The School of Police Administration and Public Safety, Michigan State University, Fall Term, 1963). administrator more confused than enlightened. Particularly is this true when attempting to define the basic goal of police juvenile work, and to enumerate the necessary tasks to be accomplished in reaching the deter— mined goal. It is felt that this is due to the divergent points of view available from references and from police juvenile divisions already operating programs considered to be successful. Statement of the problem. In many situations requiring police action the municipal charter or general statutory provisions regarding municipal powers can be consulted for guidelines. This does not extend to coverage of the police involvement in handling problems of juvenile lI-I delinquency. This important area is many times dealt with in frag- mentary statements concerning actions in the best interest of the child. Such statements leave much to be desired in terms of defining police responsibility and authority with relation to problems of juvenile de— linquency. l5 Failing to obtain necessary factual guides from charter or statu- tory sources, many police officials turn to state juvenile codes as a source for police planning. In general, these codes will define the age limits of those considered delinquent, and the behavior which shall be deemed adequate to necessitate court action. They will further define the organizational structure of the state juvenile courts, but give 1”Richard A. Myren and Lynn D. Swanson, Police Work With Children, Children's Bureau, U. S. LEpartment of Health, Education, and'Welfare (Washington: U. 8. Government Printing Office, 1962), p. 2. 15Ibid., p. 3. little definition to the police involvement in delinquency prevention or control. In many of the codes the only reference to police is that the police must forward to the court any juvenile taken into custody for al- leged violations of the code concerned. Further comment concerning the police may be made in terms of restrictions on the practice of detaining juveniles while planning for case dispositions. As in the case of munic- ipal charters and statutory provisions, state juvenile codes do not pro- vide sufficient information to police for planning delinquency prevention or control programs.16 Faced.with a lack of information in the legal framework of juris- dictions, police officials tend to implement juvenile programs in a hap- hazard manner. Programs may develop from either real or imagined needs; they may come about due to pressures from local courts or community centers of influence; or police juvenile programs may be established through the evolution of custom.17 ‘With regard to the problem of plan- ning police programs in delinquency one author contends that no single approach exists. Rather, the police involvement is an undisciplined, unrestricted, sketchily thought out effort on the part of individuals to strike out in a field that is uncharted and undefined.18 l6Review'by the author of a random sampling of juvenile codes and the recommended "Standard Juvenile Court Act." l7Wilson, op. cit., pp. 321—330. l8Anthony'R. Paul, "Crime Prevention-JWhere Do We Stand?", Report of the Crime Prevention Committee, The Police Yearbook (washington: In- ternational Association of Chiefs of Police, Inc., 1959), p. 102. The question of police involvement with delinquents is sufficiently important to demand that attention be given to the proper definition of police roles, responsibilities, and authority. Lacking such definitiOns within jurisdictional charters, statutory provisions, or state juvenile codes it is logical to seek elsewhere for the needed information. One source which is available to the police is the myriad of articles, pam- phlets, studies, and books concerning juvenile delinquency, some of which specifically deal with the topic of police and delinquency. Even here the individual administrator is faced with a variety of recommendations concerning proper police juvenile work. For example, Myren and Swanson support the position of a juvenile unit which accomplishes primarily staff functions,19 while Kenney and Pursuit view police juvenile work as basically line activities performed by individual officers or special units.20 Falling between these two extremes are recommendations from such sources as Wilson,21'Winters,22 The International City Managers' 19Myren and Swanson, op. cit., pp. 9—13. 20John P. Kenney and Dan G. Pursuit, Police Work.With Juveniles (second edition; Springfield, Illinois: Charles C. Thomas Publishers, 1959), pp. 27-31. 21Wilson, op. cit., Chapter 16. 22John E. Winters, Crime and Kids (Springfield, Illinois: Charles C. Thomas Publishers, 1959), pp. us—So. Association,23 International.Association of Chiefs of Police,2l‘L and the U. S. Children's Bureau.2S In spite of the aforementioned difficulties encountered by police in the area of juvenile work, many departments plan and implement local programs. As previously mentioned, the motivation for these local pro- grams may come from a number of sources, and not all such motivation is really interested in producing a good police juvenile program. In fact, a number of situations have occurred where the presence of, or absence of programming, is primarily due to partisan influences. How then can a police chief accomplish adequate planning for de- partment involvement in the area of delinquency prevention.and control? The answer has not yet been fully treated in any single publication, nor in any group of publications. In fact, the question itself must be pre- ceded by a query concerning the practicality of attempting to provide answers for specific local problems. One means of inquiry, to provide material applicable to the prac- ticality of producing guides, is to make comparisons between actual.ac- tivities and activities recommended in the available literature. To accomplish research applicable to this problem the author proposes the following hypothesis for treatment in this thesis. 23The International City Managers' Association, op. cit., pp. 208- 209, 213 -215 . euGeorge W. O'Connorzand Nelson A. Watson, Juvenile Delinquency and Youth Crime: The Police Role (Washington, D. C.: International Association of Chiefs of Police, 196A). 25Children's Bureau, U. S. Department of Health, Education, and Welfare, Police Services for Juveniles (Washington: U. S. Government Printing Office, 195H). lO Hypothesis. It is hypothesized that a single functional guide cal be constructed which is applicable to all police juvenile work regardless of size or level of sophistication of the police department concerned. Questions tg_be answered. Answers or material applicable to the following questions will be dealt with in the thesis: 1. ‘What guides are provided police departments for juvenile work? 2. Are there universally accepted functions for police juvenile work? 3. What functions are police departments currently engaged in with relation to juvenile work? A. What variables appear to govern the extent, quality, and type of police involvement in the field of delinquency prevention and control? Methodology. A case study format has been chosen for use in this thesis. Said case studies and a selected review of the pertinent liter- ature will be used to evaluate a constructed model guide. The model guide will relate directly to municipal police juvenile work and will serve to test the stated hypothesis. Choice of sample. The original desire of the author was to deal with police departments having a single man assigned to juvenile work. Preferably this man would be administratively responsible directly to the chief of police. Such a sample group would have allowed an intensive re- view of each department's juvenile delinquency work as exemplified by the work of one officer. A pilot survey showed that this plan was not possible within the police departments willing to cooperate in a research-oriented review of their police juvenile work. A review of those departments indicating a willingness to cooperate showed that a sample group of five juvenile bureaus and five singly ll assigned juvenile officers could be obtained. Although the author would have preferred a more open sample, circumstances of the number and type of departments available prevented the use of a random choice sample. The final sample group chosen is composed of ten departments. Five of these have juvenile bureaus, while five have single officers assigned to juvenile work. The sample departments range in manpower strength from 9 men to some 250-odd men, and represent communities of 6,000 to 171,000 population. For the purpose of the thesis all bureaus were eliminated which had fewer than four men. This four-man limit in- cludes the administrative head of the juvenile bureau. This was done so that clearer pictures of differences or likenesses between bureaus and single officers could be determined. Research method. The actual research will be accomplished by per— sonal interviews. An interview will be conducted.with each bureau head or assigned juvenile officer, and with an administrative official of the department. In all cases possible the administrative official will be the chief. 'Where this proves unfeasible the interview will be with the staff person who has command responsibility for supervising the overaall department policy with regard to juvenile work. Content of the interview will include the viewed purpose of police in juvenile work and the anticipated duties to fulfill this purpose. In- formation will then be solicited concerning the actual juvenile program of the department, plus the engaged-in duties to accomplish programs. Further information.will be obtained, through the medium of hypothetical cases, which will concern the type and depth of investigations into juvenile cases. 12 In each case discussed, a disposition will be asked of the inter- viewee to determine his use of community facilities. The gathered data will be used to construct case studies of the participating departments. These case studies will then be compared against a model guide for juvenile work which has been constructed from applicable literature. Finally a number of conclusions will be drawn. These, in turn, will be used to modify the model or to point up weak- nesses or needs within the field programs researched. Limitations 2£_the study. A number of limitations concerning the present study should be identified. Of greatest importance is the fact that the author has made an assumption that police belong in the field of delinquency prevention and control. For the purpose of this thesis it is assumed that the case for such police involvement has been suffi- ciently explored and documented. This assumption allows the author to limit his inquiry to the areas of policies, procedures, and activities. Upon initial.samp1ing of the available literature it became ap- parent to the author that some plan of selection would have to be fol- lowed. Therefore, the literature which will be dealt with has been limited to that which specifically concerns police and juvenile delin- quency. Although the author recognizes that causation theories, environ- mental influences, economic conditions, and other sociological-psycho- logical factors are involved in delinquency, these will be dealt with only as they apply to specific aspects of police juvenile work. Limitations of time and distance restricted the sample to police departments within a one-state area. A further limitation was indicated 13 in relation to the police departments chosen. This was that each depart- ment chosen had one or more officers assigned specifically to juvenile work. Departments within the sample group were restricted to municipal police departments. This restriction was made in an attempt to deal with police departments which have similar basic organizations or agen- cies with which they can interrelate in programs of delinquency'preven- tion and control. No attempt will be made to deal with the implications of police juvenile work to county, rural, and state systems of police. These systems of police offer special problems which should be dealt with as specific entities. Importance of the study. Recently published research tends to show that effective police juvenile officers have identifiable charac- teristics which are significantly different from ineffective officers in the work. These characteristics seem to indicate that effective police juvenile officers maintain a flexibility toward task require- ments which allows a minimum of control through supervision or regula- 26 tion. Although research of the above type is quite meaningful it does not go far enough with relation to engaged-in functions or activities of police juvenile officers. A large gap is left when an attempt is made to determine the proper sphere of activities for varying-sized police departments. With relation to the literature in the field of 26William'W. Wattenburg and Noel Bufe, "The Effectiveness of Police Youth Bureau Officers," The Journal of Criminal Law, Criminol- ogy, and Police Science, LIV, No. A (December, 1963). 1A police juvenile work, a case can be defended for activities ranging from pure investigation to involvement in social case work. The primary value of this study will be a gathering together of information regarding those policies, procedures and activities advocated for police juvenile work by authorities in the field. Against this com- piled information the author will compare and evaluate the juvenile pro- grams of a number of municipal police departments. This, in turn, will allow the pinpointing of that information which is most applicable to guide police in planning and implementing juvenile delinquency prevention a nd control funct ions . A further value to this study lies in the fact that it will pro- duce a base upon which further research can be conducted. It is anti- cipated that this further research might well be in the area of evalu— ating success or failure of specific police programs in the field of delinquency prevention and control. The author further feels that the study is significant to the field of police administration as it will.highlight both current trends and future needs in a specific area of police involvement. This becomes particularly important when it is realized that the police become in- volved in contacts with over 1,500,000 juveniles a year.27 27Joseph D. Lohman, Juvenile Delinquency (Chicago, Illinois: Office of the Sheriff, Cook County, November, 1957), p. 5. 15 II. DEFINITION OF TERMS AND ORGANIZATION OF REMAINDER OF THE THESIS Communication is of prime importance to any enterprise involving two or more people. Varying definitions, and personal meanings given to words, often create problems of disagreement where all parties concerned are interested in the same problem or in the same end product. There- fore, clarification of certain key'words or concepts is necessary to the successful structuring of the material contained within this thesis. The following definitions are not pure. By that the author means that the definitions are constructed ones, and a variety of sources were used to accomplish the constructed definitions. It should also be pointed out that the definitions contained here are ones which con- cern words or concepts central.to the total thesis. Other words or concepts concerning only a portion of the thesis will.be dealt with as they occur. Juvenile delinquency. Time and public usage have drastically altered the American meaning of this term. A point of beginning might well be the legal.meaning of the term. In this light, juvenile delin- quency is the act or behavior, by one of juvenile age, which violates ordinances, statutes, or laws of the jurisdiction concerned. It is fur- ther, behavior outlined in the various state juvenile codes which is so seriously anti-social as to interfere with rights of others or which will 28 menace the welfare of the delinquent himself or of the community. 28Ruth Shonle Cavan, Juvenile Delinquency (New York: J. B. Lippincott Company, 1962), p. 15. 16 Another view of juvenile delinquency is to define it only after indicating a relationship between delinquency and a specific aspect of our culture. With reference to moral codes, or demands for social con- formity, any immoral or nonconforming act may be considered delinquent. In terms of group welfare an act which undermines the group welfare or opposes the interests of the central group might be termed delinquent by the group. Lastly, delinquency can.be defined as actions which cross, oppose, or violate accepted religious or ethical ideals.29 Central to all of these definitions is the fact that the indi- cated delinquent act is either violating or opposing some norm of an outside group. Juvenile delinquency is, therefore, behavior on the part of the young of a given culture which places them in conflict with peers, family, community, or governmental units. For the present purpose, a greater amount of attention will be given to those aspects of juvenile delinquency which places the individual youth in conflict with the ele- ments of authority present in family or community. Juvenile delinquent. Proper identification of the individual in- volved in delinquency is important to all concerned with controlling or helping such individuals. Legal definitions indicate the delinquent as one, of a given age, who has been adjudicated such by a court of proper jurisdiction.3O Such adjudication to occur upon presentation of 29Haskell M. Miller, Understanding and Preventing Juvenile Delin- quency (Nashville, Tennessee: Abingdon Press, 1958), p. 15. 3OAncient usage, and the English Common Law, have established the lower limit for which a child may be held accountable for his actions. This lower age has remained at seven years of age in most of our states. The upper limit currently ranges from 16 to 21 years of age in regard to 17 sufficient facts to prove involvement in behavior defined delinquent by a given state juvenile code.31 As in the case of juvenile delinquency, the news media and public use of this term have altered its "popular" meaning. Currently the de- linquent brand may be applied to juveniles who range in extremes from ones having legitimate contacts with the police to individuals who have actually been processed through a proper court of jurisdiction. Recogni- tion of this fact has caused several states to begin actions to alter the term so that it will be applied only to individuals guilty of legislated criminal.acts. Two of these states, New York and California, plan to create new categories having designations which will indicate juveniles in need of help but not yet delinquent. The author will utilize the term to indicate those juveniles who come to the attention of police for alleged misconduct involving viola- tion of criminal statutes or municipal ordinances. The term juvenile, or delinquencydprone juvenile, will be used in referring to police juve— nile involvement other than that involving seemingly criminal behavior. Police juvenile work. The involvement of police with juveniles of any given community is a multi-faceted interaction of people. One or more of these people represent the authority of the community, while the juvenile involved is a citizen of both immediate and future impor- tance. This view adds much meaning to the phrase, with relation to who can be designated a juvenile delinquent. The trend seems to be in the direction of three groups or categories of offenders. Presently the categories are shaping up as 7 to 13 or 1h years, child; 14 to 17 or 18 as juvenile; and 18 to 2A or 25 as youthful offender. 3JlMyren and Swanson, op, cit., pp. 23—27. 18 police juvenile work, that the police officer is a court of first in- stance.32 The emphasis placed on being a court of first instance should not be construed as meaning over-all power, but should indicate that the police officer makes decisions concerning necessary action to be taken in handling juvenile matters. In making contact with juveniles, investi- gating juvenile complaints, or deciding upon a disposition for a juvenile case an officer actually engages in a number of activities which should be identified. Prevention of delinquency. The highest form of prevention is to remove the desire of an individual to commit prohibited acts. This form of prevention involves changing the values and sought-after goals of the individual. Most often it involves long-term interaction with both the juvenile and his family. On the next level of prevention the emphasis is aimed at providing services for the delinquency-prone or vulnerable child. Such services are generally provided by a variety of social agencies and involve activities which supply material needs as well as efforts at reorienting the individual and his family. Both of these concepts of prevention involve activities calling for both in-depth and long-term interaction with the family.33 One author advances the argu- ment that police are involved in these forms of prevention to only a 32Commission on Juvenile Delinquency, Adult Crime and Correc- tions, Anti-Social Behavior and Its Control in Minnesota (St. Paul, Minnesota: Report to the State Legislature, 19575, p. 76. 33Charles Robert Guthrie, "Law Enforcement and the Juvenile: A Study of Police Interaction with Delinquents" (unpublished doctoral dissertation, The University of Southern California, Los Angeles, 1962), p. 16. 19 small degree. He contends further that the real contribution of police in prevention is in the areas of determent and pure law enforcement.3h A number of other authors view the police involvement as more en- compassing. Winters indicates that delinquency prevention by police in- volves the extension of a helping hand to those in need. He further states that prevention includes police activities which help create respect for the law itself and for those who enforce the law.35 Holman views the role of prevention as a task of each officer of the department, and plainly states it is involved in every positive action of each man of each police department. In further discussing prevention, Police- woman Holman emphasizes that impressions left with juveniles following police-juvenile contacts will determine whether that police activity is delinquency—preventing or delinquency-motivating.36 Depending upon the source cited definitions for prevention can be broad and all-encompassing, or they can be narrow and quite defin- itive in scope. Present in each of the definitions is the central theme that the police represent an outside authority. This, in turn, gives rise to the feeling that the police are omnipresent, and, as such, actually control the opportunity for engaging in delinquent be- havior. 31IAlfred J. Kaplan, Police and Children (New York: Citizens Committee on Children of New York City, Inc., 191+8), p. 10. 35John E. Winters, "The Role of the Police in the Prevention and Control of Delinquency," Federal Probation (June, 1957), pp. 6-7. 36Mary Holman, The Police Officer and the Child (Springfield, Illinois: Charles C. Thomas Publishers, 1962), pp. 5-11. 20 The author intends to emphasize a number of programs and activi- ties which are considered preventive and.which are currently engaged in by police departments. Therefore, no one definition of delinquency pre— vention will be singled out. Instead the emphasis will be placed on the fact that police departments feel that they are engaging in delinquency prevention and are presently involved in programming for officer involve- ment in this field. Traditional police activities. Kenney and Pursuit view the normal police juvenile work as having a number of logical functions.37 These are: 1. Discovery of delinquents, potential delin- quents, and conditions inducing delinquency. 2. Investigation of delinquency and causes of delinquency. 3. Disposition or referral of cases. u. Protection of the child. This vieW'allows the officer concerned to participate by direct handling of cases involving juveniles. It further provides opportunity for the officer to make a decision with relation to the best disposition to be used in disposing of an individual case. The above four-point itemizing of traditional police activities is further supported by the International Association of Chiefs of Police in their latest study. According to their view, the police involvement in juvenile work should be: 37 Kenney and Pursuit, op. cit., p. 27. 21 l. The basic task of police is to detect and appre- hend those who break the law, and to prevent criminality through repressive patrol and other techniques and applies to all the people in- cluding the juvenile. 2. In the role of agents of the public order it is important to perform the police task in a manner designed to present a proper image. This calls for actions on the part of the officer which are objective and unemotional, official, but not officious, and both firm and fair. 3. Investigation of juvenile cases must be con— ducted in such a manner that the most accurate and fair evaluation of the case under consider- ation be presented. This applies in all cases whether that case comes before a juvenile judge or is referred to a private agency for service. A. The overall program must be kept in a state of balance between emphasis and size or amount of problem. This balance precludes the necessity of periods of laxity and crack down.w'th rela- tion to police-juvenile interaction.3 Within the framework of traditional police activities the officer's involvement may be said to include a combination of patrol, investigative and follow-up duties. All of these are designed to accomplish.the police goal of public protection while still obtaining the most helpful disposi- tion for each individual juvenile. Peripheral activities. A number of departments engage in the sponsorship of clubs, bands, junior police organizations, athletic teams, and.recreation programs. Yet others follow a policy of extended social case work and department plans of probation. These are examples of police juvenile work designed to fill what is identified as a local need. 38O'Connor and.Watson, op. cit., pp. h5-A6. 22 Identification here means to signify neither approval nor disapproval but is included as a portion of the over-all definition of police juvenile work. Certain facets of the above definition of police juvenile work will be elaborated on later in the thesis. For the present the author would like to emphasize that police juvenile work, in the over-all picture, should be good positive police work with an emphasis on clientele of juvenile age. Organization o: the remainder of the thesis. Chapter II will con- sist of a model which can be checked against both applicable literature and actual case studies. This model will be constructed of goals, policy statement, organizational format, procedural statements and defined ac- tivities of basic police juvenile work. Attention of the model.will be directed specifically to municipal police departments and activities, and no claim is given as to its applicability for county police or state police involvement with juveniles. Chapter III will be devoted to a review of applicable literature. Fully realizing the volume of available material concerning delinquency, the author purposely intends to limit this review to those works con- cerned.with the police and the delinquent. Chapter IV will contain case studies constructed from gathered field data. The general format for these case studies will be: 1. Viewed purpose and duties of police juvenile work. 2. Actual department program of delinquency pre— vention and control. 3. Variables affecting the juvenile program of each of the several sample departments. 23 Within the fourth chapter there will be emphasis placed on a summarization of similarities and differences in the researched police juvenile pro- grams. Additional summarization will attempt to point up trends of police juvenile work and certain future needs in this field of endeavor. Chapter V will be concerned.with conclusions and recommendations for further needed research. The conclusions will be reached following a logical analysis of the case studies and the model guide. Within such conclusions and recommendations as are reached, both modifications of the model guide and needed department changes will be identified and discussed. CHAPTER II MODEL GUIDE FOR POLICE JUVENILE WORK Although the preservation of peace, protection of life and property, and the apprehension of violators are looked upon as the most basic of police functions, no one has determined a completely fair way of applying these functions to every individual. Yet the police, as an entity, are called upon to accomplish the above functions while protecting the most basic of individual rights, particularly those guaranteed.by both the U. S. Constitution and the various state constitutions. As applied to adults these rights have been carefully defined by various appellate courts. However, in the case of juveniles involved in crime, or acts of delinquency, these rights are largely protected or abused by the actions of police officers. It is, therefore, very important that the philosophies, goals, policies and procedures of police juvenile work be carefully guided 'by well-constructed procedure manuals. Such manuals or guides must be definitive without being overly restrictive. They must guide, not dictate, and finally must direct the individual police officer toward accomplishing what is best for the ju- venile concerned. ‘With these few thoughts in mind the following guide for police juvenile work is offered. The guide has been constructed from many sources and seeks to bring together those philosophies, goals and policies which can best accomplish positive interaction between the police officer and the juvenile. 25 I. GOALS Police officers, who have as their primary duty an assignment which daily brings them into contact with juveniles, must be motivated toward more than the identification and apprehension of offenders. Such officers must be motivated to attempt the prevention of delinquent be- havior and to find for the juvenile involved in delinquent behavior the most meaningful case disposition. In addition the officer must be will- ing to aggresively seek out in legal.ways, those situations, activities, and home environments which are actually harmful or are potentially harmful to a positive growth pattern for juveniles. To such situations he must direct the community forces which are designed to aid, correct, or influence for the good of the child and the total community. To these ends the police department shall attempt to accomplish the following goals: 1. Provide for the community meaningful planning and implementation of programs, and duty assign- ments for police personnel, which will act pos- itively to prevent or when necessary to control the delinquent behavior of juveniles. 2. Develop juvenile case investigations which.will assure the greatest protection for the involved juvenile within the limits of continued protec- tion for the community. 3. Evaluation of involved case factors for a gross diagnosis leading to a case disposition result- ing in the greatest good for the juvenile in— volved. A. Promote continued cooperation and interaction between personnel of the police department and other youth-serving agencies. 5. Continuously to evaluate juvenile programs of the police department so that they are abreast of and meeting present community needs. 26 II. DEFINITIONS Department. "Department" or "departmental" shall mean a specific law enforcement agency. In the present case reference will be to munici- pal police departments. Court. "Court" shall mean the Juvenile Court. Probation department. "Probation department" shall mean the local probation department. Mipop. "Minor" shall mean anyone under the age of 21 years. Juvenile. "Juvenile" shall mean anyone under the age of 18 years. Governing point of time for consideration of loss of juvenile status by age will be the first a.m. hour of the anniversary date of birth. Guardian. "Guardian" means guardian of the juvenile and refers to the person having the right to make major decisions affecting a child including the right to consent to marriage, to enlistment in the Armed Forces, to major surgery and to adoption. The guardian has legal custody of the child unless legal custody is given by the court to another person. A person may be appointed guardian of a child only by court action. Parent. "Parent" means either a natural parent or a parent by adoption. If the child is illegitimate, "parent" means the mother. Legal custody. "Legal custody“ means the right to the care, custody and control of a child and the duty to provide food, clothing, shelter, ordinary medical care, education and discipline for the child. legal custody may be taken from the parent only by court action. Delinquent. "Delinquent," when a juvenile is taken into custody for a violation set forth, he shall be termed an "alleged delinquen ." 27 It is only the finding of the court that will determine if he is an "ad- judged delinquent." The term "involved juvenile" may be substituted for "alleged delinquent" when a lesser disposition than court referral is used. Case investigation. "Case investigation" shall refer to that ac- tivity beginning with a complaint, or an "on sight" occurrence, which has indications that juveniles are involved. This may be as either per- petrators or victims of the incident. Case investigation.will carry through the collection of information relative to the incident, include an evaluation of that incident and culminate in a recommendation for disposition. Case disposition. "Case disposition" shall refer to the recom- mendation'which is made by the investigating officer to close a juvenile case. Such dispositions will generally be warning and release to par- ents, indirect agency referral, direct agency referral, and petition to court. Juvenile officer. "Juvenile officer" shall refer to a sworn mem- ber of the department who is assigned exclusively to juvenile work. He shall further be considered to have the authority to initiate, investi- gate and make police dispositions in cases involving juveniles. Agency. "Agency" shall refer to the full spectrum of sources to which a juvenile and/or his family may be referred for help short of court referral. Such might include school counselors, family help agen- cies, welfare, diagnostic centers or child guidance agencies. 28 III. AUTHORITY, GENERAL ACTIVITY AREAS AND RESPONSIBILITY Authority. The handling of cases, which involve juveniles, by personnel of this department will be in strict compliance with applica- ble sections of state law. Particular attention will be paid to that group of statutes which comprise the "juvenile code." In addition, de- partment personnel will familiarize themselves with applicable portions of welfare and education statutes. Applicable local ordinances will be considered and all police efforts involving juveniles shall be within the rules and regulations of the department. General activity areas. Personnel of this department will be responsible for involvement in duties which pertain to the following areas of activity: 1. Discovery of delinquents, potential delin— quents and conditions inducing delinquency, with an over-all view toward crime prevention. 2. Investigation of delinquency and causes of delinquency. 3. Disposition or referral of cases. A. Protection of the child in non-delinquent areas. Although the above areas of activities will pertain to all personnel, such'will have special meaning for personnel assigned full-time to juve- nile work. Responsibility General. Patrol and inspection are fundamental responsibilities of the police department. Patrol operations of personnel assigned full- time to juvenile work are for the purpose of giving special attention to 29 those places or situations throughout the city in which youth are or may be exposed to unhealthy social elements. The activities of personnel assigned full-time to juvenile work does not in any way relieve or con- flict with the uniform beat officer's responsibility for juvenile patrol. The patrol operations of the personnel assigned to juvenile work supple- ment those of the uniform division. The uniform division.will routinely answer all complaints regardless of whether juveniles are involved. In addition to the basic objectives and functions of the police, personnel assigned to juvenile work have additional responsibility of control of‘anti-social activities of youth and undesirable conditions involving youth. Investigation and disposition of cases. To accomplish the con— trol of anti-social activities of juveniles, personnel.assigned full- time to juvenile work will make investigation of individual cases and conditions causing anti-social or delinquent behavior. Personnel assigned to juvenile work will further provide, through gross diagnosis of case factors, a recommended case disposition for each case investigated. Prevention. Personnel assigned to juvenile work will actively seek the prevention of anti-social activities or actual delinquent behav- ior on the part of juveniles. This will be accomplished by efforts to influence juveniles, parents, and the general public to meet the needs of juveniles, to conform to all laws and regulations made for their pro- tection, and to make maximum use of community resources. 30 Personnel assigned to juvenile work will, whenever possible, parti- cipate in community organization planning with other agencies and citi- zens to improve the total community. Functions. Police personnel assigned to juvenile work shall be responsible for: Exerting all the effort possible to the discovery of delinquents, potential delinquents, and conditions conducive to delinquent behavior. Conducting investigations of delinquency that come within the scope of the delegated assignments. Exerting every effort to remove or control environmental hazards. They shall cooperate with civic betterment groups whenever time permits. ‘Whenever possible they shall give assistance to initiating constructive pro- grams. They shall as often as possible patrol areas where juveniles spend their leisure time. Apprehending and aiding in the prosecution of adults involved in offenses against juveniles. The keeping of the juvenile records assigned to them. Acting as the liaison division between the Department and the Juvenile Court, its staff and other agencies, unless otherwise designated by the chief of police. The disposition of all juvenile offenders taken into custody by members of the department. Advising and assisting all.agencies up to the point 'where the department's effectiveness as a law enforce- ment agency is not impaired and where it does not in- clude participation in any agency's programs, unless permission of the chief of police is obtained. IV. PROCEDURES The enforcement of laws remains the responsibility of each member of the police department, and such duty also carries with it the second task of preventing crime. The involvement of juveniles in delinquent 31 or anti-social behavior thus calls for the best efforts of all members of this department. To this end the efforts of those personnel assigned full-time to juvenile work is to supplement and to assist the other uni— formed and plainclothed officers of this department. Prevention of delinquency'and crime, and respect for authority are closely tied together. 'Whenever a police officer contacts juveniles his attitude and manner have an influence on delinquency prevention. If the officer handles himself in such a way as to gain respect and admira- tion, he tends to help develop in the juvenile a’Eespect for authority. A respect for authority and an appreciation of the rights of others are qualities which are often absent in delinquents and criminals. One of the effective means of accomplishing good police contacts with juveniles is to have each contact adhere to certain guides. Since each contact is involvement between at least two people no iron-clad rules can be stated. However, principles of operation can be stated and broad pro- cedural boundaries can be identified. The stating of these broad procedural boundaries are intended as helps, not restrictions. Each officer is expected to bring to his every action the dictates of good sense, common courtesy, and action which will lead to positive control or solution of the situation or incident at hand. Patrol and inspection. All members of this department will incor— porate into field activities attention to matters pertaining to juvenile delinquency. Patrol, Traffic and Detective personnel.will keep in mind that specific responsibilities for delegated specialities will limit but not excuse them from involvement in police activities pertinent to patrol 32 and inspection relative to delinquency prevention and control. Juvenile officers will keep uppermost in their minds the specific responsibility for patrol and inapection activities applicable to delinquency preven- tion and control. Patrol and inspection aimed at lessening incidents involving ju- veniles will seek to identify unwholesome influences on juveniles. Such activity will further seek to make the presence of the police felt so as to restrict the opportunity for delinquent or anti-social activity on the part of the juvenile. Specific inspections will be made of business and recreation establishments where juvenile incidents have occurred. Juvenile officers will make additional inspections of general locations or conditions which are known to constitute a juvenile delinquency haz- ard. The latter may include, but is not restricted to, such areas as lovers' lanes, abandoned buildings, gravel pits, warehouse areas, parks and certain residential districts. Conditions requiring such patrol and inspection may include, but not be restricted to, peak traffic con- ditions or hours, underchaperoned school activities, unusual truancy rate, and business practices conducive to theft. Patrol and inspection activities relating to juveniles will occur on all shifts. Increased.emphasis will occur during vacation.periods, after school hours and during the hours of darkness. Police personnel will have the responsibility for taking appropriate initial action re- lative to juvenile incidents and will bring conditions requiring follow- up or further action to the attention of the appropriate supervisor. Case investigation. All department personnel will accept respon- sibility for initial investigations involving juveniles. Such 33 investigations will be reported on normal department report forms. When— ever possible juvenile officers will respond to the scene of a juvenile incident and.will accept the continuing responsibility for case investi- gation and ultimate disposal of the case. ‘\ Although basic department forms will be used to report juvenile cases, certain aspects of case background will be reported in more de- tail than in adult cases. Juvenile case investigations reports will, whenever possible, contain the officer's observations relative to such factors as: 1. Degree of fabrication in the juvenile's account of the incident. 2. Family and peer group relationships, and visible signs IT‘Egz/ of cohesiveness or lack of it in family and peer group. q. 4' (it; . k 3. Degree that delinquency was planned, result of oppor- {\ ff tunity or significant part of a continuing pattern of (NE/‘ If behavior. A. Visible signs and manifestations of attitudes, values, and loyalties of the juvenile involved. 5. School history, work record, or information relative to the case at hand from the agencies or sources of involvement of the juvenile. Q\ The above will be in addition to the normal narrative account of the in- cident. It will also follow the normal and necessary biographical data concerning the juvenile involved. Interrogation and interviewing. Officers of this department will remember that all interrogations and interviews with juveniles will be within the following framework. To develop meaningful information re- garding incidents involving juveniles while maintaining both the dignity of the officer and the juvenile. Further, that the effort of the officer 3h will be directed toward making the interview or interrogation end on a positive attitude between himself and the juvenile involved. The immediate objectives of a police-juvenile contact which in- cludes interviewing or interrogation will be: To obtain the facts regarding an alleged offense in order to clear up a complaint. To discover whether a particular juvenile was involved in the offense. To learn the significant facts about the juvenile and his total situation. To get the facts about a complaint regarding harmful home conditions or dangerous community conditions. To obtain information about a child found under question- able circumstances. Long-term objectives of an interview or interrogation involving a ju- venile will be: To use the discovered facts to plan a constructive treatment program for the juvenile and his family, or to plan community action to eradicate undesirable community conditions. Whenever possible any interview or interrogation.with a juvenile will be conducted under positive physical conditions. A description of such conditions might include: Privacy--generally the best condition is one juvenile and one officer. Security--the juvenile should know the officer is in con- trol. This should be accomplished without a show of force or physical restraint. Comfort——both the officer and the juvenile should be as physically comfortable as conditions permit. This does not denote plushness but should serve to emphasize that normal comfort allows full attention to the business at hand. Such surroundings should include freedom from unnecessary interruption. ' 35 Although the above do not apply specifically to group situations, officers should be aware of conduct necessary when interviewing groups of juveniles. Of greatest importance is for the officer to establish his purpose for interviewing a specific group. Secondly, the officer must maintain, through his own attitude and actions, positive and firm control. Finally, the officer must show that he recognizes the members of the group as individuals and that the answers or information re- ceived is appreciated. All interviews or interrogations of juveniles will be conducted within the dictates of common courtesy and good sense. Dispositions. Juvenile cases shall be individually evaluated with regard to closing cases through planned dispositions. With regard to case factors the following will be considered by the officer during the planning for case disposition: Attitude of the juvenile. Environmental conditions requiring correction. Past record or consistency of behavior pattern. Each factor will be weighted according to the case under consideration and the choice of disposition will be consistent with obtaining the most help for the juvenile while maintaining the maximum potential for community protection. Juvenile officers may use any of the following dispositions which are considered normal under existing department rules and regula- tions: Warning and release to parents. Indirect referral to social or civic agency. 36 Direct referral to social or civic agency. Petition to court. In each case the parent of the juvenile involved will be notified of the disposition chosen. It is recommended that whenever possible such notification be in the form of a police-parent conference. During such conference the case factors can be discussed and positive explanation be given for the disposition chosen. In cases requiring detention of the juvenile, one of the follow- ing conditions must be present: No supervision-awhen a juvenile concerned is destitute, or obviously in need of supervision or protective custody. Danger to his person-~when release of the juvenile will en- danger his person or morals. Record of runaway--when a juvenile has a record as a runaway and it is reasonable to assume that upon his release he will leave the jurisdiction of the court. Danger to public-awhen the record of the juvenile and/or the gravity of the offense is such that his release probably would prove dangerous to the public welfare. Investigations-when a juvenile's release would seriously hamper the officer's completion of the investigation. In all cases involving significant contact between an officer of this department and a juvenile, the parents of the juvenile will be notified. The only exception to this is in the case of minor contacts not involv- ing actual delinquency. 37 V . ORGANIZATION The juvenile officer or officers shall be responsible for the overaall delinquency prevention and control program of the department. Administrative direction will be given by the chief of police, while shift supervision will be the responsibility of the shift commander. In general, juvenile officers shall be considered as free agents oper- ating for the department as a whole. As such they will accept the responsibility for compliance with department rules and regulations and for expending positive work effort during each shift worked. CHAPTER III REVIEW AND ANALYSIS OF THE LITERATURE Any realistic attempt at reviewing the literature which concerns juvenile delinquency will be a selective review. An attempt to reduce the volume of general material on this subject, to review status, would serve only the purpose of "confusion." This chapter, therefore, will approach that portion of literature which deals with municipal police agencies, or individual officers, and an involvement with juveniles. Primary consideration will be given to the works of several major authors who have produced the core works concerning the police and the delinquent. These few authors will provide a framework upon which can be added materials coming from such sources as reading, unpublished papers, department manuals, court records and interagency communications. This chapter will be divided into two major parts. The first portion will deal.with an overview of municipal police involvement in the prevention and control of juvenile delinquency. This will be fol- lowed by an analysis of the constructed model guide as compared with the literature. Within the analysis portion of the chapter certain conclusions will be drawn concerning the model guide. Also included will be brief conclusions drawn from the agreement or disagreement of the severa1.major authors reviewed. A sincere attempt will.be made to identify, throughout the chap- ter, the most significant trends of police juvenile work as indicated by the literature. 39 I. GENERAL REVIEW Seldom is a police activity begun where there is no need or call for the activity involved. More often it is found that police depart— ments begin activities according to a local need, or desire for a serv- ice expressed by the people, and then continue said activity long past the time that such service is needed locally. Such an example was re- cently brought to light in one of the midwestern states. During the period of high incidence of bank robbery preceding World.War II, local police officers were assigned as bank guards during normal banking hours. Such practice continued until early in the year 1962. It was discovered then that the community had not had either a bank robbery or an attempted robbery since the late 19AO's. Hence, there appeared to be little need to continue the practice of assigning police officers as private guards for the banks of the community. This situation was brought to light when a new chief of police was hired and began the job of establishing current goals, policies and procedures for the department concerned.1 The above story is used as only one of many illustrations which point up the need for constant appraisal of activities. Police depart- ments seem particularly prone to engaging in services or activities which have no firm foundation in the needs of the community served. Of particular note in this area of assumed services or activities is the variety of roles played by the police officer in contacting or handling lProfessor Raymond T. Galvin, "Course Lectures in PLA 320, Police Administration" (The School of Police Administration and Public Safety, Michigan State University, Fall Term, 1963). 1+0 juveniles of the community. Police have largely drifted into such activi- ties, as can be found between the police and the juvenile, simply because both the police and the juvenile were present when a particular incident took place. From such singular incidents, multiplied many times, the po- lice have drifted into areas of activities which are largely unplanned and.where available guidelines are largely uncharted.2 Yet there is re- cognition that the police have a definite place in helping each community to find solutions to problems of juvenile delinquency.3 However, the need for such work to be well planned, based on need, and guided by firm goals should be stressed.u Goolo. Although goals or objectives are important in every field of police endeavor they gain an even more important place in the area of delinquency control and prevention. Basically this is true because the police officer encounters the juvenile in a variety of situations and interacts with the juvenile in a number of different ways. In reality the police officer has a choice of actions and his selection of one of these choices may go far beyond the momentary face-to-face encounter.5 2Anthony R. Paul, "Crime Prevention-4Where Do We Stand?", Report of the Crime Prevention Committee, The Police Yearbook (Washington: In- ternational Association of Chiefs of Police, Inc., 1959), p. 102. 3John P. Kenney and Dan G. Pursuit, Police Work.With Juveniles (second edition; Springfield, Illinois: Charles C. Thomas Publishers, 1959), pp. 5-11. uSophia M. Robison, Juvenile Delinquency: Its Nature and Control (New York: Holt, Rinehart and Winston, 1966), pp. 2211—225. c5The President's Commission on Law Enforcement and.Administration of Justice, The Challenge of Crime in a Free Society (Washington: U. S. Government Printing OfficeT—l967I, ST 79; and Ruth Shonle Cavan, Juvenile Delinquency (New York: J. B. Lippincott Company, 1962), p. 2&0. hl According to Kenney'and.Pursuit, Swanson, and Wilson the police have a definite responsibility to engage in certain activity areas involving the police and the juvenile.6 Although these authors differ as to defined activities, all agree that activities chosen must be based on needs and should be within the boundaries of established goals or objectives. This view is supported by published research accomplished in 1962-1963 by Dr. James J. Brennan and Dr. Donald/W. Olmsted of Michigan State University.7 Such goals, however, must be realistic and must be established within boundaries of law and over-all community composition. They must also answer the general objections to police involving themselves with 8 juveniles and should allow certain definite roles and functions. Legal regulations. The goals established.by police departments, for juvenile work, must first be realistic when viewed in light of state juvenile codes. Such codes generally state, in broad terms, the author- itative actions allowed the police when dealing with juveniles.9 In addition, local juvenile court interpretations can and do affect the boundaries of action goals on the part of the police. 6Kenneyand Pursuit, op. cit., p. 5; Lynn D. Swanson, "Police Processing of Juvenile Cases:W Ifigfitute op Juvenile Delinquency, U. S. Department of Health, Education and'Welfare (Washington: U. S. Govern- ment Printing Office, 1962), p. 39; O. W. Wilson, Police Administration (New York: McGraw-Hill Book Company, Inc., 1963), p. 333. 7Dr. James J. Brennan and Dr. Donald W. Olmsted, Police Work With Delinquents: Analysis 2£.§ Training Program (East Lansing, Michigan: Michigan State University, 1965), pp. 2, 86: 8International City'Managers' Association, Municipal Police Ao- ministration, ed. Richard L. Holcomb (fifth edition; Chicago, Illinois: The International City Managers' Association, 1961), pp. 20%, 208-209. 9Children's Bureau, U. S. Department of Health, Education.andee1— fare, Police Services for Juveniles (Washington: U. S. Government Print- ing Office, 195M), pp. 1-2. #2 Authority becomes the key word when one examines the legal regula- tions which affect, first, the establishment of goals for juvenile work and, later, the engaged-in functions of the police department. In each of the juvenile codes reviewed by this author the police are given the authority to: l. Engage in police-juvenile contacts and interactions. 2. Seek information from juveniles about street activity. 3. Investigate complaints against juveniles. h. Take into custody alleged delinquents engaged in specifi- cally forbidden behavior. 5. Make decisions as to dispositions of juveniles taken into custody. These allowed activities carry with them the weight of authority. As such they place a burden upon the police, both collectively and individu- ally, to act in a responsible way. Although not specifically stated in the various juvenile codes, the language used tends to imply the need for controlled juvenile pro- grams on the part of the police.10 Such control may be said to start with the establishment of goals or objectives.11 Justification for police involvement. One can find a number of references to the answer given by the mountain climber when asked.why he climbed mountains. The answer traditionally has been stated, loBoth California and New York have the applicable laws governing juveniles divided into two major areas. One area of the statute is simi- lar to the traditional form of juvenile codes and deals primarily with delinquent behavior. The other area of both codes deals with the welfare of the juvenile, or as New York phrases it, the juvenile in need of help. llChildren's Bureau, Police Services for Juveniles, loc. cit. l+3 "because the mountain is there." For perhaps the same reason the police can justify their interaction with juveniles. In every community there can be identified certain problems which exist relative to the behavior and peer group actions of the young of that community. Each community also has an agency of service and enforcement commonly called the police. Both are there much as is the mountain and the mountain climber. How- ever, in the case of the juvenile and the police, the latter have been charged.with certain definite responsibilities.l2 Among the traditional ones are protection of the life, property and rights of people and the preservation of order.13 Contact and interaction with juveniles is im- plicit in the charging of such responsibilities. Wilson identifies quite specifically certain justifications for police work with juveniles}!+ Such can be summarized as follows: 1. A police department is charged with the definite respon- sibility to prevent crimes. No other community agency has this specific task. 2. A police department is generally first to discover persons, places, and situations which require atten— tion to prevent or control delinquency. 3. A police department occupies a strategic position to gain the cooperation of other services and agencies in a delinquency prevention program. A. Police interaction with today's juvenile can produce better police-public relations with the adult of tomorrow. 12Lynn D. Swanson, "Police and Children," The Police Chief (June, 1958), p. 2. l3 International City Managers‘ Association, op, cit., p. 208. lL'Wilson, op, cit., pp. 327-328. MA 5. Police can invoke a discretionary choice in choosing a course of action not available to other services or agencies. The above justifications, or similarly stated ones, are expressed by Kenney and Pursuit, Robison, and Myren and Swanson.15 Although specific justifications are more easily defended and can be more rationally stated, there is much to be said for the original jus- tification stated in this section. The police and the juvenile are part and parcel of each community; far better that they meet and interact as part of an over-all program. Objections po_police involvement. Referring again to Wilson, one finds several objections to police being involved in the prevention and control of delinquency.16 The major objections would include: 1. Police are not qualified. 2. Police participation in delinquency prevention and control results in unwholesome experiences for some juveniles. 3. Police usurp or duplicate the services of other agencies. Such objections are called erroneous by Wilson, but field research shows that they are based in part on fact.17 Perhaps the above objections are too general and should be refined. Certain authors indicate that police-juvenile involvement is unavoidable 1'5Kenney'and Pursuit, op. 913') p. 6; Robison, l2§°.EiE°3 Richard.A. Myren and Lynn D. Swanson, Police Work With Children, Children's Bureau, U. S. Department of Health, Education, and'Welfare (Washington: U. S. Government Printing Office, 1962), pp. 5—8. 16Wilson, op. cit., p. 329. 17l‘bid. 1+5 and that objections, if any, should be defined and specific ones listed. Robison takes the position that either justifications or objections to police actions should be based on individual cases.18 She talks more in terms of police action reflecting the over-all attitude of the community, that it directly relates to the quality of training received by the offi- cer, and that objections are justified when the police program in delin- quency prevention and control seems to be without planning or direction. According to Cavan, police interaction with juveniles is most significant among young juvenile and minor offenders.19 Here the ob- jection is raised to police, only if police interaction with juveniles is shown to be without a proper exercise of the "vast power" available over juveniles. In point, this author is admitting that the police have a role but objects if that role is not defined and controlled by goals or definite proper objectives. One of the better answers to those who would object to the police involving themselves with juveniles was stated in a recent speech given by University of Arizona Professor Sanford W. Shoults. The speech was to municipal police representatives considering the role of police and the juvenile problems of their communities. Professor Shoults stated: Within the meaning of the theme of this fine conference and, more specifically, within the frame of reference of the topic to which these remarks are addressed, the police department being spoken of is the only legally constituted organization in your city vested with the legal authority to discover and 18Robison, op, cit., pp. 210-211. lgCavan, op. cit., pp. 239-2A2. 1+6 identify and then process through the courts those people, places, and conditions which are identified.with and are involved in the juvenile crime problem.2 Although Professor Shoults does not identify the need to establish goals, he does place the police firmly in a position of "right" to deal.with the juveniles of a given community. However, later in the presentation Pro- fessor Shoults makes the point that a police chief has the responsibility to plan department programs in delinquency prevention and control.21 This is another way of pointing to a need for established goals in police programs of delinquency prevention and control. Establishing goals. In a research report published by the Inter- national Association of Chiefs of Police, the topic of goals or object- ives was openly discussed. This report, "Juvenile Delinquency and Youth Crime: The Police Role" opened with indications of why an organization should establish goals or objectives. Their opening discussion centers about policy statements and the purpose of such statements. As these are handled in this research report, they can be equated.with the "why" of establishing goals. The several purposes for such statements are paraphrased as follows: They define the broad objectives of the police, consistent with the philosophical tenets upon.which a democratic so- ciety is based. They provide standards against which each individual agency may measure its posture on specific issues. 2OSanford w. Shoults, "Administrative Concepts Involved in Co— ordination of Youth Crime Prevention Efforts by'Police," (address pre- sented to Police Administrators Conference, California State Polytech- nic College, San Dimas, California, April 15, 1965). 211nm. A7 They instruct and enlighten persons outside the police field and thereby tend to shape the public’s expectations.22 The negative statement of what occurs when a police department involves its officers with juveniles, with little or no planning, with no goals or established policy, and.with a view only to immediate prob- lem solving can be considered. According to Lohman, many departments operating without goals for their police involvement with juveniles fall into a number of procedural pitfalls.23 Such departments generally fail to utilize all the resources available to the community for dealing with delinquency. Rather, the officers of such departments know only to ar- rest and send to court, or to release to parents those juveniles en- countered. These same departments vacillate between "get tough" cam- paigns and rehabilitation efforts, each program inadequate and a re- sponse to the immediate mood of the press and vocal citizenry. Many such departments also use their juvenile units as dumping places for infirm officers. Officers who are work problems and do not fit elsewhere, or who say'they like kids and, therefore, should work.with them.are ex- amples of the above. These few examples are only part of what occurs when police interact with juveniles without planning, without direction, 2A and.without over-all goals for a comprehensive program. 22George'W. O'Connor and Nelson A. Watson, Juvenile Delinquency and Youth Crime: The Police Role (Washington, D. C.: International Association of Chiefs of Police, 196A), p. 3. 23Joseph D. Lohman, Juvenile Delinquency (Chicago, Illinois: Office of the Sheriff, Cook County, November, 1957), pp. 22—23. 21+Ibid., pp. 25, A2. AS Although no single source reviewed listed the specific goals which should be followed by a department, several indicated broad boundaries within which such goals should fall. One such source stresses that goals should relate to police aspects of controlling delinquency, to the processes of handling the individual delinquent, and to police involvement in delinquency prevention or control through the efforts of community organization.25 In more general terms those areas which guide police construction of program goals are really the boundaries of the traditional police role, namely: Control of crime and violations of the law. Enforcement of regulations.26 Added to these are police involvement in general assistance to the public and some facets of programming for delinquency prevention and control.27 The emphasis on three general areas of effort, and their re- spective boundaries, is supported by Pierce, who indicates prevention, enforcement, and staff services to community organization efforts as proper for police involvement.28 Perhaps the suggestion of the Inter- national City'Managers' Association text on Police Administration fits best when they indicate that: 25Brennan and Olmsted, op. 333': pp. 1—3. 26Children's Bureau, Police Services for Juveniles, 22°.EEE" p. 2 271hid. 28 Lawrence W. Pierce, "Vigorous Law Enforcement Plus Effective Crime Prevention (Increased Community Involvement) . Effective Delin- quency Control," The Police Chief (October, 1962). 49 Police responsibility for juvenile work must be defined and guided by definite programs. Such programs should fall between the extremes of pure enforcement orientation and the extreme found in attempting to equate the police officer with pure social work.29 In summary, the police can be indicated as a community resource having some responsibilities relative to the juveniles of a community, and to the problems which arise out of the behavior of those juveniles. Further, the police role, in part, is defined by law and.is further de- fined by the over-all desires of the community itself.30 In turn, police programming for delinquency prevention and control should be guided by the establishment of definite goals or policy objectives.31 Definitions. Although lack of uniformity of procedures or role of the police in delinquency prevention and control is cited many times, little can be found which sets out really basic definitions.32 The de— linquency'problem is defined as severe, moderate, decreasing; age limits for juveniles vary from state to state; and terminology used in the field fluctuates accordingly, not to national or regional standards, but to local definition and interpretation.33 Likewise, little actual agreement can.be found as to what basis should be used for the construc- tion of terminology or basic role definitions. 29International City Managers' Association, op. cit., p. 20h. 3OSwanson, "Police Processing of Juvenile Cases," op. cit., p. 53; and Kurt W} Metzler (ed.), Youth--Law--Police (Chicago, Illinois: Training Division, Chicago Police Department), p. A. 3lJohn E. Winters, Crime and Kids (Springfield, Illinois: Charles C. Thomas Publishers, 1959), pp. 35, A5. 32Nelson A. watson, "Analysis and Self-Criticism in Juvenile ‘Work," The Police Chief (June, 196A), pp. 3—5. 33 International City Managers' Association, op. cit., pp. 205-206. 50 Within the juvenile field it must be recognized that terminology and role definition are first subject to applicable statutes and ordin- ances.3h It follows, then, that there will always be some variation in this area. Nevertheless, there should be uniformity of general content in terminology considered proper even though exact word meaning cannot remain constant. Robison highlights this need.when she states simply that while a search continues for satisfactory definitions and explan- ations, someone must man the first lines of defense against increases in delinquent behavior of juveniles.35 Such front-line people are most often the police and, as such, must have understandable guidelines to official behavior expected and approved. Due to lack of common definitions found within the literature, constructed definitions have been utilized for the purpose of this thesis. The author would cite the following sources as those most com- monly used for choice of terminology and constructed definitions. Wilson, Kenney and Pursuit, Myren and Swanson, Holcomb (editor), O'Connor andTWatson, Robison, and Cavan.were reviewed to gather the most common terms applicable to the field of study.36 A definition 31*It should be noted that the basic framework for any police ju- venile work is the state statute encompassing the juvenile code. More specific language covering police juvenile work can often be found in the multitude of ordinances passed by municipal government. 35Robison, op. cit., p. 207. 36Wilson, op. gig. Chapter 16; Kenney'and Pursuit, 22:.EIE°) Chapters 1 and 3; Myren and Swanson, op. cit., pp. 1-20; International City'Managers' Association, op. cit.,—ChapEEr 6; O'Connor and.Watson, op. cit., Chapter 5; Robison:_opT_Cit., Chapter 15; and Cavan, op, 213°, CEapEEF l9. —— '__— 51 list, from a suggested procedural manual of the Wisconsin State Department of Public Welfare, was then used and modified from the above sources.37 These constructed definitions can be found in Chapters I and II and will be applicable throughout the present work. Authority, general activity areas, and responsibility. On becoming a police officer, each applicant is sworn to uphold the law through fair and impartial enforcement. This oath indicates the responsibility of the officer to ordinances, laws and statutes in effect at several levels of government. Among these many expressions of social and formal descrip— tions of behavior, permitted or forbidden, are to be found ones describ- ing the mode of conduct for juveniles. In turn, these juvenile codes present a format for the processing of offenders. Authority. ‘Without exception, the juvenile codes of all fifty states give certain responsibilities to the police. Such responsibil- ities concern the authority by which a police officer maprlace a juve- nile in the process of movement through the juvenile justice system. In addition, certain of these juvenile codes give the police officer the authority to make dispositions short of formalized action by the juve- nile justice system.38 This authority to act is recognized by all material reviewed, but Swanson summarizes the major point by stating: Since the community expects the police department to assume responsibility for effecting a positive program for children, the community must accept responsibility for providing the opportunity to all police officers to acquire a better under- standing of human behavior and greater skills in handling 37Alvin T. Nygaard (ed.), Procedural Manual For Law Enforcement 32 Juvenile Matters (Madison, Wisconsin: Wisconsin State Department of Public Welfare, Division for Children and Youth, 1962), p. l. 38Robison, op. cit., pp. 209-210. 52 children's cases. With this cooperation, the police will gain public good.will by their use of effective procedures and sound philsophy in their contacts with children.39 Such emphasis recognizes that formal authority exists but also recognizes that authority must be applied with more than the mere weight of law. Police programs in delinquency prevention and control should be based on authority which stems both from the law and from the competence of the officers involved}IO General activity areas. Although the concept of policeman first and juvenile officer second is stressed, the majority of the literature reviewed agreed that certain definite functions are appropriate to a juvenile officer or juvenile division. One such listing of proper func- tions is as follows: Discovery of delinquents, potential delinquents and con- ditions inducing delinquency. Investigation of delinquency'and causes of delinquency. Disposition or referral of cases. Protection of the juvenile.lIl Wilson agrees with these four basic areas of functions but adds responsibility for eradicating unwholesome environmental influences and, in certain cases, sponsorship of recreation programs, the latter based on identified community needs peculiar to the community concerned)‘2 39Swanson, "Police Processing of Juvenile Cases," op. cit., p. 53. hoRobison, op, cit., p. 218. thenney and Pursuit, op. cit., p. 27. LZWilson, op, cit., p. 339. 53 Lohman, Myren and Swanson, Robison, and the International City Managers' Association tend to agree on the basic four areas of activities.b'3 How- ever, each of these latter sources place emphasis on discovery or patrol activities and on the investigation and disposition of specific cases. Added to investigation and disposition of cases is the need for police personnel involved in juvenile work to provide staff services to the chief of police and other division commanders. The case for such activ- ities is best stated by Myren and Swanson.uh Both prevention and control of delinquency can be the aim of police patrol; and police inspection of persons, places, and activities can also contribute to prevention of juvenile misconduct}IS Good patrol coverage of areas prone to juvenile misbehavior can substantially reduce the opportunity for misconduct. Such patrol can also pinpoint influ- ences and conditions which contribute to delinquent acts.1+6 The practical summary is that police activities with juveniles cover the full spectrum of traditional police actions. However, in interaction with juveniles these activities are modified to fit the age, maturity, involvement and social sophistication of the juvenile concerned. In addition, consideration must be given to the seriousness of the complaint or offense, past record, and impact of the police action on both the community and the involved individual. h3Lohman, op. cit., pp. A6-A8; Myren and Swanson, op. cit., p. 9; Robison, op, cit., pp. 209-212; and International City'Managers‘ Associ- ation, op, cit., p. 219. MLMyren and Swanson, op. cit., p. 10. 1+5Wilson, loc. cit. 1+6Winters, op. cit., pp. 5A-55. 51+ A further breakdown of the general activity areas can be accom- plished by dividing police work with juveniles into prevention, patrol and inspection, investigation, and corrective actions. Use of these titles will allow coverage of the activity areas as outlined by'Wilson.II7 Prevention. One concept of prevention sees the police as only being able to reduce the opportunity for delinquent acts.”8 Others view the police as also being able to reduce the desire of an individ- ual to engage in acts of delinquency.1+9 Yet others see the police role in prevention as part of every action between the police and the juve- niles of the community.50 As police departments move ever nearer a goal of more professional status and conduct, it would appear that the latter concept will gain the greatest recognition. Little argument is found with police prevention of delinquency, when that prevention is within the accepted activities of the over-all department. Exception is taken to police prevention programs which in- clude duties such as directing recreation programs, doing probation work, or encroaching upon the legitimate activities of the other agencies.51 uTWilson, loc. cit. 1+8Irving Piliavin and Scott Briar, "Police Encounters with Ju- veniles," Juvenile Delinquency, A Book o£_Readings, ed. Rose Giallom- bardo (New York: John Wiley and Sons, Inc., 1966I, p. AA3. hQWinters, op. cit., pp. 9—11. 5ODr. James J. Brennan, "Course Lectures in PLA L52, The Admin- istration of Crime and Delinquency Prevention Programs" (The School of Police Administration and Public Safety, Michigan State University, Winter Term, 1963); and Kenney and Pursuit, op. oip., p. 2. 51Lt. Roy Hibbard, "Prevention Standards," The Police Chief (August, 1961), pp. AO-Al. 55 It would seem that police prevention should be better defined by actual goal orientation. Also, that avoidance of criticism can be accomplished by exploring inter-agency team approaches to prevention of delinquency.52 Kenney and Pursuit emphasize the discovery of delinquents, poten- tial delinquents, and conditions inducing delinquents as a prime activity for police.53 Action by police within these areas can contribute signi- ficantly to delinquency prevention. Discovery of delinquents and subse- quent proper disposition emphasize the consequences of delinquent behav- ior. The handling of potential delinquents, through street counseling or proper agency referral, can truly prevent delinquency. Finally, the seeking of corrective community action regarding conditions inducing delinquency removes many opportunities or motivations for delinquent behavior. Miller, Cavan, Robison, Lohman, and Juergensmeyer all concur that actions such as those described above have a place in positive pro- grams of delinquency prevention.52+ Patrol and inspection. The activities of police in patrol and in- spection cover a variety of purposes. They are at one and the same time part prevention.and part control. Through patrol the police can keep track of juvenile patterns of activity, can usually observe places 52Children's Bureau, Police Services for Juveniles, op. cit., pp. hh-5o. 53Kenney and Pursuit, op. cit., p. 27. 5hHaskell M. Miller, Understanding and Preventing Juvenile Delin- quency (New'York: Abingdon Press, 1958), pp. 110- 11h; Cavan, op. cit. pp. 239- 2AO; Robison, op. cit. ., pp. 219- 220; Lohman, op. cit. ., pp. 29- 31; Irvin K. Juergensmeyer, "Education for Delinquency Prevention," Police (May-June, 1959), PP 25-27 56 frequented.by juveniles, and can make numerous "on sight" contacts with juveniles. In addition good patrol will uncover many acts of delinquency, and subsequent police action can lead to proper dispositions being struc- tured.55 Although visual inspection is part and parcel of patrol, more formal inspection must be made of certain places and conditions which can and do affect juveniles. Tavern or saloon areas, bus stations, theaters, dance halls, and large crowd occasions are all proper places for closer 56 police surveillance. Each presents a special environment that can be conducive to delinquent behavior. In addition, such places or occur- rences provide an opportunity for adult actions against juveniles. These latter might include narcotics or liquor sales, sex perversion, or simply unwholesome adult behavior visible to juveniles.57 Good inspection ac- tivities can reduce delinquency and can influence environmental changes aimed at lessening the opportunity for delinquency.58 Investigation. Society has given to the police the right of proper inquiry. This right of inquiry, when accomplished within de- fined boundaries, can be identified as investigation. As applied to adults the boundaries of allowed investigation are narrower than.when applied to juveniles. Primarily, this has been the result of the belief that earlier and deeper investigation may uncover the delinquent at a 55Myren and Swanson, op. cit., p. 12. 56 International City Managers' Association, op. cit., p. 221. S7Kenney and Pursuit, op. cit., p. 29. 58 Brennan, "Lectures," loc. cit. 57 point where rehabilitation will succeed. Swanson, writing in the Police 9932:) outlines a police juvenile investigation as follows: 1. Determination of the validity of a complaint. 2. Proof that juveniles were involved, not merely suspected. 3. Clear, concise workup of the police report to clarify complaint, juvenile involvement, and facts uncovered by the investigation. A. Preparation of a social evaluation of the juvenile and pertinent peripheral information about the case. 5. Recommended disposition based on all the facts of the case.59 This general pattern for investigation is concurred.with by Brennan, Wilson, Clift, and'Winters.6O All literature reviewed indicated that the techniques of good and proper criminal investigation are applicable to both adult and juvenile cases. Only in how the gathered material is evaluated and used does the delinquency investigation differ from the 61 criminal investigation of an adult case. Corrective actions. Agreement is general among those agencies who handle cases of delinquency that not all cases can be referred to the juvenile court.62 Some form of evaluation and an act of decision 59Swanson, "Police and Children," op. cit., p. 22. 60Dr. James J. Brennan, "Police and Delinquent Youth, " Journal of Criminal Law, Criminology, and Police Science (March—April, 19565, pp 7-8;'Wilson, op. cit., pp. 3hl- 3A3; Raymond.E. Clift, A Guide to Modern Police Thinking (Cincinnati, Ohio: The'W. H. Anderson Company, 19655, p. 23E; and'Winters, op. cit. ., p. A8. 6J1Theodore B. Knudsen, Legal Aspects of Delinquency Control Minneapolis: University of Minnesota, General Extension Div., 1962), Chapter 1A. 62Cavan, op. cit., p. 2A2. 58 must occur as to which cases are referred. Then, those cases not re- ferred to the court must be disposed of by the originating agency. In the case of many police departments only a few cases are formally re- ferred to juvenile court. The rest are handled by: l. Outright release. (May include warning) 2. Simple treatment by the police, i.e., parent-juvenile- police home or station conference. 3. Referred to school counselor, social agency, or other rehabilitation source . h. Cooperative police-agency plan for the juvenile involved . 3 Myren and Swanson approach corrective actions available to police as being limited to only three: These are: l. Referral back to parents. 2. Referral to social agency. 3. Referral to juvenile court.6h Probably the greatest emphasis on police being allowed.wide but guided latitude is that given by Lohman.65 He emphatically emphasizes that police have contact with more delinquents than other agencies, that police have knowledge of and interact with vast numbers of unofficial de- linquents or acts of delinquency, and that two out of every three delin- quency cases are handled in some form less than official court referral. In turn, this indicates a vast responsibility accepted by the police, namely, to assure that the officers assigned to juvenile work have 63Wilson, 92. cit., p. 31+3. 6LLMyren and Swanson, op. cit., p. 30. 65Lohman, op. cit., p. 29. 59 sufficient in-depth training to successfully evaluate and decide appro- priate dispositions. Support for initial case screening by police, and use of dispositions other than court, can be found among several authors. Cavan and the East Lansing Conference Report both support Wilson in rec- ommending wide latitude in dispositions used.66 Piliavin and Briar agree that many dispositions are used but stress that too many police deci- 67 sions are based on insufficient depth case information. Organization Patterns of organization for police juvenile work vary with both the department size and the degree of emphasis on such work. In the majority of smaller departments the responsibility for juvenile work rests with each man of the department. As department size increases, juvenile assignments are given to selected men as part of their regular assignments. Such a practice, in general, leads to the formation of some special unit to handle juvenile matters.68 Specialization, for juvenile work, is discussed by'Myren and Swanson as a necessary part of modern policing.69 They indicate that the degree of specialization will vary, and that organizational place- ment is not as important as the relationship between the top administra- tor and the men doing juvenile work. Stress is placed on the particular 66Cavan, loo. cit.; Children's Bureau, Police Services for Juve- niles, op. cit., pp. 20-26, 35; Wilson, op. cit., p. 333. 67Piliavin and Briar, op. cit., pp. uuu-uu6. 68Cavan, loc. cit. 69Myren and Swanson, op. cit., p. 16. 6o relationship of the chief and the supervisor who directs the depart- ment's delinquency program. Although a number of authors stressed the matter of general organi- zational relationships, most literature reviewed made a definite place- ment of the department juvenile work. At opposite poles are the views of O'Connor and'Watson and those expressed by the International City Managers' Association.70 The first would always place the juvenile bu- reau under the criminal investigation division, while the latter would have direct reporting of juvenile work to the chief of police. A consen- sus was found that those assigned to juvenile work should have a degree of freedom to act, that such assignment carried a responsibility to act, and that sufficient authority should accompany assignment to juvenile work. A good coverage of these latter items is found in'Wilson's chapter, "Organization for Command."71 II. ANAIXSIS AND CONCLUSIONS, MODEL GUIDE TO LITERATURE Little would be gained by simply repeating, point for point, the model guide. However, value can be gained by indicating some sections which would require modification. Such modification, in general, would result from differences in department size, type of community served, department goals, type and size of the juvenile problem, and department emphasis placed on police juvenile work. 70O'Connor and Watson, op, cit., pp. 52-5h; and International City Managers' Association, op, cit., p. 21h. 71Wilson, g. cit., p. 79. 61 On the whole, support was found in the literature for the content, aims, and general orientation of the model guide. Comparison with the literature does indicate that the model guide is constructed to cover "middle ground." Authors whose works disagreed with the model guide were generally either in favor of a more social work-police approach or were adamant about police-juvenile work being simply adult procedures applied to juveniles. This author recognizes that the greatest influence for the model guide was that of Professor James J. Brennan, Michigan State University.72 This professor, now deceased, was constantly searching for the correct means to make police-juvenile work truly function. His emphasis on mak- ing the majority of police-juvenile contacts conclude in a positive way definitely shows in the model guide‘s emphasis on disposition decisions based on diagnosis.73 His influence also shows in the emphasis placed upon establishing definite department goals. Support for the major premise of the model guide can be found in the research article by Piliavin and Briar.71+ This being that police- juvenile work be directed by well-constructed guides or goal-oriented programs. Further, that dispositions should be based on more than the 72 The author served as special graduate research assistant to Dr. James J. Brennan from January, 1963, to August, 196A. This period of time covers the field research accomplished in conjunction with the pub- lished material, Police Work With Delinquents: Analysis of’o Training Program. Cited research.was accomplished under Public Health Research, Institutes of Health, Department of Health, Education and Welfare. 73Brennan and Olmsted, op. cit., p. 2. 7hPiliavin and Briar, op. cit., pp. hhl-hh9. 62 demeanor, dress, and general action of the juvenile at the scene of the incident. Agreement for this area can also be found in the President's Crime Commission Report.75 The report indicates a need for the fomula- tion of policy guidelines by police for department contacts with juve- niles. O'Connor and Watson give weight to planned guidelines for juve— nile‘work.76 Their book concerning the police role is actually a sample guide for police juvenile work. Modification of the model guide would be necessary under the sec- tion, "Case Investigation." To this section should be added a considera- tion of the type and seriousness of the delinquency under investigation. Both Kenney and Pursuit, and‘Wilson include such consideration within their discussions of juvenile case investigations.77 While the majority of authors reviewed supported the dispositions as stated in the model guide, certain sources would more strictly limit such dispositions. Possibly the best statement for fewer forms of dis- positions is that given by Myren and Swanson.78 Their emphasis would seem to be when in doubt, refer to the juvenile court. 3 Summary. 'While many points of view can be found on police juve- nile work, a predominant majority favor the community involvement of police with juveniles. Agreement can be found for police activities 75The President's Commission on Law Enforcement and Administra- tion of Justice, op. cit., p. 79. 76O'Connor and Watson, op. cit., pp. h5-h8. 77Kenney and Pursuit, op. cit., p. 250; and Wilson, Q. cit., pp. 3hO-3h2. 78Myren and Swanson, op. cit., p. 28. 63‘ such as patrol.and observation, investigation of juvenile cases, and cooperation.with other concerned community agencies. Less favored are such activities as police athletic leagues, voluntary police supervision (a substitute for probation services), and long-term rehabilitation or counseling services. An undertone which runs throughout the literature is the necessity for further study. Much reference is made to the amount of theoretical research accomplished and the small amount of study as to how to apply such research. Emphasis is placed upon the need for police to involve themselves in such study. Resultant police juvenile work would then be based on fact, not supposition; on local need, nor borrowed programing; and could then be pointed toward actual goals. CHAPTER IV CASES AND ANALYSIS MUNICIPAL POLICE JUVENILE WORK The primary purpose of this chapter will be to present case stud- ies obtained from the actual field research. In addition, specific sections of the chapter will be devoted to analysis of the case studies. Such analysis will include comparisons and comments relative to the constructed model guide, the review of the literature, and the actual case studies. Division of the chapter will be as follows: (I) Meth- odology, (II) Case Studies--Police Departments with Juvenile Bureaus, (III) Evaluation and Findings--Police Departments with Juvenile Bu- reaus, (IV) Case Studies--Police Departments with Lone Juvenile Officer, (V) Evaluation and Findings--Police Departments with Lone Juvenile Officer, and (VI) General Findings. I. METHODOLOGY Field studies were initially conducted in twenty-five police de- partments through the medium of personal interviews. According to the initial criteria for thesis use, the case studies were culled to the ten having most applicable information. The majority of departments not in- cluded did not separate police juvenile work from reguLar duties. Yet others did not choose to continue as part of a college-oriented research program. The above reasons cover nine of the fifteen departments not ap- pearing in research information. Changes in key personnel or department reorganization caused the rejection of the other six. 65 Police departments included had definite police juvenile programs. Responsibility for juvenile work was assigned to one officer, or actual assignment was to a juvenile bureau. In addition, all included depart- ments consented to the personal interviews, review of actual cases, and observation of field work. Interviews. The initial interview within each department was with the head of the juvenile bureau, or with the specific officer assigned to juvenile work. In each case appointments were made in advance. This procedure assured the availability of the interviewee, plus some arrange- ment for privacy during the actual interview. Advance notice of the in- terview also helped in having case materials available.” The interview itself was guided by'a formal interview schedule.l Prior to the start of the interview a full explanation was given of the schedule and the general purpose of the interview» In cases where the interviewee desired to view the interview schedule, this was allowed. It was found that discussion of questions from the person interviewed resulted in almost as much useful information as did the formal inter- view schedule. Hence, much general discussion occurred between questions from this interviewer. Notes were made at the time of the interview. In addition, such notes were expanded as soon as possible after the interview. To supple- ment the written material obtained, subjective comments were taped for later comparison and evaluation. 1See Appendix A for interview schedule for juvenile officer. This was constructed for research in police juvenile work. It is used with permission of Dr. James J. Brennan, School of Police Administration and Public Safety, Michigan State University. 66 The above procedure was followed in the second interview within each department. This second interview was with the highest administra- tive officer having direct responsibility for department juvenile work.2 In those departments having one assigned officer this was the Chief of Police. In all other cases, the second interview was with a command officer at/or above the rank of Captain. Following both interviews a rough summary was written on the juve- nile work of that department. In each community informal interviews were held with representatives of the local juvenile court and public schools. These latter interviews, although informal, helped to verify the information received from the individual police departments. Information from the formal interview and a subjective summary of department cases were used to construct a case study format. This for— mat was then used to guide the writing of the actual case studies. In turn, the case studies have been analyzed with regard to engaged-in functions as compared to recommended police juvenile functions. II. CASE STUDIES—-POLICE DEPARTMENTS WITH JUVENILE BUREAUS The following five case studies concern police departments having actual juvenile bureaus. These case studies were developed from person- al interviews, case reviews, and physical observation. For presentation the material has been developed in a narrative summary with careful 2Appendix B shows interview schedule for police administrator. This schedule was constructed for research in police juvenile work and was used.with permission of Dr. James J. Brennan, School of Police Ad- ministration and Public Safety, Michigan State University. 67 attention to the inclusion of pertinent facts. Each case study is pre- sented according to the following format: 1. Community Description 2. Viewed Purpose and Duties of Police Juvenile‘Work 3. Actual Department Program of Delinquency Prevention and Control h. Variables Affecting the Juvenile Program of This Depart- ment An analysis of these case studies will follow their presentation with general conclusions to be discussed in the next chapter. COMMUNITY A Community Description The population of Community "A" is between 35,000 and h0,000 per- manent residents. The economic base of the community is mixed retail business and medium-to-heavy industry. Residential areas tend to be mature ones except for downtown areas of homes and apartments recently given over for urban renewal destruction. This urban renewal project has caused a significant number of families to relocate. Primarily the relocation has been to an older area of one-family estate homes which have now been converted to multi-family dwellings. Community "A" is policed by an organization of 117 people. Of these, one hundred men and.two women are sworn, while the rest are con- sidered civilian department employees. Placement of the juvenile bureau, with.which this study is concerned,is as a unit of the detective divi- sion. A Sergeant is in charge of the juvenile bureau and reports direct— ly to the Captain of Detectives. Under the supervision of this Sergeant 68 are three patrolmen and one policewoman. All members of the juvenile bu- reau, including the Sergeant, carry an active case load and are respon- sible for field.work. Viewed Purpose and Duties of Police Juvenile Work The stated administrative purpose of this department's juvenile program is the prevention of crime. Both the juvenile Sergeant and the detective Captain indicated this as the major goal. Additional discus- sion concerning the meaning of prevention brought forth little explana- tory material. Basically these two police officials stated that preven- tion.was the absence of crime. The establishment of relationships with the young people of the community was viewed by the Sergeant as a primary way of accomplishing the goal of prevention. He viewed the guiding of young people, by di- rect police action, as a way of achieving better citizenship on the part of local juveniles. The Sergeant further stated that a part of the juvenile officer's duties is to be sure that teenagers understand the possible consequences of their actions. To know the juveniles of the community, and to be aware of ad- verse habit patterns on the part of teenagers, was viewed by the Captain of Detectives as the primary duty of the juvenile officer. A result of this would be the amassing of intelligence data to aid in.the investiga- tion of complaints involving acts of delinquency. A further duty of the juvenile officer should be his availability to the juveniles of his community as a source of help when needed. 69 Actual Department Program,of Delinquency Prevention and Control The actual activity of the juvenile bureau of this department differs quite drastically from the viewed purpose and duties. Primarily the duties are "after the fact" activities which follow a reported delin- quent act. The majority of emphasis is placed on handling complaints invo lving juveni le S . Cases come to the attention of this unit either through direct complaints or from the line officers of the uniformed divisions of the department. At this point the actions of the juvenile officer closely resemble those of a detective. The primary emphasis is on determining the degree of participation by the suspected teenager. Once a determina- tion is made that a particular subject is guilty of a delinquent act, the following actions are taken: 1. The subject is either transported to the station or home. 2. His parents are informed and a meeting is arranged be- tween the parent-juvenile combination and the juvenile officer. 3. A contact card is made out and filed for each incident in which the subject is involved. A. Information is entered on a central index card, and an investigation report is completed. 5. Parent-police-juvenile meeting is held. At this time the delinquency of the child is discussed and a dis- position is decided. The choice of action on a case is most often between referral to the juvenile court and release to the parents for their handling. The actions of this juvenile bureau are based primarily on guilt or innocence of those juveniles suspected of delinquent acts. Little consideration is given to case factors which point up weaknesses or 70 needs in family life, environmental or peer influences, or personal weak- nesses of the individual. This lack of attention to all of the pertinent case factors is reflected in the lack of variety of dispositions used. A number of social, school and.welfare agencies provide services which could be but are not used by this department. A narrowness of programming is reflected in the failure of this department to take action in the area of juvenile contacts prior to par- ticipation in delinquent acts. No special effort is made to have the several local gathering places of teens contacted through patrol activi- ties, by either the juvenile or uniformed police personnel. Procedures for handling juvenile cases are not written into the over-all policy statement of this department. Verbal instructions are used and varying interpretations, by command personnel, have created instances of confusion and conflict. Although tolerated, the juvenile bureau of this department is given little or no support from the line units. Variables Affecting the Juvenile Program.of this Department The multitude of problems which are incurred by all suburban areas of central metropolitan areas are faced.by this community. Of particular importance to the local picture of juvenile delinquency is the increase of minority groups and subsequent conflict with local Caucasian youths. Primarily this has taken the form of fights and theft raids into the territory of the opposing group. Yet another problem is the influx of transient persons from the central city. These youths avail themselves of such local recreational 71 services as are available and often times commit acts of delinquency be- fore leaving the area. Opposing views of the mayor and administrative personnel of the police department concerning police juvenile work affect the over-all program. This conflict has actually hampered the juvenile Sergeant in his requests for personnel or expansion of activities. COMMUNITY B Community Description Between 90,000 and 100,000 persons form the resident population of this community. The majority of them reside in several large resi- dential.tracts which surround the central city. In addition there are two definite ghettos which are located in areas undergoing transition from residential status to industrial. Retail business, processing of agricultural products, and medium-to-heavy industry form the relatively broad economic base of this community. The police department of Community "B" employs 153 persons. Sworn personnel number lhl men and one woman, while eleven.woman are employed as secretaries and clerk—typists. Work division of this depart- ment is strictly along functional lines, and each section or division commander reports directly to the Chief of Police. This organizational structure allows the assignment of a Captain to head the juvenile divi- sion even though he has only two sergeants, one patrolman and a police- woman as subordinates. Field work is handled by all assigned except the Captain. 72 Viewed Purpose and Duties of Police Juvenile Work A broad purpose of delinquency control is cited by the head of the juvenile division as being that division's primary purpose. This purpose is broken down into areas which indicate that preventing recidivism is really the emphasized purpose. Additional purposes mentioned were to help the juvenile protect himself, to assist him to obey the law, and tatake juveniles into custody when they involve themselves in seriously delinquent behavior. Agreement is seen between the head of the juvenile division and the Chief of Police in relation to the stated purpose of police juvenile work. Prevention through control of recidivism was emphasized.when the Chief was questioned concerning purpose. He views the proper disposi- tion of cases through an evaluation of case factors as an additional purpose of juvenile work. This includes the establishment of good work- ing relationships with all pertinent available community facilities. Answers to interview questions indicated that the viewed duties were primarily those of investigative follow-up. Both men interviewed stated that the juvenile division should be responsible for all cases involving clients below the age of seventeen years. Included also were the responsibility for cases involving adults who committed illegal acts with or against those of juvenile age. An additional stated duty was that the juvenile division should be responsible for family social his- tory investigations in cases where such information is applicable. Actual Department Program of Delinquency Prevention and Control Formalized policy statements and written regulations help this de- partment to keep their stated and actual juvenile programs approximately 73 the same. If any difference does occur it is that the stated purpose and duties are conservative when compared to the actual program. In addition to the stated duties, the members of this division engage in some patrol contact work and do considerable liaison work with local resource groups. According to department regulations the juvenile division is re— sponsible for handling and disposing of all cases involving those of juvenile age. Such cases may come to the attention of the division through direct complaints or through referral from other members of the department. In either case the following procedure is followed in arriv- ing at a disposition decision: 1. A face sheet of biographical and factual data is completed. In many cases that portion of the face sheet concerning biographical data will be blank until the perpetrators of the delinquent act are identified. In those cases re- ceived from uniformed officers all or part of this face sheet is already completed. 2. The case is then assigned to an individual juvenile officer who completes a follow-up investigation. Ini- tially this investigation is concerned with establish- ing the identity and involvement of any juveniles con- cerned. 3. Upon the establishment of identity and involvement the emphasis of investigation shifts to factors applicable to deciding upon a proper disposition of the case. This may include a consideration of school records, home en- vironment, the act committed, personality factors, peer influences and individual needs. 4. A disposition is decided for each case handled and.may range from a warning and release through referral to a social agency to actual legal petition to the juvenile court. In addition to handling cases involving juveniles the division is responsible for a number of other items. They investigate all cases where the juvenile is a victim of adult action. They do some patrol work 71+ in connection with places of high juvenile occupancy and report problems or problem areas to the proper authorities. The division also works quite closely with other community facilities concerned with the local juvenile problem. Department rules and regulations which govern the juvenile divi- sion are as follows: Duties of the Lieutenant 12 Charge o: Crime Prevention 1. 2. He shall be in charge of the Crime Prevention Division. He shall be responsible for the development of a program of crime prevention and shall actively supervise and direct its promotion and accomplishment. He shall receive and handle all case reports involving persons under seventeen years of age arrested or appre- hended by members of the police department. He shall investigate all complaints received and referred to the police department involving persons under seventeen years of age. He shall keep a record of arrests and other data con- cerning persons under seventeen years of age and render reports to the Chief of Police. He shall require all members of the department under his supervision to become conversant with all laws af- fecting persons under seventeen years of age. He shall exercise direct supervision over the juvenile officer and the policewoman. He shall render to the Records Division a proper dis— position of all cases assigned to him. Duties o£:o_Juvenile Officer 1. He shall have as his immediate purpose and aim the prevention of crime by juvenile boys. He shall handle all cases involving juvenile boys whether as victim or offender. 75 3. He shall dispose of all cases in a way that will serve the best interests of the offender and society. A. He shall study all of the factors involved in the de- linquent conduct of the individual juvenile boy with a view toward their correction. 5. He shall investigate all cases of adults offending juveniles and be prepared to prosecute. 6. He shall investigate all reports of stolen bicycles and attempt to recover them. 7. He shall submit written reports of all cases to the Lieutenant of the Crime Prevention Division. Duties of a Policewoman 1. She shall devote her time to the problem of crime pre- vention among juvenile girls and.women. 2. She sha11.work with social agencies and interested in- dividuals and groups in developing and maintaining a program of crime prevention. 3. She shall handle all cases involving delinquent girls, protecting them as far as possible from publicity and older offenders. A. She shall supervise the handling and be responsible for the safekeeping and.well-being of all women prisoners. 5. She shall submit written reports of all cases and make monthly and annual reports of her activities to the Lieutenant of the Crime Prevention Division. Variables Affecting the Juvenile Program o: this Department A long history of juvenile work within this department helps to maintain a stability of program. This long history also creates a neces- sary acceptance by the rest of the department. In addition, good rela- tionships with most community agencies and organizations help to provide support for police juvenile work within the community. 76 COMMUNITY C Community Description Population totals for this community fluctuate between 80,000 and 90,000 residents. This fluctuation is directly related to employment needs of an adjacent metropolitan complex. When job availability is high Community "C" has a higher population, and as job availability de- creases so does population estimates. Since many of the jobs concerned are yearly seasonal ones this change in population occurs at predictable intervals. The basic economic effort for this community is retail busi- nesses. The city police force has a total of ninety-three employees. Of this total, three men and twelve women are civilians while seventy-seven men and one woman are sworn personnel. Administrative placement of the juvenile division is as a separate division of the department. This division is headed by a Lieutenant and has four detectives assigned as juvenile officers. All are responsible for field work and the Lieutenant reports directly to the Chief of Police. Viewed Purpose and Duties of Police Juvenile Work The single term "prevention” was used by both interviewees to in— dicate the purpose of local police juvenile work. Secondary purposes were identified as crime control, protection of life and property, and the handling of complaints involving juveniles. Both men interviewed volunteered that prevention, to them, was actually anything which helped juveniles coming into contact with the police. 77 To accomplish the stated purpose the Lieutenant of the juvenile division indicated that a juvenile officer should be primarily a field officer. He should be assigned duties which will bring him into contact with both pre—delinquent and delinquent juveniles. Such assignment would involve the officer in patrol duties, complaint handling, disposition planning and public relations contacts. The Chief of this department feels that a juvenile officer's duties should be such that they put him into contact with young people. These contacts may range from personal street contacts to public rela- tions contacts with groups. Duties should include patrol activities so that each juvenile officer is continuously aware of local situations pro- moting or involving the delinquent behavior of juveniles. When questioned concerning duties involving complaint handling, the Chief responded that this activity was a natural consequence of being in contact with juveniles. The Chief seemed to feel that a juvenile officer performed certain duties as a police officer and others as a juvenile officer specialist. The officer's duties as a policeman in- cluded those involving enforcement, while juvenile officer duties were more contact and public relations duties. Although stated slightly differently, the viewed purpose and du— ties of police juvenile work, as seen by both the Chief and the Lieu- tenant, are compatible views. Actual Department Program o: Delinquency Prevention and Control An overview of this department's police juvenile work would show definite agreement with the stated purpose and duties. One possible 78 reason is that the department has a formulated policy statement and has written procedures to guide their juvenile work. The delinquency programming of this department covers both pre: vention.and.control aspects of the problem. Spot maps, statistical data and other tools of surveying the local problem are in continuous use. This continuous program of surveying the local problem includes an em- phasis on aggressive patrol by members of the juvenile division. Infor- mation derived from these sources is used to alert the patrol division to certain problem areas and is used to govern the case work and contact activity of the juvenile division. Complaint handling by this division is quite similar to normal handling of cases by'a detective division. The investigative work is primarily centered on determining the degree of involvement of the ju- venile concerned. In this process certain social history factors are included but are not the primary emphasis of the investigation. Upon a final evaluation of the complaint a decision is made as to a referral to court services or release to parents. In this community a referra1.to court services does not necessar- ily mean a formal petition for a hearing. Under the title of protective services a branch of the court sits as a clearing house to make referrals to appropriate social agencies. This, in essence, allows the police de- partment a choice of release to parent, petition to the proper court, and referral to protective services as dispositions for juvenile cases. Other duties of the juvenile division primarily fall in the area of public relations and public service. A number of appearances before school, civic and parent groups are handled each month. These are used 79 to inform the various groups of local problems and areas of need for ac- tion by either a segment of the community or the police. Activities such as bike safety, public information and department tours are examples of the public service activities of this department. The police statement describing the purpose and activities of the juvenile division of this department is as follows: A Youth Bureau Officer performs specialized police duties in the prevention and control of crimes, misdemeanors, and delin- quency involving minors. The tasks frequently include case investigation in an effort to terminate the social maladjust- ments of juveniles. 'Work is performed in accordance with established policies. Assignments are received from the officer in charge of the Youth Bureau, or other higher level command officers. An outline of typical.work is: Patrol and check bars, parks, theaters, stores, railroads, bus stations, and other public places frequented by juve- niles in order to insure proper enforcement of laws. Pick up juveniles suspected of committing crimes and mis- demeanors. Assist detectives in the questioning of juveniles. Prepare cases for and attend hearings and complaints in juvenile, police, and other courts. Prepare reports of investigations in process and of work completed. Assist juveniles in finding jobs and places to live. Cooperate with loca1.welfare authorities in attempting to establish better home environment. Perform related work as assigned. Qualifications desired by this department for their juvenile officers are as follows: Good physical appearance. 80 Interest in, and an aptitude for, police work as it refers to the solution of problems among juvenile delinquents. Some knowledge of general social problems in urban centers relating to delinquency of juveniles. Knowledge of the causes of juvenile delinquency and the methods of meeting and treating such problems. Close familiarity with the functions and resources of social welfare agencies in the community. Ability to gain the confidence of children having social or behavior problems. Ability to secure necessary and pertinent information by means of interview and other investigative techniques. Ability to establish cooperative working relationships with other municipal employees, civil and welfare agen— cies, and the general public. Ability to prepare clear and comprehensive reports. Good judgment and tact in dealing with difficult in- vestigations. Ability to write and speak effectively. Variables Affecting the Juvenile Program of this Department The public acceptance of the efforts of this division do much to encourage the expansion of police juvenile work within this community. In addition, the presence of adequate court services, which include the protective services for juveniles, frees the division from the necessity of placing emphasis on social case histories. Instead, the division is able to emphasize their contact and patrol activities. Two local variables are responsible for creating much of the prob- lem of juvenile delinquency. Half-day sessions of local schools have caused an increase in both dropouts and truancy. Also, the mobility of 81 local area juveniles allows residency in one jurisdiction while allowing participation in juvenile misbehavior in adjoining jurisdictions. COMMUNITY D Community Description The population of Community "D" is between 80,000 and 90,000 per- manent residents. The economic base of the community is mixed retail and wholesale businesses with some light-to-medium industry. One of the larger national pharmaceutical concerns is headquartered here and con- tributes significantly to the whole fabric of the community structure. Residential areas are stable and no slums po£_oo are found. Pockets of substandard housing are found but offer isolated and singular community problems and not one general problem. Community "D" is policed by an organization of 1M3 people. Of these, 116 men and.2 women are sworn personnel while 23 women and 2 men can be considered as civilian employees of the department. Placement of the juvenile bureau is unique in this department. Operationally it is a separate unit, but according to the department organization chart the juvenile bureau is a part of the detective division. One Lieutenant is assigned to direct the work of four patrolmen and two policewomen as juvenile officers. The duty time of this Lieutenant is divided between administrative responsibility for the juvenile division and case super- vision and review for regular detective cases. Viewed Purpose and Duties o: Police Juvenile Work A program aimed at protecting the child from himself and pro- tecting the community from the child is the stated purpose of this 82 division. A further purpose, as stated by the Lieutenant in charge of the division, is to investigate cases of juvenile offenders for proper dispositions of their cases. This would include involvement in the gathering and assessment of social history information. In turn, this information would be used to determine a proper disposition for each individual case. Such dispositions would range from a warning and re- lease to parents through referral to social agencies to formal petition to juvenile court. The administrator interviewed had a much narrower view of the purpose of police juvenile work. A two-prong purpose was given. First, the juvenile division should prevent crime by activities of patrol and observation. Then they should control crime by quick discovery, arrest and petition to the proper court of juveniles who involve themselves in delinquent acts. In no way should the juvenile division engage in ac- tivities which resemble or encroach upon social work techniques. With respect to necessary duties, the Lieutenant's views also differed from his immediate supervisor's views. A first duty should be assessment of the problem through patrol and observation. Then the juvenile officers should engage in or obtain actions to correct the de- linquent or delinquencyeproducing situations. This would include the accurate investigation of delinquency complaints to determine the facts of the actual occurrence. To the supervisor interviewed, all but the investigation of the actual delinquency complaint are duties which should be left to other agencies. 83 Actual Department Program of Delinqoency Prevention and Control A far distance separates the viewed duties and activities and the actual ones of this juvenile division. In actuality this division is a detective division dealing with clients of juvenile age. Primarily the division engages in complaint investigations to determine the degree of involvement of local juveniles. Once this determination is made, one of two choices is open for disposition of cases. Either the delinquent is released to his parents or he is referred to the juvenile court. This referral may be unofficial through the use of a case report or may be by official petition. Little patrol activity is accomplished by this division. Most cases are either received from phoned complaints or from uniformed of- ficers who handled the initial investigation. Some work is done with drop-in cases. Most of these are parents or family groups seeking ad- vice on family problems or conflict situations between parent and ju- venile. In such situations the family is talked to and then generally referred on an unofficia1.basis to the intake workers of the juvenile court. Within the department rules and policies little is found'which is specifically designated as controlling factors for juvenile work. A general statement of obligations is directed to the juvenile division. This is primarily a vague generalization of the obligation to protect life and property, also to secure for the child his rightful opportunity to grow into adulthood. These broad obligations are not broken down into policy statements, nor are written procedures available to guide the work of this division. 81+ Variables Affecting the Juvenile Program of this Department The philosophy of the local juvenile court is the strongest vari- able affecting the juvenile work of this department. This philosophy is ultra-conservative in terms of what the police can and cannot do. Statements of the Juvenile Judge have been that the police cannot dis- pose of a case other than court referral or release. Some time ago the local social agencies attempted to formulate a p1an.whereby the police could make direct referrals. This was pre- vented by actions of the Juvenile Judge. Resultant conflict has severe- ly crippled communications between the various segments of the community concerned with the local problems of delinquency. This also has affected the police involvement and actions with relation to local delinquency. COMMUNITY E Community Description This industrial center has a population of between 170,000 and 180,000 permanent residents. It is further located at the junction of major north-south and east-west intrastate routes and attracts a sig- nificant population of transients. The economic base is primarily in- dustrial.but is closely followed by transportation. This latter is concerned.with import of raw materials and export of finished products. As with many metropolitan areas, the city is a hodgepodge of annexed areas tacked onto a core. Superhighways through the area further cause a physical split which causes the impression that this is a "city" in name only. The police department is staffed by 219 men, A women and 21 male cadets, all having sworn status. In addition the department employs 85 ten men.and.twenty-nine women as civilian employees. Administrative placement of the juvenile unit is as a part of the criminal investiga- tion division. A Lieutenant heads the unit and is aided by seven detec- tives and four policewomen. This juvenile unit assumes responsibility for missing person cases and all cases where the suspect is an adult woman. The Lieutenant reports directly to the head of the criminal in- vestigation division. Viewed Purpose and Duties o: Police Juvenile'Work The emphasis upon traditional police activities dominated the com- ments of both the head of the juvenile unit and his immediate supervisor. Strong emphasis is placed upon the fact that police duties are outlined by law and that department personnel should remember this in dealing with juveniles. Both men interviewed stated that their program was basically one of investigation. In turn, the purpose of such investigation.was to de- termine the involvement, more realistically the guilt or innocence, of the juvenile or juveniles concerned. Upon completion of the investigation a disposition is decided on the basis of degree of involvement. This disposition is limited to a choice of release to parents or petition to the local juvenile court. Secondary purpose was indicated.which deals with continuous study of delinquency rates and locale. Such studies were indicated as neces- sary to the proper policing of high-delinquency areas. Strong emphasis was placed on gathered data use for police purposes, but neither inter- viewee indicated a responsibility or need to share such data with other youth-serving local agencies. q A. I): 86 Actual Department Program o: Delinquency Prevention and Control The viewed purpose of police juvenile work.with this department is closely aligned.with the actual program. Little or no preventive contact work is done by the detectives assigned as juvenile officers. Their pri— mary duty is to investigate original complaints involving juveniles or to do follow-up work on cases started by uniformed personnel. Dispositions actually used also closely follow those indicated in the stated purpose of police juvenile work. The narrow interpretation of release to parents or referral to court is primarily due to two things. The first of these is the court's strict interpretation of the state ju— venile code, while the second is the reluctance of the police to become involved'with other youth-serving agencies. Although members of the juvenile division do not participate in programs of delinquency prevention, the department itself is involved. A program called the Youth Commonwealth is administered as a separate and distinct function of the police department. This program involves the staffing of several neighborhood youth centers with uniformed personnel. A varied program of club work, athletics, and crafts is offered at each of these several centers. In addition, the Youth Commonwealth maintains a summer camp for boys which is at least partially staffed by police of- ficers. Variables Affecting the Juvenile Programs o: this Department It would appear that the split in emphasis concerning police ju- venile work within this department lessens the effectiveness of both programs. At the time of interviewing it seemed that the juvenile 87 division and the Youth Commonwealth program were in competition. Each was emphasizing the number of juveniles contacted. The emphasis for each.was that volume of contacts could be equated.with quality'and results. Each program also stressed the importance of their type of contact in preventing future incidences of delinquency. Other variables affecting this department's juvenile program are those common to any metropolitan area. Volume of cases coupled with understaffing necessarily leads to shallower case briefs. The type of offense committed also lends itself to impersonal involvement in inves- tigations and resultant dispositions. More formalized procedures fol- lowed.by other youth-serving agencies also support the "book" type of case processing followed by this juvenile division. III. EVALUATION AND FINDINGS—-POLICE DEPARTMENTS WITH JUVENILE BUREAUS After analysis of outside recommendations, review of applicable written guides, and consideration of tradition, a police department should still meet the specific needs of the community served. This desire to serve should be reflected in written policies, assessment of problems, and adaptive programming to meet needs. It was in this area of written policy and adaptive programming that the greatest differ- ences were found in the police juvenile bureaus studied. 'Without ex- ception the police departments studied verbalized a desire to aid the juvenile in trouble. This desire to help took many forms, but most 1. pad mom. 88 often was stated in terms similar to Kenney and Pursuit or Myren and Swanson.3 However, such verbalization was not reflected in either writ- ten policy or actual programs of action. In only one of five departments was there found to be really adequate written policy. In turn, great differences were found between what was verbalized as the police department's juvenile program and that program practiced on the street. In three of five departments with juvenile bureaus, the pri- mary street emphasis was on investigating received complaints. Each of these departments indicated they stressed patrol contact with juveniles in the hopes of preventing delinquency. Such activity was all but absent from their actual work with juveniles. Stress should be placed on the two departments whose juvenile pro- gram was reflected in written policy. Both of these departments prac- ticed, in street programming, what they verbalized as their primary'empha- sis in juvenile work. Each program was aimed at meeting local needs and encompassed a variety of police activities. Review of past activities showed that both departments had made changes in programming as looal needs demanded. Emphasis, therefore, could be shown as being on actual local police juvenile problems and not on a locked-in program of tradi- tional activities. An overview of the five police departments studied.which had ju- venile bureaus would show several significant points. Those departments 3John P. Kenney and Dan G. Pursuit, Police Work With Juveniles (second edition; Springfield, Illinois: Charles C. Thomas, Publisher, 1959), p. 27; and Richard A. Myren.and Lynn D. Swanson, Police Work With Children, Children's Bureau, U. S. Department of Health, Education andeelfare (Washington: U. S. Government Printing Office, 1962), p. 9. 89 not having written.policies or uniform procedures did not have uniform programs. These departments did not have internally consistent programs, nor did their programs actually meet local needs. All three police de- partments placed most emphasis on answering called-for services. In turn, this generally took the form of investigation of complaints against juveniles. Of particular concern was the emphasis placed on degree of guilt rather than proper disposition of involved juveniles. In sharp contrast were the two police departments having written policy covering juvenile work. As previously described, these police de- partments were functioning more effectively with relation to local prob- lems of delinquency. Probably the greatest problem encountered in all five departments was effectively describing the over-all feeling toward juvenile work. Each department stressed that a majority of their police officers dis- liked to work juvenile cases. This feeling was most pronounced in po— lice departments not having written or adequate policy and was minimized in the two departments which actually programmed their police delinquency task. IV. CASE STUDIES--POLICE DEPARTMENTS WITH SINGLE JUVENILE OFFICER The following five case studies concern police departments which have one officer assigned full-time to juvenile work. These case stud- ies were developed from personal interviews, case reviews, and.physical observation. For presentation, the material has been developed in a narrative summary with careful attention to the inclusion of pertinent 90 facts. Each case study is presented according to the following format: 1. Community Description 2. Viewed Purpose and Duties of Police Juvenile Work 3. Actual Department Program of Delinquency Prevention and Control A. Variables Affecting the Juvenile Program of this Depart- ment. An analysis of these case studies will follow their presentation with general conclusions to be discussed in the next chapter. COMMUNITY F Community Description Community "F" is actually little more than a group of residential tracts which have incorporated. Unique among the communities studied.be- cause of a total lack of retail businesses, this incorporated township still claims a population of 1+0,000 to 50,000 residents. There is little economic base considered outside of real and personal property tax. The majority of residents are employees of major industries located in the surrounding metropolitan area. The police department of this community has twenty-one sworn offi- cers and a civilian staff of one man and one woman. Juvenile work for the department is handled by a Sergeant. This same man doubles as a shift supervisor in relief for vacation and any sick time taken by other command officers. The Chief of Police directs the work of the juvenile officer, who is subject to no other supervisor while working juvenile cases . 91 Viewed Purpose and Duties o: Police Juvenile Work The viewed purpose of police juvenile work within this department emphasizes the prevention of delinquency. It was indicated by the offi- cer assigned to juvenile work that the most effective effort of the po- lice is in personal contacts. Such contacts should extend to normal young people, those exhibiting delinquent tendencies, and to those al- ready involved in delinquent behavior. Further emphasis was placed on interaction with other community groups and agencies serving the young people of the area. Little mention was made of the investigative aspect of police de- linquency'work by this officer. Although recognized as necessary to the total job, such duties did not enter into the viewed purpose of delin— quency'work for this department. In actuality this police juvenile of- ficer's concept of police delinquency work closely parallels the case work concept of social agencies. Quite similar comments were made by the department's Chief when questioned on purposes and duties of police juvenile work. Considerable emphasis was placed on police-school interaction with regard to student truancy and parent information. Viewed purposes of public education and public relations were also emphasized by the Chief. In this latter re- spect the Chief views his juvenile officer as a means of keeping a posi— tive police image before the public. Also included in the Chief's re- marks was a belief that the juvenile officer should develop a yardstick or guide for local youths with regard to acceptable activities and behav- ior. Following such development it would be the officer's job to gain local acceptance and compliance of the presented guide. 92 Actual Department Program of Delinquency Prevention and Control Much of the program centers about the implementation of the viewed purpose. The juvenile officer is thoroughly involved in school activities which are technically non-police in nature. He presently accompanies athletic teams and other student groups on any out-of-town events. In this respect he serves as an official chaperon and actually establishes the rules of conduct for the group. Still within this police- school framework is the work done with truants. Although by'law the school is held responsible for truant problems this officer handles the majority of such incidents as cases of delinquency. Turning to the handling of actual cases of delinquent juveniles, this juvenile officer has worked out a patterned procedure. Although not a part of the department rules and regulations, this procedure is fol- lowed by'most officers of the department who come into contact with cases of delinquency. Initially the case is investigated as a police complaint. All pertinent facts are forwarded to the juvenile officer who, in turn, double checks the facts. Following the complaint investigation an ape pointment is set up for a conference between the juvenile officer and the family concerned. Prior to this appointment the juvenile officer com- piles a social history file on the family. This social history is gathered according to a format established by a nearby metropolitan department. Then, during the conference period, the total case file is discussed with the parent and the juvenile. Following this first confer- ence a plan of action is agreed upon.and followed. Most often this 93 includes an assigned work or written project for the juvenile, plus con- tinued meetings with the juvenile officer. Little use is made of county or private agencies and the majority of cases are handled and closed.within the department. It should be noted that this program of handling delinquency cases has proved quite successful to this department. However, as the community has slowly been encompassed by the surrounding metropolitan area, weaknesses have appeared in this procedure of handling delinquency cases. Slowly the department is adopting more straight police techniques in their police juvenile work. Variables Affecting the Juvenile Program o3 this Department Of all the case studies in this endeavor, this department's pro- gram is most visibly affected by politics. During the last local elec- tions the juvenile officer opposed the candidacy of a relative of the Chief by openly campaigning for his opponent. Since that time the Chief has, through the power of assignment and department orders, seriously hampered the juvenile officer's available time to work cases of delin- quency. The program of this department is further affected by the dis- tance to agencies who could service the needs of cases handled. This, plus the politics of the department and the growth of the area are slowly allowing the problem to get ahead of the delinquency control program of this department. COMMUNITY G Community Description Some 20,000 to 30,000 persons claim this town as their permanent home. Annual temporary increases are noted due to employment needs of local.agricultura1 crops. This community was one of the earliest in the area to develop a harbor facility for ships serving area industries and farm crops. This development, plus other similar moves, has kept the economic life of the community quite diversified. Community "G" is policed by a sworn staff of thirty-one officers who, in turn, are aided by a civilian complement of two men and.two women. One detective is assigned to juvenile work and technically works directly under the Chief of Police. For practical purposes the juve- nile officer's work is supervised by the command officer of the detective division. Viewed Purpose and Duties oi Police Juvenile Work Considerable oppostion to police juvenile work was expressed by the administrative staff of this department. Their original intent was to hold off any specialization in juvenile work until late 1966 or early 1967. However, pressure from the juvenile court and other city author- ities forced the appointment of a police juvenile officer early in 1963. This forced appointment did little to promote constructive planning or positive attitudes on the part of the department. Comments from the Chief of Police, and from the Captain of Detec- tives, were to the effect that the juvenile officer was pretty'much on his own. So long as the handling of juveniles did not interfere with 95 other department policy, little opposition.would.be given to any program utilized by the juvenile officer. Against this background the original interview with the juvenile officer showed little planning or definition of police juvenile work. Primary emphasis seemed to be on not interfering with other department activity. Any comments concerning procedures for handling cases of de- linquency were on how to shuttle cases to other agencies or back to the parents. This activity was not on what was best for the juvenile but on the basis of getting the case out of the police department. Little help was given the formation of a positive purpose of de- partment juvenile work when the originally-appointed juvenile officer left the department. This occurred during the time when department feel- ings still ran high about being forced to enter specialized work regard- ing juvenile delinquency. Actual Department Program of Delinquency Prevention and Control Actual appointment of a replacement for the juvenile officer who left was put off for almost a full year. The Chief insisted that the new man receive training in police juvenile work prior to receiving the assignment. This planning to place a trained officer as the department juvenile officer shows a considerable change in department attitude. Following the successful completion of a threeeweek intensive program emphasizing police juvenile work the officer concerned began the develop- ment of a department program. Department work with juveniles now emphasizes a seeking out of both cases and individuals in need of attention. In most cases the ini- tial contact is made by a uniformed officer, and a department referral 96 card is filled out. This referral card becomes the basis upon which the juvenile officer conducts his follow-up investigation. Emphasis within the follow-up investigation is placed upon inter- views with the individual, his or her parents, and any others pertinent to the case at hand. 'Whenever possible a visit to the home of the indi- vidual and to his school are both accomplished during the investigation. All gathered data is then compiled in a narrative report prior to a de- cision being made as to case disposition. Case dispositions range from one or more police-parent conferences to physical detention with request for full court action. In all cases referred to agencies or to the juvenile court the narrative investigative report is forwarded. In cases handled at the department level this re- port becomes a part of a master cumulative file on the individual con- cerned. Little or no work is presently accomplished which could be termed preventive. Emphasis is placed upon the individual already involved. Variables Affecting the Juvenile Program o: this Department Originally the attitude of the department administration curtailed any positive programming in police delinquency work. Presently the changes in attitude have improved the chances of continued positive work. Agency support of the present trend also indicates continued successes. COMMUNITY H Community Description Permanent population of this community is between 20,000 and 30,000 residents. The majority of local families have their homes in 97 suburban.tracts which surround a central industrial-retail business core. Transition areas of mixed business-factory-residential building serve as a buffer between the immediate core and the suburbs. These areas are largely populated by transient industrial workers and by migratory'agri- cultural families. Total size of population is in almost a constant state of flux and adds severely to local social problems. Economic base for this community is quite broad but is definitely seasonal in nature. Police department strength is authorized at twenty-four sworn of— ficers and four civilian female clerk-typists. One detective is assigned to juvenile work and is technically under the supervision of the detec- tive Sergeant. However, realistically the juvenile officer should.be identified.with the office of the Chief of Police. It is to the latter man that the juvenile officer really reports and.who assigns casework. Viewed Purpose and Duties o: Police Juvenile Work Involvement might be the best term to use in describing the over- all view of this department toward police juvenile work. Both the of- ficer assigned to juvenile work and the Police Chief see the police role as one having several facets. One of the primary purposes, as explained by'both men interviewed, is that of preventing delinquency. Failing in this, then the purpose becomes one of conducting a proper investigation \ to determine the best disposition for the juveniles concerned. The emphasis on involvement was stressed on a person-to-person basis. This department feels a responsibility to personally become ac- quainted with teachers, counselors, recreation leaders, and others having daily contacts with juveniles. This attitude extends also to the busi- ness community or to the individual citizen either involved'with juveniles or to those having problems with actions of delinquents. Since the emphasis of this department is on police-community in- volvement, all juvenile work is done in uniform. The feeling is that the community should expect good juvenile work from the department and not from just one or two assigned officers. Actual Department Program of Delinquency Prevention and Control Department programming closely follows the viewed purpose in this community. One officer is assigned to juvenile work while a second of- ficer is considered a part-time school safety officer. Both are inti- mately involved with the youthful population of the community. Contacts between police and the schools start during the elementary years with school safety work. Such contacts continue through high school with lectures to history and government classes. Such activities are con- sidered as prevention programming, and similar contacts are reflected with other types of youth groups throughout the community. Actual contacts with cases of delinquents are largely handled within the department. Initial investigations are conducted primarily to determine the extent and severity of delinquent behavior. Following such investigation the parents are called for a conference to discuss the case in question. This generally leads to an agreement to keep the juvenile on a form of voluntary police probation. Seldom are cases referred to social agencies although offices of numerous agencies are located within the community. Likewise, little use is made of the juvenile court. Members of the police department dis- trust the members of the local court office, and this feeling is strongly reciprocated. Basically, those cases referred to the court are ones 99 involving serious crimes or have to do with individuals who are steady repeaters of delinquent behavior. Variables Affecting the Juvenile Program of this Department Several variables have been identified in the earlier portion of the description of this community. Basically, the poor relationship be- tween the police and the court restrict the variety of dispositions used. Likewise, the reluctance to use social agency resources causes a depend- ence upon just a few types of case dispositions. Another variable affecting the over—all picture in this community is the size of the transient population. Made up largely of migratory farm‘workers, this segment of the population contains a disproportionate number of school dropouts. In turn, the delinquent behavior of these ju- veniles does not respond well to dispositions used and emphasized by this police department. COMMUNITY I Community Description This community of 20,000 to 30,000 residents is the retail center for a large area of unincorporated residential tracts. Definite signs of stability can be found within the community and census figures show an above average level of income for the normal family. However, total involvement in the community life by local families is weak. This is due to easy accessibility to much of the adjacent metropolitan complex. The police department of this community is staffed by thirtyetwo sworn officers and a civilian staff of two menuand three women. Juvenile work is handled by one detective assigned to the service division. This lOO division is commanded by a Lieutenant who gives the juvenile officer a relatively free hand. Viewed Purpose and Duties of Police Juvenile Work An emphasis upon public education and delinquency prevention is viewed as the primary juvenile work role of this department. Both the officer interviewed and the Chief of this department stressed greater in- volvement with problems of delinquency than merely apprehending offenders. To this end considerable time and effort is aimed at formulating programs which cause interaction between the police juvenile officer and other youth-serving agencies of the community. Viewed duties include public service appearances, follow-up inves- tigation, social agency liaison work and preventive contacts with juve- niles. The juvenile officer is viewed as a source of information for the other officers of the department. In turn, the uniformed officers are expected to use this information in their patrol activities. Stress is placed on the department attitude that juvenile work is police work and ‘the responsibility of the whole department. Actual Department Program o: Delinquency Prevention and Control During both visits to this community evidence was obtained that real effort is used to make police juvenile work a reality. Stress is placed on making their actual program coincide with the department views on efforts to prevent and control delinquency. Much effort is put forth to carry'the police view to the people. Initially this is done through appearances at schools, churches, local service and fraternal organizations and before various youth organiza- tions. News releases and feature articles in the local press are also 101 used extensively. Follow-up through contacts of individual parents is often used. This latter tactic is most commonly employed when a juvenile shows delinquency traits but is not yet involved in serious trouble. Severe cases of delinquency, or cases of patterned objectionable behavior, are handled more formally. A complete case brief is prepared whenever time and manpower allow. This brief includes the police report of the investigation, a resume of school or pertinent agency records, and some information on social history factors. Social history factors included have been decided through police-juvenile court conferences. Any portion of the case brief format is subject to change when and as needed. During the police investigation the juvenile officer has the pre- rogative to suspend further action and can turn the disposition over to parents for further action. This is done in the cases of many first offenders and may occur in some cases involving repeaters. In those cases where the investigation is carried to its most complete form a number of dispositions are available. In felony cases, or where the authority of the court is needed, a petition for juvenile court action can be filed. In other cases the county protective services may be con- sulted. This service is a clearing house for available county social services. Hence, the officer has available direct access to a means of referring cases to social agencies. It should be noted that this department considers itself progres- sive with regard to police juvenile work. Every effort is made to take advantage of available personnel training, and suggestions for improve- ment are actively sought. This author feels that continued change and improvement will occur in police juvenile work in this department. 102 Variables Affecting the Juvenile Program o: this Department Generally the identifiable factors are positive in this community as they apply to police juvenile work. 'Within the department a general acceptance of juvenile work has been accomplished. In addition, good court services are available as well as direct access to social agencies. School-police relationships are considered to be positive, while other youth-serving agencies are receptive to police contacts. The primary negative variable is the level of wealth of a majority of community families. There exists a feeling among the youth that par- ents can and.will'buy them out of trouble. To date this has occurred on a number of occasions and has affected the over-all effectiveness of the police juvenile program. COMMUNITY J Community Description This smallest community within the present study has between 7,000 and 8,000 permanent residents. As with several other communities studied, population figures fluctuate annually with the needs of local industry and agriculture. Economic dependence of this community is on one heavy industry plus some volume as an agricultural supply center. The community is policed.by nine officers including the Chief of Police. They are assisted by one female civilian clerk, who is also the primary receptionist for city hall offices. The one officer assigned to juvenile work is supposed to be full-time but actually is able to devote only some 55 to 60 per cent of duty time to juvenile work. 103 Viewed Purpose and Duties o£_Police Juvenile Work The police department of this community represents a variety of views toward police juvenile work. The Chief and his assigned officer have favorable attitudes and some very positive ideas about the structure of a police juvenile program. On the other hand, one of the Sergeants feels that police juvenile work is a waste of time. This Sergeant has an uncle on the city council and thus exerts considerable influence. To date any programming in delinquency work has been achieved over the ob- jection of the two men. The viewed purpose of police juvenile work is also altered by severe social problems affecting this community. Conflict between ethnic, social, and status groups causes a considerable effort to be placed on the physical control of violence. Also, much effort is required of the police to keep these groups using limited recreation facilities peace- fully. Limited facilities for referral of cases have also caused altera- ‘tion of the police program for delinquency work. In addition, the juve- nile court facility is located some distance away and the servicing of referred.cases is very poor. In spite of these handicaps a program of police juvenile work has been established. Its primary emphasis is on preventing repeated offenses. Little is done or attempted.with regard to the prevention of first of- fenses. Actual Department Program of Delinquency Prevention and Control As identified above, the viewed purpose and duties relate to ser— vicing the case of one who has committed a delinquent act. To this end 101+ the actual program follows the viewed purpose. Of primary importance to this police department is their police-school liaison program. By agree- ment the school counselors will accept cases for counseling from the po— lice department. Originally the program started with an informal group of citizens interested in local delinquency. This group was called together by the. police juvenile officer. Initially this group reviewed cases and made suggestions as to possible dispositions. In time the realization was reached that greater local effort was needed due to lack of available county or state facilities. Planning was then begun with the local school district and agreement was reached concerning police-school-co- operation. To date this program has continued to expand, but its pri- mary weakness lies in the verbal nature of the agreement. Few, if any, of the policies or procedures have been placed in.writing. The format followed is similar to that used by other departments in referring cases to the court or social agencies. The initial investi- gation is usually conducted by'a uniformed officer and then referred to the juvenile officer for follow-up. The followeup investigation gener- ally attempts to gather not only facts concerning the actual.delinquency but also material referring to home, family, social life and peer group association. School information is deleted as the counselor receiving the case has immediate access to such information. This police-to-school referral is used in almost all cases of first offenders. The only exceptions are felony cases, which automatically go to the juvenile court, and very minor cases, which are referred back to 105 their parents. Cases of recidivism often go back to the school counselor if progress was achieved following the first referral. The officer assigned to juvenile work has also attempted a public information program. He has made contact with a number of local organi- zations and has supplied information concerning local delinquency. This program has met with little success as counter efforts are mounted by members of both the department and the local city council. Variables Affecting the Juvenile Program o£_this Department Politioal interference, lack of varied facilities, and mounting social problems combine as obstacles to the juvenile work of this depart- ment. Lack of manpower also causes the reassignment of the juvenile of- ficer to patrol duties at fairly frequent intervals. In addition, the religious beliefs of the juvenile officer himself create conflict in establishing a smooth communityewide program. V. EVALUATION AND FINDINGS--POLICE DEPARTMENTS WITH SINGLE JUVENILE OFFICER Those police departments having only one man assigned to juvenile work showed a definite consistency between the viewed and actual program of delinquency work. Each department included in the research group had a very individual program, but one identified.with actual local need. Less emphasis was placed on a department style of handling cases of ju— venile delinquency. Instead, an attempt was identified to have officers handle delinquency cases in a manner which could then be concluded by and in the style of the juvenile officer. 106 A lack of written policy was noted with regard to juvenile work in all departments. The immediate effect was not too great but was felt by a department when a different officer was assigned to juvenile work. However, lack of written policy had a definite derogatory effect in police contacts with outside resource agencies. More police work was noted in departments having a single juvenile officer in the area of delinquency prevention. Each singly—assigned ju- venile officer had a more intensive contact with local juveniles and also 'with school officials. Likewise, the singly—assigned juvenile officers seemed to have more contacts with non-delinquent groupings such as recre- ation and social gatherings of juveniles. This was in contrast to the departments having an assigned juvenile bureau. Most dispositions used by the singly-assigned juvenile officers can be termed as informal ones. A majority of delinquency cases handled are either turned back to the parents or are continued by the department as informal police probation. Use of the juvenile court is reserved for only very serious felonies and social agency referral is virtually non- existent. One department was involved in a program unique among the parti- cipating departments. This was a program of referring cases of local delinquents to their school counselors. The program originated when tru- ancy had dominated the local delinquency picture. Cooperative planning between the school district and police resulted in an ongoing program of cooperative handling of all delinquents. The only exception was the serious felony and the chronic truant. Both of the latter forms of de- linquency are referred to the local juvenile court. 107 In summary, those police departments assigning a single officer to juvenile work had programs consistent with the viewed purpose of po- lice juvenile work. Their primary emphasis was on internal disposition of cases. Finally, the personality of the local juvenile officer almost totally dominated local viewpoints toward delinquency. The last point emphasized is that the small size of the departments in this latter group had much to do with police handling of delinquents. The same programming could not work with larger departments. VI. GENERAL FINDINGS The field.work for this project would tend to support the state- ment of Anthony R. Paul.LL This is that police juvenile work is not well defined, nor is it guided by consistent planning. Instead, police juve- nile work seems to be hurried efforts to control immediate problems, or crisis planning to overcome a particular local situation. Few depart- ments researched had a sustained program which was backed.by'written policy. In turn, few departments were found which really pushed juve- nile work. The majority were active in the juvenile area only in response to called-for services. A sharp contrast appeared in those departments whose juvenile work was backed.by'planning, written policy, and total department involvement. These few police departments had active involvement with local juveniles, even during low periods of local delinquent activities. Such departments hAnthony R. Paul, "Crime Prevention-JWhere Do We Stand?", Re- port of the Crime Prevention Committee, The Police Yearbook.(Washington, D. C.: International Association of Chiefs of Police, Inc., 1959), p. 102. 108 seemed to involve more of their total personnel, and assigned juvenile officers received greater support effort. It would appear that these latter police departments could also be more adaptive to identified local needs. From the present base of a written policy, concrete changes in both procedure and personnel assignment would tend to result in definite action. Such action, in turn, would have direction and be geared to the specifics of local need. The police departments researched generally tended to view only the direct delinquent behavior of local juveniles. This resulted in po— lice actions aimed at immediate control. Few of the police departments viewed the delinquency problem as merely one part, or aspect, of the over-all involvement of juveniles in the structure of the local community. Such a view tended to isolate the police departments from other segments of the community having contact or direct involvement with juveniles. In many cases this caused the police approach to juveniles to be an iso- lated one and, on occasion, in conflict with other juvenile programming within the community. The above general findings can be summarized in comments concerning needs in police juvenile work. Police Departments need to recognize that they will be involved with the juveniles of the community in a variety of ways. Such involvement calls for program planning, written department policy, and department approved procedures. Police juvenile work should go beyond.meeting only called-for services and should be integrated with the over-all community approach to the problems of juveniles. Finally, police juvenile work should be directed by department action and backing, not carried on the personality of the juvenile officer or unit assigned. CHAPTER V SUMMARY AND CONCLUSIONS This chapter will emphasize the reviewed literature and case studies in summary form. Several conclusions will be drawn with regard to the original hypothesis, reviewed literature, case studies, and the model guide for police juvenile work. The chapter will be divided into major sections dealing with summary and conclusions. Contained within the conclusions will be recommendations for certain specific areas of continued research. A brief statement concerning possible demonstration projects will conclude the chapter. I. SUMMARY Summary of the Literature Review of the literature concerning police work with juveniles points up the variety of opinions available. Instead of over-all common agreement, there can be found very real diversification as to police involvement with juveniles. Primarily this range of opinion deals with specific forms that police juvenile work will take. Almost universal agreement is found to support some police-juvenile contacts. Similarly, common support is found in the literature for police handling of called- for services regarding juveniles. Less support is found for peripheral police-juvenile activities such as police sponsorship of recreation, police probation, and in-depth social case work. 110 The general listing of functions in police juvenile work, as pre- sented by Kenney'and Pursuit, seem to be common to a majority of the literature.l- Alterations of the general areas of delinquency discovery, investigation, and case disposition are seldom found. The most frequent addition to the above regards police action in the area of altering un- favorable environmental influences.2 Policy formulation, its form, necessity, and value was best stated by O'Connorand'Watson.3 Theirs was a specific statement that all police juvenile work should be within a framework of realistically-stated depart- ment policy, Although other authors alluded to policy needs, few stated the form or depth of guidance which such policy should contain. Of greatest weakness in reviewed literature was the absence of em- phasis on programming for local need. A majority of authors wrote as if the same program could or would fit the greater portion of police depart- ments. Counter to this were the few materials found which emphasized that policy, program, and implementation must answer local problems. tJohn P. Kenney and Dan G. Pursuit, Police Work With Juveniles (second edition: Springfield, Illinois: Charles C. Thomas, Publishers, 1959), p. 27- 20. w. Wilson, Police Administration (New York: McGraw-Hill Book Company, Inc., 1963), p. 339. 3George‘W. O'Connor and.Nelson A. Watson, Juvenile Delinquency and Youth Crime: The Police Role (Washington, D. C.: The International Association of Chiefs of Police, Inc., 196h), p. 3. 111 Summary. 3 the Field Data Evaluation of the case studies shows that all included police de— partments had common police juvenile activities. Chief among the common activities were complaint handling where juveniles were involved and in- vestigation of cases of actual delinquency. Likewise, every department had some procedure for making case dispositions. In this latter area, on the actual fact of making dispositions can be called common. The variety of dispositions used by some police departments, as compared to the restricted dispositions used by other departments, makes form of dis- position unique to each individual department. Referral to juvenile court or release to parents were the only forms of case disposition used by all ten of the study group. In a majority of the case studies it was found that viewed purpose of police juvenile work differed from the actual department program. This, in a large measure, seems to result from a lack of written policy to guide the police juvenile work of a given department. Additionally, the difference between viewed purpose and actual program involved the degree that all officers of a police department understood and entered into police juvenile work. The difference or agreement of viewed purpose and actual program can, in part, be attributed to the degree that the police chief encourages a department program of police juvenile work. A number of the research departments did not have agreement be- tween organizational charting and functional operation. In some cases 'the juvenile function was charted under the detective division while actually working directly from the office of the chief. In other cases the juvenile function was charted as a separate entity but functioned 112 under the close control of a division or shift commander. None of these departments had a strong or stable program of police juvenile work. The strongest programs of police juvenile work were found in police departments where the following conditions existed. 1. Organizational charting and functional operation were the same for police juvenile work. 2. The department program of police juvenile work.was guided by written policy. Such policy, in turn, was spelled out in department rules and regulations. 3. Every man of the police department was included, in some form, in the department program of police juvenile work. A. Good cooperation was given and received by the police depart- ment in interaction.with courts, schools, and social service agencies. 5. Police programming for juvenile work was based on local prob- lems and conditions. II. CONCLUSIONS Comparison.o£_the Literature with the Model In general the literature supports the constructed model. Diff- erences would tend to cluster around those points of the model‘which broaden the activities of police juvenile work. Particularly would this‘ be true in the area of patrol contacts prior to complaints of delinquency.)1L The literature would tend to restrict the model as to dispositions avail- able to police. Traditionally, police departments have not had good 2‘LJohn E.‘Winters, Crime and Kids (Springfield, Illinois: Charles C. Thomas Publishers, 1959), p. 23. 113 cooperative relations with other than the juvenile court and the probation department. The more recent literature broadens the base of dispositions available to the police.5 Thus, agreement or disagreement on dispositions depends upon the date of the literature being compared.with the model. Good support of the model can be found with relation to providing guides for police juvenile work. Throughout the literature statements can be found to support an actual department plan for police juvenile work. However, little is said about the form, depth, or written style that such guides should take. In this respect the model must stand alone for future testing. In general, it may be repeated that the over-all literature sup- ports the model proposed by this thesis. Comparison of the Field Data with the Model No single police department studied had as detailed a guide for police juvenile work as is presented in the model. Those departments having written policies for police juvenile work showed a consistency of viewed purpose and actual program. Since this is the aim of the model guide, it may be assumed that use of the guide would result in a consistent police juvenile program. A review of the model guide shows that a major portion.would fit all ten of the research police departments. Alteration of the guide 5The President's Commission on Law Enforcement and Administration of Justice, The Challenge of_Crime lo a Free Society (Washington: U. S. Government Printing Office, 1967), p. 89. 11h would be needed‘with regard to available dispositions within each commu- nity. Likewise, those portions of the model dealing with amount of patrol activities, involvement in prevention, and depth of case investi- gation would have to be amended to fit each community. Careful study of the field data indicates that a number of com- munity variables could be altered by use of the model guide. Police de- partments using such a guide would not be as vulnerable to requested changes from special interest community groups. Use of such a guide could aid police departments in explaining their over-all police juvenile program to other agencies, governmental decision-making bodies, and to the general public. Finally, criticism which results from fluctuating policy and action could be decreased. Use of the model guide would have allowed all departments to move their viewed purpose and actual program closer together. In no instance would the police juvenile program of a police department have suffered from use of the model guide. At the present stage of development, use of the model guide should enhance both the quantity and quality of po- lice juvenile work. This latter statement refers specifically to the research communities. Final Conclusions Field research and review of the literature support the following conclusions: 1. The hypothesis was generally supported. It was found that the basic premise of an over-all guide to direct police juvenile work is sound. Alteration would be necessary only in cases of unique local problems. 115 2. Information which specifically applies to the key questions asked: a. What guides are provided police departments for juvenile work? It was found that few formal guides exist or are readily available to all police departments. Those available are primarily designed to serve only hmekmmmma b. Are there universally-accepted functions for police juvenile work? All police departments studied engaged in investigation of delin- quency, handling of complaints concerning juveniles, and some form of case disposition. c. What functions are police departments currently engaged in with relation to juvenile work? Engaged-in functions varied from spon- sorship of recreation programs through traditional police enforcement activities. Many police departments studied engaged in unusual police juvenile work because of local tradition or due to immediate pressure from local special interest groups. d. ‘What variables appear to govern the extent, quality, and type of police involvement in the field of delinquency prevention and control? Many variables influence local choice of police programming for juvenile work. Among them are local politics, attitude of the police chief, atti- tude of the presiding juvenile judge, varying local interpretation of the state juvenile code, and acceptance or support of police juvenile work by the officers of the police department. 3. Actual use of the model guide would have aided the police ju- venile work of all departments studied. Implementation, in most cases, would have had to be preceded by'a period of indoctrination for all de- partment personnel. 116 Recommendations 1. It is recommended that the model guide be tested by actual use. Such use should involve police departments of varying size and should ex- tend to police departments of different states. 2. Further research should be conducted by comparing the model guide against individual department guides for police juvenile work. Among these might be those of communities like Chicago, Illinois; Los Angeles, California; and Denver, Colorado. 3. It is strongly suggested that effort be made to involve the police department in community decision making. Police departments should be involved in community planning groups, neighborhood organiza- tions, and on the boards of community or area juvenile councils. h. A demonstration project, where all agencies dealing'with prob- lems of juveniles coordinate actions, seems in order. This should in- clude the police, and the model guide could be further tested by incorporation into an over-all community plan. BIBLIOGRAPHY 118 BIBLIOGRAPHY A. BOOKS Anti-Social Behavior and Its Control io Minnesota. Minneapolis, Minnesota: Legislative Commission on Juvenile Delinquency, Adult Crime, and Corrections, 1957. Barron, Milton L. The Juvenile ip Delinquent Society. New York: Alfred A. Knopf, Inc., 195h. Brecher, Ruth and Edward Brecher. The Delinquent and The Law. New York: The Public Affairs Committee, Inc., 19627 Brennan, Dr. James J. and Dr. Donald W. Olmsted. Police Work'With Delin- quents: Analysis of 3 Training Program. East Lansing, Michigan: Michigan State University Press, 1965. Cavan, Ruth Shonle. Criminology. New York: Thomas Y. Crowell Company, 1950. ¥ Juvenile Delinquency. New York: J. B. Lippincott Company, 1962. Readings lo Juvenile Delinquency. New York: J. B. Lippincott Company, 193; Clift, Raymond E. A Guide To_Modern Police Thinking. Cincinnati, Ohio: The W. H. Anderson Company, 1965. DeMers, Donald 0. Outline of Juvenile Delinquency Control. Sacramento, California: Bureau of Industrial Education, California State Depart- ment of Education, (n.d.). Federal Bureau of Investigation, U. S. Department of Justice. Uniform Crime Report. washington, D. C.: U. S. Government Printing Office, Annually 71959-1965). Freeman, Ira H. Out of the Burning. New York: Affiliated Publisher, 1961. Garrett, Annette. Interviewing, Its Principles and Methods. New York: Family Service Association of America, 1962. Glueck, Sheldon and Eleanor Glueck. Unraveling Juvenile Delinquency. Cambridge, Massachusetts: Harvard University Press, 1951. Holcomb, Richard L. (ed.). Municipal Police Administration. Chicago, Illinois: The International City Managers' Association, 1961. 119 Holman, Mary. The Police Officer and the Child. Springfield, Illinois: Charles C. Thomas Publishers, 1962. Jersild, Dr. Arthur T. The Psychology; Adolescence. New York: The Macmillan Company, 1958. Johnson, Howard 0., Raymond A. Dahl, and Carl W. Hamm. A Manual _o_f_ Juvenile Procedures. Milwaukee, Wisconsin: Milwaukee Police De- partment Training Bureau, 1963. Kaplan, Alfred J. Police and Children. New York: Citizens Committee on Children of New York City, Inc., l9h8. Kenney, John P. and Dan G. Pursuit. Police Work With Juveniles. Spring- field, Illinois, 1959. Klien, Josephine. The Study of_Groups. London, England: Routledge & Kegan Paul Ltd., 1959. Knudsen, Theodore B. Legal.Aspects o: Delinquency Control. Minneapolis, Minnesota: University of Minnesota, neral Extension Division, 1962. Kvaraceus, William C. and Walter B. Miller.'Delinqugnt Behavior: Culture and the Individual. ‘Washington, D. 0., National Education Association of the United States, 196%. law Enforcement and Youth. East Lansing, Michigan: Michigan State Police, 1961. - Lohman, Joseph D. Juvenile Delinquency. Chicago, Illinois: Cook County Sheriff's Department, 1957. Mack, J. A. Police Juvenile Liaison Schemes. London, England: London Police Department, 1963. Manual of Juvenile Procedure. Chicago, Illinois: Chicago Police Depart- ment, 1965. Metzler, Kurt, Garland Davis, Martin Gannon, and Frances Herb. Youth- lawePolice. Chicago, Illinois: Chicago Police Department, 1965. Miller, Haskell M. Understanding7and Preventing Juvenile Delinquency. New York: Abingdon Press, 1958. Moore, Bernice M. Juvenile Delinquency, Research, Theory and Comment. Washington, D. C.: Association for Supervision and Curriculum Development, National Education Association, 1960. Mulhearn, Henry J. Handbook fog Police Youth Bureaus. Albany, New York: New York State Youth Commission, (n.di). 120 Myren, Richard A. and Lynn D. Swanson. Police Work With Children. Wash- ington, D. C.: U. S. Department of Health, Education and Welfare, 1962. Nygaard, Alvin T. (ed.). Procedural Manual — A_Suggested Outline for the Use of Law Enforcement Agencies in Wisconsin to Aid in Preparing a Mahual of Policies and Procedures—- Reference—JquHiI s Who Come to the AttEHtion of the Police. Madison, Wisconsin: Wisconsin State—D Department of Public Welfare, Division for Children and Youth, 1962. O'Connor, George W. and Nelson A. Watson. Juvenile Delinquency and Youth Crime: The Police Role. Washington, D. C.: The International Association of Chiefs of Police, 196A. Parker,'W. H. Iaily Training Bulletins of the Los Angeles Police Depart- ment. Springfield, Illinois: Charles C. Thomas Publisher, 1958: 2 Vols. Peck, Leigh. Child Psychology. Boston: D. C. Heath and Company, 1953. Pfiffner, John M. and Robert V. Presthus. Public Administration. New York: The Ronald Press Company, 1960. Piliavin, Irving and Scott Briar. "Police Encounters With Juveniles," Juvenile Delinquency: A Book of Readings, Rose Giallombardo, editor. New York: John Wiley and Sons, Inc., 1966. Police and Young Offenders. New York: New York State Youth Commission, 1960. P01ice Services for Juveniles. Washington, D. C.: U. S. Department of Health, Education and Welfare, 195A. The President's Commission on Law Enforcement and Administration of Justice. The Challenge of Crime 32.3 Free Society, Washington, D. C.: United States Government Printing Office, 1967. Robison, Sophia M. Juvenile Delinquency. New York: Holt, Rinehart and Winston, 1961. Salisbury, Harrison E. The Shook—Up Generation. Greenwich, Connecticut: Fawcett Publications, Inc., 1962. Simon, Herbert A., Donald W. Smithburg and Victor A. Thompson. Public Administration. New York: Alfred A. Knopf, 1950. Stearn, Jess. The Wasted Years. New York: MacFadden Publications, 1961. Sykes, Gresham M. Crime and Society, New York: Random House, 1966. 121 Thrasher, Frederic M. The Gang. Chicago: The University of Chicago Press, 1963. Tunley, Roul. Kids, Crime and Chaos. New York: Dell Publishing Company, Inc., 1962. Watson, Nelson A. and Robert N. Walker. Training Police for Work With Juveniles. ‘Washington, D. C.: The International.Association of Chiefs of Police, 1965. What P.T.A. Members Should Know About Juvenile Delinquency. Chicago: The National Congress of Parents and Teachers, 1957. Wilson, 0. W. Police Administration. New York: McGraw—Hill Book Com- pany, Inc., 1963. Winters, John E. Crime and Kids. Springfield, Illinois: Charles C. Thomas Publisher, 1959. B. PERIODICALS Benton, Dr. Michael. "Social Integration and Police," The Police Chief, April, 1963. ‘ Barrett, Edward L. "Police Practices and the Law--From Arrest to Release or Charge," California Law Review, March, 1962. Berkowitz, Bernard. "The Juvenile Police Officer," Police, September— October, 1957. Brennan, Dr. James J. "Juvenile Delinquency: A Radical Approach," Amer- ican Viewpoint, (reprint, n.d.). _______ "Police and Delinquent Youth," Journal of Criminal Law, Crimi— nology and Police Science, MarchrApril, 19567— Chwast, Jacob. "Police Methods for Handling Delinquent Youth," Journal of Criminal.Law, Criminology and Police Science, MayeJune, 1955. Clendenen, Richard and Herbert W; Beaser. "The Shame of America," The Saturday Evening Post, 5-part series, January 8, 1955 to February 5, 1955. Dienstein,‘William. "Delinquency Control Techniques as Influenced by Beliefs and Attitudes of Police Personnel," Police, September- October, 1960. Hibbard, Lt. Roy. "Prevention Standards," The Police Chief, August, 1961. 122 Jameson, Dr. Samuel H. "The Policeman's Non-Official Role in Combatting Gangs and Vandalism," Police, May-June, 1957. Juergensmeyer, Irvin K. "Education for Delinquency Prevention," Police, March-April and May—June, 1959. Matza, David. "Subterranean Traditions of Youth," The Annals of the Amer- ican Academy of Political and Social Science, November, 1961. McPeake, Fred W. "Police Brutality," The New Age, November, 1966. Mitchell, Robert E. "Organization as a Key to Police Effectiveness," Crime and Delinquency, October, 1966. Paul, Anthony R. ”Crime Prevention-4Where Do We Stand?", Report of the Crime Prevention Committee, The Police Yearbook, 1959. Pierce, Lawrence W. "VIE + ECP (ICI) . EDC," (Vigorous Law Enforcement Plus Effective Crime Prevention Coupled with Increased Community Involvement Add Up to Effective Delinquency Control), The Police Chief, October, 1962. "Police Training Practices Relating to Juvenile Delinquency," The Police Chief, January, 1963. Schrotel, Stanley R. "Developing Leadership for Delinquency Control," The Police Chief, August, 1961. Solomon, Ben. "Curfews: Valuable or Worthless?", Police, May—June, 1961. Swanson, Lynn D. "Police and Children," The Police Chief, 1958. Turnbladh,‘Will C. "A New Force Enlisted to Fight Crime with Knowledge to Get Action Where It Counts," Police, May-June, 1957. Watson, Nelson A. "Analysis and Self-Criticism in Juvenile Work," The Police Chief, June, 196A. Wattenburg, William W. and.Noe1 Bufe. "The Effectiveness of Police Youth Bureau Officers," The Journal.o£ Criminal Law, Criminology and Police Science, December, 1963. Wilson, James Q. "The Police and Their Problems: A Theory," Public Policy-- Graduate Yearbook for Public Administration, Harvard University, 1963. Winters, John E. "The Role of the Police in the Prevention and Control of Delinquency," Federal Probation, June, 1957. 123 C . UNPUBLISHED MATERIALS "The Administration of Crime and Delinquency Prevention Programs," Mimeo- graphed Information Paper. The School of Police Administration and Public Safety, Michigan State University, 1962. Brennan, Dr. James J. "Course Lectures," PLA #52, The Administration of Crime and Delinquency Prevention Programs. The School of Police _— Administration and Public Safety, Michigan State University, Winter Term, 1963. Brennan, Dr. James J. and Donald W. Olmsted. "Training Police in Delin— quency Prevention and Control," WCrking Papers for National Institute of Mental Health Research Project. The School of Police Administra- tion and Public Safety, Michigan State University, l96h. Carnes, Robert M. and John W. Ryan. "Police Training for Delinquency Pre— vention and Control--An Appraisal," mimeographed paper. Madison, Wisconsin, Police Department, 1961. "Detroit Police Department Youth Bureau," a mimeographed department history. Detroit Police Department, Detroit, Michigan, 1963. Gallati, Robert R. J. "Planning and Research in Law Enforcement, As Re- lated.to the Public View of the Police." Paper read at the Tenth Annual Police and Community Relations Institute, Kellogg Center, Michigan State University, May 17-22, 196%. Galvin, Raymond A. "Course Lectures and Class Discussion," PLA 320, Police Administration. The School of Police Administration and Public Safety, Michigan State University, Fall Term, 1963. Guthrie, Charles R. "Law Enforcement and the Juvenile: A Study of Police Interaction with Delinquents." Unpublished doctoral dissertation, The University of Southern California, Los Angeles, 1962. Hogan, Father William E. "The Role of Religion in the Prevention of Crime and Delinquency." Sacramento, California: Area Youth Con- ference--First Christian Church, 1965. (Mimeographed.) International City Managers' Association. "Inter-Agency Coordination of Juvenile Delinquency Control Programs," Management Information Ser- vice Report. 1966. Metzler, Kurt W. "Causative Factors of Juvenile Delinquency," Police Academy Training Paper. Chicago, Illinois, 1965. 12A "The Role of the Police in Juvenile Delinquency, Report Summary." The Committee on Juvenile Delinquency, jointly for The International Association of Chiefs of Police and The New York City Police Depart- ment. (n.d.) Shoults, Sanford W. "Administrative Concepts Involved in Coordination of Youth Crime Prevention Efforts by Police." Paper presented at I.A.C.P. Police Juvenile Officer Training Seminar, San Dimas, Calif- ornia, 1965. Swanson, Lynn D. "Police Processing of Juvenile Cases," Professional Paper. The Institute on Juvenile Delinquency, Washington, D. C., 1962. Swinney, Vincent G. "A Narrative Brief on Possible Improvements in Youth Services." Unpublished term paper, The School of Police Administra- tion and Public Safety, Michigan State University, 1963. "Techniques of Law Enforcement in the Treatment of Juveniles and the Pre- vention of Juvenile Delinquency, Report Summary." The National Ad- visory Police Committee to the Federal Security Administrator, 19hh. Vanderbosch, Charles. "Police Officers and Social Problems," Training Paper. Chicago Police Department Training Academy, (n.d. . Wilson, 0. W. "Youth Group Intelligence Unit," Administrative Report. Chicago Police Department Youth Division, (n.d.). Yinker, J. Milton. "Who Are We?" Paper presented to Northern Ohio Institute on Police and Community Relations, l96h. APPENDIX A 4:— «J ox v1, 10. 11. 13. 1h. 15. 126 APPENDIX A MICHIGAN STATE UNIVERSITY College of Social Science School of Police Administration and Public Safety INTERVIEW SCHEDULE - JUVENILE OFFICER What is the purpose of police in juvenile work? What should be the juvenile officer's duties in fulfilling this purpose? What behavior do you consider delinquent? What do you think causes delinquency? In this community what are your biggest delinquency problems? Do adults contribute to delinquency? Yes No If yes to 6; How do adults contribute to delinquency? If yes to 6; What can police do about adults who contribute to the delinquent behavior of juveniles? If yes to 6; What can the community, other than the police, do about such adults? What in your community contributes to the problem of delinquency? What in your community helps prevent delinquency? How were you chosen for the job of juvenile officer? Full time juvenile officer: ‘What are your duties as a juvenile officer? Part time juvenile officer: What are your duties as a juvenile officer? What are your other police duties? Have him rank duties according to time spent. Are your juvenile work duties set forth in department rules and policies? Yes No If yes; Are these rules and policies written? Yes No 16. 17. 18. 19. 20. 21. 22. 23. 2h. 25. 26. 27. 28. 29. 30. 31. 32. 127 If yes; Obtain a copy where possible! If no; Question the officer concerning the policies which govern his juvenile work duties. Are there any offenses which you feel should always be petitioned into probate court? Yes No If yes to 16; 'What are these offenses? If yes to 16; What reasons do you have for always petitioning these offenses into probate court? Are there any offenses which you feel should never be petitioned into probate court? Yes No If yes to 19; 'What are these offenses? If yes to 19; ‘What reasons do you have for never petitioning these offenses into probate court? On cases not petitioned into probate court what action is taken? (Probe on effectiveness of these actions) Do you seek advice from anyone outside of the department before deciding what to do with a case? Yes No If yes to 23; For what type of cases is this advice sought? If yes to 23; Who is contacted? Who, in this department, makes the final decision concerning the disposition of a juvenile case? How is this decision made? Are there some types of cases on which you keep no records? Yes No If yes to 28; 'What type of cases are these? At the time of the disposition of a case involving a juvenile delinquent, what is told the individual delinquent? At the time of the disposition of a case involving a juvenile delinquent, what is told the delinquent's parents? How do you get your cases? (If given a list of sources as the answer, then have him rank according to frequency of source) 33- 3h. 35- 36. 37- 38. 39. 1+0. 111. A2. l+3. Ah. 1+5. #6. 1+7. 1+8. 128 How do you think the rest of the department feels about juvenile work? Who handles cases involving juvenile girls coming to the attention of the Police? Do you believe a policewoman is important in police juvenile work? Yes No If yes to 35; What should the policewoman's duties be? Are there juvenile gangs in your community? Yes No If yes to 37; Are they a problem? Yes No If yes to 38; What is being done about the problem? In your community do you have juveniles who use narcotics? Yes No If yes to MO; What is being done about the problem? Is the use of liquor by juveniles a problem in your community? Yes No If yes to A2; What is being done about the problem? Is sexual activity among juveniles a problem in your community? Yes No If yes to Ah; What is being done about the problem? Are juveniles able to obtain pornographic materials in your community? Yes No If yes to 1+6; What is being done about the problem? What can communities do to counteract juvenile delinquency? (If Officer asks for clarification of question, refer back to the types of delinquency you have just discussed with him) APPENDIX B :- CONO\\J1 10. 11. 13. 11+. 15. 16. 17. 130 APPENDIX B MICHIGAN STATE UNIVERSITY College of Social Science School of PoliCe Administration and.Public Safety INTERVIEW SCHEDULE - IMMEDIATE SUPERVISOR What is the purpose of police in juvenile work? What should be the juvenile officer's duties in fulfilling this purpose? What behavior do you consider delinquent? What do you think causes delinquency? In this community what are the biggest delinquency problems? How did police juvenile work start in this department? When did it start? What divisions have you worked in? How does an officer become assigned to juvenile work in your department? What are the juvenile officer's responsibilities? Does the juvenile officer have any other responsibilities be- sides juvenile work? Yes No I: yes pop#ll, what are these responsibilities? Who, in this department, makes the final decision concerning the disposition of a juvenile case? How is this decision made? Are there any offenses which you feel should always be petitioned into Probate Court? Yes No I: yes po_#l5, what are these offenses? '1: yes Eo.#15, what reasons do you have for always petitioning those offenses into Probate Court? 18. 19. 20. 21. 22. 23. 131 Are there any offenses which you feel should never be petitioned into Probate Court? Yes No If yes Eo_#l8, what are these offenses? I: yes £o_#18, what reasons do you have for never petitioning these offenses into Probate Court? On cases not petitioned into Probate Court what action is taken? (Probe on effectiveness of these actions) Do you have any future plans for your police juvenile work? What can communities do to counteract juvenile delinquency? “'11'1'11'11'111'11'" '5